Raja Todar Mal

Raja Todar Mal (c. 1500–1589 CE) was one of the most distinguished ministers in the court of Emperor Akbar, serving as the Finance Minister (Diwan-i-Ashraf) of the Mughal Empire. Renowned for his administrative genius, he was the chief architect of Akbar’s revenue reforms, especially the Dahasala or Zabt System, which became the foundation of Mughal fiscal administration.
He was also one of the celebrated Navaratnas (Nine Gems) in Akbar’s court and played a pivotal role in shaping the empire’s economic stability and governance.

Early Life and Background

• Raja Todar Mal was born into a Kayastha family in Laharpur, Uttar Pradesh, or according to some sources, in Jaunpur.
• He began his career under Sher Shah Suri, serving in the revenue department. His early exposure to Sher Shah’s survey and land revenue system deeply influenced his later work under Akbar.
• After the fall of the Sur dynasty, he entered Akbar’s service and gradually rose to become the Finance Minister of the Mughal Empire due to his exceptional administrative skills, accuracy in accounting, and integrity.

Service under Akbar

Todar Mal first served as Akbar’s revenue officer in Gujarat and Agra. His efficiency earned him Akbar’s trust, and in 1580 CE, he was appointed as the Diwan-i-Ashraf (Finance Minister) of the empire.
Under Akbar’s direction and Todar Mal’s execution, the Mughal Empire underwent a remarkable transformation in its revenue administration, financial management, and record-keeping systems.

Major Contributions

1. Introduction of the Dahasala (Zabt) System (1580 CE):

• Todar Mal introduced the Dahasala System, which standardised land revenue assessment based on a ten-year average yield and price of crops.
• It fixed the state’s share at one-third of the average produce value, payable mainly in cash, though kind payments were also allowed.
• This system eliminated arbitrariness in taxation and ensured fairness for cultivators.
• It was implemented in major Mughal provinces such as Delhi, Agra, Lahore, and Malwa, and remained the backbone of Mughal revenue administration for decades.

2. Land Measurement and Survey:

• Ordered a comprehensive land survey using a uniform measurement unit called the Ilahi Gaz (yard), introduced during Akbar’s reign.
• Divided land into categories based on fertility and productivity:
  • Polaj: Regularly cultivated fertile land.
  • Parauti: Land left fallow for one or two years.
  • Chachar: Land left uncultivated for 3–4 years.
  • Banjar: Uncultivated or waste land for over 5 years.
• This classification ensured accurate assessment and equitable taxation.

3. Systematic Record Keeping:

• Introduced detailed registers (Dastur-ul-Amal) to record land measurements, crop yields, and revenue rates.
• Appointed revenue officers at different levels — Amil (collector), Qanungo (record keeper), and Patwari (village accountant) — to ensure efficient data management.

4. Standardisation of Weights and Measures:

• Introduced uniform weights and measures throughout the empire to prevent corruption and regional disparities in taxation.

5. Administrative Efficiency:

• Divided the empire into Subas (provinces), further divided into Sarkars (districts), Parganas (sub-districts), and Villages, streamlining governance and accountability.
• Ensured strict supervision of officials and regular audits to prevent revenue leakages.

6. Introduction of the “Ain-i-Dahsala” Code:

• The Ain-i-Dahsala codified revenue collection methods and regulations, compiled later by Abu’l Fazl in the Ain-i-Akbari.
• It reflected Todar Mal’s scientific and rational approach to governance.

Role in Akbar’s Administration

Raja Todar Mal’s reforms went beyond revenue collection — they embodied Akbar’s vision of good governance (Sulh-i-Kul) and rational administration.

• His system was based on fairness, transparency, and efficiency, benefiting both the state and peasants.
• It brought financial stability to the Mughal Empire, making it one of the most prosperous empires of its time.
• Akbar highly valued Todar Mal’s advice, often consulting him on administrative and fiscal matters.

Character and Personality

Raja Todar Mal was known for his:

• Integrity and discipline: Famous for honesty in handling finances.
• Administrative acumen: Combined practical experience with foresight.
• Humanitarian outlook: Ensured fairness in taxation to avoid peasant distress.
• Loyalty: Remained devoted to Akbar and the ideals of efficient governance.

He was respected equally by Hindu and Muslim nobles in the court for his impartiality and competence.

Death and Legacy

• Raja Todar Mal died in 1589 CE, after nearly four decades of dedicated service to the Mughal Empire.
• His reforms continued to influence Indian administration long after his death — both under the later Mughals and during the British colonial period, when systems like the Permanent Settlement and Ryotwari System adopted aspects of his model.
• His name became synonymous with fiscal discipline and scientific governance.

Historical Importance

1. Pioneer of Fiscal Administration:
   • Established a rational, data-driven approach to revenue collection.
2. Foundation for Later Systems:
   • His revenue principles formed the basis for future administrative systems in India.
3. Symbol of Good Governance:
   • Embodied Akbar’s vision of justice, efficiency, and inclusivity.
4. Cultural Integration:
   • As a Hindu serving in a predominantly Muslim administration, he exemplified the Mughal policy of religious tolerance and merit-based appointments.