PEEVIOUS SYSTEMS OF ADMINISTRATION 453

The administration of the Moghul empire had been to some degree systematic; and its scheme of distribu- tion into districts and provinces, with the methods of assessing the local revenue, still survived in outline. But the native rulerships immediately preceding the British dominion had neither system nor stability, since the incessant warfare and scramble for territory during the eighteenth century had left even able chiefs without time or means for administrative settlement. Yet even the Moghul emperors, in the plenitude of their power, had never promulgated general civil or criminal laws backed by state sanction, in the European sense of these terms; nor had they at any time pretended to regulate authoritatively the customs and domestic rela- tions of the people, being content to levy revenue and do rough justice according to the arbitrary will of the sovereign or of his deputies. The multifarious groups that make up the population of India had lived under their personal institutions and rules of conduct, mainly religious; for it may be said that in Asia law and re- ligion are almost universally regarded as two sides of the same subject. Under the earlier . regimen of the East India Company the practice had been to issue provincial Regulations of an old-fashioned type framed to suit the requirements and circumstances of sundry times and divers places, loosely drawn and intermixed with instructions and explanations, and further com- plicated by empirical decisions of the local courts. Latterly some Acts, of importance and value, passed by the supreme legislature, were put in force throughout