1. Introduction and Administrative Zones
While the preceding Afghan administration made no significant changes and focused only on revenue collection, the Mughals introduced an efficient and elaborate administrative system. The most distinct feature of this era was the division of Odisha into two political zones:
- Mughalbandi: These were the coastal belt areas that remained under the direct administration of the Mughals.
- Garjats: These were the princely states, mostly located in hilly regions, ruled by tributary chiefs and native kings.
2. Revenue Administration: The Tankhwah Raqmi
The primary motive of the Mughal administration was to extract a huge amount of revenue from the soil of Odisha. To achieve this, Todarmal (Akbar’s revenue minister) introduced a settlement (bandobast) in Odisha in 1582 A.D..
This system was famous as Tankhwah Raqmi. Raja Man Singh gave a final shape to Todarmal's system in 1593 A.D..
The Five Sarkars
Under Todarmal's settlement, Odisha was divided into five Sarkars:
- Jaleswar Sarkar: Extending from river Rupnarayan to Budhabalanga.
- Bhadrak Sarkar: Extending from river Budhabalanga to Brahmani.
- Cuttack Sarkar: Extending from river Brahmani to Chilika lake.
- Kalingadandapat: Covering South Odisha.
- Rajahmundry: Covering North Andhra.
3. Administration of Garjat States
The Garjats acknowledged the suzerainty of the Mughals. The native kings retained their administration by paying a fixed annual Peshkash (tribute). These hereditary chiefs were acknowledged as hereditary fiefs in zamindari tenure.
Key Feature: The Raja of Khurda held a key position among the zamindars, with thirty small zamindars under him (e.g., Banki, Athgarh, Talcher, Nayagarh). In the Garjat administrative structure, the feudatory kings were called Zamindars, and the head of the Garh (fort) was conferred the title of Quilladar.
4. Reforms under Aurangzeb and Murshid Quli Khan
Drastic changes occurred in revenue administration during the reign of Aurangzeb. In 1728 A.D., the Deputy Subedar Murshid Quli Khan introduced a new system known as Jamma Kamal.
Key Changes:
- The revenue rate was specified in terms of cowrie currency.
- Odisha was re-divided into 12 Sarkars having 258 Mahals.
- Despite these systems, misappropriation of revenue was rampant as the central authority in Delhi was too far to effectively monitor collections.
5. Administrative Hierarchy and Officers
The Mughals utilized a specific hierarchy for revenue and general administration. The unit divisions and their respective heads were as follows:
| Administrative Unit | Head Officer |
|---|---|
| Sarkar | Faujdar |
| Mahal | Choudhury |
| Taluq | Taluqdar |
| Mauja (Last unit) | Muquddam |
Additionally, Quanungoes played a dominant role alongside Choudhuries and Muqaddams in revenue collection. To prevent corruption and entrenchment, the Mughals practiced the frequent transfer of governors.
6. Religious Policy and Impact
While Akbar and Shah Jahan were tolerant, Aurangzeb adopted a hostile attitude towards the Hindus of Odisha.
- Temple Destruction: He ordered the destruction of newly built temples (e.g., at Tilkuti in Medinapura) and prohibited the repair of old ones.
- Taxation: He reimposed the Pilgrim Tax on Hindus visiting the Jagannath Temple.
- Jagannath Temple: The administration of the temple at Puri suffered a setback, and festivals could not be performed on time.
- Islamic Patronage: Huge lands known as Madad-i-mash (grant of land for religious purposes) were granted to Ulemas, Maulavis, and holy men (e.g., Shaikh Abul Khair of Golpara).
7. Conclusion
The Mughal administration brought Odisha under a uniform administrative orbit. However, due to the frequent change of governors, the administration was not always discharged smoothly. Economically, Odisha was not as prosperous as it was during the Hindu period, though it fared better than under the subsequent Maratha period. The Mughal rule was eventually succeeded by the Nizams of Bengal before the Maratha occupation.