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 enunciated. In the Behar famine of 1874 this principle was even carried to an extreme, the cost was enormous, and the people were in danger of being pauperized. The resulting reaction caused a regrettable loss of life in the Madras and Bombay famine of 1876–1878; and the Famine Commission of 1880, followed by those of 1898 and 1901, laid down the principle that every possible life must be saved, but that the wages on relief works must be so regulated in relation to the market rate of wages as not to undermine the independence of the people. The experience gained in the great famines of 1898 and 1901 has been garnered by these commissions, and stored up in the “famine codes” of each separate province, where rules are provided for the treatment of famine directly a crop failure is seen to be probable. The first step is to open test works; and directly they show the necessity, regular relief works are established, in which the people may earn enough to keep them from starvation, until the time comes to sow the next crop.

As a result of the severe famine of 1878–1879, Lord Lytton’s government instituted a form of insurance against famine known as the Famine Insurance Grant. A sum of Rs. 1,500,000 was to be yearly set aside for purposes of famine relief. This scheme has been widely misunderstood; it has been assumed that an entirely separate fund was created, and that in years when the specified sum was not paid into this fund, the purpose of the government was not carried out. But Sir John Strachey, the author of the scheme, explains in his book on India that the original intention was nothing more than the annual application of surplus revenue, of the indicated amount, to purposes of famine relief; and that when the country was free from famine, this sum should be regularly devoted to the discharge of debt, or to the prevention of debt which would otherwise have been incurred for the construction of railways and canals. The sum of 1 crores is regularly set aside for this purpose, and is devoted as a rule to the construction of protective irrigation works, and for investigating and preparing new projects falling under the head of protective works.

The measures by which the government of India chiefly endeavours to reduce the liability of the country to famine are the promotion of railways; the extension of canal and well irrigation; the reclamation of waste lands, with the establishment of fuel and fodder reserves; the introduction of agricultural improvements; the multiplication of industries; emigration; and finally the improvement where necessary of the revenue and rent systems. In times of famine the function of the railways in distributing the grain is just as important as the function of the irrigation-canals in increasing the amount grown. There is always enough grain within the boundaries of India for the needs of the people; the only difficulty is to transport it to the tract where it is required at a particular moment. Owing to the extension of railways, in the famines of 1898 and 1901 there was never any dearth of food in any famine-stricken tract; and the only difficulty was to find enough rolling-stock to cope with the demand. Irrigation protects large tracts against famine, and has immensely increased the wheat output of the Punjab; the Irrigation Commission of 1903 recommended the addition of 6 million acres to the irrigated area of India, and that recommendation is being carried out at an annual cost of 1 millions sterling for twenty years, but at the end of that time the list of works that will return a lucrative interest on capital will be practically exhausted. Local conditions do not make irrigation everywhere possible.

As five-sixths of the whole population of India are dependent upon the land, any failure, of agriculture becomes a national calamity. If there were more industries and manufactures in India, the dependence on the land would not be so great and the liability to lack of occupation would not be so uniform in any particular district. The remedy for this is the extension of factories and home industries; but European capital is difficult to obtain in India, and the native capitalist prefers to hoard his rupees. The extension of industries, therefore, is a work of time.

It is sometimes alleged by native Indian politicians that famines are growing worse under British rule, because India is becoming exhausted by an excessive land revenue, a civil service too expensive for her needs, military expenditure on imperial objects, and the annual drain of some £15,000,000 for “home charges.” The reply to this indictment is that the British land revenue is £16,000,000 annually, whereas Aurangzeb’s over a smaller area, allowing for the difference in the value of the rupee, was £110,000,000; though the Indian Civil Service is expensive, its cost is more than covered by the fact that India, under British guarantee, obtains her loans at 3% as against 10% or more paid by native rulers; though India has a heavy military burden, she pays no contribution to the British navy, which protects her seaboard from invasion; the drain of the home charges cannot be very great, as India annually absorbs 6 millions sterling of the precious metals; in 1899–1900, a year of famine, the net imports of gold and silver were 130 millions. Finally, it is estimated by the census commissioners that in the famine of 1901 three million people died in the native states and only one million in British territory.

 FAN (Lat. vannus; Fr. éventail), in its usually restricted meaning, a light implement used for giving motion to the air in order to produce coolness to the face; the word is, however, also applied to the winnowing fan, for separating chaff from grain, and to various engineering appliances for ventilation, &c. Ventilabrum and flabellum are names under which ecclesiastical fans are mentioned in old inventories. Fans for cooling the face have been in use in hot climates from remote ages. A bas-relief in the British Museum represents Sennacherib with female figures carrying feather fans. They were attributes of royalty along with horse-hair fly-flappers and umbrellas. Examples may be seen in plates of the Egyptian sculptures at Thebes and other places, and also in the ruins of Persepolis. In the museum of Boulak, near Cairo, a wooden fan handle showing holes for feathers is still preserved. It is from the tomb of Amenhotep, of the 18th dynasty, 17th century In India fans were also attributes of men in authority, and sometimes sacred emblems. A heart-shaped fan, with an ivory handle, of unknown age, and held in great veneration by the Hindus, was given to King Edward VII. when prince of Wales. Large punkahs or screens, moved by a servant who does nothing else, are in common use in hot countries, and particularly India.

Fans were used in the early middle ages to keep flies from the sacred elements during the celebrations of the Christian mysteries. Sometimes they were round, with bells attached—of silver or silver gilt. Notices of such fans in the ancient records of St Paul’s, London, Salisbury cathedral and many other churches exist still. For these purposes they are no longer used in the Western church, though they are retained in some Oriental rites. The large feather fans, however, are still carried in the state processions of the supreme pontiff in Rome, though not used during the celebration of the mass. The fan of Queen Theodolinda (7th century) is still preserved in the treasury of the cathedral of Monza. Fans made part of the bridal outfit, or mundus muliebris, of Roman ladies.

Folding fans had their origin in Japan, and were imported thence to China. They were in the shape still used—a segment of a circle of paper pasted on a light radiating framework of bamboo, and variously decorated, some in colours, others of white paper on which verses or sentences are written. It is a