A Short Account of the Land Revenue and Its Administration in British India
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*.( ytXeOME! BOMBAY* yNlV-^-RSl"^ OP SAN Dl^GO 3 1822 01152 6852 LAND REVENUE AND TENURE IN BRITISH INDIA B. H. BADEN-POWELL Boniion HENRY TROWDE Oxford University Press Warehousk Amen Corner, E.C. Macmillan & Co,, 66 Fifth Avenue. A Short Account of the Lajid Revejiue aiidits Ad7ninistratio7t in British India; with a Sketch of the Land Ten^tres B. H. BADEN-POVVELL, CLE. F.R.S.E., M.R.A.S. LATE OF THE BENGAL CIVIL SERVICE; AND ONE OF THE JUDGES OF THE CHIEF COURT OF THE PUNJAB WITH MAP AT THE CLARENDON PRESS 1894 <D?;forJ» PRINTED AT THE CLARENDON PRESS BY HORACE HART, PRINTER TO THE UNIVERSITY . CONTENTS PART I. GENERAL CONCEPTION OF THE LAND REVENUE. PAGE Chapter I. Introductory 1-3 „ II. Features of the Country, Climate, &c., affecting the Land Revenue Administration . -4-13 ,, III. How the Provinces and Districts are Organized with Reference to the Land Revenue Administration 14-32 IV. What is the Land Revenue ? 33-50 V. What lands are liable to pay it ? 51-61 Sec. I. Lands not liable, or not liable in the ordinary way 51 Sec. II. Lands Revenue free, or of which the Revenue is assigned 52 Sec. III. The Waste Lands, and Rules for their disposal .S6 PART 11. THE LAND TENURES AND THE LAND REVENUE SYSTEMS. Chapter VI. Introductory 62-65 ,, VII. The Land Tenures 66-145 Sec. I. The Village 66 Sec. II, Landlord estates other than village-estates loi VI CONTENTS. Chapter VII. The Land Tenures {contd.) Sec, III. Formal recognition (under British rule) of rights and interests in lands . 122 Sec. IV. Subproprietary rights . .127 Sec. v. Tenants 133 VIII. The Land Revenue Settlements . 146-229 Sec. I. Of Settlements in general . 146 Sec. II. Landlord settlements. The Permanent Settlement . -154 Sec. III. Village-estate Settlements . .171 Sec. IV. Raiyatwari Settlements of Madras and Bombay 199 Sec. v. Other Settlements (in principle raiyatwari) 213 IX. The Land Revenue Administration, and public business connected with land management . 230-254 Index 255 : NOTE ON THE PRONUNCIATION OF INDIAN WORDS. In pronouncing the vernacular words which occur in this book, it is only necessary for the general student to remember, that the words are not to be read with the peculiarly English sound of vowels that is sure to be wrong. Adopt generally the Italian or ' con- tinental ' vowel list. The most prominent feature is the unaccented ' ' a, a short vowel pronounced as in org«n or as the u in \ug ; never like the a in fat. The accented a is the broad a of the French or Italian gateau, lago ; i and / are respectively, as in the English — ' words pit and peat ; u and u are ' oo — the former shorter, the latter more prolonged. In this book, the u in any Indian word is never to be sounded like the ti in ' j/^g', for that would be short a. The letter ^ is a diphthong, and sounded like / in French ; aic is like ' how,' not like ' ' is awe ; ^ always a consonant. Of consonants, it is only necessary to mention that th is never a sibilant (either as in tK\s or tlnn) but only / with a slight aspirate \ The M and^ (with a line under) are the gutturals of the Perso- Arabic (like ' loch ' and 'lough ' in Scotch or Irish). As there are two kinds of k, we use for the one k, and the other q without the conventional u added. ABBREVIATIONS. To save space, the letters L. R. are occasionally used instead of ' ' printing ' Land Revenue ' at full length ; so S. for Settlement ; and P. S. for ' Permanent Settlement.' As ' Settlement' is a word which has other meanings (e.g. it may refer to a location or place of settlement of a colony, a tribe or a family), it is written with a capital S whenever the term is used in its technical or Revenue sense. ' L. S. B. /.' refers to my Land Systems of British India, 3 vols. (Oxford: Clarendon Press, 1S92.) ' In Burmese the sibilant th occurs, not in any Indian dialect. 1 KfS£T^Tr«r73i;^S5rES3s;^ms5cr^ V THE LAND REVENUE ITS ADMINISTRATION IN INDIA PART I. GENERAL CONCEPTION OF THE LAND REVENUE. Chapter I. Introductory. Features of the Country, Climate, &c., affecting the Land Revenue Administration. How the Provinces and Districts are Organized with Re- ference to the Land Revenue Administration. What is the Land Revenue ? What Lands are liable to pay it ? Sec. I. Lands not liable, or not liable in the ordinary way. Sec. II. Lands Revenue free, or of which the Revenue is assigned. Sec. III. The Waste Lands, and Rules for their disposal. 2 INTRODUCTORY. [Part I. land-valuation, rent and agricultural conditions in general, its administration invites the notice of the economist. To assess and to collect the Land Revenue has been the chief care of all past governments for many centuries ; and for this purpose territorial divisions and official agencies have been devised ; and these, however modified, still form the basis of modern arrange- ments, and naturally have affected all other departmental juris- dictions and official forms. To understand the Land Revenue system, is to gain a greater knowledge of Indian government than could be acquired in any other way. For the agricultural class, which pays this Revenue, represents about five-sixths of the entire population; and the assessment and collection of such a widely levied impost demand an intimate knowledge of land- customs and the social features of country life. And so it is that the Government of India itself requires from various depart- mental officials, e. g. those of the Forest Department, an elemen- tary knowledge of the Land systems, as essential to the discharge of their general duty. But the difficulty is to find the desired information in a suitable form and within convenient limits. My Land Systems of British India is too detailed for the ' purpose. It was designed as a kind of Gazetteer ' of Land Revenue-Systems and tenures ; and to form a series of Provincial monographs (preceded by a general summary) which I would willingly have divided into separate volumes instead of joining them in three large ones. Its object is to furnish a compendious outline of systems, giving references from which all further details can be obtained. It might be supposed that such a task was not worth attempting, because students of detail would wish to go to original sources at once. But these sources are much easier to speak of than to produce or even catalogue. In any case they are so voluminous, so scattered over reports and books now scarce and inaccessible, that a compendium of their con- tents had become desirable. But whatever may be the justifica- tion of the larger book, it contains too much for the many readers who do not care for full details, and too much for the official student who wants only the leading principles indicated, Ch. I.] INTRODUCTORY. 3 or needs only to be enlightened as to those portions of Revenue work which bear directly on his own duty. The necessity then arises to provide such a book as shall answer the purposes of the ordinary student of Indian affairs, and shall yet give sufficient practical information to serve as a text- book for Forest Officers and others outside the Land Revenue Department. The fact is that it is much easier to write a detailed account of any given Provincial system, than it is to select the precise features, and the proper amount of illustrative detail, which will give a correct view of the system in a short form and in comparatively untechnical language. If we try to be too brief and general, we simply reproduce a semblance of those loose generalized sketches of the 'village community' and the ' Land- tax of India ' with which readers of Indian histories and text- books are only too familiar, and which, from the conditions under which they were written, jnust be inadequate for any prac- tical purpose, and are, in some cases, positively misleading. The following chapters represent an attempt to describe the Land Revenue Administration of British India, and the forms of land-holding on which that administration is based, in the compass of one small volume. The attempt has been made with some misgiving ; but it has been made with care, and with the endeavour to direct attention to what is important from a general reader's point of view. I have, however, given refer- ences whence some detail on special points may be obtained. To those who are going to use the book as a text for exam- ination or otherwise, may I add, that it is expected that they will arm themselves further with (i) the Land Revenue Act and Rent or Tenancy Act, and (2) the Revenue Circular Orders, of the particular Province with which they are concerned. B 2 CHAPTER II. General Features of the Country affecting the Land Revenue Administration. There are certain general features of Provinces and districts, and certain facts regarding the soil, climate, and institutions of the country, which are often alluded to in describing the Land Revenue systems, and which, though familiar enough to residents in India, will need explanation to the reader in England. It is convenient, therefore, to open proceedings by briefly describing the facts and features alluded to. 'British India.'— In the first place it is often convenient to ' allude to British India ' as a whole ; meaning the territories subject to British Government, and to the law as enacted by the Central and Provincial Legislatures of India, and in some matters by the Imperial Parliament in England.