Chapter III: Foreword (3)

THE meaning of the word poverty is relative and depends upon the class of people to whom the word is applied. Poverty, technically, is the lack of an income sufficient to maintain the individual as the society in which he lives demands that he should live. Thus a wealthy man may live in relative poverty if he is in a circle of acquaintances who are much more wealthy than he is. The amount of income necessary to keep one from being classed in the poverty-stricken group decreases with the simplicity of individual, family, and community life. The amount of property necessary to keep one from poverty in the country is not as great as the amount of property necessary to keep one from poverty in the cities, due to the fact that the standards of living in the country are much simpler and require less expenditure of money to conform to the social standards. Pauperism is not the same as poverty. Poverty may be only temporary, depending upon unfavorable conditions which have reduced the income of the family, such as sickness, accident, lack of employment, or other factors beyond the control of the individual. Poverty does not necessarily involve any moral degeneration, while the pauper is entirely dependent on society and is a moral degenerate. Poverty, in general, however, is a dangerous condition, because it generally leads to pauperism. Poverty perpetuates itself if not taken care of; and if the poor man should give up the struggle against poverty, the general effect on society would be injurious, because, through contact, standards of living, social disease, and bad morals are contagious.

The competition between capital and labor, which often leads to poverty, is not fair if it is limited to the individual members of society. As the individual capitalist has more influence than the individual laborer, labor must be organized in order to equalize the situation. The competitive process between capital and labor, and between industrial organizations, should be controlled so that people should not be compelled to compete on an unfair basis.

The existing conditions in any community are largely responsible for poverty and often for pauperism. They are especially responsible for the attitude of the individual in regard to poverty as to whether he will make a fight to gain a place in society above the poverty-stricken class, or whether he simply resigns himself to his fate and continues to live in a poverty-stricken condition. In this situation, the well-to-do class is more responsible for poverty than any other class, because they have the most power, both legislative and moral, and they must assume for this reason a greater share of responsibility regarding the conditions in any given community. Poverty can be alleviated, but probably not entirely eliminated, and some of the means of combating poverty are the following:

First.--Education. By this means the efficiency of the individual in adjusting himself to trade environment is increased.

Second.--The self-support of weaker classes through voluntary associations among themselves, such as labor movements.

Third.--The proper kind of legal protection, such as factory, and woman and child labor laws, safeguards in factory work, the minimum wage, and accident laws.

Fourth.--Rational charity, by which cases of unusual necessity can be cared for. This charity should act as a temporary agency and should not become permanent, as in that case it tends to pauperism.

Fifth.--Eugenics, by which the physically and mentally unfit, who contribute largely to the pauper class, may be eliminated from society and prevented from propagating a second generation.

Modern charity is more democratic than older charity, and in its workings material aid is made subordinate to moral aid. It is optimistic and believes that radical improvements in social conditions are possible. It believes that the family should always be a self-supporting group, that charity should try to make the poverty-stricken family self-supporting, and that the family should be kept together.

One of the improvements in modern charity is what is known as organized charity, which is a sort of clearing house for the charities of a community. Organized charity does not extend material aid so much as it attempts to find work for needy individuals and thus do away with poverty by putting the family on a self-supporting basis. Organized charity would do away with the begging pauper and require him to present his case at the headquarters of the society, where an investigation of the necessities of his particular case could be made and an effort to find suitable employment for him undertaken. The individual who wished to contribute to charity would contribute to the central organization instead of to the wandering beggar. This would have two distinct benefits to society, as it would prevent the disagreeable sights often encountered where begging is allowed in public, and it would prevent the individual member of society from being imposed upon by a beggar who might be in sufficiently good physical condition to undertake work which would bring in enough to maintain himself and his family.

The question of organized charity in Porto Rico has been suggested at different times, but it has never met with any great popular response, due to the customs and traditions of a charity-giving people. The Island to-day has a large number of paupers who are entirely dependent upon the charity which they receive through begging, and the custom of giving in response to the requests of these beggars is so widespread, that at the present time organized charity would have a most difficult field of work to undertake.

The Island of Porto Rico is prosperous. In the last fiscal year there was a surplus of about $15,000,000 of exports over the imports into the Island; but the distribution of wealth in Porto Rico is not equalized. It has been estimated that the wealth of the Island is in the hands of about 15 per cent of the population, and that the remaining 85 per cent are practically dependent upon uncertain labor and wage conditions for their maintenance. The per capita wealth of a country determines to a great degree the financial situation as far as the average individual is concerned. From the following list of per capita wealth in some of the leading countries, it will be possible to estimate how the average Porto Rican compares with the average citizen of other countries in this regard. The following list is based on statistics of 1909:

Great Britain per capita wealth $1,442
France " " " 1,257
Australia " " " 1,228
United States " " " 1,123
Denmark " " " 1,104
Canada " " " 949
Belgium " " " 734
Germany " " " 707
Spain " " " 548
Austria Hungary " " " 499
Greece " " " 485
Italy " " " 485
Portugal " " " 417
Russia " " " 296
Porto Rico " " " 182

From the above table it will be seen that the average individual in Porto Rico is comparatively poor.

The economic situation in Porto Rico is giving rise to the formation of classes based on wealth. With the introduction of available markets and modern methods of commerce and industry which followed the American occupation, the land values rapidly increased. The small landholder, seeing the increase in price which came about and believing that it was to his best advantage to sell his land, disposed of it to the representatives of large landholding concerns for what, to him, was a fabulous price. As soon as the money from this sale was expended, the original landholder found himself absolutely dependent upon the mercy of a wage-paying employer. In this way a great part of small landholdings passed into the hands of representatives of large landholdings and caused the formation of the two groups, the capitalistic group, which is limited to a comparatively small number of people, and the wage-earning group, which comprises probably 90 per cent of the population of Porto Rico. As a result we lack in Porto Rico the great middle class of financially independent farmers which constitutes the strength of the United States and the more prosperous European countries. A serious and systematic effort to build up a prosperous and independent middle class, either by encouraging small-farm or other industries, is necessary if the majority of the people are to attain the advantages which they should enjoy, and if the social and economic status of the Island is to be made equitable and stable.

The reduced wage system and the absolute dependence of the wage-earning group has given rise to a great many labor disturbances within the last few years. These labor disturbances have included both city and country groups and have in nearly all cases been caused by an effort to better the working conditions and to secure an increase of wages. In the great majority of the cases there is no doubt but that the laborers were justified in asking for better conditions than those which actually existed. That the disturbances sometimes ended in riots and led to the destruction of property is the fault of the educational condition of the people, who are easily excited and led to believe that only by the use of violence can they secure the things which they demand.

The relation between poverty and health and poverty and morals is very close. The poverty-stricken family cannot be led to take any great amount of interest in society or health betterment until means have been produced by which the economic situation of the family group can be bettered. The expense of living uses up the daily wage of the ordinary unskilled laborer in Porto Rico, who averages fifty or sixty cents per day for the time that the weather and his physical condition permit him to work. There is also a close relation between sickness and poverty, the average countryman of Porto Rico being only partly as efficient a worker as he should be, due to physical weakness caused by anemia or malaria. Poverty is closely related to degeneration and crime, especially when it descends into pauperism and absolute dependence upon charity.

The climate and geographical conditions of Porto Rico have never provided the laborer with any incentive to economize, inasmuch as he has no need for providing against a period of cold, and Nature produces some form of plant or vegetable food throughout the entire year. Clothing and lodging may be of the simplest and still prevent much suffering under such conditions, and with physical weakness caused by disease, the tendency is to live for the present, and to take little care for the future through a system of saving and economy. The average manual laborer saves nothing and makes little effort to accumulate property. Incentive must be provided through education which will accustom the countryman to the idea of accumulation of property in a small way, so that dependence upon charity will not be necessary in the case of a financial or economic crisis. That there is a movement toward saving is evident from the fact that on June 30, 1915, there were savings accounts to the amount of $1,909,969.34 in the various banks in the Island. This, however, is a comparatively small amount, and the younger generation should be given definite instruction and incentives along the line of savings. The introduction of the Postal Savings Bank has been of great value in this respect, and the school savings banks have also done their share in inculcating the principles of economy.

SICKNESS AND DISEASE

THE Island of Porto Rico is more free from disease than the average tropical or semi-tropical country, due to the active efforts of the medical profession and of the special commissions and departments created for the elimination of disease within the last few years. Nevertheless, a great deal of sickness which might be avoided, part of which is responsible for death, and part of which merely incapacitates the sufferers or renders them less useful citizens, is to be found. The elimination of such diseases as smallpox and yellow fever, which formerly were responsible for a great number of deaths and which descended upon the Island as epidemics with considerable regularity, has been accomplished, and if similar care were taken in the case of less dreaded diseases, there is reason to believe that they could also be wiped out of existence in the Island.

For the year 1915-16 there was a total of 26,572 deaths in Porto Rico. Most of these deaths were from diseases classified as transmissible, and, consequently, from diseases which could be prevented by complete quarantine. Following is a list of the number of deaths from the diseases which took the heaviest toll in the Island:

Rickets 1,271
Tuberculosis (lungs) 2,125
Malaria 1,290
Typhoid fever 94
Whooping cough 167
Tetanus 109
Cancer 365
Meningitis 344
Epilepsy 57
Acute bronchitis 1,015
Chronic bronchitis 309
Bronco-pneumonia 822
Pneumonia 569
Diarrhea and enteritis under two years 3,485
Diarrhea and enteritis two years and over 870
Infantile tetanus 729
Lack of care in infancy 117
Congenital debility in children 1,145
Uncinariasis 479
Smallpox 9
Diphtheria 26

The two diseases which are of most vital importance to the people of Porto Rico at present are undoubtedly tuberculosis and anemia. The ravages of tuberculosis are more noticeable in the cities, and it has been stated that in 1912, on one street in San Juan, 12 out of every 100 residents died of this disease. Anemia is prevalent throughout the Island, but is more noticeable in the country districts than in the cities, and while the death rate for anemia is not so high as the death rate of some other diseases, yet by reason of weakening the vitality of the sufferers it tends to offer a fertile spot for the incubation of germs of other diseases, and the working and producing power of the individual is lessened with the acuteness of the disease.

It has been claimed that anemia was introduced into Porto Rico by the negroes who were brought here as slaves in the sixteenth and seventeenth centuries, and the identity of the disease with the anemia existing in about 20 per cent of all the negroes of the Gold Coast has been determined. The disease was for a long time limited to the coast land and was propagated on the sugar plantations, but after the introduction of coffee, which has come to be the chief product of the mountain regions, the disease was propagated throughout the entire Island.

This disease has left its trace among the country people and they have been accused of laziness and idleness when it is probable that the cause of the apparent disinclination for work is due to the weakened physical condition which is a result of the anemia. In this connection, Drs. Gutierrez and Ashford in their work on _Uncinariasis in Porto Rico_ quote Col. George D. Flinter, an Englishman in the service of Spain, who published in 1834 "An account of Porto Rico," as follows:

"The common white people, or lowest class (called _jíbaros_), swing in their hammocks all day long, smoking cigars and scraping their native guitars.... Most of these colonists are inconceivably lazy and indifferent. Lying back in their hammocks, the entire day is passed praying or smoking. Their children, isolated from the cities, without education, live in social equality with the young negroes of both sexes, acquiring perverted customs, only to later become cruel with their slaves."

Commenting on this statement, Drs. Gutierrez and Ashford speak as follows:

"What if these people were merely innocent victims of a disease, modern only in name? What if the brand placed by the Spaniard, the Englishman, and the Frenchman in olden times upon the _jíbaro_ of Porto Rico were a bitter injustice? The early reports savor strongly of those touristic impressions of the Island which from time to time crop out in the press of modern America, in which 'laziness and worthlessness' of the 'natives' are to be inferred, if, indeed, these very words are not employed to describe a sick workingman, with only half of the blood he should have in his body."

"True, Col. Flinter, Field Marshall Count O'Reilly, and the rest of the long list of early 'observers' did not know what uncinariasis was. But is it necessary that we have a record of microscopic examinations of the feces of the people they describe to realize what can be read between the lines? Convicts, adventurers, and gypsies may have formed part of the element that colonized Porto Rico, but we cannot believe that these were all, nor that their descendants were 'lazy' and 'worthless.'

"We cannot believe that vicious idleness comes natural to the Spanish colonist, even in the Tropics, for the very reason that we have seen these descendants at their very worst, after the neglect of four centuries by their mother country, and after the laborious increase of an anemic population in the face of a deadly disease, whose nature was neither known nor studied, work from sunrise to sunset and seek medical attention, not because they felt sick, but because they could no longer work.

"We strongly feel that these writers have unconsciously described uncinariasis. Are the Spanish people considered 'lazy' by those who know them? Were those Spaniards who conquered Mexico, Peru, and all South America, who formed so formidable a power in the Middle Ages, a lazy people?

"Is it 'laziness' or disease that is this very day attracting the attention of the United States to the descendant of the pure-blooded English stock in the Southern Appalachian Range, in the mountains of Carolina and Tennessee, the section of our country where the greatest predominance of 'pure American blood' occurs, despised by the negro who calls him 'poor white trash'?"

During the year 1914-15 there were 6,644 deaths of children under two years of age, which constituted 28.8 per cent of the total mortality of the Island. Approximately 14 out of every 100 children born, died in infancy, and the death rate for the total population was 5.55 per cent for children under one year of age, and 7.71 per cent for children under two years of age. Diarrhea and enteritis were responsible for 33.8 per cent of infant mortality; congenital debility for 13.14 per cent; infantile tetanus for 10.32; while disease of the respiratory organs caused 16.17 per cent of the infant mortality.

It has never been definitely determined just what losses, from the point of view of days of labor, or from the point of view of vitality of the laborer, have been caused by malaria. Mr. D. L. Van Dine, in an article in the _Southern Medical Journal_ for March, 1915, gives the result of some of his investigations among the laboring class in Louisiana. In this study, which was made on one of the large plantations and which covered 74 tenant families with a total of 299 individuals, he shows the losses which occurred from May to October 15, 1914. There were 970 days of actual illness of such a nature that the illness was reported to the physician. Forty-eight out of the seventy-four families were reported to the doctor for malaria. According to Mr. Van Dine, this does not take into consideration mild attacks of malaria which were not reported to the physician, especially in the cases of children. He has estimated that there were at least 487 days lost in cases which were not reported to the doctor. He also estimates that there was a loss of 385 days on the part of the adults who assisted in caring for the malaria patients. It is estimated that there was a loss in days of labor equal to nearly six days and a half for each case of malaria. It will easily be seen that this may be a serious loss of time as far as the production of crops is concerned, and even thus it does not fairly represent the loss, as it does not take into consideration the weakened energy of the man just before or just after the malarial attack.

Undoubtedly, there is as great a loss in Porto Rico from malaria as is indicated in the statements just made. It has been reported that in some sections of the Island, 85 per cent of the people were found to have malaria germs in their blood. Between the two diseases of malaria and anemia, there is no doubt that the physical condition of the Porto Rican countrymen is gradually debilitated.

Since the American occupation, stress has been laid upon the attempts to eliminate anemia, and this work has received special attention since 1906. During the year 1914-15 there were 32,278 new cases of anemia treated in different parts of the Island, and 15,497 cases were discharged as cured.

Undoubtedly a great deal of the illness in Porto Rico is the result of improper food, or food prepared in an improper manner. Malnutrition among children is frequent and leads to such diseases as rickets, which we find has an exceptionally high death rate. In the recent measurements given at the University among university students, it has been found that there was an average depth of chest of nearly half an inch more than is found in the American boy or girl of the same age, and this has been considered as an indication of malnutrition and general softening of the bones in early childhood.

A hemoglobin test which was given to the students of the University this year showed that the average among the men was 80.04 per cent, and only 77.6 per cent among the women. The average for Porto Rico should not fall below 85 per cent, and the anemic conditions indicated by the low average is an indication that the disease is to be found not only among the country people, but also among people of the best conditions of life.

It will be impossible to settle the economic and social problems of Porto Rico until the question of personal health has been more nearly solved than it is to-day. With a large proportion of the country people sick from anemia and malaria, and with tuberculosis as prevalent as it is at the present time, the weakened vitality will not permit strenuous or continued work sufficient to improve economic conditions to any great extent. Social conditions, depending as they do upon the economic situation, must also be slow of improvement, and the most important work facing the Government of Porto Rico at present is the elimination of such diseases as impair the physical condition of the people and thus interfere with economic and social progress.

CRIME

GENERALLY speaking, criminals may be divided into three classes: first, those who direct crime but who take no active part in the commission of the crime themselves; second, those who commit crimes which require a considerable amount of personal courage; third, those who commit crimes which do not necessarily involve any great amount of personal courage. There might be added a fourth class, which would consist of those who commit crime through ignorance of the law or carelessness in informing themselves of exact legal measures and in heeding this knowledge when once obtained. During the year 1915-16 there was a total of 53,006 arrests in the Island of Porto Rico. Of this number, nearly 47,000 were men and the rest were women. On the basis of a population of 1,200,000, this would give one arrest for every 22 persons in the Island. Of this total number of arrests, however, only 438 were cases of felony. There were a great many arrests for the infraction of municipal ordinances,--something over 11,000 in all,--and more than 8,000 arrests for disturbance of the peace. Over 9,000 were for gambling, and over 2,000 for petty larceny; about 5,000 arrests were for infraction of the sanitary laws, and nearly 2,000 arrests were for infraction of road laws. This shows that the greater number of arrests was for comparatively unimportant crimes; by unimportant meaning, of course, those crimes which do not directly involve the loss of life or of any great amount of property. The felonies committed during the year were as follows:

Murders 41
Homicides 26
Attempt at murder 30
Robbery 5
Rape 15
Seduction 24
Crime against nature 3
Arson 5
Burglary 148
Forgery 6
Counterfeiting 1
Grand larceny 10
Cattle stealing 25
Smuggling 5
Extortion 2
Crime against the public health and security 55
Mayhem 11
Violation of postal laws 5
Violation of graves 1
Conspiracy 8
Falsification 7

giving a total of 438, which includes not only those sentenced but also those indicted and acquitted. From this table it will be seen that a relatively small number of the actual felonies committed are felonies involving loss of life or an attempt against life. In support of this table, and in proof of the fact that crimes of violence are relatively few in Porto Rico, the following table is given, which is a record of the convictions of the district courts of the Island of Porto Rico in criminal cases, for the years 1913-14 and 1914-15, and of the convicts in the penitentiary June 30, 1915:

Number of Percentage In peni- Per cent
convictions of crimes tentiary in prison

1913- 1914- 1913- 1914-
14 15 14 15
Violation of laws
enacted in
exercise of
police powers 220 842 .23 .45 142 .10
Against persons 286 432 .30 .23 371 .25
Against property 329 312 .34 .17 779 .53
Against the
administration of
public justice 29 142 .03 .08 21 .01
Against decency 40 51 .04 .03 97 .06
Against good morals 36 35 .04 .02 20 .01
Against reputation 9 16 .01 .01 ... ...
Unclassified 10 7 .01 .01 38 .03
--- ----- -----
Totals 959 1,837 1,468

From the above table it will be seen that crimes against persons constitute 23 to 30 per cent of the crimes committed. Of the total number of convicts in the penitentiary for the commission of crime, 25 per cent, during the year 1914-15, were there for crimes against persons. Thus we may definitely state that about 25 per cent of the crimes carried to the district courts of Porto Rico are those which involve attempts against the life or well-being of another person. It will be noticed from the above table that with few exceptions the percentages of crimes for the two years are very nearly equal. In 1913-14, 34 per cent of the crimes were against property, which was not strange when we consider that this was a year of financial crisis, due to the sugar situation. In the same year 23 per cent of the crimes were in violation of laws enacted in exercise of police powers. These crimes included breach of the peace.

In the following year, 1914-15, when we had about 17,000 laborers engaged in strikes throughout the Island, and when in addition to this there was a general Insular election, we find that the number of crimes against property dropped to 17 per cent, whereas the number of crimes in violation of laws enacted in exercise of police powers rose from 23 per cent to 45 per cent. This would tend to prove that the average lawbreaker in Porto Rico is easily influenced by economic circumstances and by social surroundings, and that at such a period as that of strikes or elections criminal tendencies take the direction of breach of the peace and violation of municipal ordinances, rather than such crimes as arson, burglary, embezzlement, or forgery.

The influence of the election year is also noticeable in the group of crimes prejudicial to the administration of public justice, which includes contempt of court, bribery, and perjury. During the year 1913-14, 3 per cent of the convictions fell under this head, while during the year 1914-15, the amount was 8 per cent. It will be noticed that of the prisoners in the penitentiary the percentage of those convicted for violation of laws enacted in exercise of police power is only 10 per cent, much less than the percentage of those convicted in the district courts. This, of course, is accounted for by the fact that the great majority of violations of these laws are punishable by fines rather than by imprisonment. In the same way, the percentage of prisoners for crimes against property is much larger than the percentage of convictions in the district courts for this crime, due, of course, to the fact that these crimes are more frequently punished by a prison sentence than by a fine, thus giving an accumulation from year to year of convicts, which overbalances the per cent of the court convictions for any single year.

According to the report of the Insular Chief of Police, the town which had the greatest number of arrests, in proportion to its population, for the year 1915-16, was Arroyo, where there was one arrest for every 8.47 persons. This was followed by Salinas, with one arrest for every 8.82 persons. The town with the best record was Las Marías, where there was one arrest for every 162.03 persons. On the basis of the records of the municipal courts for the three years of 1912-13, 1913-14, and 1914-15, the judicial districts stand in the following relation as far as the number of criminal cases presented during that time is concerned. The table given shows one criminal case presented every three years for the number of inhabitants indicated in each judicial district.

San Juan, one case for every 17.79 persons
Rio Piedras " " " " 18.42 "
Patillas " " " " 19.94 "
Vieques " " " " 19.98 "
Salinas " " " " 23.34 "
Guayama " " " " 24.62 "
Yauco " " " " 24.14 "
Mayaguez " " " " 27.50 "
Vega Baja " " " " 28.74 "
Humacao " " " " 27.31 "
San Lorenzo " " " " 30.66 "
Ciales " " " " 31.07 "
Fajardo " " " " 31.40 "
Juana Diaz " " " " 33.00 "
Cáguas " " " " 33.01 "
Yabucoa " " " " 33.24 "
Añasco " " " " 36.29 "
Ponce " " " " 36.92 "
Manatí " " " " 37.89 "
Arecibo " " " " 38.23 "
Cayey " " " " 38.29 "
Lares " " " " 40.83 "
Rio Grande " " " " 40.90 "
Barros " " " " 41.09 "
Bayamón " " " " 43.87 "
San Germán " " " " 44.70 "
Adjuntas " " " " 44.97 "
Coamo " " " " 45.19 "
Camuy " " " " 47.13 "
San Sebastián " " " " 48.55 "
Aguadilla " " " " 50.22 "
Utuado " " " " 54.61 "
Carolina " " " " 57.63 "
Cabo Rojo " " " " 64.99 "

The great proportion of crime in San Juan, as compared with the rest of the Island, is of course largely due to social conditions, inasmuch as it is the largest city in the Island and to a great extent the resort of undesirable characters for this reason. In the second place, as a coast town and the most important shipping and commercial center, it has a more or less shifting population, and a population composed to a great extent of an uneducated type among the working classes. Every seaport town offers opportunities for criminal classes which inland towns do not possess. The second town in the list, Rio Piedras, is the natural outlet between San Juan and the rest of the Island, which undoubtedly accounts for its large percentage of crime. The rest of the towns where crime is found in large proportion will be discovered to have a large floating population, people who are day laborers and who have no particular interest in the community, except as it provides them with an opportunity for earning daily wages. This class of population is always unfavorable to a community and is always to be found where large industries exist which employ a great number of men; and this is especially true when little attempt is made on the part of the employer to render the permanence of the job desirable by furnishing well-provided living facilities for the employee. It is noticeable that in Cabo Rojo, where the percentage of criminal cases is lowest, the population depends chiefly upon the hat-making industry for its support. This is added proof of the value of small industries from the point of view of community welfare.

It is noteworthy that there was an immense increase in the number of crimes committed in the following districts: Ciales, where the number of cases increased from 431 in 1912 to 754 in 1915; Lares, where the increase was from 352 to 853; Vieques, where the increase was from 341 to 684; Yabucoa, where the increase was from 589 to 831; Yauco, where the increase was from 867 to 1,490. In the rest of the districts the number of crimes did not vary greatly from year to year, even decreasing in the case of Rio Piedras from 1,101 in 1912 to 911 in 1915. Of course, the difference in crime percentage might depend upon the efficiency of the police force or upon the severity of the Municipal Judge, but undoubtedly it will be found more often to depend upon local conditions such as strikes, or the introduction of large numbers of workingmen from another district to take part in agricultural or industrial work. The change of location and the resulting necessity of accommodation to local surroundings is apt to be dangerous to the morals of the individual.

The great majority of the arrests were for crimes which would be termed city crimes. The average countryman of Porto Rico is a man who has a great deal of respect for the law and is inclined to obey it unless led into trouble in a moment of passion or while under the influence of alcoholic drinks. Throughout the country districts premeditated crime is rare, and from the standpoint of improvement of the community, the cities and large towns should be the chief points of attack. A great deal of carelessness exists as to complying with local laws and municipal ordinances, and it is estimated that on June 30, 1915, there were confined in the Insular jails and detention houses, prisoners in the relation of one to every 7.17 inhabitants of the Island. The chief work of the schools along the line of prevention of crime should be the explanation of laws, both Insular and municipal, and the explanation of the reasons for such laws, in order that the individual may be led by his own volition to avoid lawbreaking. Parents should also be impressed with the necessity of inculcating in their children a respect for constituted authority and the necessary obedience to it in order that as the children develop into men and women they may have the proper respect for the laws and those who have been appointed to enforce them.

INTEMPERANCE

IT is unnecessary to say anything about the evil effects of the use of alcoholic drinks, whether it be from the physical, moral, or economic point of view. The recent agitation in favor of the prohibition of the manufacture and sale of alcoholic beverages in Porto Rico, however, has caused more discussion regarding the situation here than has ever before been the case, and a brief statement of facts may not be unwarranted.

The Porto Ricans are not given to the overconsumption of alcoholic drinks. They are not heavy drinkers, and drunkenness is not at all common. Probably every village has its unfortunate inhabitants, few in number, who live usually under the influence of intoxicants. But the great majority of the people are not given to the excessive use of alcohol. The use of wines is common, a custom characteristic of most Latin peoples.

Porto Rico produces a great deal of alcohol, it being one of the by-products of the sugar cane. Data are not available to show just how much of the rum and alcohol produced is used in the Island, and how much is exported, or how much is used for drinking purposes and how much for commercial uses. During the fiscal year 1915-16, a total revenue of $1,111,834.30 was paid to the Insular government on alcoholic liquors manufactured in Porto Rico or imported into the Island. This gives a per capita revenue of nearly one dollar, and this revenue was paid on 3,886,705 liters of alcoholic liquors either manufactured here or imported--a per capita allowance of more than three liters for every inhabitant of the Island. It is probably true that a great deal of the alcohol manufactured in Porto Rico was exported, but even granting that one half was not used here, the amount of one and a half liters for every inhabitant is excessive.

The average grocery store carries a complete line of bottled drinks, and often beer in the keg, as well. This is one of the first things which impresses the visitor from the States when he enters a grocery store and sees the shelves packed with all kinds of bottles. There is a constant sale for goods of this sort, usually to the workingmen and poorer class of people, who purchase in small quantities, a drink at a time, for three or five cents; many of them, no doubt, attempting to keep up their physical strength by the use of such a stimulant, since a more noticeable stimulating effect is produced by five cents' worth of rum than could be obtained through the consumption of five cents' worth of food. When this custom becomes as prevalent as it is in Porto Rico, it involves serious evil effects.

There are few drug users in the Island, and the strict enforcement of the Harrison Drug Law will prevent drug using from becoming the menace to health and morals to the extent that we find to be the case in many of the cities of the United States. There is, however, a large quantity of patent medicines used, many of which have a sufficient amount of alcohol or narcotic drug element to render them dangerous from the point of view of habit formation.

Many of the poorer people do not have the money to pay the fees of a doctor and to purchase at a drug store the medicine which he prescribes. Moreover, many medical men do not listen with as much patience as they might, to the detailed list of complaints which the countryman has to offer. As a consequence, the countryman buys a bottle of medicine which has been recommended to him by a friend, or perhaps by the druggist, who often serves as a consulting physician in the smaller towns. If the medicine makes him feel better, he becomes a firm believer in its power to cure. Whether the result produced is actually a bettering of his physical condition, or merely a deadening of the nerves by means of a narcotic, he does not stop to ask. He recommends the medicine to his friends as a sure remedy for all their illnesses, and probably makes of it a household remedy, to be used by all members of the family when they feel indisposed. The author has known of many instances in which medicine has been purchased from patent medicine firms in the States, because of advertisements in the newspapers, and of several cases, where the money was returned by federal authorities with the statement that the company addressed had been closed by the post office authorities because it was found that their claims were not legitimate and that their medicines were valueless. The average Porto Rican places a great deal of confidence in what he reads in the newspapers, and the papers are not as careful as they should be regarding the question of admitting advertising matter.

There is no great amount of public opinion against the use of alcohol in Porto Rico, and until, through the schools, the press, or some other agency, the people as a whole can be brought to see the disadvantage of its use, there can be but little accomplished in the direction of temperance and prohibition. The prohibition movement in the United States is not a matter of the moment alone, it is a movement which has been growing for years, and at the present time seems to have the majority of the population behind it. This is not the case in Porto Rico, and it is doubtful whether an abrupt change, unless backed up by strong public opinion, and the authority of the great majority of the people, would accomplish much in the way of betterment of conditions.

JUVENILE DELINQUENTS

ONE of the most difficult problems that faces organized society to-day is the disposal of delinquent children, and in order to meet this problem, the Juvenile Court system has been established in the United States, and by a law approved March 11, 1915, the Juvenile Court system was introduced into Porto Rico to take effect on June 1, 1915.

Up to within recent times juvenile offenders have been subjected to the same laws and the same penalties as hardened criminals, and there is no doubt but that a great many boys and girls who had broken some law or local ordinance, often through carelessness or ignorance, were placed in detention houses with older criminals and in this way became accustomed to the criminal classes and frequently were induced to enter upon a life of crime.

The prevailing idea of criminal law is to punish the offender for the offense committed against the laws of the state. Modern social science teaches that it is unfair to boys or girls of tender age to visit a punishment of this sort upon them, especially when it may lead to a continuance of crime, rather than to an avoidance of it in the future. Consequently, with the introduction of the Juvenile Court system the cases are taken out of criminal procedure and placed under the jurisdiction of courts of equity. The trials are usually informal, although the child has a right to a trial by jury in case he is accused of a serious offense, and he has the right to legal counsel, if he so desires. These rights, however, are very seldom exercised, inasmuch as it is coming to be recognized that the judges represent an actual attempt to do what is best for the child and do not represent in any way the prosecuting power of the state.

The principal figure in a Juvenile Court is the judge of the court, and wherever it is possible to do so, men especially trained in juvenile psychology should be appointed to this office. A knowledge of children and an understanding and appreciation of their feelings is necessary on the part of the judge, and he should be a person of sufficiently magnetic personality to win the sympathies of the children and to enable him to gain their confidence. To what an extent the influence of a single man may reach in the case of juvenile offenders and how far his influence may prevent crime among children, is well seen in the case of Judge Lindsey, of Denver, Colorado.

The second official in the court is the probation officer, who is under the authority of the judge, makes the necessary investigations when cases are reported to him, and presents the facts in the case to the judge of the court. He also must look after the children who have passed through the court to see that the sentences of the court are carried out; and if the children are placed on probation under the guardianship of relatives or friends, he must make visits sufficient in number and often enough so that he can be sure that the best interests of the child are being safeguarded, and if he finds the case to be otherwise, to report the facts to the judge of the court.

As the financial situation in Porto Rico did not permit the establishment of a completely new judicial system, it was decided to appoint the judge of each of the seven district courts of the Island to act as judge of the Juvenile Court. The prosecutors and municipal court judges are also probation officers _ex officio_, and the justices of the peace and others appointed by the district judges may be asked to serve as special probation officers. The Juvenile Courts in Porto Rico have original jurisdiction over juvenile offenders, and any case appealed from the Juvenile Courts may go directly to the Supreme Court of the Island. The courts are courts of record and the judges have authority to set the dates and places when and where sessions of the court will be held, to summon witnesses and compel them to appear in court. The jurisdiction of the Juvenile Courts in Porto Rico extends to all children under 16 years of age who are accused of any crime whatsoever, and it also applies to all people under 21 years of age, if they have ever been under the jurisdiction of the Juvenile Court before they were 16. The Juvenile Court also has jurisdiction over adults who have been responsible for the abandonment of children or who have contributed in any way to the delinquency of the child.

Of course, this situation is not an ideal one for the best working out of the problems that confront a Juvenile Court system. In the first place, it is practically impossible for men who act as criminal judges or criminal prosecutors to adopt the attitude so necessary for the fulfillment of the work of a juvenile court officer, as their training has been such as to influence them to believe that the prisoner is an offender and that violations of the law must be punished with sufficient severity to prevent a repetition of the offense on the part of the prisoner, and to serve as a warning for others who might be tempted to commit the same offense. The Juvenile Court officer, on the other hand, should regard only the best future interests of the child, and the question with him should not be as to whether a proper punishment may be inflicted for what the child has done, but as to how the future conduct of the child may be bettered after a due consideration of all the influences of heredity and environment in each particular case.

From July 1, 1915, to January 1, 1916, a total of 164 cases came before the Juvenile Courts. Of these, three cases were girls accused of petty larceny, and two were charged with being abandoned. The remaining 159 cases were boys. The cause given in nearly every case for the bad conduct of the children was one of the four following:

1. Lack of parental authority.
2. Bad environment.
3. Ignorance.
4. Poverty.

Of the total number, 83 boys were accused of larceny, 25 were abandoned children, 18 were accused of fighting, 9 were accused of gambling, 7 were accused of breach of the peace, 4 were accused of attempts at larceny, 3 were accused of stoning buildings, and the rest were accused of various minor offenses.

An investigation of the home conditions of these boys brings out some pertinent facts in connection with the influence of a broken home upon the actions of the children. Of the total number of cases presented, 21 lived with their parents, 54 lived with their mothers, 23 lived with their fathers, and 22 lived with relatives, 13 lived with guardians, 13 had absolutely no homes and existed as best they might, with no permanent dwelling place, while 8 lived with friends. Thus we see that in the great majority of cases the children came from homes where they lacked the guidance and authority of at least one parent. Only 50 of the 164 had attended school, and only 15 had succeeded in passing the third grade in the public schools. Of the total number, 85 were illegitimate children, and 15 did not know whether their parents were married or not.

It is estimated that the city of San Juan alone has 500 homeless children and that there are at least 10,000 children in the Island who have absolutely no home and who are entirely without the influence of parental control. Doubtless, a great majority of these children are the result of illegitimate unions. What that means to the future of Porto Rico can very easily be imagined when we consider that they are growing up absolutely without control and without respect for authority of any sort. In very few cases do they attend the public schools, and they must remain in this homeless condition, living as best they can, stealing or begging, when honest means of obtaining food do not avail. Thus they grow up learning the vice that can be found among the most poverty-stricken and criminal classes with whom they associate, and forming a group of people with criminal tendencies, and in their turn causing to be produced another generation of children who will be handicapped by the environment and the training which their fathers have received. The Government should colonize these homeless children on government lands where they may be taught a trade and where an attempt should be made to give them some idea of what life may mean to the educated, industrious citizen. The results would more than justify the necessary expenditure of money.

The Juvenile Court in Porto Rico has three means at its disposal for taking care of children that fall under its jurisdiction. It may send them to the Reform School at Mayaguez, in case they are boys. (There is no Reform School for girls in the Island.) It may also send them to one of the two charity schools in existence, or it may place them under the supervision of a friend or relative who must respond to the probation officer for their good conduct. The Reform School at Mayaguez will accommodate only 100 inmates, and as these are usually required to complete a rather long term of years in the institution, the number of vacancies occurring in the school each year is very small. The charity schools, both for boys and girls, are also overcrowded, and there is very little chance of the Juvenile Court being able to send any of its cases to either of these institutions. As a result, special wards have been prepared in the Insular penitentiary, and the most serious cases are assigned to these wards until such a time as there is a possibility of their being placed in the Reform School. An attempt is made to give the inmates of these special wards industrial work and some academic instruction, and they are kept absolutely separate from adult prisoners.

Of the 164 cases mentioned, the following disposition was made of the children: 34 were sent to correctional institutions (most of these were sent to the special wards in the penitentiary), 38 were placed under the care of their mothers, 24 were placed under the care of their fathers, 9 were placed under the care of both parents, 8 under the care of friends, 12 under the care of guardians, 17 under the care of relatives, and 6 were sent to the charity schools.

The problem of juvenile offenders is more acute in Porto Rico than in the United States, due to the fact that there are more opportunities open in Porto Rico for juvenile offenders than are to be found, possibly with the exception of the largest cities, in the United States. The early physical development of the tropics adds to the difficulties of the situation, and also the temptations that surround homeless children even at a comparatively early age. In addition to this, we have many instances of consensual marriages, which offer a temptation to even the very young to lower the standards of morality and to become careless regarding the marriage relation. The large number of poverty-stricken and homeless undoubtedly contributes a great deal to physical as well as mental and moral degeneration, and the combination of these factors may perhaps account for the large number of weak-minded and insane that we find at large in the majority of the towns of the Island. In addition, promiscuous sexual relations undoubtedly contribute to this degeneracy, and if active steps are not taken to prepare these homeless children for better living and to enable them to earn an honest living, they will serve as the propagators of another generation of equally homeless, pauperized, and degenerate citizens.

RURAL SCHOOLS

ONE of the most perplexing problems which the Department of Education has to face in Porto Rico is the problem of the rural schools. In addition to a school budget too small to provide the number of rural schools necessary for all of the children of school age, there are added difficulties in the way of poverty and sickness among the country people which lead to irregular attendance on the part of the children, poor roads, and the keeping of children out of school in order to help earn money to support the family, especially in districts where child labor may be used profitably; and above all these difficulties is the great difficulty of furnishing the rural schools with teachers who are adequately trained and who have a comprehensive view of their mission as teachers and of the duty of the school to the community in which it is located.