international relief action, since famine was most likely to occur in countries
where there was much chronic under-nourishment, it might at first sight appear
difficult to define the criteria for distinguishing between famine and chronic
under-nourishment. Neither physiological nor economic criteria would be suffi-
cient in themselves, or in combination, to define the circumstances requiring
international emergency relief action. The working party noted that through the
operation of the Indian Famine Code, a distinction was made between chronic
malnutrition and emergency famine by common sense administrative methods.
tional relief action and that full account should also be taken of the criteria
contained in the UN secretary-general's report to ECOSOC of 1952 including: the
probable degree of shortage of food supplies in relation to the usual consump-
tion if the affected population; the area and number of people likely to be
affected; the probably duration of the emergency; the extent to which the govern-
ment concerned was dealing, and could deal, with the situation through its own
resources; the effects of the famine in fields other than food; and the consequences
of the famine on economic and social conditions in the country (UN, 1952b).
Other factors included: the internal transport facilities available; the adminis-
trative machinery for distributing food; and the effectiveness of controls to prevent
excessive food price rises and hoarding, and panic. The report concluded that,
`It is only in the light of considerations of the character [of the situation] that
the gravity of the emergency can be judged and the need assessed'. Taking all
these factors into account, the working party put forward the following definition
of famine as appropriate for the purpose of assessing the need for international
action:
and impartial study, (emphasis added) that serious catastrophe and extensive
suffering will occur if international assistance is not rendered (FAO, 1952a)
all the internal measures that were its duty and responsibility in such circum-
stances. The definition was accepted by the FAO Council and Conference.
stressed the importance of early warning and continuous surveillance of an
impending disaster. FAO was given primary responsibility for ascertaining the
nature, scope and probable duration of impending food shortages and famine,
making emergency reports, and advising the UN secretary-general of the need
for international action (UN, 1952b). The machinery for invoking international
emergency aid through FAO was first brought into play in 1952 in response to a
request from the Government of Yugoslavia resulting from drought.