There is very little information about Babur’s administration in Hindustan. He did not have enough time to familiarize himself with Indian conditions and experiment with reforms. Although he had competent commanders, he did not have a Todar Mal to advise him on agricultural matters. Unlike his grandson Akbar, Babur’s talent lay in waging wars, not in administration. He squandered the wealth accumulated by the Lodi kings, causing a significant financial crisis. Despite these shortcomings, Babur took several measures to improve his administration and establish a strong centralized government.
- Theory of Kingship
Babur's primary task in India was to establish both respect and administrative fear among the conquered people, and for this, the recognition of the ruler’s omnipotence was essential. Babur emphasized the divine theory of kingship, viewing kingship as a divine radiance that illuminates the emperor. In 1508, Babur adopted the title of Padshah, aiming to prove his superiority over his contemporaries. In a letter to his son Humayun in 1529, he wrote, "There is no bond greater than kingship. Solitude or a lazy life is not appropriate for kings." He advised Humayun to consult with capable and experienced nobles and allies in state affairs and to order nobles to present themselves before him twice in a day for state matters.
Babur's advice to Humayun is noteworthy. "The land of Hindustan is inhabited by people of all religions. Al-ham-dulil-lah, the kingship of this country has been entrusted to you. Remove bias from your heart and do justice. Especially, do not sacrifice cows. This will win the hearts of the people of Hindustan and they will connect with the kingship. Do not demolish the places of worship of those living in the sultanate. Administer such equal justice that people are happy with their king and the king is happy with the people. Islam will spread not by the sword of oppression but by gentleness. Turn a blind eye to Shia-Sunni disputes, or else Islam will weaken."
- Central Government
Babur borrowed the structure of the central government from the Timurids. He was the executive, military, and judicial head of the government; however, understanding the importance of consultation, he formed a general council of his ministers (viziers) and prominent Mughal, Turkish, and Indian nobles, whose advice he sought before making any decision. Additionally, he had an inner council that included Mir Khalifa, Qamber Ali Beg, Tardi Beg, Hindu Beg, Arish Khan, and a few others, who met in an inner chamber (Khilwat- Khana) of the palace.
- Khwaja Nizam-ud-Din Ali Barlas
After Babur, the most important person in the state was Khwaja Nizam-ud-Din Ali Barlas, commonly referred to as Mir or Amir Khalifa. It is unclear from sources what the official designation of Khalifa was, but due to Babur's attitude towards him, some scholars believe he was a vizier. While Bakhshi Nizamuddin calls him Vakil-i- Sultanat and Badauni gives him the title of Vakil and Wazir Mutlaq, Abul Fazl states: "He held a high position under His Majesty and was a pillar of Babur’s government."
- Diwan
The Diwan was in charge of revenue and finance, making him a very important official. He oversaw the work of provincial diwans and collected revenue from provinces and taxes from jagirdars and zamindars. All this money was deposited in the treasury at Agra, managed by the Khazin (treasurer). The Diwan also maintained a register for the payment of soldiers' salaries. However, it is unclear whether the salaries were directly distributed by his department or through the Bakhshi. The Baburnama does not mention any other powers that the Diwan might have had.
- Bakhshi
The Bakhshi was in charge of the military department. Like the Diwan, he kept a register of soldiers, which he showed to the Padshah, to whom he had direct access. The Bakhshi’s duties included recruiting soldiers, inspecting horses and equipment, posting commanders before battle, and obtaining orders from the emperor. The Bakhshi was also involved in the distribution of soldiers’ salaries.
Diwan-i-Buyutat (Public Works Department)
This was an important department headed by Mir Muqim Haravi, the father of Bakhshi Nizamuddin. Under Akbar, the department head was in charge of government factories and stores, but since Babur had no factories to maintain, he was responsible for Babur’s construction activities—building wells and palaces and organizing gardens. The officer called Samanchi was the storekeeper under the Diwan-i-Buyutat.
Other Officials
- Aishak Agha: In charge of gatekeepers.
- Parvanchi: A secretary who wrote royal orders.
- Shaghawal: Chief clerk.
- Tawachi: Special messenger.
- Yasawal: Transmitted orders and enforced them.
- Qarawal: Acted as a scout during war and a hunter during peace.
- Qurchi: Weapon bearer or bodyguard.
- Bakawal: Taster—called Chashnigir in Hindustan.
- Kushbegi: Superintendent of aviaries (falcons, pigeons, etc.).
- Mir Akhwar: Supervisor of the royal horses.
- Akhtebegi: In charge of castration.
- Khazin: Treasurer.
- Qurbeqi: Keeper of the armory.
- Kitabdar: Librarian.
- Qissah-Khwan: Storyteller.
- Sheikh-ul-Islam: Chief Kotwal of major cities.
- Muhtasib: Censor of morals.
Provincial Government
Babur continued the provincial administration of the Lodis for the most part. The state was divided into approximately twenty provinces, further subdivided into parganas, each comprising a large number of villages.
The Hakim was the executive and judicial head of the province, while the Diwan was its financial head, overseeing pargana accounts. Appointed by the emperor, the Diwan's financial responsibilities allowed him to exert some control over ambitious governors. Another important provincial officer was the Bakhshi, whose duties in the province mirrored those of the central Bakhshi. The Qazi was the head of judicial administration, but the Hakim also decided cases, especially appeals. The Khazin was in charge of the provincial treasury. The Sadar was responsible for the religious department.
The Shikdar was the executive and military head of the pargana. Other pargana officers included:
- Aamil: Collected revenue.
- Khazin: In charge of the pargana treasury.
- Kanungo: Responsible for revenue supervision and assessment.
- Amin: Surveyed the land for revenue assessment.
Village administration continued as before with its panchayat and village officials—Muqaddam (headman) and Chaudhary (chief of three or four villages) and Patwari, who kept the village revenue records.
Babur’s administrative system was not free of flaws; there was neither uniformity at various levels nor proper coordination among different departments of administration. He paid little attention to the revenue system. However, Sheikh Abul Fazl later flattered him, writing: "He possessed in full measure the eight qualities essential for ruling the world. First, high destiny; second, lofty courage; third, the power to conquer the world; fourth, the ability to manage the kingdom; fifth, the effort to improve cities; sixth, concern for the welfare of the people; seventh, the ability to please the soldiers; and eighth, the power to prevent the army from spreading havoc."
