To preserve this empire intact, the Mauryan administration, if one may judge from what Megasthenes says and the Arthasastra expands, was one of the most elaborate on record. Government was construed as being largely about collecting taxes and administering justice. In each of these spheres the emperor and his mainly advisory council of ministers headed a hierarchy of officials which reached down through divisional and district officers to the toll-collector, the market overseer and the clerk who recorded the measurement and assessment of fields. The entire apparatus was subject to regular checks by a staff of inspectors who reported direct to the emperor, while a more sinister system of undercover informants provided a further check. All were appointed, directly or indirectly, by the emperor and had instant access to him.
This system was replicated by the four provincial administrations based at Suvarnagiri (near Kurnool in what is now Andhra Pradesh), Ujjain (Avanti/Malwa), Taxila (Panjab) and Tosali (thought to have been near Bhubaneshwar in Orissa). Each was headed by a governor, usually a son or brother of the emperor, although how much autonomy these local administrations enjoyed is questionable. Megasthenes paints a picture of a highly centralised, indeed personalised, administration, but he may have been generalising from conditions in Magadha itself. Centralisation was certainly the intention. The Greek ambassador’s enthusiasm for India’s roads is more than matched by Ashoka’s insistence in one of his Edicts that they be lined with shade trees, clearly marked with milestones, and provided with frequent wells, orchards and rest-houses. Communications were vital for trade; like instant access to the emperor, they were also essential to an effective despotism.
Another declared priority was standardisation. An Ashokan directive on ‘uniformity in judicial procedure and punishment’ is echoed in the Arthasastra, where taxes, duties and pay scales are all represented as standard. More generally, the whole structure of the administration and the use of standard proclamations and inscriptions were intended to knit the empire together. Caste, whether as the four-tier varna or the profession-based jati, scarcely receives a mention in the Edicts, but sectarian differences were much on the imperial mind. ‘The Beloved of the Gods,’ according to the twelfth Major Rock Edict, ‘honours all sects and both ascetics and laymen with gifts and various forms of recognition.’ But these benefits, Ashoka says, are unimportant compared to ‘the advancement of the essential doctrine of all sects’. The context here is that of a plea for toleration between the sects. No one is to disparage someone else’s teachings – or only mildly and on certain occasions. Concord is the ideal, and this is best realised by developing a recognition of a doctrinal essence that is common to all.
Although not specifically equated with dhamma, this supposed doctrinal essence seems to be the genesis of Ashoka’s big idea. The word ‘dhamma’ is a Prakrit spelling of the more familiar ‘dharma’, a concept difficult to translate but imbued with positive and idealised connotations in both orthodox Vedic literature and in the heterodox doctrines of Buddhists, Jains and Ajivikas. Invoking a natural order within which all manner of creation had its place and its role, it was something to which no one, be he brahman or Buddhist, emperor or slave, could reasonably take exception.
Dharma did, nevertheless, have different meanings for different sects, and Ashoka’s dhamma seems therefore to have sought common ground, borrowing from one what was least objectionable to the others. The emphasis on a respect for life in all its forms and on providing medical facilities for animals as well as men was clearly derived from Jain teachings. It appears that all live sacrifices were forbidden, and even the killing of animals for food was to be discouraged. The emperor was setting an example, in that his kitchen now required only two peacocks and the occasional deer, and ‘even these three animals will not be killed in future’. Such injunctions have often been taken to imply a ban on sacrificial extravaganzas and so a provocative swipe at those who derived their prestige and income from conducting them, namely brahmans. But, given a list elsewhere of the prohibited species, it seems that this rule may have applied only to wild creatures, not farm animals. Goats, sheep and cattle, the species most obviously in demand for both ritual and culinary purposes, are protected only when nursing their young. They must otherwise, therefore, have been exempt. Similarly, though adamant that ‘it is good not to kill human beings’, Ashoka seems to have retained capital punishment just as he retained the option of warfare. Dhamma was carefully formulated so that essential interests should not be prejudiced while sectarian concerns were being accommodated.
As well as conciliating the Jains, we know from an inscription in a cave in Orissa that Ashoka continued his father’s policy of patronising the Ajivikas. As for his Buddhist sympathies, they have already been mentioned. They found ample expression in dhamma, especially in injunctions about right conduct towards relatives, friends and colleagues. He makes, though, a significant addition by adding to the list of such beneficiaries the brahmans. Ashoka had no intention of slighting orthodox society or its deities. ‘The Beloved of the Gods’ would keep in with the gods, whatever his personal sympathy for the Buddhist sangha (monastic community).
It would appear that Ashoka aimed at creating an attitude of mind among his subjects in which social behaviour had the highest relevance. In the context of conditions during the Mauryan period, this ideology may have been viewed as a focus of loyalty and a point of convergence for the existing diversities of people and activities.17
‘Yet,’ continues Romila Thapar, ‘the ideology of dhamma died with the death of the emperor [in 231 BC].’ Others have conjectured that dhamma may even have been the undoing of the empire; perhaps it invited defiance, perhaps it provoked defiance. During his last ten years on the throne Ashoka had no further Edicts inscribed, and his empire may already have been falling apart. Mauryas would continue to rule from Pataliputra for another fifty years but their writ seldom ran beyond Magadha. The provinces, centred on Ujjain, Taxila, Suvarnagiri and Tosali, rapidly broke away as Ashoka’s successors proved unworthy of their inheritance and incapable of his vision. If dhamma was supposed to hold the empire together, it was an unmitigated failure.
Yet a policy that failed became an intimation that endured. The Ashokan legacy of an empire which stretched from sea to sea and from the mountains to the peninsula was promptly mislaid and would remain so for a couple of millennia. Likewise Ashoka’s historicity. But tradition cherished his memory; Indian historians insist that the ideal of a pan-Indian empire was never forgotten; and nor, more certainly, was the spirit of humanity embodied in his Edicts. The innovation which he pioneered of appealing across the barriers of sect, caste and kin to the community of India would be revived by a host of other reformers, not least Guru Nanak of the Sikhs and eventually Mahatma Gandhi.
6 An Age of Paradox C200 BC–C300 AD
EBB OF EMPIRE, FLOW OF IDEAS
BETWEEN THE DEATH of Ashoka in 231 BC and the advent of Gupta power in 320 AD, India’s ancient history plummets again to a murky obscurity. ‘Certainties are not many,’ bemoans a writer on the period.1 Prior to the Mauryas our vision is blurred by the ambiguity of mainly literary sources whose purpose is suspect and whose dates are vague. After the Mauryas the source materials are more varied: coins furnish the names of a host of otherwise forgotten kings; other archaeological finds, plus inscriptions, provide additional information about guilds and religious establishments; and texts – Indian, Graeco-Roman and Chinese – hint at a wider historical context and testify