nor more than one hundred dollars, or be imprisoned in a county jail not less than ten nor more than one hundred days, or both.

SEC. 6. No officer or seaman of a seagoing vessel or ship shall be arrested or imprisoned for debt; and any officer executing a process of arrest for debt upon such officer or seaman shall, upon conviction thereof before any justice of the peace or circuit court, be fined in a sum not less than twenty nor more than one hundred dollars.

SEC. 7. It is hereby made the duty of the mayor and common council of the cities of Portland and Astoria, in this State, severally to appoint or designate a person or officer, whose duty it shall be to see that this act is not violated and that the provisions thereof are enforced; and such person or officer, so appointed or designated, shall have all the authority and powers of a peace officer, and may make arrests for violations of the provisions of this act, and shall perform such other duties as to the enforcement of this act as may be enjoined upon him by the common council of said cities, respectively, and shall receive such compensation for his services as said common council may by ordinance provide.

[Inclosure in No. 7.]

REPORT OF ACTING CONSUL CLIPPERTON ON THE DESERTION OF SEAMEN FROM BRITISH VESSELS AT THE PORT OF PHILADELPHIA.

The desertions of seamen from British vessels at this port should be classed under two heads, viz, those from steamers and those from sailing vessels.

In the steamer class desertions are on the decrease rather than on the increase. This may be accounted for by the fact that wages to seamen and firemen in the United Kingdom, from which the majority of steamers arriving at this port come, only differ in sums varying from 10s. to £1 per month, and from the fact that only half a month's advance is given to the seamen when joining. On the arrival of the steamer in port the man knows that he has money due to him, and prefers to remain by his vessel rather than go into a boarding house, when leaving which, he, however, by former experience, little or nothing is allowed to him by the "crimp" when he reships.

From continental ports, where wages for firemen and seamen are lower, and the advance given amounts to half a month and sometimes more, the men are naturally more inclined to desert, as on their arrival their advance is no more than worked out and they can obtain, as it seems to them, higher wages, viz, £5 per month for the return voyage to the United Kingdom or Continent.

The register of all seamen engaged, deserting, or discharged at this port shows that the wages of men engaged and advance paid in the United Kingdom or continental trade per month by the regular lines of steamers with one exception are $25 per month and one month's advance. The regular lines are the Allan, the Atlantic Transport, North Atlantic Trident, and Standard Oil boats. All other steamers pay $25 per month and $30 advance. The difference of $5 per month is paid by the shipping agent, as a gratuity to the master, out of the advance charged to the seaman and commonly known as "blood money."

In the case of the exception to the regular lines mentioned by me above I would say that when this line first started a representative of the agents at this port called at the consulate and requested me to enlighten him as to the practice in entering and clearing at the consulate and of shipping and discharging seamen.

I explained matters fully to him, and particularly referred to the question of wages and advance, and called his attention to the fact that should it be necessary for his line to ship men they could be engaged for $25 per month and $25 advance.

A short time after one of the steamers of the line had occasion to ship a man in place of a deserter, and a seaman was engaged at $25 per month and $30 advance. Before signing the man on the agreement I turned to the master, in the presence of the same agent who had made the inquiries, and asked if the advance ought not to be $25 instead of $30. I received the reply, from both master and agent, $30, and as I was powerless to act in the matter, the $30 was entered on the agreement as advance.

In another instance a tank steamer on charter to the Standard Oil Company, but not owned by them, sent a request to kindly ship two seamen. As the steamer was consigned to the Standard Oil Company and I knew that the master was pressed for time, I signed the men on the agreement at $25 per month and $25 advance having first read the terms of the agreement at those wages to them. Later in the day the master came to clear, and inquired what wages and advance the men were getting. On being informed, he replied that the advance should have been $30, and wanted the amount corrected. I sent for the men, and finding that they were agreeable to the correction, the amount was entered at $30. The master then informed me that his vessel was only on charter to the Standard Oil Company.

Only in one instance does a shipping agent at this port supply seamen for steamers at $30 and $30 advance, but "blood money" is nevertheless paid in a like manner. Owners would do well to look carefully into such matters and save money for the ship, as in most cases the steamer reaches a port of discharge in, the United Kingdom or Continent under one month, and therefore the gratuity is really paid to the master by the ship.

While I do not say that this perquisite of masters in the shape of "blood money,' paid to them as a gratuity by shipping agents, tends to make them encourage men to desert, still, it is apt to make them careless in the matter.

Desertions from steamers, except those directly out from the United Kingdom or Continent, seldom, if ever, occur.

In all cases the shipping agent charges the vessel $2 for his services for each man shipped.

SAILING VESSELS.

Not many sailing vessels come to Philadelphia, but desertions only occur on those arriving directly from the United Kingdom or Continent.

English and continental port wages are about £2 15s. per month, with one month's advance, and as the average passage lasts from thirty to forty days, when the vessel reaches port there is little or nothing due to the men, any wages earned over the month's advance being eaten up by supplies in the nature of tobacco and "slops" supplied by the master.

When the vessel arrives she is immediately boarded by the boarding-house runner, who represents to the men that by leaving they will get better wages.

The wages for deep-water ships from this port are £3 6s. and $40 advance, "blood money," from $7 to $10 being deducted by the shipping agent in each case from the man's advance, a part of which is returned to the ship or master as a gratuity.

In some cases, when competition is keen among the shipping agents, a return of the whole amount charged to the seaman's advance is made to the ship or master. In a crew of from ten to twenty men the "gratuity" netted amounts to a snug little

sum.

In all cases the shipping agent charges the ship $2 for each man shipped, and in order to obtain the picking out for the master of the crew to be shipped before the consul the agents will even return this amount.

No difficulty is placed in the way of the "crimp" or runner to prevent his going aboard the ship, as it is as advantageous, if not a saving, to the ship, in the way of wages and provisions, to allow the whole crew before the mast to desert, there being usually enough apprentices and petty officers aboard to keep the ship in order during a stay of from three to five weeks in port. Riggers can be easily obtained to move the ship, etc., or to do any necessary work.

By allowing the crew to desert the great annoyance to ships' officers of drunkenness while in port, there being always lots of so-called friends of "Jack" who will give him all the cheap liquor he desires in order to persuade him to desert, if he is inclined to stay, is done away with.

Again, the well-known and expected "gratuity" would appear to encourage

desertion.

When vessel arrives from a long voyage and the agreement does not terminate in the United States north of Cape Hatteras, it is customary to discharge the crew, charging the men from one to two months' wages, and sometimes three months' wages for their discharge.

This abuse the consul is powerless to interfere with, as the board of trade, when informed of this custom, replied that the matter was one of private agreement between the ship and the men.

In other ports in the United States, where a system of "contracting" exists between the shipping agents and owners in the United Kingdom for the supply of seamen, the system of "blood money" is even greater, as high as $20 being deducted from the seaman's advance, the agreement usually terminating "final port of discharge in the United Kingdom, United States, or Continent of Europe," but in most cases the words "United States" are required by the master or his agents to be stricken out by the consul, so that should the vessel return to these waters the ship can demand from one to three months' pay from the men for their discharge. The consul is powerless in these cases, though he knows it to be a gross imposition. The men are willing to pay the amount, as they want their discharge and know that they are helpless.

There is no doubt that when "contracting," shipping agents bring this point to the notice of owners, who usually avail themselves of the "pointer," as they know that another crew can always be obtained at the same rate of wages. At this port the shipping agents are certainly fairer to the men. The Boardinghouse Keepers' Association will not supply men for these long voyages unless it is distinctly written against each man's name that, should the vessel return to the east

coast of the United States, north of Cape Hatteras, the men are to be entitled to their discharge. There is no doubt that this is only fair to the seaman, and the clause to be inserted on the agreement when men are shipped at this port on such voyages has always been encouraged by this consulate.

It is practically impossible for a ship to get a crew here except from members of the association. This association might be a much worse "necessary evil” than it is.

GENERAL REMARKS.

The cost of procuring the arrest of a seaman in the United States under the treaty at present in existence is far too expensive.

The fact is not generally known that the police are not, as in other countries, under one Government, and that the local and United States police are entirely separate bodies and under different heads.

The city or local police have no power to arrest for desertion, and only the Federal (United States Government police) authorities can deal with the case.

The custom at this port is that a warrant must be issued by a United States commissioner, at the request of the consul. The commissioner issues his warrant to a United States marshal for service.

Upon the arrest of the seaman he is taken before the commissioner, who, after one and sometimes two hearings, if the case of desertion is made out against the man and he is not a citizen of the United States, commits the prisoner to the custody of the marshal to await the order of the consul.

The cost of these proceedings for a single arrest is about £3 15s., besides the prisoner's board of 1s. and 3d. per day, the charges becoming less when a greater number of men are arrested.

Since the treaty went into effect, in 1892, only about twelve cases of arrest for desertion have come before this consulate, and in two-thirds of the cases the men had sufficient wages due to defray the expenses, having deserted from their ships while under the influence of liquor. The proceedings were instituted more to protect the seaman than the ship, their whereabouts in houses kept by "crimps" being

known.

In conclusion, I would say that the prospects for checking desertions in the United States are not encouraging. There are no laws to control the boarding-house keepers, "crimps," shipping agents, or their runners from having free access to the crews of ships, going on board and supplying men with liquor, etc., and until this can be stopped little or no good will be effected.

The system of "blood money," over which there is at present no control, will also have to be done away with. C. CLIPPERTON, Acting Consul.

APPENDIX N.

BOARDING OF VESSELS.

The following are extracts from reports received in 1898 from United States shipping commissioners and other officers of the Treasury concerning abuses which have arisen under the practice of boarding vessels in the stream before the vessel has been docked or come to the place of anchorage from which its cargo is to be discharged. When not otherwise specified, the reports are from shipping commissioners:

San Francisco, Cal.-It is a common occurrence at this port for runners for sailor boarding houses to board deep-water vessels in the stream and bring sailors on shore. The masters of British and American vessels encourage these runners. On British vessels, when the seamen leave in the stream, they are entered in the log book as deserters and their wages are forfeited to the ship. It is the custom at this port that when seamen leave an American ship before she is docked to charge them $2.50 for docking. The articles read that the seamen shall stay by the ship until the sails are unbent and she is properly moored to the wharf. When they leave the vessel they are told by the master that they will be fined $2.50. They are willing to pay the fine for the privilege of getting ashore, even if it be but a day before the vessel is docked. The master represents at this office that it has cost the full fine to dock his vessel, but there is no doubt that the vessel makes money out of the transaction. After a long voyage the sailor is eager to get ashore. It requires no persuasion on the part of the runner to get him into his boat, and the master offers no objection. San Francisco, Cal. (surveyor).-The arrivals of vessels from foreign ports number about 1,000 annually (deep-water vessels). I have to state in connection with this that it is absolutely necessary for the boarding officers to board vessels upon their

arrival to intercept smuggling, examine the ship's papers, and seal down the openings and hatchways; to watch aggressive runners for sailors' boarding houses, provision solicitors, and miscellaneous private persons that make one pretext or another as a claim to go on board. The evils that result in this privilege being allowed are numerous. It has been discovered in a number of instances that these so-called runners were advance agents for smugglers or conspirators in attempts to land Chinese, particularly from Honolulu and Victoria, B. C., in violation of the Chinese exclusion act, especially Chinese women (carrying letters or giving verbal information to enable them to deceive in their endeavor to be landed). The incentive to the crews of vessels to smuggle merchandise, inspired by the runners for sailors' boarding houses and others locally known as "bay pirates," is very great. The result of it is they inveigle the sailors to smuggle, to wit, opium, liquors, silks, cigars, cigar wrappers, cloth for clothing, silk handkerchiefs, elaborate Chinese and Japanese silk embroidery, diamonds, laces and made-up clothing, and tea.

New York.-It is the general custom, almost invariably with the master's sanction, for the runners employed by the proprietors of sailors' boarding houses to board incoming vessels at quarantine station, after the inspection of the vessel by the quarantine officials, and solicit the patronage of the sailors for the houses represented by the runners. In the case of vessels going above the bridge, where it is necessary to strike the topgallant masts, also of vessels laden with sugar, that usually lay at anchor two or three days waiting for orders, more or less of the seamen are taken ashore by the aforesaid runners. This, however, is usually, if not always, done with the consent of the master, and an amount not exceeding $2.50 is deducted from the wages of the seaman so absenting himself. This applies particularly to American and British vessels, as the American vessels are paid off here, and the seamen of British vessels, who have signed for a longer voyage, are usually permitted, if they so desire, to leave their vessel at this port by relinquishing one month's pay. The British consul sanctions this arrangement in all cases. As to the evils involved in runners boarding the vessels before docking, I can not determine that it makes much difference which set of runners for sailors' boarding houses first secure the ear of the seamen. It is largely a matter of business. The more enterprising men send their runners down to quarantine; the others have their runners at some more convenient point. In the end the seamen find their way to the boarding houses, which are, I am told, conducted more fairly and much better than formerly. I have no doubt that in some cases seamen on British vessels, who have little or nothing due them on their arrival at this port, are persuaded by the runners to desert and are assisted in so doing, the object being to ship them again as speedily as possible and share in the advance money paid to them ostensibly, but in reality to someone else.

Boston.-Referring to your letter of 18th instant relative to boarding vessels, would say that vessels arriving at this port from foreign voyages are always boarded. The evil that is created thereby is chiefly one of drunkenness, the runner in nearly all cases supplying the sailor with liquor. The men become drunk, so that they can not perform their duty, and often leave the vessel in the stream; and when they are paid off the master presents a charge against them for docking ship, and in many cases the seaman, after being treated by the runner, goes to the master and offers to pay from $1.50 to $2 out of his wages for docking if they can then go ashore in the runner's boat.

Baltimore (collector).-This practice has been looked upon at this port as an evil that should be mitigated, but in the absence of any statute law prohibiting the practice, except in the case of passenger vessels (sec. 9, act of August 2, 1882), we have been powerless in the premises. Runners for boarding houses are not by any means the only offenders, as nearly every business house that deals in ship supplies of any kind now have their runners, and the competition has been so sharp that vessels are boarded as far down the Patapsco River as Annapolis Road (20 miles). Aside from the possible interference of the proper working of the ship by these intruders, the danger to public health, in the case of an infected ship, is very alarming.

Philadelphia.-The sailors' boarding-house runners and the clothing-house runners have a small boat, and board all incoming vessels in the foreign trade at or about Reedy Island, Government quarantine station, 38 miles distant from Philadelphia. After the quarantine officer has performed his duties in all such cases the consent of the captain is obtained, and I have never had any complaints from either the captains or seamen, though I believe the sailor is charged $2 for the runner's expenses, and the clothing runner is allowed from 25 to 40 per cent for all clothing sold to each sailor upon his arrival ashore.

Mobile.-The practice of boarding vessels before their arrival at their dock or anchorage is pretty well broken in this port. While it lasted it was productive of evil results. The runners were composed of irresponsible persons, who demoralized crews, defied the laws, and interfered with the proper and effective discharge of duty on the part of the ship's officers as well as the customs officials. No such per

son should be permitted to board any vessel with dutiable goods until she is completely unladen.

Mobile (special inspector).—The practice is a most mischievous and annoying, even if not a very dangerous, one, for, besides the opportunities which it offers for the practice of smuggling and the perpetration of petty frauds upon the revenue, it is the cause of hampering and delaying the boarding officers in the prompt and efficient examination of the vessel. When I was assigned for duty at this port I found the practice of permitting runners for ship chandleries, butchers, and sailor boarding houses to board incoming vessels before their arrival at their anchorage existed to such an extent that almost every one of such establishments possessed a small sailboat, which was used to transport the runner down the bay, where the vessel could be boarded some hours in advance of its arrival at the city and its inspection by the customs officer. The competition for the custom or trade of these vessels became so sharp that each incoming vessel had numbers of these persons on board at the time of her arrival, and their demands upon the time and attention of the master were so urgent as, in many cases, to prevent his giving to the boarding officer the consideration which his position and duties demanded. I endeavored to remedy this by having the parties cautioned as to the law and notified to refrain from going on board until the customs officer had completed his inspection. But, finding this warning ignored, I caused the first offender thereafter to be arrested, and the collector placed the matter in the hands of the United States district attorney for prosecution. An indictment was returned against the party by the succeeding grand jury, which indictment was quashed by the court for some defect in it, but the purpose for which these proceedings had been instituted was accomplished in the breaking up of the practice, and since that time very little trouble or annoyance has been suffered here from that cause.

Newport News, Va.-For some time past we have been without troubles of this kind. Our officers have strict orders to report any violations of regulations in illegal boarding of vessels in the stream or elsewhere. The principal cause of former trouble was the active and unscrupulous competition for the vessel trade between rival ship storekeepers. This has practically ceased. The boarding-house runners confine their operations to the ship after arrival at dock. Even this has been broken up in a measure by the inclosure of the docks at this place with a high picket fence and a good force of railroad policemen on guard day and night. The illegal boarding of vessels here had more of a sanitary aspect than otherwise-the danger of infection should there be any disease of that character on board. I have not heard of any sailors' boarding-house runners boarding vessels previous to their being docked.

Galveston.-Vessels in quarantine are isolated and can not be boarded by anyone, and no vessels are boarded until after due permission given by the officers in charge, and after all official business, such as the inspection of immigrants, has been duly executed. In my opinion the statute is a wise one, and should be strictly enforced for the protection of the public as well as for the protection of immigrants and sailors.

Rockport, Me.-We have never been bothered at this port with runners boarding the vessels, but, having seen the effect of it in other places, think it a very bad practice and should be stopped.

APPENDIX O.

TREATIES AND CONVENTIONS.

Following are articles in various treaties now in force between the United States and foreign nations providing for reciprocity in the treatment of American and foreign vessels and their cargoes in American ports and in foreign ports, together with the date and place of ratification and the signers representing the respective Governments. These articles of the various treaties are included in this report as their abrogation or modification will be involved in the event of the passage of a bill imposing discriminating duties on the cargoes of foreign vessels entering the ports of the United States or a bill granting bounties to exports in American vessels.

ARGENTINE CONFEDERATION.

[Treaty concluded July 27, 1853; ratifications exchanged at Parana December 20, 1854; proclaimed April 9, 1855.] ARTICLE V.

No higher or other duties or charges, on account of tonnage, light or harbor dues, pilotage, salvage in case of average or shipwreck, or any other local charges, shall be imposed in the ports of the two contracting parties on the vessels of the other, than those payable in the same ports on its own vessels.