IN THE NARA EPOCH
be transferred to some one else in six years, and was at best secure for only one generation. The Government, therefore, began to recognise the principle of private ownership, and also to lend to agriculturists in spring such funds or articles as were required for the cultivation of their farms. In fact, the policy pursued by the State was a curious mixture of desire to reform and inability to retrench. Resolute efforts were made, for example, to improve means of communication by constructing roads and organising post-stations; but, at the same time, officially guarded fences and barriers were established at commanding points, the necessity of fixing the tax-payer immovably in one place being considered more important than the expediency of bringing new markets within reach of his produce. It was in the reign of this same Emperor (Shomu) that men witnessed the spectacle of the great Buddhist prelate Giyogi travelling about the country, attended by a large body of priests and acolytes, who, under his direction, began the building of bridges, the making of roads, the digging of canals and reservoirs, the improvement of harbours and the erection of embankments in various places where special engineering skill was needed. Inspired by such an example, the people flocked from all sides to complete these works, and the Government showed its appreciation of Giyogi's labours by redoubling its patronage of his creed.
The lower orders did not derive much benefit
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