The Administration of the City of Delhi During the Sultanate

Author(s): FATIMA AHMAD IMAM

Source: Proceedings of the Indian History Congress, Vol. 48 (1987), pp. 179-186
Published by: Indian History Congress
Stable URL: https://www.jstor.org/stable/44141671
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27

The Administration of the City of Delhi

During the Sultanate
FATIMA AHMAD IMAM

1.1. The choice of Delhi as their capital by Delhi Sultans not on

resulted in making it perhaps the largest and most populous city in
Sultanate India, but also made it politically excessively importan
Besides, the Sultan a number of important nobles, naturally took re
dence in the capital along with their contingents and household
establishment. The control over the city of Delhi thus became a symb
of control over the entire Sultants for the rulers.2 The administration of
the city of Delhi, therefore, must have been of prime importance for the
Sultans and the Sultanate.

1.2. The fact that the appointments of the officials of Delhi were
always made along with the appointments for the key posts in the Sulta-
nate generally at the time of the accession of a Sultan,3 is an indication
of the great importance attached to the administration of Delhi city.
The officials of Delhi were so powerful that, at times, they decidcd the
fate of rival claimants of the throne.4

1.3. Delhi under the Sultans appears divided into two segments, namely,
Lashkargah (army camp area) and the Shahr (city proper).5 Sheikh
Nizamuddin mentions the Lashkargah as distinctly separate from Shahr .
His disciple, Amir Hasan Sijzi, used to come to Ghiyaspur and used to
offer prayer in the mosque of Kilogarhi; he (Nizamuddin Auliya) told
him that Lashkargah is better than Shahr *. Ghiyasuddin's Lashkargah
was Tughlaqabad which was eight kilometres away from the main city.7
Mohd Tughlaq in the beginning stayed in the city but later on shifted to
Tughlaqabad adding a small fortress of Adilabad to it.8 However, the geo-
graphical locations of the Lashkargah and the city did not remain fixed
during the reigns of various Sultans; what usually happened was that the
place where a Sultan fixed his camp after him was either abandoned or
became part of the old city, paving way for the emergence of a new camP
complex.9 Owing to the scarcity of information, it is not possible to bô
sure whether the Lashkargah and the city constituted separate adminis-
trative division as wdl.

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1.4. In spite of the fact that the administration of the capital city, was
so crucial, the information forthcoming from our sources about it, is
rather scarce, and in the absence of any direct description one has to
rely on indirect references scattered in the contemporary works, to guage
a tentative picturc of it. The administration of the city seems to have
been carried out mainly by two high ranking officials the koial and the
qazi. Though their duties and functions are not explicitly described any
where, it is still clear from whatever information we have that the qazt
was mainly responsible for dispensing justice and looking after matters
relating to religion10 and mystics11 and charities.

1.5. The kotwal had the mundane task of carrying out civil administra-
tion; he was also the keeper of the keys of the fort and, of course, the
city.12 The kotwal of Delhi seems to hold such an important position.
The symbolic acceptance of a person as Sultan was the handing over the
keys of the city by the kotwal to the claimants to the throne.12 The exis-
tence of the post of kotwal of Delhi can be traced right from the onset of
the Sultanate. Barani cities Fakhruddin Kotwal of Delhi as telling his
son-in-law and nephew in 688 (1289 A.D.) that

"My father started his career as the sultan's personal attendant and
rose to the position of kotwal which we have held for about eighty
years.14

1.6 Counting back eighty years from A. H. 688 one may assume that
Malik-ul Umara Fakhruddin's father Tajuddin15 was appointed the kotwal
in A.H. 608 corresponding to 1211-12, A.D. that is right at the beginning
of Iltutmish's reign. The appointment was not only permanent but also
almost hereditary. The kotwal of Delhi seems to have survived the long
drawn tussel (1236-66) for succession by Iltutmish's successors and com-
ing and going of at least five incumbents to the throne,16 and after him,
his son, Fakhruddin, succeeded to the post of kotwal of Delhi. In this
position Fakhruddin himself remained for two reigns (Balban 1266-86)
and (Kaiqubad 1288-90), and witnessed the so-called Khalji Revolution
while still holding the post. He, himself, attributes their unusually long
tenures to their neutrality and an aloofness from the maliks.17 Barani
says that it was the kotwal of Delhi, Malik-ul Umara Fakhruddin, who
was mainly responsible for placing Kaiqubad on the throne superseding
the claim of Khusrau Khan.18 It was perhaps this action that added to
his position and his name now appears in the list of Kaiqubadi nobles19
although he was quite highly placed even under Balban who conferred
upon him the title of Malik-ul Umara.*0

1.7. He was held in such high esteem by the Sultan that even the princes

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envied his closeness with the Sultan. Balban who has been depicted by
Barani ai extremely conscious of his status and one who always maintai-
ned a distance with his nobles has been reported by him to have ordered
that everyone should address Fakhruddin as his brother and when he
returned from Lakhnauti showed high respect to the kotwal demonstra-
tively and presented to him the robe he was wearing.21 It was not
surprising because the kotwal served him competently and loyally when
he was away from Delhi.22 The kotwal was made Incharge of the city
whenever Balban went outside the city.22 This practice was continued by
later Sultans also.

1 .8. The kotwal' s influence during the reign of Balban is well depicted
from the well-known episode, where the Iqtadars approached him to get
the order of their dismissal revoked and the Sultan took back his orders
which was an exception made by him for the kotwal of Delhi.24

1.9. When Khaljis came to power and intensified the militaristic charac-
ter of Delhi Sultanate,25 the position of the kotwal no more remained
stable. Fakhruddin died soon after the so-called Khalji Revolution.
Jalaluddin Khalji after proclaiming himself Sultan did not seem to have
received loyal support of the kotwal» of Delhi. A late authority tells
us26 that Mir Mohsin was involved in the conspiracy of Siddi Maula
and two kotwals Biranjan and Kathya Paik were executed after the
unsuccessful revolt.27

1.10. Under the more stable and very strict administration of Alauddin
Khalji the position of the kotwal seems to have undergone quite a few
changes. The size of the city definitely increased overtime and divisions
of the city, namely Shahr and Lashkargah, were now made two separate
administrative units placed under two different kotwals 28. The kotwal of
the capital still enjoyed high position and city was placed under the
charge of the kotwal by Khalji Sultans as well, whenever they left the
capital. When Alauddin Khalji was going to repulse Mongol invasion of
Qutlugh Khan, he told his kotwal, Ala-ul Mulk, "I am giving the kotwali
of the city, and leaving my harem treasury and subjects in your charge,
whoever is the victor in this battle hand over to him the keys of the
city.89 The KotwaVt position remained more or less the same under
Ghiyas-ud-din Tughlaq. When he won the battle against Khusrau Khan
the kotwal of Delhi handed over to him the keys of the city.30 He ap-
pointed Burhanuddin as his kotwal immediately after his accession.31

1.11. Interestingly enough, we have no reference of a kotwal during the

succeeding regin of Mohd Tughlaq. One may venture to say that the
post was either abolished or not filled by Mohd Tughlaq. During his

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 absence from the capital the heir-apparent was given the charge of the
city.31 Firuz Tughlaq's kotwal in the early years was Malik Nekamdi.
We know of two incumbents to the post under him, namely, Malik
Nekamdi and Hisamuddin.

1.12. Two of our authorities themselves held the post of Qazis of

Delhi, viz., Minhaj Siraj32 and Ibn Batuta33. The Qazis seem to have
held office for long periods, or once appointed till their death except in
the case of incurring the Sultan's displeasure by being involved in cons-
piracies against him. Under Mohd Tughlaq their stature seems to have
enhanced much. Ibn Batuta informs us that Sultan Mohd Tughlaq was
very particular regarding the enforcement of law. The place where the
Qazi used to administer justice was made very impressive and the
Sultan's younger brother was instructed to assist the Qazi ,34 When Ibn
Batuta was appointed the Qazi by Mohd Tughlaq he told him, "Do not
look upon the office of the Qazi of Delhi as one of the smallest things,
in our estimation, one of the greatest."35 Batuta has, also, cited details
of at least four caies against the Sultan in which the Qazi gave verdict
against the Sultan.36 Mohd Tughlaq in all the four cases accepted the
verdict of the Qazi, Once "one of the eminent Hindus filed a suit against
the emperor to the effect that he had killed his brother without any
cause, and had him summoned before the Qazi. The Emperor walked on
foot completely unarmed, before the Qazi' s court where he saluted and
bowed. Previous to his departure he had issued orders to the Qazi
instructing that he must not stand out of his regard for him, when he
appeared in the court. Accordingly, the Emperor attended the court and
stood before the Qazi, who gave judgement against him, ordering him to
pay compensation to the petitioner for causing death to his brother."
The Sultan bowed down to the Qazi' s verdict and complied to the orders
of the Qazi,'37

1.13. Besides, these two main officials looking after the routine jobs, we
also hear of some officials engaged in administration of Delhi, especially
when Alauddin Khalji's celebrated market control was effected, the
number of officers involved in the administration of the city, as well as
references about them in our sources increase tremendously. Barani
attributes the success of the price measures to the stren administrative
system. Of course, the measure must have necessitated the appointment
of quite a few officials in the city to enforce the regulations and for
checking the prices. The machinery of market control has already been
described in detail.38

1.14. Briefly speaking the concerned officials were as follows: The

enforcements of the measures was placed under the official known as

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Rďis who was the head of Diwan-i Riyasat ,39 Ra'is appointed shahnas
(controllers) for every market.40 The merchants dealing in different com-
modities and the different markets were placed under the shahnas , who
sternly ensured the supply of commodities to Delhi market regularly.41
The shahnas employed barlds who acted as spies and reported to them
the dealing in the market.42 Stern steps were taken to prevent under-
weighing by shop-keepers.43 Amir Khusrau reports that to prevent
under-weighing stone-weights were replaced by the iron weights.44 Be-
sides these officials the Sultan employed spies who reported the details
of market to him directly every day.45 After Alauddin Khalji his market
control too, disappeared and along with it perhaps the officers employed
for the purpose. The city remained under the jurisdiction of the kotwal
and qazi.

NOTES AND REFERENCES

1. Zia Barani, Tarikh-i Firuz Shaki , ed. S. Ahmad Khan, Bib. Ind., Calcutta,
Barani compares Delhi with Cairo and Baghdad; see also Shaikh al Um
Masalik-ul Absar , tr. Otto Spies, Aligarh, 1943, p. 33. He gives the size o
and remarks on its big area as reported to him by those who had visi
city.
2. It had often happened that among the rival claimants, whomsoever succeeded if
failed to gain control over Delhi lost the battle for succession, Barani, p. 239;
Abul Q. Firishta, Tarikh-i Firishta, Nawal Kishore, Kanpur, 1874,
p. 68.
3. Barani, pp. 130, 246, 428.
4. Barani, p. 122. The kotwal and kotwalian of the city made Kaiqubad the Sultan
instead of Khusrau Khan, the heir-apparent.
5. Barani, p. 176.
6. FawaVd-ul Fawa'id, conversations of Sheikh Nizamuddin Auliya of Delhi record-
ed (1307-22) by Amir Hasan, ed. Latif Malik, Lahore, 1966, p. 113.
7. Isami, Futuh-us Salatiti , ed. A.S. Usha, Madras, 1948, p. 412; Ibn Batuta, Rehla,
tr., Mehdi Hasan, Baroda, 1953, p. 25.
8. Barani, p. 476.
9. Ibid., pp. 176, 473.
10. Masalik-ul Absar , p. 33
11. Mir Khurd, Sair-ul Auliya , Delhi, 1885, p. 126. Nizamuddin Auliya was instructed
to show his khilafatnama (succession decree) to the Qazi of Delhi.
12. Barani, pp. 176, 246.
13. Barani, p. 246. On the accession of Alauddin Khalji keys were handed over to him
by the kotwal; Ibn Batuta, Rehla, tr. Mehdi Husain, Baroda, 1976, p. 49;
Ghiyasuddin Tughlaq was welcomed by the kotwal of the cit v.
14. Barani, p. 135. The post of kotwal is assumed to have been inherited by the Delh
Sultans from their Ghorian predecessors, Y.M. Siddiqui, The Office of Kotwal
under the Sultans of Delhi', PIHC. 1972, p. 190.
15. Barani has not given the name of Fakhruddin's father, Firishta, p. 69, mentions

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 the name of the kotwal of Delhi under Babram Shah as Tajuddin.
16. Iltutmish died in 1236, Ruknuddin (1236), Razia (1236-40), Bahram Shah (1240-
46), and Nasiruddin (1246-66).
17. Barani, p. 135. One may also add their loyahty to the Sultans as an additional
qualification. Tajuddin loyaly reported the conspiracy to overthrow Bahram Shah
by some nobles to the Sultan, Farishta, p. 69.
18. Barani, p. 123.
19. Barani, p. 107.
20. Firishta, p. 81.
21. Barani, p. 107; Firishta, p. SI.
22. Barani, p. 85; Firishta p. 81.
23. Barani, pp. 63-5.
24. Peter Jackson, 'Delhi : a Vast Military Camp , Delhi Through the Ages, ed. Fryken-
berg, Delhi, 1986, p. 20.
25. Farishta, pp. 354-55.
26. Barani, p. 210; Farishta, I, pp. 354-55; A.B.M. Habibullah in his article in Com-
prehensive History of India , Vol. V, Delhi, 1970, p. 320, held that these two kotwals
as is apparent from their names were not muslims.
27. Barani, pp. 278-80; Kotwal Tirmizi for shahr and Ahmad Ayaz for hisar-i
nau.

28. Barani, p. 256.

29. Rehla, p. 49.
30. Barani, p. 428.
31. Ibid., p. 509.
Afif, Tarikh'i Firuz Shahi, Bib. Ind., Calcutta, 1890, p. 334.
32. Minhaj Siraj, Tabaqat-i Nasiri , ed. Kbsdim Husain & Hayy, Bid. Ind
p. 483.
33. Rei Va, p. 129.
34. Rehla, p. 84.
35. Ibid., P. 129.
36. Rehla, pp. 83-84.
37. Rehla, p. 83.
38. Irfan Habib, 'The Price Regulations of Alauddin Khalji : A defence of Zia Barani*,
lESHR , V. 21, No. 4, 1984, pp. 393-414; see Cambridge Economic History of India
Vol. I, Delhi, 1984, pp. 86-89.
39. Barani, pp. 317-19; Rehla, p. 41.
40. Barani, pp. 317-19.
41. Barani, pp. 308, 311-12.
42. Ibid., p. 317.
43. Ibid., pp. 318-19.
44. Amir Khusrau, Khazain-ul Fut uh, ed. Wahid Mirza, Calcutta, 1953. td. 16-17
45. Barani, pp. 318-19.

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 APPENDICI

LIST OF KOTWALS OF DELHI

Name Period Reference

Tajuddin Reported to be holding Firishta, p. 69.

office in 1240
Fakhruddin From the reign of Barani, pp. 117, 177.
Balban in 1290
Malik-ul Umar Reported holding office Barani, p. 126.
in 1287

Biranjdan and Hatia Reported holding office Barani, p. 210; Firishta,

Paik in 1293-4 pp. 354-5.
Mir Mohsin Kotwal
Nusrat Khan Jalesri Appointed in Barani, p. 248.
1296
Alau-ul Mulk Reported holding office Barani, p. 256.
in 1299

Tirmizi & Ahmad Reported holding office Barani, pp. 278-80.

Ayaz in 1300
Malik Burhanuddin Appointed in 1321 Barani, p. 428.
Malik Nekamdi Holding office in early Afif, p. 334.
years of Firuz
Tughlaq
Hisamuddin Appointed in Afif, p. 505.
1376-77

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 APPENDIX-II

LIST OF QAZIS OF DELHI

Name Period Reference

MinhajSiraj Appointed in 1251 Minbaj, p. 483.

Ghiyasuddin Reported holding office Barani, p. 55.
during Balban's reign
Jalaluddin Kashani Holding office in Barani, p. 126.
1287-88
Ziauddin Sa'avi Appointed in 1290. Barani, p. 174.
Sadruddin Arif Appointed in 1296 Barani, p. 240.
Ziauddin Qazi Khan Reported holding office Barani, p. 379.
in 1374-75
Samauddin Appointed in 1321 Barani, p. 428.
Kamatuddin In office in 1325 Barani, p. 454.
ibn Batuta Appointed in 1334 Rebla, p. 129.

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