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Chandragupta Maurya and His Times c8.s4: Rules of Administration and Service

Chandragupta Maurya and His Times c8.s4

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Rules of Administration and Service

c8.s4.1

The rules by which the Heads of Departments are to administer them are indicated by Kauṭilya [II. 9]. The fundamental duty of each departmental Head is to see that he can balance the budget of his Department so as to be able to realise the receipts of revenue estimated. Heads of Departments are called *Adhyakshas* by Kauṭilya and also under the general name of *Upayuktas* or superior officers (*yuktānāṁ upari niyuktāḥ*). The Head of a Department is to be appointed by his fitness (*śaktitaḥ*) for it. He should work according to instructions (*yathāsandeśam*) and should not commence any costly schemes without previous sanction except to meet emergencies 'due to fire or flood.' Strict discharge of duty or work done better than instruction is to be rewarded with promotion and honours (*sthānamānau*). One should not realise more than estimated revenue. For this will be "eating up the country" (*janapadaṁ bhakshayati*). The main business of the Head of a Department is to check the accounts of income and expenditure both by general and detailed examination.

c8.s4.2

It will be seen that most of the Heads of Departments are to work at mofussil centres and in the interior of the country. There the Head of a Department is to keep eye on people who are drifting towards bankruptcy by spending away all their ancestral assets (*mūlaharaḥ*), or those who are spendthrifts and do not save but live from hand to mouth (*tādāttika*), or those who are contemptible misers (*kadarya*) and save by famishing themselves and their dependents (*yobhṛityātmapīḍābhyāmupachinotyartham*). He should particularly keep a watch on the monetary transactions of the rich capitalists and see how they hide their wealth by hoarding it in their homes in secret places under-ground or in holes in pillars (*sva veśmani bhūgarta-stambhakoṭarādishu*); or by depositing with others, urban or rural people (*avanidhatte paurajānapadeshu*); or by spiriting it away to foreign countries (*avasrāvayati paravishaye*). Such people are potential dangers to the State to whose prosperity they do not make their due contributions by evading and avoiding taxation.

c8.s4.3

Since the chief concern of the Head of a Department is thus finance and solvency, he is to be associated with a number of appropriate officers to assist him in his work. These are mentioned as Accountant (*Saṅkhyāyaka*), Scribe (*Lekhaka*), Examiner of coins (*Rūpadarśaka*), Treasurer (*Nīvīgrāhaka*), and their superior officer (*Uttarādhyaksha-auparika*). These superior officers are to be recruited from retired military officers (*Vṛiddhabhāvādinā yuddhākshamatvam*).

c8.s4.4

It is also provided that each Department should have a number of sectional Heads (*bahumukhyam*), but they should be appointed on a temporary and not a permanent basis (*anityam*). 'Permanent service by its security is liable to make its incumbent independent and mischievous, while the country people (*Jānapadāḥ*) have no interest in reporting his defects.'

c8.s4.5

The authorities are asked to guard against embezzlement to which government servants dealing with large amounts of receipts are liable. It is difficult to detect embezzlement, just as it is difficult to detect fishes drinking in water as they swim in it. Officers found guilty of corruption or embezzlement are to be proceeded against and made to refund the public money embezzled (*Āsrāvayechchopachitān*). They will be further punished by being degraded to lower posts (*viparyasyechcha karmasu viparyasyet vyatyayena niveśayet uchchakarmasthānebhyovaropya nīchakarmasthaneshu niyuñjīta*). The two punishments for embezzlement are thus (1) *Āsrāvaṇa* (refunding) and (2) *Viparyasana* (degrading). On the other hand, those officers who distinguish themselves by not merely abstaining from embezzlement of public revenue but even by increasing it in accordance with law (*nyāyataḥ*) will be made permanent in their service (*nityādhikārāḥ*).

c8.s4.6

The rules of Service show that there was a period of probation for every government servant, which was followed by his confirmation on approved work.

c8.s4.7

**Grades of Pay and Service.** The entire Civil Service was of different grades and scales of salary attaching to each grade. Kauṭilya gives an account of these grades [V. 3] which very well show the vastness and complexity of the administrative machinery that was created to look after the manifold interests and requirements of the country. Kauṭilya, however, lays down the rule of administration that its establishment charges should not exceed a fourth of total provincial revenue (*Durga-janapadaśaktyā bhṛityakarma samudayapādena sthāpayet*) [V. 3]. His account of the grades of officers in terms of salary may be thus presented:

c8.s4.8

Grade of salary 48,000 *paṇas

c8.s4.9

1. Prime Minister (*Mantrī*).
2. Chief Priest (*Purohita*).
3. Commander-in-chief of the army (*Senāpati*).
4. Crown-prince (*Yuvarāja*).

c8.s4.10

The following members of the royal family and household also received the same allowance: the king's Preceptor (*Āchārya*), sacrificial priest (*Ṛitvik*), Queen (*Rāja-Mahishī*), and the Dowager Queen (*Rāja-mātā*).

c8.s4.11

Grade 24,000 *paṇas

c8.s4.12

1. The Warden of the Palace (*Dauvārika*).
2. The Overseer of the Harem (*Antarvaṁśika*).
3. The Officer in-charge of military camps (*Praśāstṛi*).
4. The Collector-General (*Samāhartṛi*).
5. The Treasurer-General (*Sannidhātṛi*).

c8.s4.13

Grade 12,000 *paṇas

c8.s4.14

1. The Prefect of the city (*Paura-vyāvahārika*).
2. Superintendent of Agriculture and Forests (*Kārmāntika*).

c8.s4.15

3. The Members of the Council (*Mantri-parishat*).
4. Provincial Governor (*Rāshṭra-pāla*).
5. The Warden of the Marches or Frontiers (*Antapāla*).
6. The Commandant of the Cavalry (*Kumāra Aśvānucharaḥ*).
7. Commander of a Company of Eighty (*Kumāra-mātā aśītijananetā*).
8. Commandant of the Infantry (*Nāyaka Padātinetā*).

c8.s4.16

Grade 8,000 paṇas

c8.s4.17

1. Chiefs of the warrior-clans (*Śreṇī-mukhyāḥ*).
2. The commanders of elephants, chariots, cavalry and infantry (*Hastyaśva-ratha-mukhyāḥ*).
3. The Judge (*Pradeshṭā*).

c8.s4.18

Grade 4,000 paṇas

c8.s4.19

1. The Superintendents of Infantry, Horses, Chariots and Elephants (*Pattyaśva-ratha-hastyadhyakshāḥ*).
2. The Superintendents of (a) Timber-forests (b) Elephant-forests (*Dravya-hasti-vana-pālāḥ*).

c8.s4.20

Grade 2,000 paṇas

c8.s4.21

1. The teacher of Charioteering (*Rathika*).
2. The physician and surgeon (*Chikitsaka*).
3. The trainer of horses for the army (*Aśva-damaka*).
4. The carpenter or mechanic for the army (*Vardhakiḥ*).

c8.s4.22

5. The rearers of animals (*Yoniposhakāḥ*).
6. The trainer of elephants (*Anīkasthaḥ*).

c8.s4.23

Grade 1,000 *paṇas

c8.s4.24

1. The Foreteller (*Kārtāntika*).
2. The Diviner (*Naimittika*).
3. The Astrologer (*Mauhūrtika*).
4. The Reader of Purāṇas (*Paurāṇika*).
5. The Charioteer (*Sūta*).
6. The Bard or Ministrel (*Māgadha*).
7. The Priestly Staff (*Purohita-purushāḥ*).
8. All Departmental Superintendents (*Sarvādhyakshāḥ*).

c8.s4.25

Grade 1000-500 *paṇas

c8.s4.26

1. Chief (*Ārya*) of a class.
2. Skilled trainer of untamed horses and elephants (*Yuktārohaka*).
3. Experienced Detective (*Māṇavaka*). (recruited from criminal classes).
4. Builder in stone (*Śailakhanaka*) or State Sculptor.
5. Teachers of Music, preceptors, and specialists in *Dharma*-and *Artha-śāstras* to receive above as honorarium, as their services are available for the public (*Sarvopasthāyina āchāryā vidyāvantaścha pūjāvetanāni*).

c8.s4.27

Grade 500 *paṇas

c8.s4.28

1. Foot-soldiers (*Pādāta*).
2. Accountants (*Saṅkhyāyaka*).
3. Clerical staff (*Lekhaka*).
4. Artists (*Śilpavantaḥ*).
5. Directors of Music (*Tūrya-karāḥ*).

c8.s4.29

Grade 250 *paṇas

c8.s4.30

Musicians (*Kuśīlavāḥ*).

c8.s4.31

Grade 120 *paṇas

c8.s4.32

Skilled artisans (*Kāru-śilpī*).

c8.s4.33

Grade 60 *paṇas

c8.s4.34

1. Menial staffs (*Parichāraka*) in charge of animals and birds and their chiefs (*Pāri-karmika*).
2. The king's personal attendants (*Aupasthāyikaśarīra-parichāraka*).
3. Cowherds (*Gopālakas*).
4. Labourers (*Vishṭi*).
5. Trappers (*Bandhaka*).

c8.s4.35

Couriers (*Dūtas*) are to be paid ten *paṇas* for carrying messages up to ten yojanas; twenty *paṇas* for a distance up to hundred yojanas.

c8.s4.36

Special pay is to be given on occasions of *Rājasūya* to Mantrī and Purohita, which may be three times their usual salary. The king's charioteer is to be paid 1,000 on that occasion.

c8.s4.37

Spies of different classes are to get 1,000 *paṇas*.

c8.s4.38

The village staff (such as washermen and spies) are to get 500.

c8.s4.39

Attendants of spies are to get 250 *paṇas* or more in proportion to work (*prayāsa-vṛiddhavetanā vā*).

c8.s4.40

Government servants of grades (*varga*) from 100 to 1,000 are to be placed under *Adhyakshas* who will determine their subsistence, wages, rewards, instructions (*ādeśa*), and assignment of work (*vikshepa*).

c8.s4.41

When there is no work (*avikshepa*), they will be transferred to take charge of looking after Government buildings (*rājaparigraha*), fortifications (*durga*), and the defences of the realm (*rāshtrarakshā*).

c8.s4.42

**Pensions.** There were some very generous and humane regulations which added to the attractions of the public service. When an officer died in the discharge of his duties, his sons and wives were entitled to a subsistence allowance (*bhakta-vetana*) from the State. Consideration was also shown to such dependents of the deceased officer as were incapacitated from earning their livelihood, e.g. infants, aged and afflicted persons.

c8.s4.43

**Payments in Cash or Kind.** Payments of salaries might be made both in cash and kind. When short of money, the king paid the salary in forest produce, cattle, or land for cultivation, together with some cash. But payment in cash was the rule when new colonies or settlements were projected [V. 3].

c8.s4.44

It is to be noted that grants of land were also made without the right of alienation (*vikrayādhānavajram*) to officers like (1) *Adhyaksha* (2) *Saṁkhyāyaka* (Accountant) (3) *Gopa* (4) *Sthānika* (5) *Anīkastha* (elephant-trainer) (6) *Chikitsaka* (physician) (7) *Aśvadamaka* (trainer of horses) and (8) *Jaṁghārika* (*Jāṁghika*, courier) [II. 1].

c8.s4.45

Special scales of pay were granted in accordance with qualifications and administrative efficiency shown (*vidyākarmabhyāṁ bhaktavetanaviśeshaṁ cha kuryāt*).

c8.s4.46

These were the Civil Service regulations which determined and governed the appointments, pay, prospects, and grades of the men who carried on the complex and difficult work of administration from day to day.

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