Kautilya - Notes

Political Science

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Kautilya (375 – 283 BC)

Introduction
Kautilya (also known as Vishnu Gupta) is a profound and systematic ancient Indian
Philosopher.
He is the author of the celebrated book Arthashastra (the science of polity) written in 4th
Century B.C.
Kautilya was the pen name of Chanakya, the Prime Minister of Chandra Gupta Maurya in
the 4th century BC.
Kautilya played the central role in the establishment of the Maurya Empire under
Chandra Gupta (321-297 BCE) – the first pan-Indian state.
Kautilya was first to provide a realist theory of State as well as the International Relation.

Arthashastra
Kautilya defines statecraft as Arthashastra. Artha denotes material well-being. It can be
considered the first textbook in geopolitics. His book, Arthashastra, has 15 parts (or
books), 180 divisions, 150 chapters, and approximately 6,000 verses or shlokas. Kautilya in
Arthashastra described:
Well-organized state.
Kingship & the qualities of an ideal ruler.
The principles of practical politics, administration, ethical and moral order
Domestic and Inter-state policies
Warfare
Criminology, Intelligence & Espionage

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Besides politics, the other subjects included in Arthashastra are: Economics, Ethics,
Sociology, Science of Education, Engineering and others.

Kautilya Arthashastra Book List

BOOK I - Concerning Discipline
BOOK II - The Duties of Government Superintendents.
BOOK III - Concerning Law
BOOK IV - Removal of Thorns
BOOK V - Conduct of Courtiers
BOOK VI -The Source of Sovereign States
BOOK VII - The End of Sixfold Policy
BOOK VIII - Concerning Vices and Calamities
BOOK IX. The Work of an Invader
BOOK X. Relating to War
BOOK XI. The Conduct of Corporations.
BOOK XII. Concerning a Powerful Enemy
BOOK XIII. Strategic Means to Capture a Fortress.
BOOK XIV. Secret Means
BOOK XV. The Plan of a Treatise.
Detail explanation :

BOOK I gives the detail information on the discipline, training, daily routine of duties and
dissemination of Danda by the king and qualifications of the various levels of ministers .
Book 2 deals with the bureaucratic set up of the administrative block, hierarchy of
officials, the duties and responsibilities of various heads of departments , planning of
forts and fortified towns, estimation and collection of revenue, industrial establishments
including state monopoly concerns, regulation of promotion of internal and foreign
trade and commerce.
Book 3 deals with the legal system, including civil and criminal law, and the judiciary's
role in maintaining justice.
Book 4 focuses on internal security, crime prevention, and law enforcement to maintain
social stability and protect the state from internal threats.
BOOK 5 deals with the Conduct of Courtiers. Concerning the awards of punishments;
replenishment of the treasury; concerning subsistence to government servants,
consolidation of the kingdom.
BOOK 6 highlights about The Source of Sovereign States, the elements of sovereignty;
concerning peace and exertion. (Mandala-yoni)

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BOOK 7 deals with the six-fold political expedients in the field of diplomacy among states
called as Sadguniti. (Shadgunya).
Book 8 deals with dangers and calamities arising both internally or externally due to
natural or man-made attempts befalling the king or body politic.
BOOK 9-10 deals with military campaigns and ancillary problems,various aspects of war,
including troop deployment, battle formations, and different types of combat strategies.
BOOK 11 deals with measures to control economic guilds and political corporations.
BOOK 12- 13 deals with methods of intrigue and the employment of secret agencies
against enemies and during military expeditions.
BOOK 14 deals with the means to injure an enemy; wonderful and delusive contrivances;
remedies against the injuries of one's own army
Book 15 Summarizes the treatise and provides a methodological framework for
understanding and applying its principles in governance.

Theory of State:

Kautilya recognized the inherent dangers of an anarchy, where the absence of order
leads to chaos.
In his book the Arthashastra , Kautilya discuss the concept of "Matsya Nyaya" by
comparing a lawless society to a state of nature where, like fish, the stronger preys upon
the weaker.
According to Kautilya, anarchy leads to suffering, exploitation, and the breakdown of
social and economic systems. He warns that without a strong and capable ruler, society
would be vulnerable to invasions, internal strife, and economic collapse.
So to counteract such anarchy, Kautilya stressed the importance of establishing order
within society.
The Arthashastra provides detailed guidance on how a ruler can maintain order and
prevent anarchy. This includes establishing a robust administrative system, ensuring a
just legal framework, maintaining a strong military system and implementing effective
economic policies.
The stability and progress of a kingdom depend on Dandaniti, which refers to the
principles and practices of governance.

Kautilya views of State Governance

According to Kautilya, the basis of good governance as stated in Arthashastra are the
following branches of Knowledge:

Anvikasi (Philosophy): Lamp of all sciences

Trayi (Three Vedas): Cultural Context

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Varta: Economic Policies

Dandaneeti: Science of government and politics
Kautilya on State
Kautilya did not subscribe to the theory of ‘Divine Origin of the Monarch’.
According to him, Monarchy was a human institution and was manned by a human being.
The King was the protector of Dharma of the whole society.
He describes the King as the servant of the people who receives payments in the form of
taxes for the services rendered to the people.
The state according to Kautilya enables two things:
Practice of Dharma
Bhog (enjoyment) of private property rights.
He gives an extensive list of duties which the King must perform.
His foremost duty is:
Rakshana (Protection)
Palana (Nurture)
The King derived power from three sources:
Prabhu Shakti (Power of army and treasury)
Mantashakti ( Advice of the Ministers)
Utsa Shakti (Charisma)

The Saptanga Theory (Seven Elements of State)

Kautilya described structure of the state in his Saptanga theory or seven
organs/elements of state or seven prakriti, presented right at the beginning of Book 6.
Kautilya has mentioned seven elements essential for the state. These seven elements
(Doctrine of 7 Prakritis) are also known as seven elements of Sovereignty.
He described the Swami as the soul and the other six elements of the state as the body.
According to him, body politic grows and declines with the swami.
The seven elements or Prakritis or Limbs include:

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Swami (The Ruler)

The first and the most important element.
He is the centre and plays the most important role. Swami means the Monarch.
According to kautilya, he should be well learned and brave.
He should be born in a noble family and should be a native of the soil.
All the important appointments are made by him. He supervises the government
Kautilya gives extensive powers to his Monarch. However he must exercise this power for
the welfare of his subjects.
According to Kautilya, king should treat his subjects as his children
In the happiness of the subjects lies the happiness of the king. “Praja Sukham Sukhe
Rajya”.

Amatyas (Ministers)
Senior ministers are known as Amatyas.
They are meant to assist the Swami in day to day activities.
According to Kautilya, Amatyas’s should be Brahmins. They should have the knowledge of
Vedas.
They should be native to the country and must be faithful towards the king.
The King should consult the Amatyas on important matters, collect taxes, ensure defense
of the state, etc.
However at the same time he must also keep a check on the integrity of the Amatyas
towards him from time to time.

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Kautilya suggests that the King must keep three Amatyas, because two can easily
conspire against him.

Durga (Fort)
Durga is the symbol of both offensive as well as defensive power of the state.
He considered forts as a vital part of the kingdom. He attached a great importance to
them for the defense of the empire.
According to Kautilya, the state should have an adequate number of forts across its
territory at strategic locations to ensure the defense of the state.
Kautilya has given a detailed idea with respect to different types of forts. He refers to four
kinds of forts:
Water fort
Hill fort
Desert fort
Forest fort

Janapada (The Population/Territory)

Janapada is the territory with people settled in it.
According to Kautilya, the King must take care of the Janapada as it is the source of
revenue and other commodities.

Bala (Force)
Kautilya mentions six types of armies – hired troops; hereditary forces; soldiers of
fighting corporations; troops belonging to an ally; troops belonging to an enemy;
soldiers of wild tribes.
Kautilya accepted a strong and hereditary army of Kshatriyas as the most important
requisite of the state.

Kosha (Treasury)
Kosha should be sufficient so that the king can take care of the welfare functions.
It should be sufficient to meet any emergency or natural calamity.

Mitra (Allies)
Mitra’s according to Kautilya have symbolic importance.
It is the symbol of strength of the King.
More number of Mitras means more powerful the King.

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Kautilya envisaged two types of Mitra’s:

Sahaja – whose friendship was derived from the time of father and grand-father
and were situated close to the territory of the immediate neighborhood enemy.
Kritrima – is the acquired ally for the protection of wealth and life.
Kautilya held that ally of the first category is superior to the second one.

Heads of departments
In Arthashastra, we find him mentioning as many as half a dozen heads of departments,
namely:

a. the aayudhaagaaraadhyaksha (incharge of the armoury);

b. the naavadhyaksha (incharge of the naval forces);
c. the ashvaadhyaksha (incharge of cavalry);
d. the hastvaadhyaksha (incharge of the elephants);
e. the rathaadhyaksha (incharge of the chariots); and
f. the pattyadhyaksha (incharge of the infantry).

Central Administrative Machinery of the state:

The King is the chief executive and the ministers are selected by the King on the basis of their
qualities and they are individually responsible only to the monarch.
Kautilya categorises the amatyas, mantris and heads of departments into 18 tirthas.
They are:

Mantrin – Minister
Purohita – Priest
Senapati – Commander of the Army
Yuvaraja – Prince
Dauvarika – Chief of Palace Attendants
Antarramsika – Chief of the King’s Guards
Prasastr – Magistrate
Samahatr – Collector General
Samnidhatr – Chief Treasurer
Pradestr – Commissioner
Nayak – Town Guard
Paur – Chief of the Town
Karmanta – Superintendent of Mines
Mantri Parishad Adhyaksha – Chief of the Council of Ministers
Dandpala – Officer of the Army Department
Durgapal – Guardian of the Forts

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Antapala – Officer-in-charge, Boundaries

Ativanika – Officer-in-charge, Forest

Kautilya’s Ideas on Foreign Policy

According to Kautilya, king should aspire to become ‘Chakravarti Samrat’
He calls the King as Vijigishu (The one who aspires for victory).
War is Kshatriya Dharma and Rajadharma.
According to Kautilya, the first action after the coronation of the King is to make a
declaration for Expedition.

Four Fold Policy

It is the policy of Diplomacy. A country can adopt Four options:

Sam (Peace)
Dam (Economic Diplomacy)
Danda (Coercive Diplomacy)
Bheda (Use of Espionage)

Shadgunya Niti (Six Fold Policy)

Kautilya, regarding diplomacy suggested a six fold foreign policy. The six fold policy
includes:
Sandhis (Peace) – If the enemy is stronger, then go for Sandhi.
Vigraha (War) – it means hostility towards a state. Kautilya believed that states are always
at war and seek power.
Asana (Neutrality) – In case of equal power, an indifferent foreign policy works well.
Yana (Preparing for War) – Mobilising the forces for military exercises.
Samsraya (Alliance) – Join hands with those who have similar objectives.
Dvaidhibhava (Dual Policy) – For the time being, friendship with one enemy and war with
the other.

Mandal Siddhanta (Theory of Circles)

It is the theory of Geo-strategy. It is the strategy of war.
Purpose – Preparation of the strategy for wars.
It explains the relations between states.
Mandal Siddhanta explains about 12 kings or 12 circles of state.
Vijigishu has to calculate the position of his enemy and his friends.
He has to calculate the status of 72 elements of Sovereignty, before starting a war.
The Mandal theory is based on the principle of Balance of Power.

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Description of Mandal Theory:

Vijigishu – Main King
Kings in Front
Ari – Neighbor. He is a natural enemy.
Mitra – Ari’s immediate neighbor is the Mitra of Vijigishu.
Ari Mitra
Mitra Mitra
Ari Mitra Mitra
Four kings in the back (Parshva)
Parshva Nigrah
Akranda – Friend in the back
Parshva Nigrah Sara
Akranda Sara

Kautilya mentions two more kings:

Madhyama – Buffer State. Vijigishu should try to bring Madhyama on his side.
Udasina – Neutral State. Vijigishu should try to bring Udasina under his control.

Sequence of Circles

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Circle I: comprising of the Vijigishu (the conqueror), his friend and his friend friend (three
rulers);
Circle II: Comprising of the Ari (the enemy), his friend and his friend s friend (three
rulers);
Circle III: Comprising of the Madhyama King (the indifferent king), his friend and his
friend’s friend (three rulers); and
Circle IV: Comprising of the Udaasina King (the neutral king. his friend and his friend’s
friend (three rulers).

Warfare:
For defending the kingdom from external threats, Kautilya has highlighted four basic forms of
warfare.

Mantra-yuddha: war by counsel or use of diplomacy by a weaker king who finds it unwise
to fight against a strong adversary.
Prakash-yuddha: regular warfare where opposing armies fight according to established
rules and regulations.
Kuta-yuddha: irregular warfare including ambushes and raids in enemy territory.
Tusnim-yuddha: includes covert operations like sabotage and targeted killings. He
favoured this type of war where mental faculties like intelligence, foresight, psychological
skills and ingenuity matter.

Use of Religion
Kautilya suggests using religion in the affairs of the state.
The king can send religious persons/sadhus to the enemy king who can tell him that his
bad times have come.
This strategy is to weaken the enemy king psychologically.

Kautilya on Corruption
His writings about corruption in the ancient times of India show that corruption has been
an inevitable part of political life.
His approach towards corruption is practical.
He gives special attention towards mis-appropriation of funds by public officials as well
as magistrate or judges.

Why is Corruption a problem?

Corruption directly affects the prospects of the material well being. This generates
disaffection towards the kings. Subjects may join hands with the enemies to overthrow

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the king.
However, according to Kautilya, Corruption is Inevitable:
Human Nature – humans are easily corruptible. It is extremely difficult to stay away
from temptation.
Public Officials – For Public officials holding money, it is impracticable to think that
they will not use the public money for private purposes.
He states that it is impossible to not taste honey or poison at the tip of the tongue.
According to Kautilya it is difficult to tackle corruption:
According to him, it is easy to detect the movement of the birds flying in the sky, but it is
not easy to detect the mis-appropriation of funds.
There are many ways the officials can engage in corruption. He states forty ways of
embezzlement.

How to tackle Corruption?

Right sizing the Bureaucracy.
Transfer officials at regular intervals before he knows all the loopholes.
Within offices, there should be internal scrutiny and surveillance mechanisms.
He mentions Suchaks (Whistle-blowers). The king should reward them.
Fines and punishment for corrupt officials. Forcing them to repay the person who
suffered due to his corruption.
Humiliation of corrupt officials in public.
Punishment not only to the corrupt official, but the entire chain. Chain also includes the
Dayak (one who gives bribes), Pratigraha (one who receives money) and Nidhayak (one
who keeps the money).

Kautilya and Machiavelli

Kautilya belonged to ancient India, whereas Machiavelli belonged to Italy of the 16th
century.
There has been a tradition to compare Kautilya and Machiavelli
Pandit Jawaharlal Nehru called Kautilya as “Indian Machiavelli”.
Max Weber in his book ‘Politics as Vocation’ has mentioned that Kautilya was more
Machiavellian than Machiavelli. If we look at Kautilya’s king, Machiavelli’s Prince is
harmless.
Similarities between Kautilya and Machiavelli:
Both are Realists.
Both believe that human nature is Corruptible.
Both are supporters of expansionist foreign policy.

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Both of them wanted to establish Law and Order, protection and progress of the
motherland.
Both sanction use of Religion in the interest of the Nation.
Both permit use of immoral means.
Differences between Kautilya and Machiavelli:
They belonged to different time and space
In Kautilya, there is no strict separation between Dharma and Danda. King is not above
Dharma. He believes in the Varna system.
Kautilya is a supporter of Monarchy as a form of government. Whereas for Machiavelli,
his ideal government is

Quotes of Kautilya
“Every neighboring state is an enemy and the enemy’s enemy is a friend.”
“Just as it is impossible to know when a swimming fish is drinking water, so it is
impossible to find out when a government servant is stealing money”
“The arrow shot by the archer may or may not kill a single person. But stratagems
devised by a wise man can kill even babes in the womb.”
“Never make friends with people who are above or below you in status. Such friendships
will never give you any happiness.”
“Education is the best friend. An educated person is respected everywhere. Education
beats the beauty and the youth.”

Commentaries on Kautilya
The theory of social contract was not unknown in the days of Chanakya- R. Shamasastry
of all the school of ancient Indian political thought, the most noteworthy is that of
Kautilya - B.A. Saletore
The state according to Kautilya must be based on sound economic foundations, so as to
enables men to realize the aims of life - N.C. Bandopadhyaya
Kautilya’s attitude to religion was secular and not apathetic - M.V. Krishna Rao
Machiavelli’s Prince was harmless when compared to Kautilya’s Arthashastra – Max
Weber
Kautilya is not immoral but unmoral in his politics – Amartya Sen​
List of books and Authors on Kautilya
1. R P Kangle - The Kautilya Arthashastra
2. L.N. Rangarajan – Kautilya : The Arthashastra
3. Roger Boesche- The first great Political realist: Kautilya and his Arthashastra

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4. T.N. Ramaswamy - Essentials of Indian Statecraft: Kautilya’s Arthshastra for Contemporary

Readers
5. N. C Bandopadhaya - Kautilya and an Exposition of his Social Ideal and Political Theory
6. Hari Krishna Deb - The Kautiliya Arthashastra on Forms of Government
7. Narasingha Prasad Sin ―Kautilya‘s Arthashastra and Machiavellism: A Reevaluation

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