7. OPERATIONS OF THE ACT OF DECEMBER 21, 1898. Following are extracts from special reports of shipping commissioners in regard to the operations of the act of December 21, 1898: (a) ALLOTMENTS OF WAGES. New York. When the act was promulgated the section relating to allotments was objected to, bitterly assailed, and violently fought in all kinds of ways, by the keepers of sailors' boarding houses, aided and abetted, as I believe, by outside shipping masters at this port. These men are allied, and are very powerful and influential. Owing to the determined stand of some of the shipowners, aided by the active assistance of the Seamen's Friend Society, the Maritime Exchange, the Legal Aid Society, Branch for Seamen (recently established), the Mission for Seamen of the Protestant Episcopal Church, Rev. Dr. Mansfield in charge, and the cooperation and aid of other interested associations, vigorously backed up by the police, we have been able to demonstrate the futility of opposition to the enforcement of the law. Everything is now working smoothly. Port Townsend.-I regard the act, as a whole, an improvement on former laws, but particularly in lessening the amount of allotment, and making it definite as to the amount a shipping commissioner may allow. This saves controversy both with seamen and boarding house men. There has been a decrease in the number of allotments during the last six months of the year. This, however, is not due to the act of December 21, 1898, but to the fact that fewer ships have left this port for "deep-sea voyages" than during the first six months. Baltimore.—I think that the allotment should not be regulated by amount of wages received, and the schedule fixed by Department previous to passage of present act much better than present schedule. Boston.-Great and frequent complaint is made by owners and masters over reduction in amount of allotment allowed. At this port, when this act went into operation, the sailor landlords formed an association and demanded the following rates of wages, and cash over and above the allotment allowed, as follows: Vessels bound to South America, wages $20 per month, an increase of $2 per month, the legal allotment allowed, and $20 bonus; this bonus to come directly out of the vessel or owner. Vessels bound to Africa, Western Islands, Demerara, Cayenne, Surinam, $20 per month, the legal allotment allowed, and $15 and $10 cash bonus. This has caused great trouble and detention of vessels. Finally some of the owners applied direct to this office for their seamen. We made the effort and were successful, but encountered great opposition from the landlords. I am of the opinion that if the owners would, by general consent, apply to this office for all men, and the Government furnish this office with all assistance in matter of police and legal aid, and if Congress would give the commissioner more power and strengthen the duties of his office by legislation, this system of demanding bonus, or, as it is known, "blood money,' could be stopped and abolished entirely. I am advised that the same practice prevails in the shipment of seamen on foreign vessels bound to foreign ports. This office is also informed that the shipowners' association of this port are to ask Congress at the coming session to repeal or modify the law so far as it relates to the payment of allotment notes. Newport News.-The act seems to be a good one. It seems that the law might be so amended that, in ports where shipping commissioners have been appointed, all vessels of 75 tons and upward shall ship and discharge their crews before shipping commissioner. As it is now, quite a number of men are shipped in coastwise vessels by shipping or sailor boarding-house masters, and I have had several complaints that in many such cases there are advances made, which is contrary to law. But so far I have been unable to get sufficient evidence to convict them. Philadelphia.-The Boarding-House Keepers' Association, being in control of the supply of "deep-water seamen," compels the American shipowner to pay a bonus for every seaman shipped in the foreign trade, and the seaman is no longer subjected to the paying of a shipping fee, commonly called "blood money," owing to the fact of his receiving less allotment. It is a peculiar fact, that of an American association discriminating against American shipowners, as, I believe, vessels of no other nationality are compelled by said association to pay bonus money. San Francisco.—The change in the allotment law is an excellent one, and has done more to protect the seaman from the extortion of the boarding-house keepers and shipping masters than any act of recent years. At first there was a disposition on the part of the shipping masters and boarding-house keepers to evade the law by forcing the seamen to sign for less than current wages and receiving from the owners the difference; for instance, if the current rate of wages was $20 per month on deepwater vessels, the seaman would be required to sign for $15 per month, with the understanding with the owners that $5 per month would be paid to the shipping masters and boarding-house keepers. After my refusal to sign several vessels at the reduced rate of wages, when there was no apparent cause for the reduction, the shipping masters and boarding-house keepers abandoned this method, and since then have complied with the law. Wilmington, N. C.-I beg to report concerning the operation of the act of December 21, 1898, forbidding the payment of advance wages to seamen, that I believe this act is violated, but I can not get the necessary proof to convict. The masters of vessels complain because they can not get men who do not need money before going to sea. The men are often signed on board the ships only to keep the shipping commissioner from interfering about advance money. If the law required all seamen for the West Indies and Mexico to be shipped and discharged by a commissioner the law would not be so easily violated. Portland, Me.-I should say that the reductions in the amount of allotment will be of benefit both to the masters and seamen, and I see no reason why it is not enough; and we should have no trouble if it was not for the boarding-house keepers and the shipping agents; they, of course, want large amounts. I know of several cases where shipping agents have lost the shipping for vessels bound foreign for the reason that they said they could not get crews unless master and crews would pay bonuses of $15 to $20 per man; the masters then asked me to ship their crews and I did so, and only the legal allotments were paid; said vessels were not detained one hour in sailing on account of seamen. (b) DESERTIONS. Norfolk.-There has been a slight decrease in the number of desertions. New Bedford.--I have not as yet noticed that it has had any effect on desertions. New York.-As to the effect of the operations of the act on desertions, too short a time has elapsed since the passage of the act to show the full results of the change in the law. So far as we are able to determine, the effect of the change has been to discourage desertions. This, in our opinion, will be more marked from now on. We are satisfied that desertions will be much fewer in the future. New Orleans.-Desertions have fallen off to some extent, as men are informed that all pay, as well as wages and clothes, shall be forfeited in deserting a vessel after signing articles. Port Townsend.—I am unable to say what effect this act has had on desertions. Providence. The act has had no perceptible effect on desertions. Portland, Me.-I think there are more desertions here since the act of December 21, 1898, went into effect, caused by the repeal of sections 4598 and 4599, Revised Statutes, leaving the commissioner without any control of the men after they have signed the articles. Philadelphia. The act has very little effect on desertions, as the following figures will show: For first six months of fiscal year, number of shipments 3,320, number of desertions 116; last six months of fiscal year, number of shipments 2,838, number of desertions 87. San Francisco.-The repeal of sections 4598 and 4599 has the effect that many seamen after signing articles and rendering themselves on board subsequently desert. This is noticeably the case with deep-water vessels. It works a hardship upon the owners. A vessel may be ready to put to sea, with a tugboat alongside, when, without warning, a number of the crew will abandon her, which causes a delay of several days to make up the complement. Under the present law the master has no redress. Wilmington.-Desertions reported here were not, in my opinion, on account of the act of December 21, 1898, but simply a desire, common among seamen, to make a change. Boston.-From general observation should say the number of desertions have been about the same, possibly some slight excess in the coasting trade. In the foreign trade the effect of this act has been to increase quite perceptibly the number of desertions. They seem inclined to take advantage of the situation; and it has in many cases (where vessels were in Portland, Me., bound foreign, and seamen were sent from this port to join vessels) cost the owners quite a heavy expense and much detention by the seamen refusing to go in the vessel. Great complaint has been made to this office by masters and owners on this account. Pascagoula.-It is somewhat difficult to determine what effect the act of December 21, 1898, has had on desertions, as they are not very frequently occurring to vessels coming to and leaving this port, but I am of the opinion they have decreased and are becoming even less frequent. Baltimore. Since the passage of the act there have been very few desertions; seamen will not leave a vessel where there is money due them unless they have just cause. I find that many fail to join vessels after signing articles, thereby causing much detention to vessels, particularly those in the West India and Gulf trade. Sometimes after a seaman signs articles for a coastwise voyage, he finds a vessel going foreign where he can get the same wages and an allotment, consequently he ignores his contract for the coastwise voyage. Boarding masters encourage seamen to go on foreign voyages so they can get allotment notes for board due them, and as there are so few American vessels in the foreign trade they are shipped on vessels of other countries, which makes it difficult for coast wise vessels to get crews. Bath.—I have been unable to perceive that the act has had any effect on desertions. (c) SCALE OF PROVISIONS. Bath.-No complaints, formal or informal, have come to me regarding the present scale of provisions. I consider it an improvement on the old scale. Boston.-This office has had considerable discussion with masters and owners regarding scale of provisions, and seamen have also discussed it in many cases; and it seems to be the general opinion that it is no great improvement over the former scale. I have not as yet heard of any case where the seamen have demanded its use on board any vessel. San Francisco.-The new scale of provisions seems to give general satisfaction. I have heard no complaints from either the masters or the seamen. Portland, Me.—The improved scale of provisions gives satisfaction generally with the men; while it tends to see that the men have better fare, I hardly think sailors as a class demand the exact scale, and as a rule there is no complaint as to their fare on our coasting vessels. Providence. In regard to the improved scale of provisions, it has not to my knowledge been enforced to the letter on any vessel making this port. Port Townsend.—The scale of provisions is certainly an improvement. Iam informed, however, by the masters that no demand is made by seamen for its enforcement. No complaint has been made to me by any seaman against any master either as to quantity or quality of food furnished upon any merchant vessel the past year. New Orleans.-None of the vessels sailing regularly from this port follow out the scale of provisions, but from my own personal knowledge can assure you that the men have plenty of good, wholesome food, and I hardly ever hear any complaints about food on any vessels. New York.-The new scale is a great improvement on the old. We do not think the old scale was very clearly adhered to on most vessels. New Bedford.-In regard to the improved scale of provisions, I would state that I have heard of cases where the crew having found fault with the provisions as given out by the master, the master has had the food apportioned as per scale, and informed the crew that the law did not compel him to furnish a fire nor a cook to cook it. Pensacola. No complaint heard from masters or seamen as to provision scale. Norfolk.-Have heard no complaints requiring official action. I think the improved scale has given general satisfaction. 8. DESERTIONS ABROAD. On March 14, through the proper official channels, the Bureau requested that reports be obtained concerning the number of seamen discharged, shipped, deserted, reclaimed, punished, and making complaints under section 4583 of the Revised Statutes, during the six months ended June 30, 1899, from the following consuls: Cardiff, Southampton, Liverpool, Antwerp, Havre, Genoa, Valparaiso, Callao, Melbourne, Sydney, Hongkong, Shanghai, Yokohama, Buenos Ayres, Montevideo, Rio Janeiro, Capetown, Singapore, and Nagasaki. The consul at Valparaiso reports that no American vessel had arrived at his port, and doubtless the same is true of other consulates of the list. The meager reports received by the Bureau up to date are as follows: APPENDIX C. WAGES OF SEAMEN. The following pages show, first, the average monthly wages paid during the past fiscal year on American steam and sailing vessels to seamen shipped in various positions for voyages in various branches of the foreign and coasting trade, compiled from reports of the United States shipping commissioners to this Bureau; and, second, like statements as to wages on British vessels, compiled from the annual reports of the board of trade. This form of comparative statement was established in the report of the Bureau in 1894 and has since been continued. By reference to former reports comparison may be made of the relative changes in wages. The report for 1894 also contained tables of wages on French and German vessels and general observations on the subject which do not require repetition. The tables are given in detail, so that any comparison of the wages of particular voyages, kinds of vessels, or positions on the ship may readily be made. |