It was a political, religious and superstitious decision made roughly 2700 years ago by the Roman King Numa Pompilius. Up to that point the Romans had a ten-month calendar with 304 days, and approximately 61 winter days (between December and March) that were not assigned to any month. Numa created a new twelve-month calendar with 355 days by adding January (29 days) and February (28 days). In general, February has contained 28 days ever since. Interestingly, February's 28 days were the second month of the Roman civil calendar but the last (twelfth) month of their religious calendar.
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The first calendar was actually created by the Romans. At first, it only had 10 months and 304 days. Later on, 2 more months were added bringing the total number of days to 355. Julius Caesar is the one who gave February 28 days (except for leap year) to help the calendar year and lunar year be equal.