Generallyspeaking, 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:
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 incriminal cases, for the years 1913-14 and 1914-15, and of the convicts in the penitentiary June 30, 1915:
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 yearof 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 ofviolations 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.
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 shiftingpopulation, 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 increasewas 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, andthe 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.
Itis 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 intothe 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.
Oneof 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 usuallyinformal, 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 officersex 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 littlechance 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.
Oneof 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.
The rural school problem will never be solved until we are able to provide teachers who are thoroughly prepared for the work which they have to do, and who look upon this work as being as important as any other profession. At present the rural school teachers fall into two rather large classes: first, the young, inexperienced, and often untrained teacher; and, second, the old, often out-of-date teacher, who has been unable to keep step with the progress of the town schools and has beenpushed out into the country. Neither of these classes is fitted to give the best instruction in the rural schools; neither of them considers the position of a rural teacher as a permanent one, and in order to accomplish his best work the rural teacher should be expected to live in one community for a term of years so that he may fully understand and appreciate the problems of that community and become thoroughly acquainted with the patrons of his school.
The wages of the rural teacher should be such as will enable him to live in comfort, and as part of his wages the Government might very well assign him a parcel of land, together with living quarters, which would tend to make his residence in the district more permanent and which would enable him to carry on experimental work in agriculture at his own home.
There is no doubt but that the time will come when consolidated schools will be established in eachbarriofor the benefit of the children of the community. In this way, better teachers, better school buildings, better equipment, and a better arranged schedule of studies can be provided, as an untrained teacher who works with poor facilities and who has to handle two different groups of children in the day and who may have six grades to teach, is working under a disadvantage which greatly handicaps the work. This is especially true when the teacher has no permanent interest in the rural school problem and regards his term of office there simply as a stepping-stone to a place in the graded school system of the town. In the annual report of the Commissioner of Educationfor 1914-15 we find the following data in regard to the rural schools of Porto Rico:
"The rural schools are located in thebarriosor rural subdivisions of the municipalities. Of the 1,200,000 inhabitants which comprise the total population of the Island, about 79 per cent live in this rural area and about 70 per cent of them are illiterate. At the present time there are approximately 331,233 children of school age (between 5 and 18 years) living in the barrios. Of these only 91,966 or 27 per cent were enrolled in the rural schools at any time during the past year. This shows a decrease from the figures reported last year, but the fact is accounted for by an order issued from the central office prohibiting rural teachers from enrolling more than 80 pupils. In some of the populous barrios the teachers were enrolling 150 pupils and sometimes more. Inasmuch as neither the material conditions of the school buildings nor the professional equipment of the teachers justified such a burden, it was deemed wise, even in the face of an overwhelming school population for which no provision is made, to limit the enrollment to a size compatible with a semblance of efficiency. The average number of pupils belonging during the year to the rural schools was 76,341. The average number of teachers at work in these schools was 1,243. This figure includes a number of teachers whose salary was paid by the school boards from their surplus funds. The corps of teachers for the entire Island is fixed by the legislature each year when the appropriations to pay their salaries are made, the commissioner being charged withits distribution among the various municipalities, but the school boards may, within certain limitations, increase the number allotted to them provided they pay their salaries from any surplus funds at their disposal. The average number of pupils taught by each teacher was about 63. The average daily attendance was 69,786, or 89.7 per cent, which gives an average of about 58 pupils receiving instruction daily from each teacher. About 59 per cent of the pupils were boys and 41 per cent girls. The average age of all pupils in the rural schools was 10.1 years.
"The above figures show, in a way, the magnitude of the problem to be solved before the people of Porto Rico can assume in full the duties and privileges of self-government. That enormous mass of illiterates, in its primitive, uncured condition, is not safe timber to build the good ship of state. We realize that there are serious social and economic problems to be solved before the people of Porto Rico reach the desired goal. But the pioneer work must be done by the rural school. Those people must be brought to a realization of their condition and to wish to improve it. The rural school, adapted more and more to actual conditions, is the one agency that can bring this about. At present, we are making provision for less than one third of the rural school population. It is as if we had an enormous debt and our resources did not permit us to pay the interest on it. The problem calls for heroic measures.
"Of the 1,243 teachers in charge of the rural schools during the past year, 1,217 or 91 per cent had double enrollment, i.e., one group of 40 pupils or less in themorning for three hours, and another similar group in the afternoon for the same period. The distribution of time among the various subjects of the curriculum depends, of course, on whether the school has double enrollment or not, as well as on the number of grades grouped in any one session.
"The course of study of the rural schools extends over a period of six years. Of the 91,966 different pupils enrolled during the year, 49.1 per cent were found in the first grade, 25.7 per cent in the second, 15.9 per cent in the third, 8.4 per cent in the fourth, and the remaining 0.9 per cent in the fifth and sixth grades. Of the total enrollment 93.2 per cent were on half time, the remaining 6.8 per cent receiving instruction six hours daily.
"Any enrichment of the rural course of study has been necessarily conditioned by the meager professional equipment of the rural teaching force, many of whom entered the service with nothing more than a common-school education and a few scraps of information about school management gotten together for the examination. Up to the present the academic requirements for admission to the examinations for the rural license have been limited to the eighth-grade diploma or its equivalent, and the examinations for the obtention of the license have covered the following subjects: English, Spanish, arithmetic, history of the United States and of Porto Rico, geography, elementary physiology and hygiene, nature study, and methods of teaching. It has been announced already that in all probability candidates for the rural license will have to presentfour high-school credits for admission to the examinations. The excess of teachers now obtaining and the increasing output of the Normal School will afford opportunity for selection and will raise the standard of efficiency of the force. At its last quarterly meeting the board of trustees of the University of Porto Rico voted to raise the entrance requirements of the Normal Department from four high-school credits to eight. In view of this, the Department of Education will probably increase the requirements for admission to the examinations for the rural license sufficiently to bring them up to the standard established by the board of trustees for admission to the Normal Department of the University.
"The rural teachers are elected by the school boards, subject to the approval of the Commissioner of Education, who pays their salaries from an Insular appropriation. The teachers are divided into three salary classes, as follows: First class, $40; second class, $45; third class, $50. All rural teachers begin at the $40 salary, and after three years of experience pass to the $45 class and after five years to the $50 class. Last year all rural teachers received a salary of $38 only, due to financial embarrassment.
"The rural schools were housed in 1,193 separate buildings, containing a total of 1,250 classrooms. Of these 1,193 rural buildings, 320 are owned by the school boards and were especially constructed for school purposes from plans approved by the Department of Education and the sanitary officials. Most of the rural school buildings contain but one room, although not a few have two, three, and even four, the tendency toward the centralized school growing steadily. In all, 24 new rural school buildings have been erected during the year. Most of these are frame structures, but some are built of reënforced concrete and have a very pleasing appearance."
Themovement toward using the schoolhouse as a center for the social activities of the community is gaining ground every year and through this movement the school, as an organization consisting of the teacher and pupils, is rapidly coming to have much more influence in the community life than was formerly the case when the school was considered as merely an organization for the teaching of academic subjects. The need of a social center in the country districts is especially marked, inasmuch as there is a decided tendency among the country people to gather in small groups, based upon relationship or intimate friendship, to the exclusion of the wider interests of the community. Little attempt is usually made to direct in any way the outside activities or the recreation hours of the young people and often their activities take a direction which is distinctly unsocial.
The school in adapting itself to the community in order that it may serve as a social center must make certain investigations, because the need of social service and the kind of service which shall be instituted, depends upon existing local conditions. Some of the most necessary lines of investigation to be made by the teacher and pupils before the most effective aid can be rendered, are those which follow:
First.—The number of farmers who own the farms upon which they live and the number of tenant farmers.
Second.—The average size of the farms; the number of well-arranged homes; the total number of acres devoted to each of the important crops.
Third.—The distance to the nearest market, and the number of miles of well-kept roads.
These three points will determine largely the direction which any social movement must take, because upon them is based the economic situation of the community. In addition to considering the community from the economic point of view, we may also consider the sanitary conditions that prevail in the district, and the teacher and pupils should make a survey of the district with the following points in mind:
First.—The sources of water supply. If water is from open wells, where are they located, and what is the distance from barns and outhouses; are they built in accordance with specifications from the Department of Sanitation?
Second.—How is garbage disposed of in the neighborhood; are common drinking cups and the common towel prohibited in the schoolroom? Is the school furnished with a covered water tank, and does it have facilities for washing the hands and face? Do the people of the neighborhood know the regulations of the Department of Sanitation in regard to sanitary conditions; is there much preventable illness in the district, and to what extent are patent medicines used by the patrons of the school?
Third.—Are the houses, including the schoolhouses,well ventilated and well located as far as distance from standing water or other mosquito-breeding places is concerned? Is the floor of the schoolhouse swept every night, and are foot scrapers and doormats provided? Does the teacher inspect the outhouses, and are they built according to specifications from the Department of Sanitation?
A union of all the patrons of the district is necessary if any movement is to be carried out with telling effect, and the teacher should find out if there is or has been any organization of the men, women, girls, or boys in the district of a social or civic type; has the school done anything up to the present time to improve the social life in the district, and has it ever encouraged local fairs or exhibits of school or agricultural products, and has it founded boys' or girls' agricultural or home economics clubs?
How does the religious condition affect the community, and what is the attitude of the community toward these matters and toward social affairs? How do the young men and young women spend their leisure time? Has the school any magazines or farm papers in its library, and how many homes in the district have any library, or any musical instruments?
What has been the attitude of the previous teachers in the district toward the affairs of the community; how long has each remained in the district? Are changes in the position of the teachers frequent, and if so, what is the reason? Have previous teachers actually resided in the community or have they lived in the nearest town? Have the previous teachersbeen professionally trained, and have they taken any interest in the affairs of the community outside of their regular school duties?
When the school has succeeded in getting together the information noted in the above paragraphs, it will then be in a position to determine what lines of social activity will be best for the particular community.
The organization of men's clubs and women's clubs for the discussion of topics of general interest and for the purpose of arousing a feeling of community interest should be undertaken as soon as possible, the teacher always remembering that the management of these organizations should be in the hands of the members who compose them, and that the teacher should act only as an adviser in case advice may be necessary. The people should feel that on them rests the responsibility of developing the civic and social life of the community, and the teacher should not allow them to shift this responsibility. The organization of boys' clubs and girls' clubs will present no difficulties to the teacher who has made a study of the situation and who is prepared for his work. The boys and girls are in the most easily influenced period of their lives, and whether or not they will develop a sense of civic and social responsibility, depends very largely upon the attitude which their teachers take in regard to these matters.
Rural life in any community has a tendency to be monotonous and deadening to the finer qualities. Uninterrupted and unduly prolonged physical labor tends to the detriment of both the physical and the mentalabilities of the individual. The isolation of the country home tends to narrow and restrict social intercourse, and the difficulty of travel and communication increases the monotony of country life. These circumstances do a great deal to offset the advantage of living in the country and have contributed a great deal to the stigma that has always been attached to the countryman.
If there is to be any reform in this isolated social life of the community, the reform must come about through the schools. The Government can aid to a great extent through the provision of well-kept roads and by the establishment of means of communication such as the telephone and the telegraph. The man who is in touch with the large affairs of life forgets his own petty annoyances in the contemplation of problems of greater importance, while the man who has nothing to think about except the annoyances of his own life tends to become self-centered and narrow.
Rural social center work in the United States has made great progress within the last few years and has been successful in practically all the places where it has been tried, especially if the teacher is a person of tact and intelligence. A great deal depends upon the attitude which the teacher has in this work, and it is not enough that the teacher should undertake such work as a burden added to the already overcrowded curriculum of the day, but the teacher should enter into the movement with a sincere desire to improve the condition of the community and bring the patrons of the district to a higher degree of efficiency as workmen and as citizens. In every community there are many young women and young men who are above the average school age who are compelled to work during the day, and who are fast becoming fixed in the monotonous life that has surrounded the older people of the community, who might easily be interested by the teacher and influenced through the formation of social clubs, so that they would form the nucleus for a better coming generation of citizens. The meetings of young people should partake of recreation as well as of serious study, and while the avowed intention of new clubs formed by the school should be for the purpose of bettering the social and civic condition of the people of the community, they must be placed in as favorable a light as possible, for it should be remembered that people will often undertake a movement which will have decidedly beneficial results if it is disguised under the form of recreation, when they would hesitate to give their continued assistance to such a movement if it partook entirely of the nature of serious study.
The Department of Education in the Island of Porto Rico is making a special effort at the present time to interest the older girls and the women of the towns in social betterment through the medium of mothers' clubs and girls' clubs, organized under the direction of the teachers of home economics. These clubs have been organized in practically all of the towns of the Island and are meeting with general success. In many cases the girls' clubs assume an aspect of economic improvement in that they undertake the production of certain salable articles such as embroidery or handwork, and the teacher in charge of the group provides the market for the articles produced. Little has been done up to the present in organizing the men and boys into social groups. Boy scout organizations were widely established through the Island several years ago, but on account of the lack of some individual to devote his time to the organizing side of the movement they have decreased in number and in influence. Anyone who is at all familiar with the social situation in Porto Rico, especially in the rural districts, will see at once the necessity of organizations of the kind mentioned above and will be impressed with the possibilities for good in a community which can be exercised by the rural school under the direction of an efficient, well trained, enthusiastic teacher. The democratic form of government which the Island enjoys demands the highest possible development of civic and social ideas and obligations, and in order to fulfill its highest mission the school should undertake such lines of work as will tend to develop not only better educated people of academic attainments, but also better trained citizens in the social and civic sense.
Inrural sections the school should be a factor of much more importance than it is in the urban centers for the reason that the country people are almost entirely shut off from other educative institutions such as public libraries, free lectures, and association with their fellow-citizens, privileges which the urban resident is able to use to great advantage. To carry out effectively the mission of the rural school in a community and to make it a center from which there may be spread an influence for social betterment, as well as for intellectual improvement, the teacher is the all-important factor. There are certain duties which a teacher owes to his profession, in case he is working in the country, which cannot be neglected if he is to obtain the results which he should obtain. Following are some of the most important of these duties:
First.—The teacher should visit all homes and get acquainted with the patrons. This is important in order that he may get an insight into the conditions under which the people are living, and that he may know the particular difficulties of the pupils with whom he has to deal. Moreover, acquaintance on the part of the parents with the teacher will often aid in avoiding disciplinary difficulties, inasmuch as the parents come to have increasing confidence in him and his work as their acquaintance with him increases.
Second.—The teacher should study conditions from all angles so as to adapt the school work to the needs of the community. Even in so small an island as Porto Rico, we have distinctly different occupations centered in different parts of the Island, and the teacher should remember that the majority of his pupils will undoubtedly grow up to take a part in the prevailing industry of the community in which they are born and raised. The schedule and work of the rural school should not be an attempt to imitate the plan of study of the urban schools, inasmuch as the problems are entirely different, and until a teacher has convinced himself of this fact and has made an attempt to model his work on the needs of the community, the school will not accomplish its full mission.
Third.—The teacher should live in the district seven days in the week during the school term. More and more the idea is becoming prevalent that rural teachers should be provided with a house and a small plot of ground near the school in order to become permanent residents of the district. The average farmer is very conservative and needs visual demonstration of the merits of new ideas before he will accept them. No amount of theoretical teaching will improve farming conditions to any great extent, and unless the teacher is able to become a demonstrator of his ideas by actually putting them into practice on the plot of ground which he himself manages, he cannot expect to influence to any great extent the agricultural movements of the community in which he works. The school should aim not only for the education ofthe children who are actually enrolled, but also for the betterment of the agricultural and social conditions of the community.
Fourth.—The rural teacher should be loyal to his pupils and patrons. The teacher who feels himself an individual superior to the members of the community whom he is serving and allows this feeling to express itself in his attitude toward them, loses the greater part of his influence through this action. The countryman likes to be met on equal terms and does not enjoy a condescending attitude any more than does his brother who lives in the town. The teacher should have in mind only the benefits which he may bring to the community, and if he actually and actively takes part in the social movements of the place he will come to learn that human nature is the same in the country as in the town, and he will be able to acquire a sincere liking for the people with whom he works.
Fifth.—The teacher should so conduct himself outside of the school as to win respect for himself and for his profession. The idea that a teacher's duty to the school ends with the closing of the actual school day is a mistaken one. Any action on the part of the teacher outside of his school work which would tend to lower him in the estimation of his pupils or their parents, inevitably tends to reduce the amount of influence which he can exert. A teacher is on duty constantly and cannot limit his working hours or his working habits to certain defined periods of time.
Sixth.—The teacher should stay more than oneyear in a district, unless a change means decided professional and financial advancement. Short term teachers are often of more harm than benefit to the children of a community. The advent of a new teacher means a change in plans and usually a change in methods of work. These changes tend to upset the minds of the children who naturally like to follow well-defined lines of work. The constant change of teachers also means that none of them stays sufficiently long to learn the needs of the community and the best method of meeting these needs. School boards should offer inducements to rural teachers in the way of increasing the salary for increased length of service, and thus there would be less desire on the part of the teacher to move from one district to another.
Seventh.—The teacher should arouse an interest in the school and do his part to convince the patrons of the need of a better school to meet the demands of the present day. A great part of the teacher's work lies outside of his actual teaching, and more and more we are coming to conceive the school as a social as well as an educational institution, and by means of parents' meetings, using the school as a social center and making the schoolhouse a gathering place for the patrons of the district, where they may meet and discuss the problems with which they are confronted, the present-day teacher supplements his actual teaching duties. There are few other ways in which the social needs of the country people can be better met than through the rural school. Moreover, by means of these meetingsit is possible to show parents the progress which is being made by their children in the school work and to impress them with the necessity of regular and punctual attendance. One of the surest ways to win the approval of men and women is by interesting them in the progress of their children, and the wise teacher will take advantage of every opportunity which presents itself, and go to great lengths to make opportunities for cultivating the interest of the parents in the school, through this means.
Eighth.—The teacher in a rural school should have as the aim of rural education "better men, better farming, and better living." The country teacher who appreciates and realizes this is aware of the chief factors in the solution of the farm problem. He must also remember that he is a public servant and that the public has a right to expect him to put his whole soul into the welfare of the community. The schools are held to be largely responsible for ineffective farming and the low ideals of country life. A great many of our rural teachers are not at all in sympathy with rural ideals and rural customs. They regard their position as merely temporary, and express, even though it may be involuntary on their part, the idea that the town is much preferable to the country, and in this way inculcate in the children a distaste for the life of the country, when it should be their duty to present the best features of rural life in order to persuade the children to remain on the farms.
Ninth.—The teacher should be able to discriminate between essentials and non-essentials and omit thelatter, thus giving more time to the problems of country life. He should get away from the formalism of textbooks, using them only as tools, and adapt all his work to the needs and interests of the community. He should not attempt to be too scientific, but should teach in terms of child life. And even in his intercourse with the patrons of the school he should put himself, in manners and conversation, on terms of equality with them. The teacher should learn to use his energy for better and more definite planning, and in the schoolroom should do for the children fewer of those things that may be done by the pupils themselves. There is no reason why pupils should not be taught to study and work independently, and the school that fulfills its highest mission trains children to become independent workers. Especially is this true in the country, where pupils should work as well as study and recite. Mere academic training in the rural school will defeat the purpose of the school and will be very apt to produce young men and young women who are dissatisfied with the conditions under which they must live after leaving school.