When on January twenty-first the Federal Relief Commission took charge of the entire system, it may be said that there was a change not only of hands, but of policy as well. The large amounts made available by the Imperial and Dominion governments and by public subscription made it possible to substitute for rehabilitation the principle of modified restitution. This change of policy the government adopted because of the conviction upon the part of the people that they were suffering from the vicissitudes of war, and that full restoration was in law and equity of national obligation. The step is of special social significance for Halifax is the first instance where on any large scale[124] the principle of restitution became the guide, rather than that of rehabilitation. This principle of indemnity implies the reinstatement of the beneficiary as nearly as possible into the position from which he was hurled by the calamity which has befallen him. It implies that to the householder shall be given the use of a house, to the mechanic his tools, to the family its household furniture. For the community as a whole it means a speedy restoration of such economical and industrial activities as have been temporarily suspended, the rebuilding of bridges, the reopening of streets, the reestablishment of banks, business houses, churches, schools. It requires that protection shall be given the defenseless, food and shelter to the homeless, suitable guardianship to the orphan and as nearly as possible normal social and industrial conditions to all.[125] It must be made clear that while in no case was the Halifax policy denominated restitution, but rather "generous relief," in actual practice a large proportion of claims were verified and paid on a percentage basis of the loss suffered, rather than that of ascertained need. The Commission was granted power to "pay in full all personal property and real estate claims duly established to an amount not exceeding five thousand dollars." And while in case of the larger claims of churches, schools, business properties and manufacturing establishments, and the property of the more prosperous classes, there was a policy of just and adequate relief declared, the agitation continued and continues that "every dollar of loss shall be paid in full." [124] Both in Chicago and Johnstown many families were placed in a position practically as good as that which they had occupied before. Carnegie once completely reimbursed the sufferers from a bank failure. [125] Devine, Edward T., _Principles of Relief_ (N. Y., 1904), pt. iv, p. 462.