Chapter II: Foreword (2)

The living accommodations of the average rural family are very unsatisfactory, consisting, as they do, of a dwelling house of one room, or at the most, two. This reduced house space makes it necessary to eat and live and sleep in the same room, rendering impossible any degree of privacy on the part of any of the family. This condition in the case of growing boys and girls is very undesirable, particularly since it is a custom to take in as members of the family relatives, sometimes of a rather remote degree of relationship, in case they are left unprotected. Another feature of family life which tends toward degeneration and which is found to a great extent in Porto Rico, is the intermarriage between relatives within comparatively close degrees of consanguinity. The civil laws of Porto Rico prohibit the marriage of persons of closer degrees of relationship than first cousins, and the ecclesiastical laws of the Roman Church prohibit marriage within eight degrees of consanguinity. In the record of one family which produced 25 cases of insanity in two generations, it was found that there had been a considerable amount of intermarriage between relatives, one of the grandparents marrying a person who was prohibited by the ecclesiastical law on four different grounds on account of consanguinity. Ecclesiastical permission had been obtained to overcome these difficulties and the marriage took place. There is no doubt that close intermarriage and the failure to introduce new stock into the family tends to both mental and physical degeneration. And where families intermarry for generations, as we find to be the custom in a great many instances in Porto Rico, there can be no doubt of the ultimate disastrous outcome from this custom.

The average Porto Rican family lives very happily and contentedly, the parents displaying great affection for the children and for relatives even of a remote degree of relationship. In the case of the death of parents, relatives usually adopt or take charge of the children which may be left and bring them up as carefully as they would children of their own. The family group is naturally closer among Latin peoples than among Anglo-Saxon races, and this has tended to do away with some of the vices of family life which are found among Anglo-Saxon peoples, while the same circumstances have tended to increase other unsatisfactory conditions of family life peculiar to Latin races.

One of the features which, from the standpoint of society, may have an unfortunate result is the mixture of races in the family life. While this has not taken place to such an extent in the country districts as it has in the towns, nevertheless, a great many families in Porto Rico are composed of mixed races. The biological tendency in cases of mixed races, according to most authorities, is a decrease in the number of children in the family as generation succeeds generation, unless there is an addition of new blood to a considerable extent. This may possibly be one of the means which Nature has provided for solving the problem of overpopulation in Porto Rico, but there is the added fact that usually as the succeeding generations become fewer in regard to numbers, they also become less capable mentally and physically. The race question in Porto Rico will undoubtedly come to be one of the problems that has to be solved, and it will be more difficult of solution than the race problem in the United States, where the races are becoming more widely separated every year and where it is very infrequent to find persons of the two races in the same family. In Porto Rico the problem will be intensified because it is not merely a problem between races, but a race problem which involves the family organization in many cases. The government of Brazil has predicted that in a hundred years there will be no black inhabitants in the Brazilian republic, that they will be entirely assimilated by the white race or carried off by disease. The census report for Porto Rico shows a falling off in the black race of about 9,000 in the last ten years, and an increase of about 30,000 in the mixed or mulatto population. Thus the assimilation of the black population is gradually taking place, and whether this will in time lead to a complete assimilation, or whether the mixed race will become weakened through this racial intermarriage to such an extent that it will eventually refuse to propagate, is a question which only time can answer. There is no doubt, however, that this is one of the problems that must be confronted in Porto Rico.

RURAL HOUSING CONDITIONS

THE housing of a people is always a matter of prime importance in their social life and development. There is little progress until the housing conditions are comfortable and hygienic, and the development of the home and the family life depends to a great extent on the conditions under which a people lives. The housing conditions in Porto Rico, especially for the poorer classes, are far from satisfactory. The dwellings of the country people are described as follows, in the Report on the Housing Conditions in Porto Rico, published by the Insular Bureau of Labor in 1914:

"There are five general problems which the laborer or employer in tropical countries, who is anxious to build cheap but proper houses, has to meet. The first is to provide adequate protection against the heat. As in northern countries it is necessary to shut out the cold winds and generate and conserve artificial heat within the house, so in tropical countries it is equally important to let in the breezes and to clear out any artificial heat that may arise.

"The second problem is to provide protection against the frequent tropical rains. This is especially important in tropical countries that have a protracted rainy season, as it is often difficult to shut out the rain without also shutting out the fresh air.

"The third problem is the provision of adequate sanitary facilities. Due to the heat in southern countries and to the humidity that prevails during certain seasons of the year, this problem is more difficult of solution and likewise more important than in countries farther north.

"The fourth problem is that of securing cheap and durable building materials. In a land like Porto Rico where tropical shrubs and the palm are practically the only woods that the laborers are able to obtain, we must not expect the same solid, commodious habitations which are found in northern countries where the pine and hemlock abound.

"The fifth problem, perhaps as important as any of the preceding and certainly as difficult to remedy, arises partly from the generosity of nature herself. People can live in tropical countries in almost any form of habitation. Cold winters have not obliged the poorer classes to be adepts in house construction. Poverty has forced them to live as cheaply as possible. Naturally, the laboring classes engaged in tilling the soil still make their homes in the cheapest forms of huts. This problem has, therefore, three aspects--an over-indulgent climate, poverty, and a lack of opportunity by the poorer classes to learn better methods of house construction.

"In Porto Rico we have, in addition to the problems mentioned above, two special conditions which have influenced the form and quality of our laborers' houses. The first is that the seasonal character of many of our agricultural industries forces the laborers to migrate from one section to another in order to find work and, naturally, they are not inclined to go to the expense and exertion of building substantial homes. The second, and more important, arises from the fact that the greater part of our laborers do not own the land their houses are placed upon and, being subject to ejection at the will of their landlords, they have no incentive to beautify or improve their homes.

"According to the census of 1910, the urban territory of Porto Rico--that is, the places of 2,500 inhabitants or more--contained 224,620 inhabitants, or 20.1 per cent of the total population, while 893,392 inhabitants, or 79.9 per cent, lived in places of less than 2,500 inhabitants, and of these, 837,725 lived in strictly rural territory. Needless to state, the greater part of the rural inhabitants belong to the laboring classes and live in the types of rural homes described in this section.

"We have divided the habitations of rural laborers, according to their construction, into the following types: (1) Single houses of thatch, (2) single houses of wood and zinc, (3) tenements of wood and zinc.

"Most of the thatched huts in the rural sections have been built by the laborers who live in them. The land upon which these houses are built is, however, usually the property of some plantation or landowner. Only in the more inaccessible sections inland do the laborers who have built these thatched houses also own the land they are placed upon. It is the custom among the landowners to allow laborers who work for them to take the necessary materials--grass, sticks, palm-bark, etc.--from the land and build their huts. This is done, of course, with the consent of the landowner, and the huts so built are legally attached to the land and become the property of the landowner. As a matter of fact, the laborers who have built these huts claim them as their property and are allowed to live in them without charge or molestation so long as they work for the landowner when their services are needed. When a laborer who has built a hut leaves it and moves to another's land, the hut is claimed by the landowner and some other laborer is allowed to move into it. There are also some of these huts that have been built by the landowners at their own expense, but the plantation owners and other landowners who have gone into the business of building houses for their workmen usually construct a better type of house. The thatched hut, therefore, while it is legally a plantation house, is not usually so considered, either by the landowner or the laborer.

"If we judge the importance of a type of house from the number of people who live in it, this thatched hut is far more important than any other rural or urban type. The great mass of the rural laborers live in houses of this type and, as has been shown, fully three-fourths of the total laborers of the Island live in rural sections.

"The homes of the wealthy in all parts of the world are constructed to conform to the standards of the age and place in which they are erected, and to the personal desires of the occupants, regard being taken only of the absolutely necessary conditions of environment. The houses of the poor, on the other hand, are the direct product of local environment. The hut of the inland laborer of Porto Rico, the _jíbaro_, is a striking illustration of the effect of environment upon the type of house in which the poor live.

"The problem of obtaining cheap and durable building materials is a very difficult one for the poor laborers of Porto Rico. Hard woods are extremely scarce, and the poor inland laborer cannot afford to buy imported lumber, and, therefore, he has been obliged to utilize the coarse grasses and the products of the palm trees that are accessible at little or no expense except the labor necessary in their preparation. Furthermore, many of these people have not the skill nor the necessary tools to use materials such as stone and clay which they might be able to obtain. Also, the migratory character of many of these inland laborers, and the fact that they do not own the land their houses are built upon, have been fundamental influences in preventing the development of better house types. The principal agricultural industries, _i.e._, coffee, sugar, and tobacco, have a busy and a dull season, and many of the inland laborers are obliged to migrate from one section to another in order to find work. For this reason hundreds of laborers pass annually from the inland hills where coffee is grown down to the sugar plantations on the coast, and then back again to the hills, the busy seasons of sugar and coffee being at different times of the year. Of course, these laborers cannot move their houses with them about the Island, and they naturally tend to build the cheapest kind of temporary structures. Also very few of them own the land their houses are placed upon. They are mere squatters, or tenants at will, and the land owner may eject them at any time for little or no cause, so that there is no incentive to build substantial structures, and there is no chance of developing that pride in the home which is so essential to the building of good houses.

"The inland laborers who live in these huts have been their own architects and builders, and they model their homes after the old type that has prevailed among the hills for centuries. The framework of these huts is of poles and small sticks cut from shrub trees and nailed or tied together at the corners with native fiber ropes. The roofs are generally thatched with a long, tough grass, and the walls are constructed by binding leaves of the royal palm (_yaguas_) with sticks and fiber. The floor is of boards or slabs and is raised from one to two feet above the ground. In some sections _yaguas_ are also used for the roofs, and in the inland there are many huts with walls of slabs from the trunk of the palm trees. These huts are usually divided into two rooms by a flimsy partition of _yaguas_, one room being used as a bedroom and the other as a combined living and dining room. The kitchen is a separate room or shed at the rear, and, probably because of the danger of fire, is usually without floor. The furniture consists of hammocks, boxes for chairs, a rough table, and a few dishes, all made from gourds, except the iron pot used in cooking. The value of such furniture is usually from $4 to $6, and the value of such a house from $10 to $20.

"This hut of the inland laborer with its thatched roof and open construction is, in many respects, a much better house than the casual observer is likely to believe. A well-constructed thatch roof, when it is new, offers sufficient protection against rain and excellent protection from the heat of the tropic sun. New palm bark walls are also adequate to keep out the rains. Furthermore, almost without exception, the floors are raised above the ground, so that the surface waters after a shower run freely under the hut and wash away any refuse that may have accumulated, and then the sunlight and winds quickly dry the remaining dampness. In other words, a new well-built hut of this type is a properly ventilated, cool, and reasonably sanitary habitation, and represents the best effort of the laborers to adapt themselves, in their poverty-stricken condition, to the circumstances of their environment. On the other hand, these huts deteriorate very rapidly. Within six months or a year, a dozen varieties of insects have made their nests in the thatched roof, the palm-leaves have cracked, and the floor sags.

"One who stands on some projecting point high up on a mountain side in the interior of the Island and carefully scans the hillsides about and the valley beneath, will be amazed at the number of small huts of this type that lie within his view. There are hundreds of them. Every knoll is crowned by its hut; every hillside is dotted by them. No two are ever placed together; each family seeks its own free life. It is practically true that one cannot shout in any part of our Island and not be heard by the occupants of one or more of these huts.

"To say that these people are contented and prefer to live as they do, is not true. Customs clinch themselves upon a people so that they appear contented, and these inland laborers have lived under the same conditions for three centuries. Their standards of living are modest, and their desires are few. In this sense they are contented. Yet there is a deep and powerful change coming over them. They are going to the cities in greater number than ever before; their children are attending the little schools in the hills. New ambitions are awakening. When the dull season comes, they cannot find work. There are times when many of them are hungry. They are not contented.

"That the Porto Rican laborer is of cheerful disposition is especially true of the so-called _jíbaro_. He has been obliged to find his joy in simple things. He greets you with a smile; he welcomes you to his house and cheerfully divides his cup of coffee with you; he dances with a show of gayety on a Sunday afternoon. He is ever cheerful, but not happy. There may be some customs and prejudices of minor importance that he is loath to change, but in the main he prefers to live as he does because he is obliged so to live. Those who adhere to the _laissez faire_ policy and believe that conditions are good enough as they are, do not know the real heart of these people. They need and deserve and must ultimately receive the opportunity to improve their living and working conditions.

"There are two important causes for the erection of plantation houses: (1) For the employer, the practical advantage of having a resident supply of labor on his land; (2) for the laborer, the necessity of living near his work. Laborers who live in plantation houses are more largely dependent upon the plantation than are laborers who live in their own homes. One of the conditions of occupying a plantation house is that the occupants will work for the plantation whenever their services are required. Laborers living in plantation houses, can, therefore, be depended upon by their employers, and this is a great advantage to the plantation owner. Furthermore, such houses are usually much better than the laborers who live in them could afford to build for themselves. Frequently, also, the holdings of the plantation are so extensive that it would not be possible for the laborers, even if they had the money, to buy land upon which to build their houses within walking distance of their work.

"There are great differences between the single houses of wood and zinc erected by the various plantations. The better types have been built by employers who wished to provide healthful and comfortable quarters--increase the efficiency of their laborers as well as to hold their labor supply. Unfortunately, at present, such houses are not being erected by the plantations in all parts of the Island. The majority of these houses have been built with the sole purpose of holding as large a labor supply as possible at the least expense.

"The houses of this type are usually roofed with large strips of zinc, nailed directly upon the rafters. These roofs are low, unceiled and, as a result, the houses are extremely hot. The walls are of imported lumber, sometimes the boards being matched and in other cases clapboarded. The better houses are painted to diminish the depreciation and to awaken the pride of the occupants in their homes. The walls are six or seven feet high. The floors are of boards and raised from one to two feet above the ground. The houses are set upon posts so that there is a clear space under them that can be easily cleaned. On the interior they are divided by half partitions into two or three rooms and are usually provided with separate kitchens, frequently one kitchen serving for from one to four houses. These houses cost from $70 to $150, the average being about $80, according to their size and construction. This description refers to the better houses of this type and, unfortunately, the majority of the single plantation houses are not so well constructed.

"These tenements represent the older type of plantation houses and fortunately very few of them are being built at the present time. Their construction has been prompted by the same reason that has induced employers to build the single type of plantation house--the desire to hold a resident supply of labor on the plantation. They are, however, far inferior to the single houses.

"The better rural tenements are built with zinc roofs, board walls and floors, and are raised from one to two feet above the ground. They are unceiled and have no windows. In the inland many of them have zinc walls. The poorer ones are located on low, swampy land and are built of oil cans, pieces of boxes, and other odds and ends. Some of them have separate kitchens and sanitary facilities, but many have nothing except such temporary and inadequate structures as the occupants have themselves built. The first reason for building tenements of this type has been, of course, to house the greatest number of laborers at the least expense. They are long structures, one or two rooms wide, each room an apartment, and crowded with people. Although these rural tenements are not usually being built at present, there are still hundreds of them in use.

"The worst housing conditions upon the plantations prevail in the buildings, usually tenements of this type, set aside as sleeping quarters for unmarried laborers. This type of labor is transient, coming for a few months during the busy season and then passing on to another section of the Island. Consequently, they are crowded into whatever quarters may be available at the time. The leaky rooms of the old sugar mills, the worst rooms in the tenements, single houses that have been unused for six months and are out of repair and filthy, are usually used for the emergency--an emergency that lasts from three to six months. Six, eight, or ten hammocks are hung up between bare walls in a room 10 feet by 15 feet and are all filled each night. Conditions of ventilation and general sanitation are frightful.

"There is one notable exception. One of the largest centrals of our Island has constructed a large, well-ventilated, and comfortable men's apartment. The floor is of matched boards, solid and clean. The walls are also of matched boards, but there is an open space two feet wide at the top of the walls extending around the building. Overhanging eaves prevent the rain from beating in through this opening. The roof is of heavy paper nailed to a thick wooden ceiling. Frames are arranged in the interior of the building for hanging hammocks, and around the walls are large individual lockers for the use of those sleeping there. Finally, the building is cleaned thoroughly every day.

"No description of the housing conditions of rural laborers would be complete without mention of the gardens cultivated by the occupants of the houses. It is safe to say that nine out of every ten laborers in the rural sections, with the exception of those who live in plantation houses where there is no land that they are permitted to cultivate, have planted some sort of garden. It is also true that these gardens are, in most cases, of very little practical use. Well cultivated and productive gardens belonging to rural laborers are hard to find.

"The average garden consists of two or three plantain or banana trees, a few tubers, and some medicinal plants. Frequently, there are many and beautiful flowers. Whatever vegetables there may be are poorly cared for and do not produce more than a third of a proper yield.

"This subject is of tremendous importance. The soil and climate of Porto Rico are such that it should be able, even with its dense population, to produce most of its food. There are unused plots of ground around practically every hut in the interior of the Island. The decrease in the production of sugar is going to throw many laborers out of work and they will be obliged to raise most of their own food or suffer. Many reasons have been advanced to explain the absence of good small gardens. The laborers themselves say that they do not plant and cultivate gardens because they do not own the land and they are allowed to plant only on condition that they give the greater part of their produce to the landowners. They claim also that it does not pay to break up the ground for one crop and that after they have got plantains, etc., growing they may be obliged to move. It is also true that in most cases they have not money enough to buy the seed or hire the oxen and implements needed for breaking up the ground.

"Also, in some parts of the south coast, it is too dry for profitable gardening. On the other hand, landowners frequently say that the reasons why laborers in the rural sections do not plant gardens are lack of knowledge of gardening methods, lack of realization of the benefits that they could derive from good gardens, and custom. Without discussing the relative merits of these reasons, there are two things that must be faced--such laborers must be educated, so far as possible by example, and they must be offered the opportunity to hold land with some fixity of tenure, either by purchasing it on the installment plan or by obtaining leases from the present landowners."

WOMAN AND CHILD LABOR

FORTUNATELY, the factory system has not been introduced to any great extent into Porto Rico, nor in all probability will woman and child labor in factory employment ever constitute a serious problem. The census of 1910 gives only a total of 1912 woman wage earners in various industries of the Island. This, of course, does not include the woman who works throughout the rural districts, and whose condition constitutes the problem which must be studied and remedied in the Island.

The average unskilled laborer in the country districts of Porto Rico does not earn a sufficient sum to enable him to maintain his family in comfort. As a result, the wife, and frequently the children, must contribute to the support of the family as much as they can. In some parts of the Island, the tasks of the country women are largely limited to their housework and the cultivation of whatever garden products they may raise, because such crops as sugar cane do not call to any great extent for the use of woman labor. In other sections of the Island, however, particularly those parts where coffee growing is the chief industry, the gathering and caring for the coffee crop is left, to a great extent, to the women and children. This, of course, results in a financial saving to the coffee grower, as the wages for woman and child labor are much less than for the services of men. The unhealthful results, however, more than offset the advantages gained by adding the mother's wages to the family income.

The harmful results from woman labor may be classified as direct and indirect. Under the directly harmful results are the weakened physical condition of the mother, the increased susceptibility to diseases which are especially common in the coffee districts, particularly anemia, and such diseases as are the results of exposure. The larva of the hookworm lives and finds a fertile field for action in the damp and shady regions devoted to the production of coffee, and as the majority of the women laborers are not accustomed to wear shoes, they easily permit contact and contagion from this disease.

The strength of children and their ability to withstand disease depends to a great extent upon whether or not they are physically strong at the period of their birth and during the time they are under the direct care of the mother. A mother whose system has been weakened by the debilitating effects of anemia, cannot nourish her child and provide him with the necessary amount of food, and as a result, the child is either anemic, or a victim to malnutrition as a result of introducing solid food into his system before the digestive organs are prepared to take care of such food.

Among the indirectly harmful results of woman labor is the necessary separation of the mothers from the children of the family. The mother on going to work, either leaves her children in the care of a neighbor, or leaves them at home where the older children take care of the younger. This deprives the children of the mother's influence and allows them liberty to associate with children who may be undesirable companions, which would be avoided to a great extent if the mother were present to take care of them. The Juvenile Court records in the United States show that 85 per cent of the delinquent children brought before the court have been led into bad habits through the failure of one or both of the parents to take care of their supervision during play hours. Divorce in the United States has been strongly attacked for the reason that it deprives the child of one of his legal protectors. From the same point of view, woman and child labor, which deprives the child of the care of his mother, must inevitably produce bad results in the growing generation.

The use of child labor in Porto Rico is not particularly preferred except in coffee districts and in certain agricultural sections where boys are used at certain times of the year to help drive the oxen, or to help in planting the crop. As this is outdoor work it does not have the devitalizing effect upon the child's body which factory work would have, and as it does not require concentrated attention, it is relieved from the monotony which would tend to lower the child's mental ability. The evil results which must be guarded against are those arising from overwork and from association with undesirable characters while the child is not under the supervision of his parents. In addition to this, the child who is engaged at work must lose the benefits which he should be receiving from attendance at school. During the last year, the Department of Education has attempted to solve this problem by changing the vacation period, so that the long vacation of three months will fall at the coffee-picking season in such sections of the Island as are devoted to the production of this crop, and where previously there was a great decrease in school attendance at the time when the harvesting of the coffee was in progress. This, undoubtedly, will greatly help to do away with the harmful results which formerly were the consequences of irregular attendance or non-attendance at school on the part of a great many of the children in the coffee-growing districts.

An increase in the number of rural schools so that all of the children of the rural districts can be accommodated, is also necessary before this problem is entirely solved. At the present time, a large number of the children in the country cannot attend school, either because the school in the neighborhood is overcrowded, or because the nearest school is at too great a distance for them to attend with regularity. The removal of these conditions unfortunately depends upon an added appropriation for the maintenance of the Department of Education, and it is doubtful whether the income of the Island will be sufficient to supply the needed increase for years to come. With the gradual improvement of roads, consolidated schools may help to solve the problem, and a half-day enrollment for each group will tend to increase the number of children that can be taken care of. Children who find that they cannot obtain a place in the school will naturally be made use of by their parents for wage-earning purposes whenever possible, but the great majority of parents would not put their children at work if the children were enrolled in school and if irregularity of attendance were to lead to dismissal from the school.

Another thing that would help to relieve the situation, as far as woman and child labor is concerned, would be the establishment of a minimum wage for unskilled farm labor, such wage to be sufficient to enable the laborer to maintain his family without the help of money earned by the wife or children. The time of the wife could be occupied in poultry raising and in caring for the family garden, which would also tend to reduce the cost of living for the family and could easily be established, if the landowner were to provide sufficient garden space with each house in addition to the regular wages paid his laborers. Of course, methods of gardening would have to be included in the rural school programs, and the rural teacher should act as a supervisor of these gardens and advisor to the people of the community in which he is employed.

The important things to guard against in the life of the family, from the standpoint of the welfare of both the family and the community, are that the mother need not be obliged to dissipate the strength, through outside labor, which she needs in the raising and caring for her family. The lack of proper supervision of the children through the absence of the mother from the home must also be guarded against. In case it can be proved that a father is unable through his own efforts to earn sufficient to maintain his family, a system of mothers' pensions carried on by the government should be established in order that the mother may be safeguarded from want in case of the death of her husband, and that she may not be obliged to help him in the maintenance of the family through the performance of such labor as would interfere with her regular family obligations.

INDUSTRIES

THE principal industries of Porto Rico are necessarily of an agricultural character, and their importance to the Island financially is shown by the fact that during the year 1914-15 exports to the value of $49,356,907 left for the United States and foreign countries. The imports for the same period reached the amount of $33,884,296, thus giving a good surplus to the Island after the total imports had been paid for. The principal classes of imports are the foodstuffs which might be produced in sufficient quantities to maintain the population of Porto Rico. This is a situation which should receive attention, inasmuch as the Island is capable of producing all of the foodstuffs which it needs for its own consumption. The principal article of export from Porto Rico is sugar and other products of the sugar cane. The article of export second in value is tobacco in its various forms. Third comes coffee; and these three products make up the chief source of wealth.

The chief criticism in regard to the agricultural situation of Porto Rico at the present time, is that there has been very little development of small farm products which would tend to make it possible and profitable for the landholder who is in possession of only a few acres to earn a comfortable living. The climate and soil of Porto Rico would, undoubtedly, lend themselves to the production of many fruits and vegetables which could be raised with profit on farms limited in size, and which would enable the small farmer to maintain his family.

In addition to the introduction of agricultural products fitted for small farm production, an opportunity should be given and efforts encouraged for the establishment and improvement of such lines of work as can be carried on in the homes or by a small group of people working independently. Among these kinds of work are several, such as the hat-making and basket-making industries, the production of handmade lace and embroidery, and other forms of needlework, which might be carried on by women working independently during the time they have free from the occupations of their household work. These handmade articles of Porto Rico are much sought after by tourists, and there is no doubt but that a large and profitable market could be opened for them in the United States, if efforts were made to establish the production on a commercial basis. The individual living in a small town who devotes himself to hat making is handicapped because he has no steady market for his goods and is obliged to sell them or trade them for whatever he can obtain from retail dealers, who themselves attempt to secure only the limited trade which enters their stores. In order to make industries of this sort profitable to the producers, it will be necessary to secure a new and permanent market for the goods, and either the government or some group of individuals who will not exploit the workers, should act as middlemen to see that the work is uniform in character, and to attend to the handling of the finished products and the supplying of a market for it in the United States. Working as individuals, the countrymen or dwellers in small towns have turned out products which differ in quality and in design, and very frequently the lack of resources has obliged them to construct their products from unsuitable or cheap materials.

They have been accustomed to ask for their products as high a price as they thought they could obtain, and often this price is too high for the quality of the article, while sometimes it does not pay for the labor and time which has been expended in the production of the article. By systematizing the work and putting it under the direction of competent supervisors who would specify the quality of material to be used in the production of the articles, and who would fix a price which would fairly represent the time and labor expended by the producer, and who would be able to reject work that did not meet the standard set, the value of the goods would be increased. An equally necessary step in this matter would be the providing of a regular market for the goods and the supervision of production, so that the market would not be overloaded with certain articles and lacking in others. Experiments already carried out have proved the existence of a market for Porto Rican goods in the United States, and the matter should be taken up under the supervision of the Insular Government.

In order to produce trained workers for the production of these articles, it would be necessary to establish schools for their instruction which might well be under the direction of the Department of Education. These schools would not necessarily last throughout the year, nor would they require any great expenditure of money for their maintenance. The character of the school should depend upon the locality in which it was established and should be designed only for the training of skilled workmen, either child or adult, in particular lines of work. Short courses of two or three months in these industrial schools should be offered, and the people who attend them should be assured of a market for their goods when they have arrived at a point where they can produce goods of the proper standard. The money expended in the establishment and maintenance of these schools would more than double the earning capacity of the unskilled worker, and the general welfare of the community would be increased by the changing of unskilled and unproductive citizens into trained, productive laborers.

It is a well established fact that the trained workman is the most desirable kind of citizen. The unskilled laborer has no steady market for his labor and is the first victim in the wage system whenever a financial crisis causes the employer to lessen his expenses. The unskilled laborer has for sale a product which the average employer is not anxious to obtain, whereas the skilled worker can find a much more steady and regular market for his labor. The lawless, irresponsible class of citizens in any community is always composed to a great extent of the unskilled laborers, and any country which has an overwhelming proportion of its population composed of this class of people is in constant danger of labor disturbances and conflicts between employers and employees. The great majority of the men in penal institutions are unskilled laborers, and if the proportion of this type of citizens is sufficiently large, it may constitute a real danger to the community. With increased ability to earn wages comes the desire to improve living conditions and to rise higher in the social scale. This demands added education, more hygienic surroundings, and better food and clothing. The man who earns fifty cents a day, and that at irregular periods, is an early victim to dissatisfaction and is easily made to believe that life has not much for him in the future, and that he has not been fairly treated by his employer. The skilled laborer who earns double this amount or more, begins to take a new interest in life, as he can see the results which have come from his directed efforts, and values the benefit to his family; he educates his children, sees to it that they are well clothed and fed, and he himself becomes interested in the life and problems of the community as he becomes gradually a person of some importance in its economic and social life. A dependent wage-earning population usually lacks ideals of self-improvement, but the steady-working, independent producer of marketable goods is constantly striving to improve the amount and quality of his products.

THE LAND PROBLEM AND UNEMPLOYMENT

ONE of the most difficult problems to solve in the case of a small country such as Porto Rico, and one which has a definite bearing on both the economic and the social life of the people, is the land situation. This is especially true when the chief industries are such as lend themselves more readily to large plantation farming rather than to small industries or crops which can be raised profitably on small areas. The most important products of Porto Rico to-day are large-farm products, and they naturally tend to develop a small number of large landowners and a large number of landless citizens. There were in 1910, 46,799 farms operated by their owners, and it was estimated that 600,000 people or 117,647 families in rural sections belonged to the landless class. An equally large proportion of landless citizens is found in urban centers. Of the 10,936 people in Puerta de Tierra in 1913, only 178 or about 30 families owned the land on which their houses were located. It is estimated that there are at least 800,000 people or 156,860 landless families in Porto Rico.

In addition to the tendency toward lawlessness that is always found where there is an overproportion of landless citizens, the systems of land rental in Porto Rico have certain unfortunate economic aspects which call for consideration. Part of the renters live in houses which are owned by the proprietor of the land upon which their houses are located, and here the case resolves itself simply into the ordinary relations of renters and householders. This system does not differ to any great extent from the ordinary rent system in the States and has the same disadvantages, both economical and social, which are to be found wherever the rental system is in operation.

A second system which has been known as the "Land Rent System" is somewhat different. Under this system a man rents a lot from the owner of the property and proceeds to erect his own house upon the land. He then owns the house but not the land upon which it is located. Usually he rents from the proprietor from month to month or from year to year and has no definite lease of the land, and there is nothing to prevent the owner from raising the rental price or from demanding the house of the renter whenever he feels so inclined. As a matter of fact, it frequently happens that the land is rented to householders at fifty cents or a dollar monthly for the purpose of building houses, and within a short time after the completion of the house the owner of the land advances the price of rent, so that the house owner finds himself unable to meet the increased cost. He then has no choice except to move out and leave his house, together with the amount of work and invested money which it represents, or to sell the house to another person. Usually the house is sold to the owner of the land himself, who thus comes into possession, at a very reduced price, of a house which he, in turn, rents to another individual. This system is extremely unfortunate for the renter and should be abolished by the passing of legislation which would require the granting of a lease for a certain definite period to every person who builds upon land owned by another.

A modification of this system is frequently found in the cases where employees build their houses upon the land which belongs to the plantation. In many cases the employer does his utmost to make the life of his tenants as pleasant as possible, granting them garden plots and trying to make them permanent employees by offering them certain advantages. In many cases, however, the employer maintains a company store and requires his employees to purchase all their provisions from the store, thus making a double profit from them, and frequently charging them higher prices than they would have to pay elsewhere. In other cases the employer guarantees the credit of his workmen at a given local store, and on pay day he turns over to the local storekeeper the amount due the workmen and the storekeeper deducts from this the amount which is owing him for provisions and hands over to the workmen what may be left. As the average countryman has little idea of business and is lacking in knowledge of how to keep accurate accounts, and, moreover, since a credit system always tends to extravagance, it frequently happens that the workman is never entirely out of debt. There is a law approved in 1908 which makes it unlawful "for any corporation, company, firm or person engaged in any trade or business, whether directly or indirectly, to issue, sell, give or deliver to any person employed by such corporation, company, firm or person, payments of wages to such laborers, or as an advance for labor not due, in any script, token, draft, check or other evidence of indebtedness payable or redeemable otherwise than in lawful money." Section 2 of the same law provides that "if any corporation, company, firm or person shall coerce or compel or attempt to coerce or compel an employee to purchase goods or supplies in payment of wages due him from any corporation, company, firm or person, such said named corporation, company, firm or person shall be guilty of a misdemeanor." In this way attempts have been made to protect the laborer from exploitation, but violations of the law are not uncommon.

There is need for legislation to provide opportunity for the man of small means to purchase sufficient land to establish a home. In Porto Rico there are about 121,346 acres of government lands located in various parts of the Island which might well be opened to settlement at a nominal price. Legislation should also be passed which would provide that private land which is not used for produce for a given term of years might be opened to settlement and sold to people who would occupy it and use it for production. There are many acres of private land in Porto Rico which are not used at all and have not been used for years. The accumulation of land by an individual or a corporation for purposes of speculation or for purposes other than cultivation and use for the production of crops should be discouraged, because the limited amount of land in the Island does not permit such accumulation except at the expense of the poorer class of people. There is at present a law preventing the accumulation of more than 500 acres of land by any company or corporation, but no penalty has been provided for the violation of this law, and it is practically useless as it stands at present.

In addition to providing means by which people would be encouraged to own and manage small farms, coöperative organizations for providing a market for the products of these farms should be established. Undoubtedly, the government should start such a movement. The spirit of coöperation is not strong in Porto Rico at the present time, and the small farm holder finds himself at a disadvantage when he has to compete with the larger producer and when he is obliged to find a market for his goods. Some such system as exists in Denmark, where the farmers of a community have joined themselves into coöperative associations for selling their products and the purchase of necessary supplies, might very well be introduced into Porto Rico. This would tend not only to improve the economic situation by bringing better prices and a steady market for the farm products, and by making possible the purchase of necessary supplies in larger quantities, but it would also help to encourage a sense of unity and mutual confidence among the people of a given community, which would be of immense value in raising the standard of citizenship. Community pride and a definite desire for improvement would necessarily follow such a movement.

Farming is one of the few occupations which is not influenced by seasons, so far as unemployment is concerned. Practically all of the trades have their busy seasons and their idle seasons, and any movement which would tend to make employment more permanent by providing small farms for a larger number of people, would be of immense benefit to the Island as a whole. The Bureau of Labor of Porto Rico in an investigation which covered the last five months of the year 1913, found that of the total number of union men reported, 27 per cent were unemployed during the month of August, 26 per cent during September, 38 per cent during October, 34 per cent during November, and 46 per cent during December. The men reporting were engaged in various occupations. It was estimated that 28 per cent of all the laborers who reported were unemployed on account of lack of work and not on account of not desiring work. The different trades represented are as follows: among the dock laborers 62 per cent were unemployed, 56 per cent of the carpenters, 47 per cent of the agricultural laborers, 23 per cent of the cigar makers, and 10 per cent of the typesetters reported that they could not find employment. Thus it will be seen that when the individual workman is at the mercy of the employer, he has no independent status such as he would have were he the owner of even a very modest piece of property, and it is inevitable that he will find employment only part of the year. Part time employment tends to low standards of living, because during the period of reduced financial income the standards of living are lowered, and when it is found that the family can exist on the reduced income there is little inducement for seeking work since the desire for economy and saving is not greatly developed among the working classes of Porto Rico.

We find a gradual lowering of the moral standard as the necessary accompaniment of low standards of living, and if continued long enough, this low moral standard gradually leads to moral and social degeneration. The necessary steps should be taken by the legislature to provide for the relief of the landless and unemployed classes, as otherwise these people will constitute a serious handicap for the economic and social development of a competent body of citizens.

POVERTY