03
How They Ruled
1227 to 1368 · Four khanates, one relay system
The Mongols governed by hiring the conquered, protecting the merchants, counting the taxpayers and moving information faster than anyone else. Very little of it was Mongol in origin, and assembling it was the achievement.
Four khanates, and why that matters
The empire was divided among the descendants of Chinggis and by the later thirteenth century consisted of four effectively separate states: the Yuan dynasty in China and Mongolia, whose ruler held nominal seniority; the Ilkhanate in Persia and Iraq; the Chagatai Khanate in Central Asia; and the Golden Horde on the western steppe, dominating the Russian principalities. They shared a family, a claim to Chinggisid legitimacy and a commercial system, governed through increasingly separate administrations, and they also fought each other: the Golden Horde and the Ilkhanate went to war in the 1260s, with the Muslim khan of the Horde opposing the Ilkhan who had sacked Baghdad.
The khanates are what makes "the Mongol Empire" a slippery phrase after about 1260, and the precision is worth having. Each khanate adopted the culture of the region it ruled: the Ilkhanate became Persian and Muslim, with Ghazan's conversion in 1295 as the formal turn; the Golden Horde became Turkic and Muslim; the Yuan governed China with Chinese institutions while keeping Mongols and other non-Chinese in the top offices. Within three generations, the descendants of one family were ruling as four different kinds of monarch.
The machinery
The yam. Relay stations at intervals of roughly a day's ride, each stocked with horses, riders and provisions, carried official messages, envoys and orders across the empire at a speed no contemporary state matched. Travel on it required a paiza, the inscribed tablet described in the Topic 2.1 chapter. The yam is the single most useful thing to name when a question asks how the Mongols administered such distances, because it is the answer: they did not administer the distance, they shortened the time.
Census and tax. The Mongols conducted censuses in conquered territories and taxed by household, using registers and, in many places, the existing local bureaucracy. This is unglamorous and it is what turned conquest into revenue. It is also the point at which an argument inside the Mongol elite becomes famous: after the conquest of northern China some proposed converting farmland to pasture, and the administrator Yelu Chucai argued that taxing the peasants where they were would produce vastly more wealth than grazing the land. He was right, he won the argument, and the empire's finances thereafter rested on the productivity of conquered agrarian societies.
Hired foreigners. Persians, Uyghurs, Khitans, Chinese, Armenians, Jews and Europeans staffed the administrations, chosen for skill and, usefully, for having no local power base of their own, which is the same logic behind the mamluk system in Topic 1.2 arrived at from a different direction. In Yuan China the ruling order placed Mongols first and other non-Chinese, the semu, second, above northern and then southern Chinese, and the examination system was suspended for decades before being restored in 1315.
Religious policy. Mongol rulers extended tax exemptions and protection to the clergy of many religions, Buddhist, Daoist, Christian, Muslim and others, and held debates between religious specialists at court. Frame it as policy rather than as belief: a conqueror ruling a dozen religions who privileges none of them removes religion as a reason to revolt and acquires a set of grateful institutions with influence over their own communities.
Merchant protection. Merchants were exempted from many burdens, given legal protection, and financed directly through the ortoq associations described in the Topic 2.1 chapter, in which Mongol nobles supplied capital and took a share of the profits. The elite were stakeholders in the trade, which is a far better explanation for their policies than any general disposition toward openness.
Use this in your answer
- Strongest tool, with its mechanism
- The yam relay system. The mechanism is that stations a day's ride apart, stocked with fresh horses and provisions and reserved for authorized riders, moved orders and intelligence across Eurasia in days rather than months, so a court could hear about a revolt, a closed pass or a harvest failure while it was still possible to act on it.
- Best evidence of exclusion or limit
- The yam was for the state, not for merchants, and it was a burden on the communities required to provision it. In Yuan China the ethnic ranking that put Mongols and semu above Chinese subjects is the exclusion evidence to pair with it.
- Comparison hook
- Against Persia's Royal Road in the Foundations 3 chapter: the same institution, relay stations with fresh horses, invented independently and for the same reason, because every large empire discovers that the binding constraint on ruling at distance is the speed of information.
Terms to use precisely
- Yuan
- The Mongol dynasty ruling China from 1271 to 1368, whose khan held nominal seniority over the other khanates.
- Ilkhanate
- The Mongol state in Persia and Iraq, which converted to Islam under Ghazan in 1295 and became a patron of Persian scholarship.
- Golden Horde
- The Mongol khanate of the western steppe, dominating the Russian principalities and eventually Turkic and Muslim in culture.
- Chagatai Khanate
- The Mongol khanate of Central Asia, astride the overland trade routes and the most politically unstable of the four.
- Semu
- The Yuan category of non-Chinese, non-Mongol officials and specialists, ranked above Chinese subjects in the dynasty’s social order.
- Yelu Chucai
- The administrator who argued that taxing conquered farmers would yield far more than converting their land to pasture, and won.