Indian Political Science Association

KAUTILYA AND THE CONCEPT OF GOOD GOVERNANCE

Author(s): S.S. Ali
Source: The Indian Journal of Political Science, Vol. 67, No. 2 (APR.- JUNE, 2006), pp. 375-
380
Published by: Indian Political Science Association
Stable URL: https://www.jstor.org/stable/41856223
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The Indian Journal of Political Science
Vol. LXVII, No. 2, Apr.-June, 2006

KAUTILYA AND THE CONCEPT OF GOOD GOVERNANCE

S.S. Ali

The issue of good governance has been in the forefront for some decades now. Several studies
Have been taken up by various organizations in recent years. The World Bank has identified a
number of aspects of good governance, which has assumed significance for the developed and
the developing countries. Kau tily a 's Arthashastra is the greatest Indian treatise on the art of
government and administration, the duties of King 's ministers, officials the art of diplomacy etc.
The paper tries to examine the concept fo good governance with an understanding of the
Arthashastra of Kautilya.

The concept of good governance has been receiving considerable attention in recent years. A
large number of philosophers, academicians and public functionaries have been discussing ways and
means of governing societies. Originally the term 'State' and 'Good Governance' were considered to
by synonymous as it is found in the writings of Hobbies, Rousseau, Mill, and Marx. They believed
that co-ercive power was given to the state by men, with the hope of realizing good governance
through their writings. They have advocated different forms of political and administrative systems
where the interest of the citizens reconcile with the role of state and its method of governance.
Governance refers to forms of political system and the manner in which power is exercised in utilizing

country's economic and social resources for development.1 It is the art of governing associated with
the exercise of authority within specific jurisdiction. Traditionally the term 'common good' was used
by the state to serve the common good. The term became a symbol for the whole range of governmental

actions, and in olden times King became an embodiment of the common good for his People.

In the society one of the primary concerns of the citizens is that their government must be good

and for the government to be good it is essential that all the systems and subsystems of governance
must be efficient, effective economical and ethical. Good governance refers to a government, which
not only serves the common good but also promotes the well being of the entire society.

The issue of good governance has been in the forefront for some decades now. Several studies

have been taken up by various organizations in recent years. The World Bank has identified a number

of aspects of good governance, which has assumed significance for the developed and the developing
countries. The World Bank determinates of good governance include political accountability,
transparency, democracy, an established legal framework based on the rule of law and independence
of judiciary, freedom öf information and expression and above all a sound administrative system
leading to efficiency and effectiveness and Co-operation between the government and civil society
organization.2 Thus it is clear that good governance is not simply something that government can
achieve or do by itself. Good Governance depends on the co-operation and involvement of a large
number of citizens and organizations. These requirements are considered not only essential for good

governance biit are also important for sustainable human development.3

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 The Indian Journal of Political Science 376

Kautilya's Perception of Good Governance

Kautilya's Arthashastra is the greatest In

administration, the duties of King's ministers
treatise is disputed, different historians have p
to be on the period generally spanning 32 1 B.C.
treatise, it is based on the practical aspect of ad
applicability in the form of good governance.

Duties of the King the foremost responsibility

The basic indicator of good governance is that

common interest of the people. Kautilya has given

the same time he advocates that the King shou

King is expected to behave in a most righteous

"In the happiness of his subjects lies his ha

pleases him he shall not consider as good, but
good."4

Kautilya's principles of State administration enunciated about 2300 years ago bears striking
resemblance to modern day welfare state in respect of ideology, functions, tasks, duties and
administrative structure and organization. To Kautilya the ideal state was something like a modern
welfare state where the King occupied the central position. The King was made the main pillar of the
state and the main decision making authority. According to Kautilya the primary duty of the King was
to protect his subject. He clearly required the state to provide for the maintenance of children, childless
women, old; infirm and diseased person who had no natural guardian to protect them. The fact that
each activity had to be performed with the interests of the subjects in mind may lead one to believe
that the cherished concept of good governance existed even then. Along with the ideal of the welfare
state, the Arthashastra also maintains the use of force or punishment. It is the symbol of the ruler's
authority and it was necessary to prevent anarchy and to protect the weak against.the strong.

Disciplined Life for the King and Mantris

Kautilya preached the ideal of a strong centralized monarchy, where the king occupies the
central position and most of the activities of the state were controlled by him. He was the main pillar
of the state and the main decision making authority. Although Kautilya suggests that the King role on

•y
earth was similar to that of God but he does not make the King an object of worship. The King was
compared to a God only when he was virtuous and self restrained and carries out his duties of providing

protection to his people and attending to their welfare.

According to Kautilya the ruler must have some rare qualities such as high upbringing, receptive

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Kautilya and the concept of Good Governance 377
mind, firmness of purpose, training in all activities of the governmen

king, although these restrains are not directly mentioned but the entire

impress on him the fact that he should use his powers in the interest

constantly be reminding him of his duties. Then there was the moral p

In addition to the disciplined life with a code of conduct for t

on ministers and other official of the state because their code of condu

a model for others.

Law and Order Chief Duty of the King

Another important indicator of good go vernance suggested by K

of the King was to maintain law and order and to protect the life
king gets salary for rendering services to the people. Effective po
order are essential components of good governance. The King wa
supreme dispenser of justice and enforced the law. It was his duty
administered and the established laws were not violated. An esta
the rule of law was an important determinant of good governance.
and framework for maintenance of law and order, the state and i

which the politico-administrative system govern itself.

Bureaucratic Account Ability : Carrying out Preventive Mea

Coming to the heads of the Departments and officers of the Gove

laid down strict norms of conduct and control. If an officer fails in

any day, he was fined twice the amount of his pay. It was the duty of t

to keep a watch over the performance of each persons under his

good governance is the carrying out of preventive and punitive meas
servants. Kautilya had no good opinion about financial integrity o
control and supervision over them. He was very practical when he sa
about the honesty of an officer as to find out whether or not fishes

Salaries and Allowances of the King and Civil Servants

One of the important indicators of good governance is the p

according to Kautilya' s Arthashastra the King's salary was fixed
penny more than that. The allowances of the members of the Kings
not be raised except with the approval of the council. The clear st
counterparts in Greese and almost his contemporary, Plato allows
but Kautilya's King salaries could not be proposed to be raised, t
raise the salaries of the members of his family.

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The Indian Journal of Political Science 378

The salaries of government servants were

a mixture of the two. An official could, in lieu
him for his benefit, but such land could neit
as he held the office. The total salary bill of
to pay and was one quarter of the revenue of t
such as to enable the accomplishment of sta
bodily needs of states servants.

Kautilya could visualize the concept of good

for giving financial relief to a government serv
while on duty, his sons and wives were entit
funerals births or illness, the families of the d
and shown honour as a mark of gratitude to

Personal Administration

Kautilya recognizes that the personnel who man the organizations are as important as the
organization, for good governance. He prescribed certain qualification for each post, which goes to
prove that certain basic qualifications were necessary for entry into the service of the government. AH
important appointments were made by the king himself and only persons having intelligence an
power of expression were considered suitable for state services.

The need for the appointment of councilors and Ministers was felt because the work of the
government was diversified. It was not possible for the King to do it all by himself and so he had t
appoint personnel of various categories. At the top level were ministers who were appointed by th
King, who decided the work of the government taking into account, each one's ability and the nature o
work assigned to them. Besides all important functionaries like the treasurer, the chancellor, the governo

general of the city were appointed by the king himself on the basis of the qualifications laid down for
different posts and before making the appointment the king used to investigate all the qualities of the
person who were appointed. Of these qualities nationality, family background, and amenability t
discipline were examined. Intelligence, perseverance and dexterity were also evaluated by examinin
his past experience. Even the Ministers after appointment had to undergo four kind of test based o
Dharma, Artha, Kama and fear, and after qualifying these tests they were given appropriate post.

After recruitment comes training but there is very little discussion of the training of personnel

manning various government departments in Kautilya's Arthashastra. Probably this may be due to th
fact that before appointment the candidates had to undergo a tough and rigorous test. The qualification
and qualities laid down in Arthashastra for different functionaries and positions manning the
administration clearly indicate that there was good governance at every level because of a sound
administrative system.5

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Kautilya and the concept of Good Governance 379
The World Bank has identified a number of aspects of good gover
significance for the developed ánd developing countries. One such determ
system leading to efficiency and effectiveness. This is turn means t
effectiveness. The effectiveness includes the degree of global achievem
and also the administrative system, which is able to take rational decis
self-propelling to take corrective measures.

Administrative Qualities Highlighted by Kautilya

Kautilya has emphasized certain administrative qualities worth e

administration. Some of these qualities are competent ministers, qualif
and above all love for mankind. Even for the King Kautilya said if t
energy the people and the government will be equally energetic and s
ruler is always wide-awake and alert. With the help of the Prime Min
examining watch over the character and conduct of his ministers in ch
An ideal King is one who has the highest qualities of leadership, intellect
He should be bold, eloquent with a strong memory and keen mind. He
avail himself of the opportunities by choosing the right time, place a
know how to govern in normal times and in times of crises, when to
and above all he must not be dilatory in his decision making and allow

In order to ensure people's welfare there must be a properly gu

service by its very nature cannot be responsive and responsible. They
Three general principles for running efficient and disciplined civil se
The first is that unless controlled, civil servants will make money in un

The second is that good civil servants shall be suitably rewarded. Th

enjoining, civil servants is to collect the right amount of revenue neit
expenditure in order to leave a net balance to the state. Every official
a task, as Head of the Department was bound to communicate to the
nature of work.

Replacement of Ministers by the King

Kautilya observed that if a minister was not working satisfactorily

type of conspiracy against the king then he must be immediately rep
Kautilya' s basic principles of administration was vigilance and supervi
nature, he was aware of man's tendency for corruption and proposes
vigilance and use of force. In order that the king has a firm grip ove
wide network of spies, he want ed the king to deploy secret agents i
society Kautilya also believed in the theory of reward and punishmen
generous with efficient administrators and strict with those who mis

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The Indian Journal of Political Science 380

Thus Kautilya was for a welfare state wher

supreme concerns of the ruler. It is really surp
obligations towards the interest of state, soc
detailed guidelines for the governance of the
administration trade and commerce, mining,
was interested not only in the material welfa
interesting aspect was that Kautilya' s frame
advancement of weaker and vulnerable sectio
facilities, more or less akin to those for our
indicates how Kautilya's system of governan
operational guidelines.

Good governance is happiness and welfare

his subject lies the ruler's happiness, in their
not consider as good, but whatever pleases h
that we are in an age of democracy where rule
removable etc. If the rulers are accountable th
instability. It is clear that good governance i
itself. Good governance depends on the co-oper
It can be achieved by showing respect to basic
institutions and by ensuing accountability an

References :

1. Milk Moore, Declinning to learn from the last : The world Bank on Governance and
Development, IDS Bulletin. Vol. 24 No.l 1993. P.39.

2. Peter Blunt, "Cultural Relativism, Good Governance and Sustainable, Human Development
Public Administration and Development, Vol.15, 1995 PP 5-7.

3. Ibid P. 5

4. Arthashastra Book I, Chapter XIX 39.

5. Peter Blunt, Cultural Relativism, Good Governance and Sustainable, Hu

Public Administration and Development, Vol.15, 1995 PP 5-7.

6. Kautilya : The Arthashastra, By L.N. Rag, Rangarajan, Penguin Books In

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