Thehousing of a people is always a matter of prime importance in their social life and development. There is little progress until the housing conditions are comfortable and hygienic, and the development of the home and the family life depends to a great extent on the conditions under which a people lives. The housing conditions in Porto Rico, especially for the poorer classes, are far from satisfactory. The dwellings of the country people are described as follows, in the Report on the Housing Conditions in Porto Rico, published by the Insular Bureau of Labor in 1914:
"There are five general problems which the laborer or employer in tropical countries, who is anxious to build cheap but proper houses, has to meet. The first is to provide adequate protection against the heat. As in northern countries it is necessary to shut out the cold winds and generate and conserve artificial heat within the house, so in tropical countries it is equally important to let in the breezes and to clear out any artificial heat that may arise.
"The second problem is to provide protection against the frequent tropical rains. This is especially important in tropical countries that have a protracted rainy season, as it is often difficult to shut out the rain without also shutting out the fresh air.
"The third problem is the provision of adequate sanitary facilities. Due to the heat in southern countries and to the humidity that prevails during certain seasons of the year, this problem is more difficult of solution and likewise more important than in countries farther north.
"The fourth problem is that of securing cheap and durable building materials. In a land like Porto Rico where tropical shrubs and the palm are practically the only woods that the laborers are able to obtain, we must not expect the same solid, commodious habitations which are found in northern countries where the pine and hemlock abound.
"The fifth problem, perhaps as important as any of the preceding and certainly as difficult to remedy, arises partly from the generosity of nature herself. People can live in tropical countries in almost any form of habitation. Cold winters have not obliged the poorer classes to be adepts in house construction. Poverty has forced them to live as cheaply as possible. Naturally, the laboring classes engaged in tilling the soil still make their homes in the cheapest forms of huts. This problem has, therefore, three aspects—an over-indulgent climate, poverty, and a lack of opportunity by the poorer classes to learn better methods of house construction.
"In Porto Rico we have, in addition to the problems mentioned above, two special conditions which have influenced the form and quality of our laborers' houses. The first is that the seasonal character of many of our agricultural industries forces the laborersto migrate from one section to another in order to find work and, naturally, they are not inclined to go to the expense and exertion of building substantial homes. The second, and more important, arises from the fact that the greater part of our laborers do not own the land their houses are placed upon and, being subject to ejection at the will of their landlords, they have no incentive to beautify or improve their homes.
"According to the census of 1910, the urban territory of Porto Rico—that is, the places of 2,500 inhabitants or more—contained 224,620 inhabitants, or 20.1 per cent of the total population, while 893,392 inhabitants, or 79.9 per cent, lived in places of less than 2,500 inhabitants, and of these, 837,725 lived in strictly rural territory. Needless to state, the greater part of the rural inhabitants belong to the laboring classes and live in the types of rural homes described in this section.
"We have divided the habitations of rural laborers, according to their construction, into the following types: (1) Single houses of thatch, (2) single houses of wood and zinc, (3) tenements of wood and zinc.
"Most of the thatched huts in the rural sections have been built by the laborers who live in them. The land upon which these houses are built is, however, usually the property of some plantation or landowner. Only in the more inaccessible sections inland do the laborers who have built these thatched houses also own the land they are placed upon. It is the custom among the landowners to allow laborers who work for them to take the necessary materials—grass, sticks, palm-bark, etc.—from the land and build their huts. This is done, of course, with the consent of the landowner, and the huts so built are legally attached to the land and become the property of the landowner. As a matter of fact, the laborers who have built these huts claim them as their property and are allowed to live in them without charge or molestation so long as they work for the landowner when their services are needed. When a laborer who has built a hut leaves it and moves to another's land, the hut is claimed by the landowner and some other laborer is allowed to move into it. There are also some of these huts that have been built by the landowners at their own expense, but the plantation owners and other landowners who have gone into the business of building houses for their workmen usually construct a better type of house. The thatched hut, therefore, while it is legally a plantation house, is not usually so considered, either by the landowner or the laborer.
"If we judge the importance of a type of house from the number of people who live in it, this thatched hut is far more important than any other rural or urban type. The great mass of the rural laborers live in houses of this type and, as has been shown, fully three-fourths of the total laborers of the Island live in rural sections.
"The homes of the wealthy in all parts of the world are constructed to conform to the standards of the age and place in which they are erected, and to the personal desires of the occupants, regard being taken only of the absolutely necessary conditions of environment. The houses of the poor, on the other hand, are the direct product of local environment. The hut of the inland laborer of Porto Rico, thejíbaro, is a striking illustration of the effect of environment upon the type of house in which the poor live.
"The problem of obtaining cheap and durable building materials is a very difficult one for the poor laborers of Porto Rico. Hard woods are extremely scarce, and the poor inland laborer cannot afford to buy imported lumber, and, therefore, he has been obliged to utilize the coarse grasses and the products of the palm trees that are accessible at little or no expense except the labor necessary in their preparation. Furthermore, many of these people have not the skill nor the necessary tools to use materials such as stone and clay which they might be able to obtain. Also, the migratory character of many of these inland laborers, and the fact that they do not own the land their houses are built upon, have been fundamental influences in preventing the development of better house types. The principal agricultural industries,i.e., coffee, sugar, and tobacco, have a busy and a dull season, and many of the inland laborers are obliged to migrate from one section to another in order to find work. For this reason hundreds of laborers pass annually from the inland hills where coffee is grown down to the sugar plantations on the coast, and then back again to the hills, the busy seasons of sugar and coffee being at different times of the year. Of course, these laborers cannot move their houses with them about the Island, and they naturally tend to build the cheapest kind of temporarystructures. Also very few of them own the land their houses are placed upon. They are mere squatters, or tenants at will, and the land owner may eject them at any time for little or no cause, so that there is no incentive to build substantial structures, and there is no chance of developing that pride in the home which is so essential to the building of good houses.
"The inland laborers who live in these huts have been their own architects and builders, and they model their homes after the old type that has prevailed among the hills for centuries. The framework of these huts is of poles and small sticks cut from shrub trees and nailed or tied together at the corners with native fiber ropes. The roofs are generally thatched with a long, tough grass, and the walls are constructed by binding leaves of the royal palm (yaguas) with sticks and fiber. The floor is of boards or slabs and is raised from one to two feet above the ground. In some sectionsyaguasare also used for the roofs, and in the inland there are many huts with walls of slabs from the trunk of the palm trees. These huts are usually divided into two rooms by a flimsy partition ofyaguas, one room being used as a bedroom and the other as a combined living and dining room. The kitchen is a separate room or shed at the rear, and, probably because of the danger of fire, is usually without floor. The furniture consists of hammocks, boxes for chairs, a rough table, and a few dishes, all made from gourds, except the iron pot used in cooking. The value of such furniture is usually from $4 to $6, and the value of such a house from $10 to $20.
"This hut of the inland laborer with its thatched roof and open construction is, in many respects, a much better house than the casual observer is likely to believe. A well-constructed thatch roof, when it is new, offers sufficient protection against rain and excellent protection from the heat of the tropic sun. New palm bark walls are also adequate to keep out the rains. Furthermore, almost without exception, the floors are raised above the ground, so that the surface waters after a shower run freely under the hut and wash away any refuse that may have accumulated, and then the sunlight and winds quickly dry the remaining dampness. In other words, a new well-built hut of this type is a properly ventilated, cool, and reasonably sanitary habitation, and represents the best effort of the laborers to adapt themselves, in their poverty-stricken condition, to the circumstances of their environment. On the other hand, these huts deteriorate very rapidly. Within six months or a year, a dozen varieties of insects have made their nests in the thatched roof, the palm-leaves have cracked, and the floor sags.
"One who stands on some projecting point high up on a mountain side in the interior of the Island and carefully scans the hillsides about and the valley beneath, will be amazed at the number of small huts of this type that lie within his view. There are hundreds of them. Every knoll is crowned by its hut; every hillside is dotted by them. No two are ever placed together; each family seeks its own free life. It is practically true that one cannot shout in any part ofour Island and not be heard by the occupants of one or more of these huts.
"To say that these people are contented and prefer to live as they do, is not true. Customs clinch themselves upon a people so that they appear contented, and these inland laborers have lived under the same conditions for three centuries. Their standards of living are modest, and their desires are few. In this sense they are contented. Yet there is a deep and powerful change coming over them. They are going to the cities in greater number than ever before; their children are attending the little schools in the hills. New ambitions are awakening. When the dull season comes, they cannot find work. There are times when many of them are hungry. They are not contented.
"That the Porto Rican laborer is of cheerful disposition is especially true of the so-calledjíbaro. He has been obliged to find his joy in simple things. He greets you with a smile; he welcomes you to his house and cheerfully divides his cup of coffee with you; he dances with a show of gayety on a Sunday afternoon. He is ever cheerful, but not happy. There may be some customs and prejudices of minor importance that he is loath to change, but in the main he prefers to live as he does because he is obliged so to live. Those who adhere to thelaissez fairepolicy and believe that conditions are good enough as they are, do not know the real heart of these people. They need and deserve and must ultimately receive the opportunity to improve their living and working conditions.
"There are two important causes for the erectionof plantation houses: (1) For the employer, the practical advantage of having a resident supply of labor on his land; (2) for the laborer, the necessity of living near his work. Laborers who live in plantation houses are more largely dependent upon the plantation than are laborers who live in their own homes. One of the conditions of occupying a plantation house is that the occupants will work for the plantation whenever their services are required. Laborers living in plantation houses, can, therefore, be depended upon by their employers, and this is a great advantage to the plantation owner. Furthermore, such houses are usually much better than the laborers who live in them could afford to build for themselves. Frequently, also, the holdings of the plantation are so extensive that it would not be possible for the laborers, even if they had the money, to buy land upon which to build their houses within walking distance of their work.
"There are great differences between the single houses of wood and zinc erected by the various plantations. The better types have been built by employers who wished to provide healthful and comfortable quarters—increase the efficiency of their laborers as well as to hold their labor supply. Unfortunately, at present, such houses are not being erected by the plantations in all parts of the Island. The majority of these houses have been built with the sole purpose of holding as large a labor supply as possible at the least expense.
"The houses of this type are usually roofed with large strips of zinc, nailed directly upon the rafters.These roofs are low, unceiled and, as a result, the houses are extremely hot. The walls are of imported lumber, sometimes the boards being matched and in other cases clapboarded. The better houses are painted to diminish the depreciation and to awaken the pride of the occupants in their homes. The walls are six or seven feet high. The floors are of boards and raised from one to two feet above the ground. The houses are set upon posts so that there is a clear space under them that can be easily cleaned. On the interior they are divided by half partitions into two or three rooms and are usually provided with separate kitchens, frequently one kitchen serving for from one to four houses. These houses cost from $70 to $150, the average being about $80, according to their size and construction. This description refers to the better houses of this type and, unfortunately, the majority of the single plantation houses are not so well constructed.
"These tenements represent the older type of plantation houses and fortunately very few of them are being built at the present time. Their construction has been prompted by the same reason that has induced employers to build the single type of plantation house—the desire to hold a resident supply of labor on the plantation. They are, however, far inferior to the single houses.
"The better rural tenements are built with zinc roofs, board walls and floors, and are raised from one to two feet above the ground. They are unceiled and have no windows. In the inland many of them havezinc walls. The poorer ones are located on low, swampy land and are built of oil cans, pieces of boxes, and other odds and ends. Some of them have separate kitchens and sanitary facilities, but many have nothing except such temporary and inadequate structures as the occupants have themselves built. The first reason for building tenements of this type has been, of course, to house the greatest number of laborers at the least expense. They are long structures, one or two rooms wide, each room an apartment, and crowded with people. Although these rural tenements are not usually being built at present, there are still hundreds of them in use.
"The worst housing conditions upon the plantations prevail in the buildings, usually tenements of this type, set aside as sleeping quarters for unmarried laborers. This type of labor is transient, coming for a few months during the busy season and then passing on to another section of the Island. Consequently, they are crowded into whatever quarters may be available at the time. The leaky rooms of the old sugar mills, the worst rooms in the tenements, single houses that have been unused for six months and are out of repair and filthy, are usually used for the emergency—an emergency that lasts from three to six months. Six, eight, or ten hammocks are hung up between bare walls in a room 10 feet by 15 feet and are all filled each night. Conditions of ventilation and general sanitation are frightful.
"There is one notable exception. One of the largest centrals of our Island has constructed a large,well-ventilated, and comfortable men's apartment. The floor is of matched boards, solid and clean. The walls are also of matched boards, but there is an open space two feet wide at the top of the walls extending around the building. Overhanging eaves prevent the rain from beating in through this opening. The roof is of heavy paper nailed to a thick wooden ceiling. Frames are arranged in the interior of the building for hanging hammocks, and around the walls are large individual lockers for the use of those sleeping there. Finally, the building is cleaned thoroughly every day.
"No description of the housing conditions of rural laborers would be complete without mention of the gardens cultivated by the occupants of the houses. It is safe to say that nine out of every ten laborers in the rural sections, with the exception of those who live in plantation houses where there is no land that they are permitted to cultivate, have planted some sort of garden. It is also true that these gardens are, in most cases, of very little practical use. Well cultivated and productive gardens belonging to rural laborers are hard to find.
"The average garden consists of two or three plantain or banana trees, a few tubers, and some medicinal plants. Frequently, there are many and beautiful flowers. Whatever vegetables there may be are poorly cared for and do not produce more than a third of a proper yield.
"This subject is of tremendous importance. The soil and climate of Porto Rico are such that it should be able, even with its dense population, to producemost of its food. There are unused plots of ground around practically every hut in the interior of the Island. The decrease in the production of sugar is going to throw many laborers out of work and they will be obliged to raise most of their own food or suffer. Many reasons have been advanced to explain the absence of good small gardens. The laborers themselves say that they do not plant and cultivate gardens because they do not own the land and they are allowed to plant only on condition that they give the greater part of their produce to the landowners. They claim also that it does not pay to break up the ground for one crop and that after they have got plantains, etc., growing they may be obliged to move. It is also true that in most cases they have not money enough to buy the seed or hire the oxen and implements needed for breaking up the ground.
"Also, in some parts of the south coast, it is too dry for profitable gardening. On the other hand, landowners frequently say that the reasons why laborers in the rural sections do not plant gardens are lack of knowledge of gardening methods, lack of realization of the benefits that they could derive from good gardens, and custom. Without discussing the relative merits of these reasons, there are two things that must be faced—such laborers must be educated, so far as possible by example, and they must be offered the opportunity to hold land with some fixity of tenure, either by purchasing it on the installment plan or by obtaining leases from the present landowners."
Fortunately, the factory system has not been introduced to any great extent into Porto Rico, nor in all probability will woman and child labor in factory employment ever constitute a serious problem. The census of 1910 gives only a total of 1912 woman wage earners in various industries of the Island. This, of course, does not include the woman who works throughout the rural districts, and whose condition constitutes the problem which must be studied and remedied in the Island.
The average unskilled laborer in the country districts of Porto Rico does not earn a sufficient sum to enable him to maintain his family in comfort. As a result, the wife, and frequently the children, must contribute to the support of the family as much as they can. In some parts of the Island, the tasks of the country women are largely limited to their housework and the cultivation of whatever garden products they may raise, because such crops as sugar cane do not call to any great extent for the use of woman labor. In other sections of the Island, however, particularly those parts where coffee growing is the chief industry, the gathering and caring for the coffee crop is left, to a great extent, to the women and children. This, of course, results in a financial saving to the coffee grower, as the wages for woman and child labor aremuch less than for the services of men. The unhealthful results, however, more than offset the advantages gained by adding the mother's wages to the family income.
The harmful results from woman labor may be classified as direct and indirect. Under the directly harmful results are the weakened physical condition of the mother, the increased susceptibility to diseases which are especially common in the coffee districts, particularly anemia, and such diseases as are the results of exposure. The larva of the hookworm lives and finds a fertile field for action in the damp and shady regions devoted to the production of coffee, and as the majority of the women laborers are not accustomed to wear shoes, they easily permit contact and contagion from this disease.
The strength of children and their ability to withstand disease depends to a great extent upon whether or not they are physically strong at the period of their birth and during the time they are under the direct care of the mother. A mother whose system has been weakened by the debilitating effects of anemia, cannot nourish her child and provide him with the necessary amount of food, and as a result, the child is either anemic, or a victim to malnutrition as a result of introducing solid food into his system before the digestive organs are prepared to take care of such food.
Among the indirectly harmful results of woman labor is the necessary separation of the mothers from the children of the family. The mother on going to work,either leaves her children in the care of a neighbor, or leaves them at home where the older children take care of the younger. This deprives the children of the mother's influence and allows them liberty to associate with children who may be undesirable companions, which would be avoided to a great extent if the mother were present to take care of them. The Juvenile Court records in the United States show that 85 per cent of the delinquent children brought before the court have been led into bad habits through the failure of one or both of the parents to take care of their supervision during play hours. Divorce in the United States has been strongly attacked for the reason that it deprives the child of one of his legal protectors. From the same point of view, woman and child labor, which deprives the child of the care of his mother, must inevitably produce bad results in the growing generation.
The use of child labor in Porto Rico is not particularly preferred except in coffee districts and in certain agricultural sections where boys are used at certain times of the year to help drive the oxen, or to help in planting the crop. As this is outdoor work it does not have the devitalizing effect upon the child's body which factory work would have, and as it does not require concentrated attention, it is relieved from the monotony which would tend to lower the child's mental ability. The evil results which must be guarded against are those arising from overwork and from association with undesirable characters while the child is not under the supervision of his parents. In addition to this, the child who is engaged at work must lose the benefits which he should be receiving from attendance at school. During the last year, the Department of Education has attempted to solve this problem by changing the vacation period, so that the long vacation of three months will fall at the coffee-picking season in such sections of the Island as are devoted to the production of this crop, and where previously there was a great decrease in school attendance at the time when the harvesting of the coffee was in progress. This, undoubtedly, will greatly help to do away with the harmful results which formerly were the consequences of irregular attendance or non-attendance at school on the part of a great many of the children in the coffee-growing districts.
An increase in the number of rural schools so that all of the children of the rural districts can be accommodated, is also necessary before this problem is entirely solved. At the present time, a large number of the children in the country cannot attend school, either because the school in the neighborhood is overcrowded, or because the nearest school is at too great a distance for them to attend with regularity. The removal of these conditions unfortunately depends upon an added appropriation for the maintenance of the Department of Education, and it is doubtful whether the income of the Island will be sufficient to supply the needed increase for years to come. With the gradual improvement of roads, consolidated schools may help to solve the problem, and a half-day enrollment for each group will tend to increase the number of children that can be taken care of. Children who find that they cannot obtain a place in the school will naturally be made use of by their parents for wage-earning purposes whenever possible, but the great majority of parents would not put their children at work if the children were enrolled in school and if irregularity of attendance were to lead to dismissal from the school.
Another thing that would help to relieve the situation, as far as woman and child labor is concerned, would be the establishment of a minimum wage for unskilled farm labor, such wage to be sufficient to enable the laborer to maintain his family without the help of money earned by the wife or children. The time of the wife could be occupied in poultry raising and in caring for the family garden, which would also tend to reduce the cost of living for the family and could easily be established, if the landowner were to provide sufficient garden space with each house in addition to the regular wages paid his laborers. Of course, methods of gardening would have to be included in the rural school programs, and the rural teacher should act as a supervisor of these gardens and advisor to the people of the community in which he is employed.
The important things to guard against in the life of the family, from the standpoint of the welfare of both the family and the community, are that the mother need not be obliged to dissipate the strength, through outside labor, which she needs in the raisingand caring for her family. The lack of proper supervision of the children through the absence of the mother from the home must also be guarded against. In case it can be proved that a father is unable through his own efforts to earn sufficient to maintain his family, a system of mothers' pensions carried on by the government should be established in order that the mother may be safeguarded from want in case of the death of her husband, and that she may not be obliged to help him in the maintenance of the family through the performance of such labor as would interfere with her regular family obligations.
Theprincipal industries of Porto Rico are necessarily of an agricultural character, and their importance to the Island financially is shown by the fact that during the year 1914-15 exports to the value of $49,356,907 left for the United States and foreign countries. The imports for the same period reached the amount of $33,884,296, thus giving a good surplus to the Island after the total imports had been paid for. The principal classes of imports are the foodstuffs which might be produced in sufficient quantities to maintain the population of Porto Rico. This is a situation which should receive attention, inasmuch as the Island is capable of producing all of the foodstuffs which it needs for its own consumption. The principal article of export from Porto Rico is sugar and other products of the sugar cane. The article of export second in value is tobacco in its various forms. Third comes coffee; and these three products make up the chief source of wealth.
The chief criticism in regard to the agricultural situation of Porto Rico at the present time, is that there has been very little development of small farm products which would tend to make it possible and profitable for the landholder who is in possession of only a few acres to earn a comfortable living. Theclimate and soil of Porto Rico would, undoubtedly, lend themselves to the production of many fruits and vegetables which could be raised with profit on farms limited in size, and which would enable the small farmer to maintain his family.
In addition to the introduction of agricultural products fitted for small farm production, an opportunity should be given and efforts encouraged for the establishment and improvement of such lines of work as can be carried on in the homes or by a small group of people working independently. Among these kinds of work are several, such as the hat-making and basket-making industries, the production of handmade lace and embroidery, and other forms of needlework, which might be carried on by women working independently during the time they have free from the occupations of their household work. These handmade articles of Porto Rico are much sought after by tourists, and there is no doubt but that a large and profitable market could be opened for them in the United States, if efforts were made to establish the production on a commercial basis. The individual living in a small town who devotes himself to hat making is handicapped because he has no steady market for his goods and is obliged to sell them or trade them for whatever he can obtain from retail dealers, who themselves attempt to secure only the limited trade which enters their stores. In order to make industries of this sort profitable to the producers, it will be necessary to secure a new and permanent market for the goods, and either the government or some group of individuals who will not exploit the workers, should act as middlemen to see that the work is uniform in character, and to attend to the handling of the finished products and the supplying of a market for it in the United States. Working as individuals, the countrymen or dwellers in small towns have turned out products which differ in quality and in design, and very frequently the lack of resources has obliged them to construct their products from unsuitable or cheap materials.
They have been accustomed to ask for their products as high a price as they thought they could obtain, and often this price is too high for the quality of the article, while sometimes it does not pay for the labor and time which has been expended in the production of the article. By systematizing the work and putting it under the direction of competent supervisors who would specify the quality of material to be used in the production of the articles, and who would fix a price which would fairly represent the time and labor expended by the producer, and who would be able to reject work that did not meet the standard set, the value of the goods would be increased. An equally necessary step in this matter would be the providing of a regular market for the goods and the supervision of production, so that the market would not be overloaded with certain articles and lacking in others. Experiments already carried out have proved the existence of a market for Porto Rican goods in the United States, and the matter should be taken up under the supervision of the Insular Government.
In order to produce trained workers for the production of these articles, it would be necessary to establish schools for their instruction which might well be under the direction of the Department of Education. These schools would not necessarily last throughout the year, nor would they require any great expenditure of money for their maintenance. The character of the school should depend upon the locality in which it was established and should be designed only for the training of skilled workmen, either child or adult, in particular lines of work. Short courses of two or three months in these industrial schools should be offered, and the people who attend them should be assured of a market for their goods when they have arrived at a point where they can produce goods of the proper standard. The money expended in the establishment and maintenance of these schools would more than double the earning capacity of the unskilled worker, and the general welfare of the community would be increased by the changing of unskilled and unproductive citizens into trained, productive laborers.
It is a well established fact that the trained workman is the most desirable kind of citizen. The unskilled laborer has no steady market for his labor and is the first victim in the wage system whenever a financial crisis causes the employer to lessen his expenses. The unskilled laborer has for sale a product which the average employer is not anxious to obtain, whereas the skilled worker can find a much more steady and regular market for his labor. The lawless, irresponsible class of citizens in any community is alwayscomposed to a great extent of the unskilled laborers, and any country which has an overwhelming proportion of its population composed of this class of people is in constant danger of labor disturbances and conflicts between employers and employees. The great majority of the men in penal institutions are unskilled laborers, and if the proportion of this type of citizens is sufficiently large, it may constitute a real danger to the community. With increased ability to earn wages comes the desire to improve living conditions and to rise higher in the social scale. This demands added education, more hygienic surroundings, and better food and clothing. The man who earns fifty cents a day, and that at irregular periods, is an early victim to dissatisfaction and is easily made to believe that life has not much for him in the future, and that he has not been fairly treated by his employer. The skilled laborer who earns double this amount or more, begins to take a new interest in life, as he can see the results which have come from his directed efforts, and values the benefit to his family; he educates his children, sees to it that they are well clothed and fed, and he himself becomes interested in the life and problems of the community as he becomes gradually a person of some importance in its economic and social life. A dependent wage-earning population usually lacks ideals of self-improvement, but the steady-working, independent producer of marketable goods is constantly striving to improve the amount and quality of his products.
Oneof the most difficult problems to solve in the case of a small country such as Porto Rico, and one which has a definite bearing on both the economic and the social life of the people, is the land situation. This is especially true when the chief industries are such as lend themselves more readily to large plantation farming rather than to small industries or crops which can be raised profitably on small areas. The most important products of Porto Rico to-day are large-farm products, and they naturally tend to develop a small number of large landowners and a large number of landless citizens. There were in 1910, 46,799 farms operated by their owners, and it was estimated that 600,000 people or 117,647 families in rural sections belonged to the landless class. An equally large proportion of landless citizens is found in urban centers. Of the 10,936 people in Puerta de Tierra in 1913, only 178 or about 30 families owned the land on which their houses were located. It is estimated that there are at least 800,000 people or 156,860 landless families in Porto Rico.
In addition to the tendency toward lawlessness that is always found where there is an overproportion of landless citizens, the systems of land rental in Porto Rico have certain unfortunate economic aspects whichcall for consideration. Part of the renters live in houses which are owned by the proprietor of the land upon which their houses are located, and here the case resolves itself simply into the ordinary relations of renters and householders. This system does not differ to any great extent from the ordinary rent system in the States and has the same disadvantages, both economical and social, which are to be found wherever the rental system is in operation.
A second system which has been known as the "Land Rent System" is somewhat different. Under this system a man rents a lot from the owner of the property and proceeds to erect his own house upon the land. He then owns the house but not the land upon which it is located. Usually he rents from the proprietor from month to month or from year to year and has no definite lease of the land, and there is nothing to prevent the owner from raising the rental price or from demanding the house of the renter whenever he feels so inclined. As a matter of fact, it frequently happens that the land is rented to householders at fifty cents or a dollar monthly for the purpose of building houses, and within a short time after the completion of the house the owner of the land advances the price of rent, so that the house owner finds himself unable to meet the increased cost. He then has no choice except to move out and leave his house, together with the amount of work and invested money which it represents, or to sell the house to another person. Usually the house is sold to the owner of the land himself, who thus comes into possession, at a very reduced price, of a house which he, in turn, rents to another individual. This system is extremely unfortunate for the renter and should be abolished by the passing of legislation which would require the granting of a lease for a certain definite period to every person who builds upon land owned by another.
A modification of this system is frequently found in the cases where employees build their houses upon the land which belongs to the plantation. In many cases the employer does his utmost to make the life of his tenants as pleasant as possible, granting them garden plots and trying to make them permanent employees by offering them certain advantages. In many cases, however, the employer maintains a company store and requires his employees to purchase all their provisions from the store, thus making a double profit from them, and frequently charging them higher prices than they would have to pay elsewhere. In other cases the employer guarantees the credit of his workmen at a given local store, and on pay day he turns over to the local storekeeper the amount due the workmen and the storekeeper deducts from this the amount which is owing him for provisions and hands over to the workmen what may be left. As the average countryman has little idea of business and is lacking in knowledge of how to keep accurate accounts, and, moreover, since a credit system always tends to extravagance, it frequently happens that the workman is never entirely out of debt. There is a law approved in 1908 which makes it unlawful "for any corporation,company, firm or person engaged in any trade or business, whether directly or indirectly, to issue, sell, give or deliver to any person employed by such corporation, company, firm or person, payments of wages to such laborers, or as an advance for labor not due, in any script, token, draft, check or other evidence of indebtedness payable or redeemable otherwise than in lawful money." Section 2 of the same law provides that "if any corporation, company, firm or person shall coerce or compel or attempt to coerce or compel an employee to purchase goods or supplies in payment of wages due him from any corporation, company, firm or person, such said named corporation, company, firm or person shall be guilty of a misdemeanor." In this way attempts have been made to protect the laborer from exploitation, but violations of the law are not uncommon.
There is need for legislation to provide opportunity for the man of small means to purchase sufficient land to establish a home. In Porto Rico there are about 121,346 acres of government lands located in various parts of the Island which might well be opened to settlement at a nominal price. Legislation should also be passed which would provide that private land which is not used for produce for a given term of years might be opened to settlement and sold to people who would occupy it and use it for production. There are many acres of private land in Porto Rico which are not used at all and have not been used for years. The accumulation of land by an individual or a corporation for purposes of speculation or for purposes other thancultivation and use for the production of crops should be discouraged, because the limited amount of land in the Island does not permit such accumulation except at the expense of the poorer class of people. There is at present a law preventing the accumulation of more than 500 acres of land by any company or corporation, but no penalty has been provided for the violation of this law, and it is practically useless as it stands at present.
In addition to providing means by which people would be encouraged to own and manage small farms, coöperative organizations for providing a market for the products of these farms should be established. Undoubtedly, the government should start such a movement. The spirit of coöperation is not strong in Porto Rico at the present time, and the small farm holder finds himself at a disadvantage when he has to compete with the larger producer and when he is obliged to find a market for his goods. Some such system as exists in Denmark, where the farmers of a community have joined themselves into coöperative associations for selling their products and the purchase of necessary supplies, might very well be introduced into Porto Rico. This would tend not only to improve the economic situation by bringing better prices and a steady market for the farm products, and by making possible the purchase of necessary supplies in larger quantities, but it would also help to encourage a sense of unity and mutual confidence among the people of a given community, which would be of immense value in raising the standard of citizenship.Community pride and a definite desire for improvement would necessarily follow such a movement.
Farming is one of the few occupations which is not influenced by seasons, so far as unemployment is concerned. Practically all of the trades have their busy seasons and their idle seasons, and any movement which would tend to make employment more permanent by providing small farms for a larger number of people, would be of immense benefit to the Island as a whole. The Bureau of Labor of Porto Rico in an investigation which covered the last five months of the year 1913, found that of the total number of union men reported, 27 per cent were unemployed during the month of August, 26 per cent during September, 38 per cent during October, 34 per cent during November, and 46 per cent during December. The men reporting were engaged in various occupations. It was estimated that 28 per cent of all the laborers who reported were unemployed on account of lack of work and not on account of not desiring work. The different trades represented are as follows: among the dock laborers 62 per cent were unemployed, 56 per cent of the carpenters, 47 per cent of the agricultural laborers, 23 per cent of the cigar makers, and 10 per cent of the typesetters reported that they could not find employment. Thus it will be seen that when the individual workman is at the mercy of the employer, he has no independent status such as he would have were he the owner of even a very modest piece of property, and it is inevitable that he will find employment only part of the year. Part time employmenttends to low standards of living, because during the period of reduced financial income the standards of living are lowered, and when it is found that the family can exist on the reduced income there is little inducement for seeking work since the desire for economy and saving is not greatly developed among the working classes of Porto Rico.
We find a gradual lowering of the moral standard as the necessary accompaniment of low standards of living, and if continued long enough, this low moral standard gradually leads to moral and social degeneration. The necessary steps should be taken by the legislature to provide for the relief of the landless and unemployed classes, as otherwise these people will constitute a serious handicap for the economic and social development of a competent body of citizens.
Themeaning 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 efficiencyof 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 doaway 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:
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 inprice 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 laborerswere 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 suchconditions, 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.
TheIsland 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:
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 onUncinariasis in Porto Ricoquote 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 (calledjíbaros), 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 thejíbaroof 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 beencaused by malaria. Mr. D. L. Van Dine, in an article in theSouthern Medical Journalfor 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 twodiseases 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 socialproblems 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.