Papers Relating to the Foreign Relations of the United States, Transmitted to Congress, With the Annual Message of the President, December 4, 1883

No. 393.
Mr. Morgan to Mr. Frelinghuysen.

[Extract.]

Legation of the United States,
Mexico, April 25, 1883. (Received May 10.)

No. 606.]

Sir: I think I shall better comply with the wishes expressed in your dispatch No. 369,515th February, 1883, by replying, as far as I am able to do so. to the questions propounded by Mr. W. B. Gibbs in his letter to the Hon. G. G. Dibrell, of the House of Representatives, which accompanied it.

(1) Reliable information as to the desire of Mexico to have immigrants?

Laws intended to attract immigration to the country were passed at least as far back as 1845.

The law of the 27th November of that year, which was published on the 27th of November, 1846, provided for the appointment of a council of immigration, to act under the supervision of the department for foreign affairs.

The law of the 4th December, 1846, attempted to regulate the duties of the immigration commissioners and to determine the rights and obligations of the immigrants. I believe that the effort of this legislation was not successful. Within a comparatively recent date the attention of the Government has been again directed to the question, and, by means of contracts with private individuals and corporations, efforts are being made to supply what is considered the greatest need of the country. I have not been able to procure a copy of all the contracts entered into upon this subject. Still I have seen a sufficient number of them to enable me to place before you a general view of the question and how it is being handled, and which will give to parties interested, or who propose to interest themselves in the matter, some basis upon which to form their operations.

(1) On the 31st August, 1881, a contract was entered into with Edward Clay Wise, a citizen of the United States, and his associates, for the colonization of lands in the State of Chiapas. The lands were to be such as might be acquired by the company, which he should form and represent by contract, and terrenos baldios. (Of these lands I shall speak further on.) The nationality of the colonists is not prescribed in this contract. At least 300 families and 200 colonists are to be established within six years from the date thereof.

(2) One was entered into with the “Meridional Mexican Railway Company” on the 16th of January 1881, for the colonization of lands situated along the line of that road running through the States of Vera Cruz, Pueblo, Oaxaca, and Chiapas. The nationality of the colonists is not alluded to in this contract.

(3) On the 21st of January, 1881, one was entered into with Robert B. Symon, a citizen of the United States, and his associates for the colonization of terrenos baldios in the frontier State of Sonora. The colonists are to be Europeans of the Latin race and native-born Mexicans.

(4) On the 17th day of January, 1882, one was entered into with the “Mexican Colonization and Industrial Company” for colonizing the islands of Tiburon and Angel de la Guarda, in the Gulf of Cortez, Lower California, to which was afterwards added the island of San Es-teban, with one hundred families, of whom two-thirds are to be Europeans and one-third Mexicans.

(5) One was entered into on the 21st of February, 1882, with various parties (names not published) for the colonization of lands in the State of Morelos, district of Cuernavaea. Nationality of colonists not mentioned.

(6) One was entered into on the 6th of June, 1882, with Rafael Portaz Martinez for colonizing lands in the States of Yucatan and Campeaehy. The colonists are to be taken from the Canary Islands.

(7) On the 4th of December, 1882, one was entered into with General Jesus Alonzo Flores and Casticlo Zenteno for the cultivation of ter-renos baldios in the State of Tamaulipas. Nationality of the colonists not specified.

(8) On the 18th of December, 1882, one was entered into with Mr. Daniel Levy for the colonization of lands in the State of Vera Cruz, canton of Zangolia, with Europeans, Canary Islanders, and Egyptians.

(9) On the 6th of January, 1883, one was entered into with Daniel Levy, by which he was authorized to form a general colonization company with a capital of $4,000,000. By this contract it is agreed that five thousand families, to comprise twenty thousand persons, are to be colonized. Of those 80 per cent, are to be Europeans; the balance Mexicans.

(10) On the 10th of January, 1883, one was entered into with Mr. Isidore Epstein for introducing into the country German agriculturists. To this end he has agreed to go to Germany and Switzerland, there to lecture and publish pamphlets upon the advantages which Mexico offers to agriculturists.

(11) On the 17th of January, 1883, one was entered into with Salvador Malo to establish a colonization agency embracing Europe and the American continent. The agency is to bring, within the term of ten years, from twenty to fifty thousand European and American colonists, 75 per cent, of whom are to be Europeans.

(12) On the 26th of January, 1883, a contract was entered into with Luis Yerdier, by which he was to go to Europe, with the view of inducing Irish, Germans, and French to migrate to Mexico.

(13) On the 3d of April, 1883, one was entered into with Ramon Fernandez, with the view of colonizing lands in the State of San Luis Potosi. The nationality of the colonists is not stipulated.

Other contracts have been made, one notably with a Mr. Fulcheri. I regret that I cannot give you any of the details of these, as they are the most important ones, seeing that they have been carried into effect.

One was also made with Mr. David Ferguson for the colonization of Lower California, bu it has been declared forfeited.

I also understand that one was made with Mr. Samuel Brannon, an American, for the colonization of lands on the northern frontier.

* * * * * * *

As to the obligations assumed by the Government towards the contractors, the following will give a general view thereof.

In the “Wise” contract the Government agrees to pay $60 for each: immigrant above the age of fourteen years, and $30 for those between three and fourteen. For each head of a family (husband and wife, with or without children) a bonus of $30. Payment to be made one month after the arrival of the immigrants in the State of Chiapas.

The contract with the “Meridional Railway Company” provides for the payment of $35 for each immigrant landed, of upwards of seven years, and a bonus of $30 for each family when established. Payment to be made one month after the arrival of the colonists in the States of Yera Cruz, Pueblo, Oaxaca, and Chiapas, or at the place where they are to be definitely located.

The “Symon” contract does not stipulate for the payment of any price for immigrants. A grant is made of 50,000 hectares of terrenos baldios, in the immediate neighborhood of the Arizona Mountains.

The contract with Guillemo Andrade gives $35 for each immigrant above the age of seven years, to be paid one month after their arrival.

The “Martinez” contract allows $35 for each immigrant above the age of twelve years, and $15 each for those between three and twelve. To each head of a family shall be advanced, for the period of one year, $6 per month for each person of over twelve years of age, and $3 for those between three and twelve. The property assigned by the company to the immigrant to be mortgaged by him in favor of the Government to secure the advances made as above; these advances to be paid in two equal installments, to commence two years after the immigrant has been established.

By the “Flores-Zenteno” contract the Government is compromised to pay $60 for each immigrant above the age of fourteen years, and $30 each for those between three and fourteen years. In addition, a premium of $30 is to be given to each family when established. These pay ments are to be made one month after the immigrants have been settled in Tamaulipas.

By the Levy “contract the Government is to pay to the company $315,000 annually for thirty years.

Under the “Malo” contract the Government agrees to pay the company $700 for each head of a European family of agriculturists; $350 for each member of his family of seven years of age and upwards; $700 for each agriculturist; $500 for the head of each family of Mexican agriculturists; $250 for every member of a Mexican family of seven years of age and upwards; $100 for each foreign laborer or mechanic; $50 for each member of a family of the above of seven years of age and upwards. For each immigrant who comes out as an agriculturist, but who is not one, his passage and transportation; for each member of a family of the above, of seven years of age and upwards, his passage and transportation. The same with reference to those who come out and cannot agree with the company after their arrival. These payments are to be made by the Government within thirty years.

By the “Verdier” contract the Government agrees to pay $5,000 for his expenses; $30 for each immigrant of fourteen years of age and upwards, and $15 to those between six and fourteen.

By the “Fernandez “contract the Government is to pay for each immigrant above fourteen years of age $60, and $30 for those between three and fourteen, besides a bonus of $30 for each family located; the payment to be made one month after the colonists shall have arrived. Assume that he will bring in 1,000—say that one-half of them will be under fourteen years of age—for one 500 he will receive $30,600; for the second 500, $15,000. Say a family averages four persons; for each family he is entitled to $30 $ 250 families, $7,500 total to be received in money, $52,500.

The “Meridional” contract calls for two thousand families. Assume a family to consist of four persons, the number of immigrants will be 8,000. I may assume as a basis for the calculation that they will all be above the age of seven years, inasmuch as the families will average largely over four persons; for each immigrant, therefore, the Government will pay $35; 8,000 immigrants, at $35, $280,000; besides $30 to each head of family, of which there will be 2,000, $60,000; in all, on the “Meridional” contract, $340,000.

There is no money stipulation in the “Symon” contract.

In the “Andrade” contract the number of families is not limited. The number, however, cannot be less than one hundred—say 200 families of 400 immigrants. Four hundred immigrants at $35 each, $14,000.

The “Martinez” contr ct calls for 1,000 families, or 4,000 immigrants at $35 each, $140,000.

In the “Flores-Zenteno” contract the number of immigrants is not limited. Assume that the number will be 1,000 above the age of fourteen years; for these he is to receive $60 each; total, $60,000.

The “Daniel Levy” contract provides for the introduction of 5,000 families, to amount to 20,000 persons. The money obligation on the part of the Government to Mr. Levy is to pay him annually $315,000 during thirty years, or=$9,450,000.

The “Malo” contract provides for the introduction of from 20,000 to 50,000 immigrants. For each bead of a family of agriculturists he is to receive $700, and $350 for each member of his family above the age of seven years; for every farmer, $700. There are other gradations which it is not necessary for me to recapitulate here. Assume that Mr. Malo will bring into the country under this contract 20,000 adults; the amount which he will receive will be $14,000,000.

The “Verdier” contract provides for the introduction of 100 families, for which he is to receive about $3,000.

There is no limit fixed to the number of immigrants to be introduced under the “Ramon Fernandez” contract. Suppose that he brings 1,000 adults into the country; as he is entitled to $70 for each of these, he will receive $70,000.

The foregoing figures are, of course, in a great measure only approximative, but I believe that I have rather under than overstated them. They aggregate, as will be seen, about $24,000,000 of obligations, which have been assumed by the Mexican Government; the two largest and altogether the most important of which are to be paid within thirty years. They make an average of over $800,000 per annum for that period.

Other obligations have been assumed by the Government in favor of the contractors, but they relate, principally, to assuring them the possession of terrenos baldios, which, in my opinion, are of little importance for reasons which, when I come to the third of Mr. Gibbs’s questions, I shall develop.

In the “Levy” contract, however, this obligation is a serious one, inasmuch as the Government has agreed to sell to the company as much as 800,000 hectares of terrenos baldios or other national property which has not been destined to the public service.

Obligations have also been imposed upon the contractors in favor of the immigrants whom they may introduce into the country, these obligations differ in the several contracts and are matters of agreement. I give you a synopsis of those contained in one of them, which will, I suppose, suffice.

In the “Levy” contract the company is obliged to erect for the use of each colony which it may establish, and without any compensation therefor, one forge, one carpenter’s shop, a telegraph or telephone office with the funiture necessary thereto; it is obliged to furnish, and without any compensation, four lots of from four to five hundred square meters each, centrally located, for the erection of warehouses (oficinas). It is obliged to establish, and to support for two years, two primary schools, one for boys and the other for girls, under the direction of Mexican professors.

It is obliged to give to each colonist of upwards of seven years of age 4 hectares of land in the table-land (tierra fria), or 3 hectares in the lowlands (tierra caliente), and in no case shall a family of agriculturists receive less than 12 hectares in the table-land or 9 in the low-lands. It is obliged to furnish each head of a family on arrival at the colony a good house, sufficient for the necessities of the family which is to inhabit it, erected in a lot of 400 square meters, each house to consist of three apartments, one of which shall be at least 20imeters square, and the others 16 meters square. Besides, the company is obliged to give to each head of a family of agriculturists one pair of oxen or mules, one cow, one mare or she mule, one hog, one she lamb, two pairs of fowls or doves, two plows, one of iron and the other of wood, with their accessories, one ax, one large knife (machete), one wooden mallet, one paving chisel, and sufficient seed for the two first plantings, suitable to the land to be cultivated, to the value of $20 each.

The obligations of the colonists to the company are: They are to pay for the lands which shall have been allotted to them, and for the animals, utensils, and per diem which they shall have received, each head of a family $700; each member of a foreign family above the age of seven years, $350. Thus a family of four persons could pay for a house and lot and the animals and implements above named, together with about $300 advanced for their support and about 35 acres of land, $1,050. They have ten years to pay this in, dating from the second year of their possession.

The obligations of the company to the Government are: The colonies are to be established within five years from the date of the contract. They are to bring no colonists into the country who have been sentenced to punishment for the commission of a crime; they are to be agriculturists and artisans. The company are to deposit in the Monte de Piedad, six months after the signing of the contract, $50,000’to secure the perform a nee thereof. These $50,000, as soon as the first colony shall have been established, are ceded to the department of fomento for the development of agriculture.

Upon the retirement of the $50,000 mentioned, the Government will reserve $100,000 out of the moneys to be paid to the company to secure the performance of the contract. They are to pay to the Government for each head of a family of foreigners $350; for each member of a family of foreigners above the age of seven years, $175; for each head of a Mexican family, $250; for each member of a Mexican family above the age of seven years, $125; total, $900.

With these suggestions and the contract in view, any person interested in the question may form an approximate estimation of the advantages and disadvantages of the contract.

The status of the colonists is that they are Mexicans in the sense that whatever difficulties they may find themselves in are to be decided by the tribunals of the Republic, and they are without any rights as foreigners.

(2) How long does it require to become a naturalized citizen of Mexico?

No time is specified by the law.

Naturalization in Mexico takes place in several ways:

(1) By the actof the President, upon the application of the party, made before the judge of the place of his residence, from which it must appear that the applicant is a person of good character and has an honest mode of livelihood.

(2) When the son of a foreigner born in Mexico, and who has been emancipated during his minority, allows a year to pass after having attained the age of majority without having declared his intention to retain the nationality of his father.

(3) When in the act of emancipation of the son of a foreigner it is not declared that he retains the nationality of his father.

(4) If he accepts a public employment which is reserved to Mexicans.

(5) Marrying a Mexican woman, coupled with the declaration of intention to establish himself in Mexico, with the qualities of a Mexican, which declaration must be made within one month from the celebration of the marriage, if it took place within the Republic, and within one year thereafter if it was celebrated outside of it.

(6) Coming into the country as a colonist, under the protection of the laws which specially regulate colonization.

(7) When a foreigner purchases real estate in Mexico without reserving, at the time of purchase, his nationality.

(8) When a son is born to him in Mexico of a Mexican woman, unless he reserves his nationality.

Naturalization confers upon the party naturalized all the rights and imposes upon him all the obligations which belong to and devolve upon Mexicans, except those which are especially reserved. For instance, naturalization does not entitle a person of foreign origin to become President of the Republic, a magistrate, attorney-general, governor (in many of the States), public writer (notary public), &c. Neither can they enter upon public lands in the States or Territories adjoining the country of their origin or in which they were naturalized.

(3) Are any inducements in the way of homesteads or land grants offered by the Government to actual settlers who become citizens; and, if so, what?

I believe the Mexican Government has no ascertained national domain; no authorized survey under national auspices has ever been made. I understand that an effort is now being made in that direction oil the Pacific coast, in the neighborhood of Acapulco, as well as on the northern frontier, but without any published result so far. There is no national land office, and so the Government does not know what, if any, lands it possesses.

There is, however, supposed to be a great quantity of land known as terrenos baldios. The literal translation of this term is, I believe, “uncultivated lands.” In law it signifies lands which have no known owners. Article XXIV of the constitution of 1847 recognized the existence of such lands and authorized Congress to assume control over them, and establish rules governing their occupation, and the price at which they might be sold. Congress exercised this right by conferring upon the President of the Republic for the time being the power to regulate the matter. This, successive Presidents have done—the first time by President Juarez, then by President Diaz, and last by President Gonzalez. The price at which these lands may be acquired is fixed by the President every two years, and it is a notable fact that the prices fixed by President Gonzalez are less than those fixed by either of his predecessors, from which it may, I think, be assumed that the attempt of the Government to get them occupied has not been successful. One great difficulty in the way is that the party who wishes to occupy these lands must first find them. When he thinks he has found them he denounces them to the judge within whose territorial jurisdiction they are. The judge then issues a proclamation in the nature of a monition, calling upon all persons claiming title to them to appear and defend their rights within a certain time. The time elapsed, and no one appearing to contest, the party denouncing them is ordered to be put in possession. But, as you are aware, the lands in this country have been largely granted, some of the grants extending, as I may say, from sunrise to sunset, arid the difficulty is in finding good lands which have no owner. In all of the contracts to which I have directed your attention the Government has conceded rights to these terrenos baldios, and to other public lands, but the fact is, as I have before stated, the Government has no lands which it can dispose of; the best evidence of which is, that it was obliged to purchase those upon which the immigrants under the Fulcheri contract were located. And it is well to observe in this connection that whereas Americans may obtain permission from the Government to acquire lands within twenty leagues of the northern frontier, they cannot do so under the law in respect of the terrenos baldios.

I do not go into any further details upon this point, because I think that no man in his senses (no American, at least) who wishes to establish a colony in Mexico would go in search of these lands. He would, naturally, first become the undisputed owner of a property which he desired to colonize before he entered upon the speculation.

(4) Are immigrants from the United States received without prejudice, or are they regarded with suspicion by the Government or by the people?

I cannot answer this question authoritatively for the reason that there is nothing that I can call an American immigration into the country. There is a large investment of American capital here in railroads and in mines; but the number of our citizens who come here is small. Those who do, come in search of employment on the railroads, or in the mines, or as clerks; and if I may judge by the number of those who apply to this legation and to the American Benevolent Association for assistance to enable them to return home, I should say that coming to Mexico had not bettered their fortunes. Doubtless this is due, in great measure at least, to a want of knowledge on their part of the language of the country to a difference in the habits of the people here from those they have been reared amongst; to a difference in the methods of business; and to the fact that men fail here as they fail elsewhere.

Upon principle, I see no reason why the Government or people should feel suspicious of or be unfriendly to Americans who come to Mexico with the sole purpose of bettering their fortunes, at the same time that they are assisting to develop the resources of the country, thereby adding to its wealth and increasing its population. But this can only be ascertained, in so far as the Government is concerned, by actual experiment. The experiment would be primarily tested by some citizen of the United States proposing to make a contract similar in terms with one of those I have referred to. Its solution could only be obtained after the contract with the Government had been granted, and after Americans had been colonized thereunder.

I do not very well see how the Mexican Government could object to enter into such a contract with an American, in view of the contracts which it has made for obtaining a large immigration from other countries, for Mexico would, I should suppose, be slow to shut her doors in the face of Americans after having opened them so wide, and at such cost to herself, to other nationalities. Even should the application from any cause be refused (and I have no reason for saying that it would be), immigration of peaceful Americans into the country could not be legally denied. The refusal on the part of the Mexican Government to make a contract for American immigrants would only affect any subsidy which might be asked to assist in the colonization, for the laws of the country not only authorize but invite immigration, without respect to the nationality of the immigrants. By the laws as they now exist foreigners are permitted to purchase lands anywhere within the limits of the Republic, except, in so far as Americans are concerned, they be situated twenty leagues from the boundary thereof.

I do not see, therefore, what could prevent a citizen of the United States from purchasing a tract of land in the country within the limits prescribed by law and colonizing it with Americans, if he sees fit and has the means to do so. Nor do I doubt that in such a case if the settlers were attempted to be interfered with unlawfully the Mexican Government would attempt, at least, to protect them in their rights. It will not, however, have escaped your observation as regards the acts of the Government that, with two or three exceptions, the contracts I have referred you to stipulate that the colonists from abroad are to come from countries other than the United States; and as regards the views of the people upon the subject, it would not be at all surprising if they should prefer, for a time at least, to have immigrants come among them who are more akin to them in race than Americans are, and who, as a general rule, are of the same religious faith as themselves.

It is quite impossible for me to state what steps have been taken by the parties in interest to carry out the greater number of the contracts to which I have referred you; still less can I venture an opinion as to what they will result in; neither can I express any opinion as to whether the Government is, or will be, in a condition to comply with the obligations it has assumed towards the contractors in case they should in good faith comply with what they have undertaken to do. This is a matter which, I suppose, the contractors have satisfied themselves about. Neither can I say what will be the result of the immigration to the immigrants. This (I think you will agree with me) is the most important question involved in the whole subject. If they should arrive here and find that the Government could not comply with its engagements to the contractors, or the contractors were unwilling to comply with their engagements to them, they would be in a strange country, without means and without friends.

The nearest approach to a practical solution of the present attempt on the part of the Government and contractors to colonize portions of the country with foreigners is to be found in the Fulcheri contracts, to which I have referred you. These immigrants have been landed in the country; but with what success remains to be seen. I have heard, and from what 1 consider the best authority, that one colony was entirely broken up by death and desertion, the mortality among them having been very great.

As I have had occasion to state before, when they arrived in the country the Government was obliged to—or at any rate it did—purchase lands upon which to locate them. One colony was established in the low country. Some were sent near San Luis Potosi; others were colonized near Puebla. Some are established near this city. Some statements are to the effect that they are now contented and prosperous. Others, on the other hand, affirm that they are in a miserable condition. From the fact that I have seen the Italian minister’s premises crowded with them, some seeking employment and others asking to be sent home, I should think that there had been a great deal of dissatisfaction among them.* * * In considering the subject, however, it must not be forgotten that the present experiment has not been fairly tried; that the parties who originated it were without experience therein; that the immigrants themselves are far from being of the best class, and but little attention was paid in their selection with reference to the employment to which they were to be put on their arrival in the country; that they may have come with hopes held out to them which they could not have reasonably expected would be realized; that they are in a foreign land, a land different in almost every respect from the one whence they came, and that everything is new and strange to them. Such a condition of things would naturally engender disappointment and discouragement.

Is not this the usual experience of persons who immigrate in large bodies from their own country, lured to another by the hope of bettering their fortunes, and who listen perhaps with a too willing ear to the stories of apparently well-to-do speculators who have no interest in them beyond the sums which they are to receive for taking them to the country where they have contracted to take them, and whose interest in them ceases when they have received the price at which they contracted to deliver them?

It may not be out of place for me to remind you that several attempts have been made to effect American colonization in Mexico. If I remember aright one such was made some years ago in Lower California. The colonists had subsequently to be assisted back to the United States.

After the war of secession a number of prominent citizens of the South came here. They settled near Cordoba. Those of them who did not die returned home.

(5) At what price can large grants of land be obtained suitable for colonization in the province of Sinaloa, Durango, or Chihuahua?

There is little reliance to be placed upon theoretical answers to such questions, arid I cannot answer them from my own observations, as I have never been in either of the States named, and, practically, I am far away from them—much farther than a person residing in New York is—nor do I believe that any one could give such an answer to them as would justify action thereon. I have been told that lands in that region can be purchased in large quantities at the rate of $1,000 for 1,000 square acres. But I do not pretend to say that my information is correct. I would not act upon it myself.

Sinaloa is said to be traversed by a number of rivers and innumerable brooks. There are some good streams in Durango, and Chihuahua is considered one of the best-watered States in the federation. These States are said to be fertile and rich in minerals. It must be borne in mind, however, that title to a tract of land does not confer absolute title to what is under the surface thereof. Any person may denounce and become the owner of any mine, no matter upon whose property it may be. Neither must it be lost sight of that while a title to lands may be easily procured, it is not always easy to procure possession thereof, for the purchaser might find them peopled with “squatters,” whom it would be difficult for him to dispossess. I understand that such difficulties have presented themselves.

Under any circumstances, I should consider it the height of imprudence in any person to embark in any enterprise of colonization in this or any other country until he had visited it and seen it for himself.

(6) Of the high plains and elevated plateau, what part is best watered and most fertile, and what diseases are most prevalent?

This question, as you will observe, extends from Guatemala on the south to the Bio Bravo on the north, and is one which can only be answered by one who has traversed the country, and this I have never been able to do, as my official duties have kept me almost constantly at my post of duty. Only once have I been ten days away from the capital, and those ten days I spent at Orizaba, where I went at the advice of my physician.

I have, however, been as far north as Lagos, on the line of the Central Railroad. All the valleys between these two points, and they are many and of considerable extent, appeared to me naturally fertile and susceptible of successful cultivation, and no country which I have ever seen appeared better adapted to the use of improved agricultural implements and labor-saving machines. I have also been to Loluca. The same remarks apply to that section of the country. It all, however, seemed to require to be irrigated. But I must say that I am not an authority upon subjects of agriculture. What diseases prevail I do not know, but I believe it to be exempt from epidemics.

I have not complied with the instructions contained in your dispatch of giving you “a succinct account of American immigration to Mexico.” I fear you will think that I have written you a volume where a few lines would have sufficed. But I have considered that it would not be uninteresting to you to be informed as to what is being done by the Mexican Government in respect of the question of immigration hither, and to make some suggestions which it may be well for our fellow-countrymen who are looking this way to consider before they embark upon such an enterprise.

I am, &c.,

P. H. MORGAN.