APPENDIX A.
Extracts from a Memorandum (No. 328, dated 17th December 1877), by Dr. Payne, on the
Bhowanipore Lunatic Asylum.
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2. The only practical effect aimed at in this story is to influence future judgment on
the working of the asylum, by showing, firstly, the fallaciousness of averages in reckoning
the cost of a small asylum for all classes; and, secondly, by setting forth the grounds of a
belief that, so long as an asylum for Europeans and Eurasians of all classes shall be main-
tained here, a certain absolute sum must be expended annually, and chiefly for establishment,
which sum shall not vary much with numbers of inmates, but without which neither safety
nor decency can be secured. If, in addition, I shall convey an idea that this minimum
expenditure has been reached, I shall consider myself fortunate. If not, the principle
accepted will at least prevent future measurement of economy by averages.
3. The financial results of the several measures of reform are summarized in the
annexed table, where they may be seen at a glance, if the Lieutenant-Governor should not
have leisure for particulars.
4. The establishment as fixed for some years passed is sufficient numerically for the
ordinary asylum population. It will suffice even if the inmates increase, provided that
paying-patients increase in fair proportion; and it will be no more than sufficient if numbers
fall. It comprises a public staff of European officers and of native warders so small that a
single severe case strains to the utmost the power of the whole group, and a body of menial
servants, every man of whom is daily hard worked in securing decency and cleanliness.
5. A fixed charge for establishment which cannot fluctuate with fluctuating numbers,
and which forms the largest item of cost, condemns of itself all attempts to measure economy
by averages. If the number of patients be halved, the Government will spend less money
in total, but the average cost will be nearly doubled; and if the number be doubled, an
average nearly halved will attend an increased total cost.
6. Further, in casting the averages as now presented under orders, the totals employed
include money spent on paying-patients, whose diet cannot be restricted to necessaries, and is
much more costly than that of the paupers. The same is true in the case of clothing and a
few sundries, so that in the columns of the annexed table, which purport to set forth the
average cost of each patient under separate headings, the figure is in no instance a true one
as applied to either class. It may be said that, so far as Government outlay is concerned,
the error is neutralized in the column of general net cost, where the pauper receives the
benefit of the payment of other classes to which he does not contribute. This is true enough;
but the figure remains only a mean number, obtained by distributing the yearly totals of
cost over an average daily number of inmates to which it stands in no true relation as I have
shown; and it affords, therefore, no data for comparison of places or periods, nor any criterion
of progress, which are the first and chief uses of an average. It is at the same time at
variance with the actual outlay of Government money.
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8. I believe that nothing has been omitted from the following statements which is
important to the issue, whether tending to economy or the reverse. The points to which
attention has been given and the chronological order of the several measures of reform are
these:—
(1.) Removal of harmless insane soldiers to Europe.
(2.) Reduction of asylum general charges by removal of chronic cases.
(3.) Reduction of dietary charges.
(4.) Removal of soldiers from up-courtry stations direct to Bombay.
(5.) Removal of insane seamen under Merchant Shipping Act.
(6.) Enforcing payment for maintenance from estates or relatives of persons able to
make it.
(7.) Making authorized payments more nearly adequate to advantages received.
(8.) An attempt to obtain adequate payment from the Military Department on
account of soldiers.
9. The first change proposed from this office affected the manner of conveying insane
soldiers to Europe. These men were despatched, year by year, in sailing ships with civil and
seafaring lunatics. Passage-money, gratuities, and sea outfits entailed on Government a
charge averaging Rs. 800 per man. The harmless imbecile and the turbulent maniac
cost alike this sum for his removal. At the same time the ordinary military invalid was
being carried for about Rs. 300. A proposal was submitted that in future harmless insane
soldiers should be shipped as ordinary invalids by the Military Department. The change
was ordered, and the order took effect in 1861. Between that year and 1872 no less than
230 soldiers were thus disposed of who would otherwise have cost the Government
Rs. 1,84,000. The sum saved was not less than Rs. 1,15,000 in 12 years. Between 1856
and 1860 (five years) there had been shipped at the old rates 154 insane soldiers of all condi-
tions. From 1861 to 1872 (twelve years) the number thus treated was 122, and would, but
for the change, have been 352.
10. Towards the end of 1869 we learnt that a change had been made in the manner of
despatching military invalids to Europe. They were to embark at Bombay in large troop-
ships. As the number of harmless lunatics admitted in each ship under military rules