of

expressing his opinion that a better prospect of success might be offered by an endeavour to effect a compromise by means of diplomatic correspondence between the Belgian and French Governments. The Russian delegate having expressed similar views, it became evident that a prolongation of the Conference at the present moment could not lead to any general understanding. The final meeting was therefore held on the 25th instant, and it was agreed that the Belgian Government should pursue the subject through the diplomatic channel, and that the Conference should be convoked again later on, if a satisfactory result could be obtained as a preliminary step. In accepting this proposal we, however, reserved entire liberty of action to Her Majesty's Government in regard to any measures which the development of the sugar question might render necessary. We have the honour to inclose copies of the procèsverbaux and of the other documents connected with the proceedings, which, according to a resolution agreed to at the final meeting, may be published by the respective Governments whenever they may consider it convenient. These documents contain only the Official Report of the proceedings. Much of the actual work has, however, been done by means more or less informal discussions, undertaken with a view, if possible, to discover some means of arriving at an understanding acceptable to all the Powers represented. Throughout these discussions we have made clear the earnest desire of Her Majesty's Government to promote a generally satis factory result, and their readiness to consider any suggestions either for the total or the partial suppression of the bounties, whether immediately or by means of gradual reductions." The delegates add the following observations:-"We do not consider it to be any part of our duty to discuss the economic aspects of the Sugar Bounty question, either in its bearing upon the United Kingdom or upon the British Colonies. This branch of the subject has already received the careful consideration of Her Majesty's Government; but having given above a brief outline of the proceedings of the Brussels Sugar Conference we desire to offer the following general observations upon the present position of the question from the international point of view": Austria Hungary, Germany, Belgium, and Holland desire to effect a complete abolition of the bounties, and no opposition to an arrangement to this effect is to be apprehended from Spain and Sweden. France, however, whilst willing to abolish the direct bounty on export under her Law of 1897, wishes to retain the advantage of the indirect export bounty created by her internal Law of 1884; and Russia declines even to discuss whether her existing system amounts to a bounty on export or not. Germany grants only a direct export bounty, which is, roughly speaking, about equal in amount to the

direct export bounty granted under the French Law of 1897, and although sugar can be produced cheaper in Germany than in France, it is not to be expected that Germany will consent to abolish the whole of her bounty whilst France retains that created by her Law of 1884, which is about three times as much as the direct export bounty granted under her Law of 1897. Austria-Hungary, on the other hand, contends that the Russian system does in fact amount to the grant of a bounty on exportation, and as Russia is her chief competitor in the sugar markets of Italy and the Levant, the Austro-Hungarian Government are not prepared to abolish their bounties unless some modification can be obtained in the Russian system. It seems clear that in these circumstances there are at present but two methods of securing the suppression of the bounty system:-1. By coming to some arrangement for such modifications or limitations in the French and Russian systems as may be acceptable to the other sugar-producing States, in return for the suppression of their bounties; and 2. By the conclusion of a Convention between a certain number of the sugarproducing States providing for the total suppression of sugar bounties within their dominions, and engaging that they will either impose countervailing duties on, or prohibit the entry of, bounty-fed sugar coming from States which cannot be induced to become parties to the Convention. The market of the United States is already rendered unprofitable by this means to all bounty-fed sugar. All the continental sugar-producing States, by means of customs duties and internal legislation, reserve the entire supply of the home market to the home producer of sugar; and the English, and to a rapidly increasing extent the Indian, market thus becomes essential for the surplus sugar production of the European countries. Any steps by which these markets might be closed to bounty-fed sugar must therefore have a decisive effect in securing the speedy abolition of the bounty system. That system is, however, now felt to press heavily on the economic resources of those States which have recourse to it, and it is not impossible that a further exchange of views may lead to some concessions by France and Russia which would form the basis of a general arrangement acceptable to all the sugar-producing States, as at least a mitigation of the unsatisfactory system which at present prevails. If no solution can be obtained, it is possible that a still worse state of affairs may result by the increase of bounties in various countries.

TA-LIEN-WAN and Port Arthur (Lease to Russia). (See CHINA.)

THURSTON (Major), Murder of. (See AFRICA: UGANDA.)

TRINIDAD. (See WEST INDIA COMMISSION.)

TUBERCULOSIS.

Dated

Report of Royal Commission. April 4th, 1898.-This Commission was appointed to inquire "what administrative procedures are available and would be desirable for controlling the danger to man through the use as food of the meat and milk of tuberculous animals; and what are the considerations which should govern the action of the responsible authorities in condemning for the purpose of food supplies, animals, carcases, or meat exhibiting any stage of tuberculosis." They say that nothing has come before them to raise any doubt as to the accuracy of the opinion of the Royal Commission of 1895, that tubercular disease in bovine and other animals is identical with that in the human subject, and that it is communicable from one to the other; and also of opinion that "any person who takes tuberculous matter into the body as food incurs risk of acquiring tuberculous disease." At the same time they think there has been a tendency to exaggerate the extent of the risk arising from meat. Discussing the extent to which the herds of the United Kingdom have become infected with tuberculosis they say:-" Overwhelming evidence proved the greater prevalence of tuberculosis among dairy stock than among bullocks or heifers, owing, no doubt, to the close confinement of cows during a great part of the year, sometimes throughout the year, to their greater average age, and to the severe drain on them caused by milking. It is a common practice with cowkeepers to maintain a high temperature in the byres, which is rarely found associated with efficient ventilation. One very serious feature in the distribution of this disease is its prevalence among high-class pedigree stock. This does not appear to arise from any greater predisposition to the disease among highly-bred animals, but partly because that, owing to the high value of certain strains, cows are retained for breeding purposes much longer than would be the case in ordinary stock, and partly because, when young, they are commonly subjected to more artificial treatment than less valuable stock. The result of Sir Thomas Gibson Carmichael's experiments upon pedigree stock, and of those conducted over a period of five years in Denmark under superintendence of Professor Bang, shows how much can be done towards eliminating the disease from any herd kept under good sanitary conditions, by isolating such animals as react to the tuberculin test. Several witnesses (both veterinary surgeons and others) expressed the opinion that some breeds of cattle, such as Shorthorns, Jerseys, and Ayrshires, are more susceptible of tuberculosis than others, such as the Welsh breeds, Herefords, and Highland cattle. No doubt they were

speaking accurately from the result of their observations, but a careful comparison of the facts collected during our inquiry, over a very wide and varied field, has convinced us that the chief element in immunity from tuberculosis is to be found in the conditions under which cattle are reared and kept. Shorthorns, Jerseys, and Ayrshires are the principal dairy breeds in this country; dairy cows, as a rule, are kept more in houses than is the case with cattle meant for slaughter; such houses are often illventilated, ill-lighted, ill-drained, and illcleaned. It is not surprising, therefore, if tuberculosis prevails to a very large extent among that class of stock." The disease is almost unknown among cows kept in the open air. Examining the legislation and practice for the inspection of meat, they point out that "there is a total absence of uniformity in the special qualifications required of the persons employed as meat inspectors by the sanitary authorities in different places, as may be seen by a Return presented to the House of Commons in 1896, showing the previous vocations of those acting in that capacity. In Battersea, for instance, four plumbers and three carpenters discharge the office of meat inspector; in Hackney the duties have been committed to two plumbers, one carpenter, one compositor, one bricklayer, one florist, one builder, one surveyor, and one stonemason. In Portsmouth a solitary butcher has received as colleagues three school teachers, one medical dispenser, one carpenter, and one tram-conductor." As to the amount and distribution of tubercular disease which justifies the seizure and condemnation of a carcase as unfit for human food, the widest discrepancy prevails in opinion and practice. "Chaos is the only word to express the absence of system in the inspection and seizure of tuberculous meat, and it has, in our opinion, become necessary that regulations should be formulated for the guidance of those who are concerned in dealing with this subject. In Belfast the presence of tuberculosis in any degree is held to be ground for seizure; on the other hand, in Islington the veterinary inspector of the Corporation of the City of London only seizes those carcases wherein tuberculosis is generalised and the meat in poor condition. In Dublin the medical officer of health used to seize on the slightest evidence of tuberculosis, but he has recently modified his views, and only seizes carcases which are somewhat extensively affected. In Sheffield seizure is made of a carcase showing the slightest trace of tuberculosis; in Manchester, in cases where the disease is localised, the affected part is removed and destroyed, the remainder is passed. Numerous instances of similar discrepancy will be found in the evidence; the above, taken almost at random, may be sufficient to illustrate the present condition of inspection applied to tuberculous carcases. They believe that such a stage of experience and knowledge has been attained

as to the nature of tuberculosis and the effect of tuberculous meat upon the human consumer as to enable a uniform standard to be prescribed for the guidance of meat inspectors. As regards slaughter-houses, they say that the use of public slaughter-houses in populous places, to the exclusion of all private ones, "is a necessary preliminary to a uniform and equitable system of meat inspection." They cannot, on the merits of the case, recommend compensation to butchers for carcases seized by the local authorities or their officers on account of tuberculosis. Dealing with the question of milk supply, they say: "Whatever degree of danger may be incurred by the consumption of the flesh of tuberculous animals (and we have already stated our belief that the tendency in this country has been rather to exaggerate this than to underrate it), there can be little doubt that the corresponding danger in respect of milk supply is a far greater one. On this point the opinion of the previous Royal Commission on Tuberculosis was emphatic-" No doubt the largest part of the tuberculosis which man obtains through his food is by means of milk containing tuberculous matter." In Great Britain and Ireland meat, as a rule, is cooked before it is eaten to an extent which goes largely to destroy infective matter. Milk, on the other hand, is largely consumed in a raw state, especially by children, and there exists a general distaste for cooked milk as a beverage. Amongst most continental nations the practice is to some extent the opposite of this, and large quantities of meat, especially in the various forms of sausages, are consumed absolutely raw, while the greater proportion of the milk is cooked before consumption. It has been proved over and over again that milk from tuberculous udders, and even milk which has been purposely contaminated with tuberculous matter, can be rendered perfectly harmless by being boiled for one minute-a method of sterilization which we agree with the former Commission in preferring for general application to any of the other plans which have been employed. We have already explained how unsatisfactory is the system of meat inspection in this country; but as regards milk, in relation to tuberculosis, inspection is still more so; indeed, it may be said not to exist. Even local authorities, who exert themselves to prevent the sale of tuberculous meat, are without sufficient powers to prevent the sale within their districts of milk drawn from diseased cows. It is true that in this respect the City of Glasgow possesses exceptional powers. Nevertheless, during the visit of some of Your Majesty's Commissioners to that city they were shown in the public slaughterhouse the carcase of a well-nourished cow which had been seized for generalised tuberculosis. She had been yielding milk to the day of her slaughter, as shown by the milk flowing freely from her udder, and might have continued to do so had not her owner

sold her to the butcher. It has been proved to our satisfaction from the returns of medical officers of health and meat inspectors, that tuberculosis prevails to a larger extent among dairy stock than in any other class of animal. Considerable difference of opinion exists among experts as to the extent to which a cow may be affected with tuberculosis without rendering her milk dangerous. It was not proved to our satisfaction that tubercle bacilli had ever been detected in milk, unless drawn from a cow with tuberculosis of the mammary gland. In that case the disease generally, but not always, manifests itself by external signs, and the udder is suspected to be tuberculous. It is obvious, we think, that milk drawn from such a source ought to render him who exposes it for sale liable to heavy penalties. But there is no power at present to prevent such milk being sold. Professor McFadyean told us that, in a sample of milk from a diseased udder submitted to him for diagnosis, he had no difficulty in detecting tubercle bacilli, yet the milk from that cow continued to be sent in for sale in a neighbouring city. Unfortunately, tuberculosis of the udder can rarely be differentiated from other forms of udder disease by the ordinary stock owner or dairyman, and hence all udder diseases should be forthwith notified to the local authority." They do not advise the claim for compensation should be entertained, except under special and defined circumstances (when the cow has been slaughtered and found to have been free from the disease), and they advocate prohibition in populous places of cowsheds not at present registered. They add:-" We desire to say that we have received the impression that public opinion is prepared to endorse measures taken to secure an uncontaminated milk supply. We have examined the establishments of two of the leading dairy firms supplying the metropolis, and have noted with satisfaction a number of systematic precautions taken in them against disease in the cows whence the milk is drawn, and against the presence of impurity in milk supplied to their customers. There is also a growing tendency among the wealthier class of customers to purchase their milk from dairymen who can give some assurance as to the adoption of such precautions. But much remains to be done to protect the poorer classes in populous districts, who cannot afford to pay a higher price for a guaranteed article, and perhaps have not the degree of knowledge necessary to warn them against milk coming from dubious sources." 99 The Recommendations of the Commission are as follows:-" A. Slaughter-houses.-1. We recommend that in all towns and municipal boroughs in England and Wales, and in Ireland, powers be conferred on the authorities similar to those conferred on Scottish_corporations and municipalities by the Burgh Police (Scotland) Act, 1892, viz. :-(a.) When the local authority in any town or urban

and

district in England and Wales Ireland have provided a public slaughterhouse, power be conferred on them to declare that no other place within the town or borough shall be used for slaughtering, except that a period of three years be allowed to the owners of existing registered private slaughter-houses to apply their premises to other purposes. The term of three years to date, in those places where adequate public slaughterhouses already exist, from the public announcement by the local authority that the use of such public slaughter-house is obligatory, or, in those places where public slaughter-houses have not been erected, from the public announcement by the local authority that tenders for their erection have been accepted. (b.) That local authorities be empowered to require all meat slaughtered elsewhere than in a public slaughter-house, and brought into the district for sale, to be taken to a place or places where such meat may be inspected; and that local authorities be empowered to make a charge to cover the reasonable expenses attendant on such inspection. (c.) That when a public slaughter-house has been established inspectors shall be engaged to inspect all animals immediately after slaughter, and stamp the joints of all carcases passed as sound. 2. It appears desirable that in London the provision of public in substitution for private slaughter-houses should be considered in respect to the needs of London as a whole, and in determining their positions regard must be had for the convenient conveyance of animals by railway from the markets beyond the limits of London, as well as from the Islington market, to the public slaughter-houses which should be provided. At the present time no administrative authority has statutory power authorizing it to provide public slaughter-houses other than for the slaughter of foreign cattle at the port of debarcation. 3. With regard to slaughterhouses in rural districts, the case is not so easy to deal with. But the difficulty is one that must be faced, otherwise there will be a dangerous tendency to send unwholesome animals to be slaughtered and sold in small villages where they will escape inspection. We recommend, therefore, that in Great Britain the inspection of meat in rural districts be administered by county councils. In Ireland the duty of carrying out inspection ought to devolve upon authorities corresponding as nearly as possible to those charged with that duty in England and Scotland. In view of the announced intention of the Government to introduce a new scheme of local government into Ireland we refrain from specifying the exact machinery which should be employed. 4. We recommend further that it shall not be lawful to offer for sale the meat of any animal which has not been killed in a duly licensed slaughter-house. B. Qualifications of Meat Inspectors.-5.

We recommend that in future no person be permitted to act as a meat inspector until he has passed a qualifying examination, before such authority as may be prescribed by the Local Government Board (or Board of Agriculture), on the following subjects:— (a.) The law of meat inspection, and such bye-laws, regulations, &c., as may be in force at the time he presents himself for examination. (b.) The names and situations of the organs of the body. (c.) Signs of health and disease in animals destined for food, both when alive and after slaughter. (d.) The appearance and character of fresh meat, organs, fat, and blood, and the conditions rendering them, or preparations from them, fit or unfit for human food. C. Tuberculosis in Animals Intended for Food.-6. We recommend that the Local Government Board be empowered to issue instructions from time to time for the guidance of meat inspectors, prescribing the degree of tubercular disease which, in the opinion of the Board, should cause a carcase, or part thereof, to be seized.. In view of the greater tendency to generalisation of tuberculosis in the pig, we consider that the presence of tubercular deposit in any degree should involve seizure of the whole carcase and of the organs. In respect of foreign dead meat, seizure shall ensue in every case where the pleura have been stripped.' MILK.-D. Diseases in the Udders of Cows.-7. We recommend that notification of every disease in the udder shall be made compulsory, under penalty, on the owners of all cows, whether in private dairies or those of which the milk is offered for sale. 8. We recommend that for the purpose of excluding from their districts the milk affected with tuberculosis of the udder, or exhibiting clinical symptoms of the disease, local authorities should be given powers somewhat similar to those of sections 24-27 of the Glasgow Police (Amendment) Act, with power to slaughter such cows, subject to compensation under the conditions named in the Report We also recommend that powers shall be given to local authorities to take samples and make analyses from time to time of the milk produced or sold in their districts, and that milk vendors shall be required to supply sufficient information as to the sources from which their milk is derived. At ports where milk and milk products are received from foreign countries, any costs that may be thus incurred in their examination shall be borne by the importers. E. Cowsheds, Byres, &c.-10. We recommend that the Local Government Board be empowered to require local authorities to adopt regulations as to dairies, cowsheds, &c., where that shall be found not to have been done already. 11. That in future no cowshed, byre, or shippon, other than those already registered, shall be permitted or registered in urban districts within 100 feet of any dwelling-house; and that the discontinuance of any one already existing shall be ordered on the certificate, either of the

9.

So.

medical officer of health that it is injurious to the health of human beings residing near it, or of the veterinary inspector that it is not a place wherein cows ought to be kept for the purpose of milk supply, and that it is incapable of being made 12. That the conditions of the attached Cowsheds that shall warrant the registering of a dairy in a populous place, whether technically urban or rural, in the future shall include the following:-(1) An impervious floor; (2) a sufficient water supply for flushing; (3) proper drainage; (4) a depôt for the manure at a sufficient distance from the byres; (5) a minimum cubic contents as regards such districts of from 600 to 800 feet for each adult beast, varying according to the average weight of the animals; (6) a minimum floor space of 50 feet to each adult beast; (7) sufficient light and ventilation. While we have prescribed a minimum cubic contents and floor space without mentioning definite dimensions affecting ventilation and lighting, we are distinctly of opinion that these are by far the most important, and that requirements as to cubic and floor space are mainly of value as tending to facilitate adequate movement of air. Existing cowsheds should be obliged to conform to the prescribed regulations within a period of twelve months from the time of the regulations coming into force. 13. The same conditions as those recommended for populous places should apply to cowsheds in sparsely-populated places, except in so far as cubic contents per cow are concerned; as regards these cubic contents, such space per cow should be provided as would, in view of the surrounding circumstances, secure reasonable ventilation without draught. But the physical circumstances prevailing in different localities being so various, we do not find it practicable to prescribe uniform minimum requirements in this respect. 14. We recommend that where cows housed in one district supply milk to another district, the local authority of the district in which the cows are housed shall be bound, when required, to supply to the local authority of the district in which the milk is sold or consumed full information and veterinary reports regarding the condition of the cows, byres, &c., whence the milk is drawn. Where the local authority of one district are dissatisfied with the reports so obtained, they may apply to the Local Government Board, with a view to an independent inspection and report being made.

F.

Elimination of Bovine Tuberculosis. 15. We recommend that funds be placed at the disposal of the Board of Agriculture in England and Scotland, and of the Veterinary Department of the Privy Council in Ireland, for the preparation of commercial tuberculin, and that stockowners be encouraged to test their animals by the offer of a gratuitous supply of tuberculin and the gratuitous services of a veterinary surgeon on certain conditions. These conditions

shall be-(a) That the test be applied by a veterinary surgeon; (b) that tuberculin be supplied only to such owners as will undertake to isolate reacting animals from healthy ones; (c) that the stock to be tested shall be kept under satisfactory sanitary conditions, and more especially that sufficient air space, ventilation, and light be provided in the buildings occupied by the animals. 16. We recommend that the Board of Agriculture in England and Scotland and the Veterinary Department of the Privy Council in Ireland undertake the circulation among agricultural societies of instructions for the proper use of the tuberculin test, with explanation of the significance of reaction, and directions for effective isolation of reacting animals." Three of the Commissioners-Sir Herbert Maxwell (Chairman), Mr. Harcourt Clare, and Mr. Cooke-Trench-dissociate themselves from the finding in respect to the claim for compensation by butchers for carcases seized and condemned for tuberculosis. In a separate report they state their reasons, and make the subjoined -recommendations:-"We recommend that the owner of a carcase confiscated and destroyed, wholly or in part, by order of a magistrate on account of tuberculosis shall receive full compensation and repayment of the amount paid by him for the animal, provided-(a) That the magistrate ordering confiscation shall satisfy himself that the animal had a good appearance before slaughter, was well nourished, and exhibited no visible signs of tuberculosis; (b) that no compensation be paid for any animal for which there has been paid less than a minimum price, to be fixed from time to time by the Board of Agriculture, according to the market values current, nor in excess of a maximum price, to be fixed in the same manner; (c) that no sum shall be paid in compensation except on the order of the magistrate ordering the confiscation of the carcase; (d) that all compensation so ordered shall be charged against and paid by the Council of the administrative County, which shall be entitled to repayment of one-half the amount from Imperial funds."

TUNIS.

Convention between Great Britain and France. Signed September 18th, 1897. Ratified October 15th, 1897.-Article I. All treaties between the two Powers are extended to the Regency of Tunis. "The Government of Her Britannic Majesty will abstain from claiming for its Consuls, its subjects, and its establishments in the Regency of Tunis other rights and privileges than those secured for it in France. Moreover, the treatment of the most favoured nation, which is secured on either side by the aforementioned treaties and conventions, and the reciprocal enjoyment of the lowest Customs tariff are guaranteed to the