Final report of the Joint commission appointed by the President of the United States of America and the President of the republic of Panama under the provisions of articles VI and XV of the treaty ratified February 26, 1904

FINAL REPORT

OF THE

JOINT COMMISSION

APPOINTED BY

THE PRESIDENT OF THE UNITED STATES

OF AMERICA

AND

THE PRESIDENT OF THE REPUBLIC OF

PANAMA

under the provisions of Articles VI and XV of the
treaty ratified February 26, 1904.

NTl PANAM A CANAL PRESS
MOUNr HOPE, C. Z.
1920.

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NATIONAL PALACE, PANAMA, R. P.,
March 10, 1920.

The Honorable,
The Secretary of State
of the United States of A merica,
Washington, D. C.

The Honorable,
The Secretary of Foreign Relations
of the Republic of Panama,
Panama, R. P.

SIRS: The Joint Commission established under the
treaty between the United States of America and the
Republic of Panama, ratified February 26, 1904, having
completed the cases pending before it, has the honor to
submit the following report:
The provisions of the treaty under which the Com-
mission was organized read as follows:
"Article VI. The grants herein contained shall in no manner
invalidate the titles or rights of private land holders or owners
of private property in the said zone or in or to any of* the lands
or waters granted to the United States by the provisions of any
Article of this treaty, nor shall they interfere with the rights of
way over the public roads passing through the said zone or over
any of the said lands or waters unless said rights of way or private
rights shall conflict with rights herein granted to the United States
in which case the rights of the United States shall be superior.
All damages caused to the owners of private lands or private
property of any kind by reason of the grants contained in this
treaty or by reason of the operations of the United States, its
agents or employees or by reason of the construction, maintenance,
operation, sanitation and protection of the said Canal or of the
works of sanitation and protection herein provided for, shall be
appraised and settled by a joint commission appointed by the
Governments of the United States and the Republic of Panama,

3

whose decisions as to such damages shall be final and whose awards
as to such damages shall be paid solely by the United States.
No part of the work on said Canal cr the Panama Railroad or on
any auxiliary works relating thereto and authorized by the terms
of this treaty shall be prevented, delayed, or impeded by or
pending such proceedings to ascertain such damages. The ap-
praisal of said private lands and private property and the assess-
ment of damages to them shall be based upon their value before
the date of this convention."
"Article XV'. The joint commission referred to in Article VI
.hall be established as follows:
"The President of the [Tnittd States shall nominate two per-
sons and the President of the Republic of Panama shall nominate
two persons and they shall proceed to a decision; but in case of
disagreement of the Commission (by reason of their being equally
divided in conclusion) an umpire shall be appointed by the two
Governments who shall render the decision. In the event of the
death, absencee, or incapacity of a Commissioner or Umpire, or
of his omitting, declining or ceasing to act, his place shall be filled
by the appointment of another person in the manner above indi-
cait.d. All decisions by a majority of the Commission or by the
lUmpire -shill be final."
Since 1912 the scope of the work of the Commission
has been largely determined by an Act of Congress of
the United States, approved August 24, 1912, known
as the Panama Canal Act, which so far as it relates to
matters under consideration provides as follows:
"The President is authorized to declare by Executive Order that
all land and land under water within the limits of the Canal Zone
is necessary for the construction, maintenance, operation, sani-
tation, o0 protection of the Panama Canal, and to extinguish,
by agreement when advisable, all claims and titles of adverse
claimants and occupants. Upon failure to secure by agreement
title to any such parcel of lantl or land under water the adverse
claim or occupancy shall be disposed of and title thereto secured
in the United States and compensation therefore fixed and paid
in the manner provided in the aforesaid treaty with the Republic
of Panama, or such modification of such treaty as may hereafter
he made."
In accordance with the authority contained in the
above-quoted provision the President of the United
States issued an Executive Order under date of Decem-
ber 5, 1912, declaring "That all land and land under
water within the limits of the Canal Zone are necessary
for the construction, maint nance, operation, protection
and sanitation of the Panama Canal." The same order

5

directed the Chairman of the Isthmian Canal Commis-
sion "to take possession on behalf of the United States.
of all such land and land under water."
The Congress of the United States has also passed two,
other Acts which the American members of the Com-
mission have considered affected the work (1 the Com-
mission. Section 2 of the Sundry Civil Appropriation
Act, approved March 13, 1915, reads as follows:
"Sec. 2. No part of the money appropriated by this Act shall
be used for payment of salaries or expenses of the Joint Land
Commission, established under article fifteen of the. treaty Ietween
the United States and the Republic of Panama. in adjudicating or
settling any claim originating under any lease or contract for
occupancy, made by th Panama Railroad Company in the Canal
Zone, or for the payment of any award-, made by said commission
on account of any such claims."
Section 2 of the Sundry Civil Appropriation Act,
approved July 1, 1916, reads as follows:
"Sec. 2. That the Joint Land C'omnmi,-ion e-tLbli-hed~ under
article fifteen of the treaty between the I[nited States and th-
Republic of Panama, proclaimed February twenty-sixth, nine-
teen hundred and four, shall not have jurisdiction to adjudicate
or settle any claim originating under any lease or contract for
occupancy heretofore or hereafter made by the Pan.ama Railroad
Company of land or property owned by said Panama Railroad
Company in the Canal Zone, and no part of the moneys appropri-
ated by this or any other Act shall be used to pay such claims."
So many different commissions have been organized
under the treaty that it seems desirable for the benefit
of both Governments to incorporate in this report a
brief historical statement giving the names of thevarious
commissioners and the work accomplished by them.
On January 31, 1905, a Commission consisting of
Dr. Carlos A. Cooke, and the Hon. Fedcrico Boyd of
Panama, and Nles-,rs. Thomas T. Gaff and C. A. L.
Reed of the United States were appointed to fix the
value of four pieces of property taken over by the
United States. By an award dated February 21, 1905.
Domingo Diaz was allowed $41,790 for the property of
Santa Rosa and Juan \asquez. A valuation was also
placed on the three other pieces of property without any
hearing having been given, and later payment appears
to have been made to Mrs. MI. A. E. Delhonde, for her
property of El Hatillo de Echeves, in the amount fixed
in the award, viz: $3,050.

On May 26, 1905, a Commission of the same Pana-
manian members, with Dr. H. R. Carter and Paymaster
Eugene C. Tobey acting for the United States, was
organized to give a hearing in and make final awards for
the three pieces of property appraised in the award of
February 21, 1915. On May 27, 1905, an award was
made in two of the claims, one for $9,000 in favor of
Abundio Caselli and Francisco Alfredo Pellas, for the
property "El Tivoli," and the other for $1,768 in favor
of the Municipality of Panama for "La Hutrta del
Peinetero." The other claim, that of Mrs. Delhonde,
was not considered as settlement had been made.
On April 10, 1907, a Commission of which the Pana-
manian members \wrer the lHon. Ramon Arias F. and
Dr. Samuel Lewis, and the American members Messrs.
B. S. Ambler and Montgomery Blair, with Dr. Gil
Ponce a, a substitute to act in cases in which Commis-
sioner Arias was disqualified, met in the Administra-
tion Building in the City of Panama. On April 11 both
Messrs. Arias and Ponce resigned, and on April 18
the Hon. Constantino Arosemena was appointed as the
other Panamanian member of the Commission. On
May 11, 1907, two awards were made by this Commis-
sion in favor of the Pacific Mail Steamship Company,
one for $20,000 for the improvements on the island
of Naos and the other for S24,000 for a one-half interest
in the same island.
Seven other claims were considered by this Commis-
sion but no agreement was reached as to the amounts
to be paid. Three of these claims were settled in 1908
by the ITmpire, the Hon. Edwin Denby, who was ap-
pointed to consider themrr. Award for $45,000 was
made by the Umpire to Francis Schubt r for the estate
of Juan Diez Caballero at Corozal, for $15,000 to Mharia
Concepcion Sosa for the property of Gavilan and
Gavilancito, and 81,000 to Gabriel Duque for San
Lazaro.
On June 8, 1908, the Commission of which Messrs.
Edwin Ienby and Everett C. Bumpus-were the Ameri-
can members, and Dr. Gil Ponce J., and Dr. Julio
J. Fabrega, the Panamanian members, met in Panama.
On August 8, 1908, by unanimous decision of this

Commission an award was made for 13 pieces of prop-
erty, in the sum of $143,980. A list of the cases for
which awards were made is included herein so that this
report will contain a list of all claims considered by the
Joint Commission up to the present time.

Hectares I
Estate. taken by Claimants. Damages
the United I awarded.
States
Cardenas.............. .. ... 126 Hurtado family, represented by Narciso Garay I $10.00
Penas Blancas en Medo. .... 218 5 Louisa Cerezo and heirs of Aniceto Cerezo ... 4.000
Juan Grande ............ Undivided Luz Espinos ........... ... .. 250

El and La Pihira .. ..
Tabernilla.
Bailomonos

Calle Bruja .
Palo Horqueta and Matias ...
Barro Colorado and Palenquilla..
Palenquilla and Frijol Grande
Barro Colorado and Frijol Grandel
Santa Cniz.... .. ...
Hacienda Andrade .........

I of 42
406
183 5
102

24S
576
162 5
190
72 5
74

Josefina Jtron and Angilica Jiron .
.lean Gris and Ramon M. Valdez ..
Heirs of Francisco Ardilla, heirsof Remigio. Du-
tari Correa. Alfaro Hermanos, heirs of Carlos I
Icaza Arosemena. damages for whole estate.
Unknown . . .... .
Unknown ..
Unknown ..
Unknown .. ... .
Unknown .. ... .
Unknown
Antonio Andrade

20,000
4.500
2,000

2.480
5,760
1,625
1,900
725
740
90,000

On March 1, 1913, the next Commission, consisting
of Doctors Leo. S. Rowe and Roland P. Falkner for the
United States, and the Honorable Federico Boyd and
Dr. Samuel Lewis representing the Republic of Panama,
met in Panama to consider the many cases that had
arisen through the order to depopulate the Canal Zone.
During the latter part of September Doctor Rowe re-
signed and shortly thereafter Doctor Falkner also re-
signed. This Commission submitted an interim report
- under date of September 23, 1913, in which were outlined
some of the principles they had followed in deciding
cases. Published with this report were a number of de-
cisions that were rendered. The report shows that 1,253
cases were disposed of. Six hundred and two cases were
dismissed. 22 cases were certified to the Umpire, while
629 awards for a total of $295,709.18 were made. The
total of the claims disposed of amounted to$2,226,718.53.
The next Commission met in Ancon on Mlay 25,
1914. It consisted of Hon. Levy lR. Kagy and Hon.
David Marks, representing the United States and the
same Panamanian Commissioners who acted with"
Doctors Rowe and Falkner, their services having been
kept continuous. Judge Marks, dying on July 17, 1914,
little was accomplished. One hundred and three claims
for $175,605.60 were disposed of; 98 of them being

dismissed mainly because previous settlements had
been made. Two awards for a total of $9,70 were made
in five claims for $22,101. In September, 1914, the
Commission reorganized with Judge Nicholas Cornet
who was appointed in the place of Judge Marks. In
October, 1914, the Commission again moved its offices
into the National Palace in Panama. This Commission
continued the work of disposing of the claims until
September, 1915, when Dr. Samuel Lewis resigned.
Five hundred and forty-nine claims amounting to
$2,595,169.19 were disposed of; 481 being dismissed
while 68 for $688,905.15 were covered by awards for
$161,090.66.
During the latter half of March and the first part of
April, 1915, the Commission with Dr. Jorge E. Boyd
acting in place of the Hlon. Federico Boyd, dismissed
12 claims for $28,522.60 on evidence that direct settle-
ments had been made. In addition 11 other claims for
$145,759.45 were considered and the sum of $4,549
awarded to claimants in six awards.
On September 23, 1915, Dr. Ricardo J. Alfaro was
appointed to succeed Mr. Lewis and for a time there-
after the Hon. Ramon Arias F. acted temporarily in
place of the Hon Federico Boyd. One hundred and
ninety-seven claims for $210,041.38 were disposed of by
Comniissioners Alfaro, Arias, Cornet, and Kagy. Of
these, 187 for $188,402.18 were dismissed while awards
in 10 claims for $22,439.20 were made in the sum of
$2,350.
Commissioners Boyd, Alfaro, Cornet, and Kagy dis-
posed of 63 claims for $84,377.60 prior to the resigna-
tion of Judge Kagy November 29, 1915. Five awards
for a total of $1,707.50 were made covering 7 claims
for $24,620. Fifty-six claims for $59,757.60 were
dismissed.
With the arrival of the Hon. Clement L. Bouv6 in
April, 1916, who was appointed to succeed Judge Kagy.
the Commission again began to actively dispose of
claims pending before it. Prior to July, 1917, when the
two American Commissioners, Judges Cornet and Bouv6,
severed their connection with the Commission, 1,250
claims for $4.145,593.17 were disposed of. One thousand

one hundred and fifty-two claims for $2,765,531.31
were dismissed; 14 claims were certified to the' empire .
while awards for $181,675.30 covering 98 claims asking
for $1,380,061.86 were made.
On November 27, 1917, the Commission reorganized
with Hon. Federico Boyd and Dr. R. J. Alfaro repre-
senting the Panamanian Government and Hon. Ge,.
A. Connollv and Bu-rt New representing the lnitel
States. On November 12, 1918, Doctor .-lfaro wa.
succeeded by Dr. Julio J. Fabrega, continuing, however,
to act in all cases in which Conimmissioner Falbrega
was interested as an attorney. The Commission with
Doctor Alfaro disposed of 96 claims for $6,100,316.28;
47 claims for $953,548.25 were dismissed, 14 claims for
$2,884,876.26 were certified to the Umpire and awards
for a total of $220,952.80 were made in 25 claims asking
for $2,261.891.77. The Commission with J udge Fabrega
as a member disposed of 53 claims for $1,937,956.04
prior to January 31, 1920. Of these 37 claims for
$458,014.60 were dismissed, 8 claims for 81,431,677.80
were certified to the Umpire and awards for a total of
$12,609.38 were made covering 8 claims asking for
$48,263.64.
In November, 1919, Commissioners Alfaro, Jorge
A. Boyd, Connolly, and New made one award for
$2,100.20 including interest amounting to $620.67
from December, 1912, and the same Commissiio
with Doctor Fabrega in place of Doctor Alfaro dis-
missed one claim for $50,000 and certified one for
$3,600 to the UTmpire.
Judge Connolly resigned at the endI of January, 1920.
Mlr. H. A. A. Smith succeeded him on February 2.
Commissioners Boyd, Fabrega, New, and Smith dis-
missed 4 claims for $239,574 for failure to prosecute,
18 claims asking for 845,841.65 because settlement had
been made, and agreed to leave on the docket without
consideration for the reasons hereinafter stated, 16
claims for $121,779 known as Panama Railroad lease
cases. The disposition of one other claim (the Playa
de Flor claim for $357,040) is explained hereinafter in
detail.

Commissioners, Boyd, Alfaro, New, and Smith dis-
agreed in their conclusion relative to the liability of the
United States in the the last case tried by the Commis-
sion and certified the claim asking for $20,816.67 to the
Umpire for decision. In addition.to the work specified
above, almost every Commission has taken action in
other claims due to the number of claimants or the
questions involved.
Admiral Victor M. Concas y Palau was appointed
Umpire in 1916 to decide cases in which the Commis-
sion disagreed. From June to August, 1916 he made 10
awards for S216,800 in claims for $839,224.03, and dis-
missed four claims for $8,240. He also decided two
questions certified to him by the Commission as to the
liability of the United States arising out of the can-
cellation of Isthmian Canal Commission leases under
certain specific conditions.
Hon. Manuel Walls y Merino was appointed Umpire
to succeed Admiral Concas. He has made 17 awards
for $468,667.47 including interest incorporated in the
awards, amounting to $26,972.57, in 20 claims asking for
$4,453,184.65. He dismissed two claims for $177,500
and "refrained from deciding" one claim for $100,000.
The following 12 claims are now pending before the
Umpire:

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12

To summarize briefly: Since March 1, 1913, claims
numbered 1 to 3,598 for $20,660,371.19 have been filed
with the Commission. In 879 claims asking tor $11,-
502,943.66, 213 awards for $1,568,581.49 have been
made. In addition awards for $304,588 were made by
prior Commissions, making a total amount .awarded
of $1,873,169.49. Two thousand twenty-nine claims
for $3,719,930.95 were dismissed on evidence that
direct settlement had been made. Claims for $3,263,-
063.13 were dismissed for other reasons, such as lack
of jurisdiction, lack of evidence, or because of duplica-
tion, or on claimant's motion. The disposition of 17
claims for $478,819 is explained in detail hereinafter,
while 12 claims for $1,075,352.17 are pending before the
TUmpire. Of 319 claims for $620,262.28 dismissed on
account of failure to prosecute same in accordance with
the default rule adopted by instructions of the two
Governments, certain ones seem to require some
explanation.
On the day that the claims of Jose H. Stilson, docket
Nos. 3062 (amount 840,300) and 3281 (amount $97,620)
W\er sit for trial, MIr. C. P. Fairman, appearing .as
counsel for MIr. Stilsun, stated in public session before
the Commission that he and his client declined to fur-
ther prosecute these claims before the Commission.
On the same day he filed a document which he entitled-
"Protest, Notice, and Demand on behalf of the Owner
of Real Property" in which document he notified the
Commission of his refusal to submit the condemnation
of the property involved in these claims or the value
thereof to the jurisdiction of the Commission, and
requested that the Commission desist and refrain
from further action or proceedings respecting the con-
demnation and appraisal of the lands covered by these
two claims. By unanimous vote of the members of the
Commission a rule of default was entered against Mr.
Stilson and inasmuch as claimant failed to appear and
show good and sufficient cause for setting aside the
default within the 60-day period in the rule, the default
was made absolute and the claims dismissed.
By agreement of counsel on both sides the claims of
the Playa de Flor Land and Development Company,

13

docket No. 2900, ($357,040) and of Eufracia C. de
Villalobos, et al, docket No. 3064 ($89,154) wereconsoli-
dated. When they were'called for trial on November 17,
1919, Mr. C. P. Fairman representing claimants in
both cases, made a similar statement to that mentioned
above and filed a similar document. Rule of default
in both claims was accordingly entered against both
claimants. At the expiration of the 60-day period
fixed in the rule, the period of default in the Villalobos
claim was extended to February 24, to which date an
extension had been granted in the Playa de Flor claim.
However, on February 25, 1920, there having been
no appearance on the part of claimants in the Villalobos
claim nor any showing made by them, this case was
dismissed by unanimous \vote of the Commission.
On November 17, 1919, when the Plava de Flor
Land and Development Company claim for $357,040
(docket No. 2900) came on for trial, the attorney of
record, Mr. C. P. Fairman, stated to the Commission
in public session, and also in a written document, that
he refused to submit the case to the jurisdiction of the
Commission. The American members of the Commis-
sion voted to dismiss the case at once, but inasmuch
as the Panamanian members declined to dismiss the
claim, a rule of default was entered against claimants.
At the expiration of the 60-day period fixed in the rule,
with the consent of the two Governments, an extension
of the period was granted to February 24.
Just before the close of business on February 24, the
following motion was filed by Dr. Samuel Lewis:
Come now Perry-Popham, one of the parties at interest in the
above-entitled claim and respectfully move the Commission to
continue the hearing of this case or of any matters connected
therewith and set it for hearing on the 15th of March, 1920, on
which date the said petitioner together with counsel will appear
before the Commission for the purpose of said hearing.
The undersigned hereby represents to the Honorable Commis-
sion that the above-named claimants have not, for reasons
beyond their control, been in a position to appear personally
before the Commission and present their case, which they are
ready and willing to do on the 15th of March, 1920, as the under-
signed has been informed and believes.

14

The Panamanian members of the Commission voted
to grant the motion upon the showing made stating
their reasons therefore as follows:
1. Claimants have shown sufficient cause for not appearing on
the day set for the trial of this claim.
2. The attorney for the claimants without their knowledge
refused to submit the case to the jurisdiction of the Commission.
3. In spite of their having no notice of the conduct of their
attorney claimants have made every possible effort to obtain a
hearing before the Commission.
4. Claimants have presented a motion through Attorney Samuel
Lewis, within the time fixed, requesting the Commission to set
aside the default entered against them.
The American members of the Commission voted to
deny the motion and also voted against further extend-
ing the period of default for the following reasons:
1. Said motion does not ask that the default be set aside.
2. There is no claimant in said claim by the name of Perry-
Popham as mentioned in the motion.
3. The reason assigned as to why claimants have failed to ap-
pear and prosecute said claim merely states a conclusion and does
not state facts sufficient to show cause for setting aside the default.
4. The motion does not show that the default was entered
through any mistake, surprise, inadvertence or excusable neglect
on the part of claimants.
5. The motion does not state any fact or facts showing a good
and sufficient cause for setting aside the default.
6. The facts in the case affirmatively show that all the claim-
ants were given legal notice of the date the claim was set for trial
and given every opportunity to come before the Commission and
present their case, but they failed, neglected, and absolutely
refused to prosecute their claim.
On February 26 Mr. Lewis filed another motion
requesting that all matters and. interest relating to the
Playa de Flor Land and Development Company case
be left in suspense until the Umpire of the Joint Com-
mission passed upon the issues by reason of the fact
that the members of the Commission "are equally
divided in conclusion." He further represented that
"he did not apply for the setting aside of the default
but simply made a motion to continue thehearingofany
matters connected with the above-entitled case until
the 15th of March, 1920." The American members
voted to deny this motion while the Panamanian
members voted to grant the request.

The position of the Panamanian members as shown
by the minutes, is as follows:
"The Panamanian members in refusing to adopt the proposition
made by Commissioner New that the provisional rule of default
be not set aside, proposed to have the Commission set aside the
said provisional rule of default and to set the claim for public
hearing on March 15, as requested by the claimants.
"On this point, therefore, the American members and the
Panamanian members are not in accord, and consequently, this
is a matter, as in preceding matters, in accordance with Article
XV of the Canal treaty which passes to the Umpire for decision;
therefore, the Panamanian members move that the said motion
presented on the 28th of February by Dr. Samuel Lewis on behalf
of the claimants, be determined by the Umpire."
The position of the American members upon this last
motion, as shown by the minutes, is as follows:
"On the 25th day of February the Panamanian members voted
to set aside the default upon the showing made, and the American
members voted that the default should not be set aside; the
default, therefore, became absolute.
"On February 26, S. Lewis, attorney for "Perry and Popham"
two of said claimants, filed the motion now under consideration.
The motion alleged that the motion filed on February 24, 192(1,
was not intended as, nor was it, a motion to set an-Ile thedefault
but that it was merely a motion to continue th.i hearing of tli-
case or of any matters connected therewith.
"Said motion further alleged that on account of the Nl-nil ir- 4f
the Commission being equally divided in the vote on slid ilmotic n
that the question of the continuance of the trial of the claim, and
all matters connected therewith, be certified to the Honorable
Umpire for decision.
"There was no allegation in this motion assigning any reason
why claimants had failed, neglected, and refused to file a motion
or show cause on or before February 24, 1920, for the setting asidil
the default.
"On account of claimants having failed, neglected, an'l refused
to appear on or before February 24, 1920, and show g;)od and
sufficient cause for setting aside the default, the American mem-
bers voted that said default be not set aside. The American
members voted that the default period should not be further
extended for the reason that ample opportunity had time and
again been given claimants to appear before the Commission on
or before February 24, 1920, and show cause for setting aside the
default. They also refused to vote for a further extension of the
default period for the reason that the Secretary of State of the
United States had not given his consent to extend the default
period beyond February 24, 1920. They also refused to. extend
the default period for the reason that the Commission has for

the past five months made every possible effort to bring this
claim to trial. During said time many of the claimants have
absolutely refused, and still refuse, to try said claim while the
other claimants have failed, neglected, and purposely delayed
the trial thereof. There is no showing nor attempt to show,
diligence on the part of claimants. The facts in this case disclosed'
by the record, show that claimants have, for some reason unknown
to us, thrown every obstacle they could in the way of the trial of
this claim, and by so doing have delayed the work of the Com-
mission which has prevented the Commission from closing its
buh-iness at an earlier date."

The only cases remaining on the docket are sixteen
claims, generally known as the Panama Railroad lease
claims. The authority of the Commission to consider
these claims was the subject, in the opinion of the
American members of the Commission, of two Acts
of Congress, hereinbefore quoted. The American
members have always taken the position that they were
precluded by these two Acts from considering these
claims, which arose out of the cancellation by the
Panama Railroad Company of leases for land made
by that company within the Canal Zone. The following
is a list of these claims:

Dockett N, ClaimanmAm e unt
claimed.
i2 .J. H. Stl.ron .. 51,280.00
1;0' Mrs. Flurrfla Pcrrs 3,351.00
l 3ij Elio'di Herrera ... .. 2,000.00
1'6t4 i Elisondr Herrera .500.00
2S4S I F. C. Herhruaer Co 5,250 00
2.4q F. C. Herbruger Co 2,250.00
2S.-3 J. P. B.irranc .. 5,00.00
-2146 Fr.nk Illrirh Jr 3,300.00
2%7 Stii;on nrid illrich 7,980.00
.2959 J H. Stilion .. 10,992.00
29'0 [ "Lilson :nrd L-iwrerr. 3,300 00
2*9.85 Fern, Shll 876.00
3045. Jamines L)-. 200 00
3255 EmpKir, Athl:lir As-olntlion 5,000 00
3282 I J. 1. S :i:,cn 50,000.00
3283 I J H. Stilson 20,000.00
$_121,779.00

Except for rather extended periods during which one
or more Commissioners were lacking and except for four
recess periods of 60 days each during the years 1916,
1917, 1918, and 1919, a Commission has been in session
ever since an organization was effected on March 1,
1913, and hearing or ready to hear cases which might

be properly presented to it, and to dispose of the claims
accumulating under the depopulation order following
the Act of Congress of August 24, 1912.
One member of the present Commission was a mem-
ber of the first Commission of 1905. Except for a
few months' absence, the Hon. Federico Boyd has also
served continuously as a member of the Commission
since March 1, 1913. The following is a'list of the
Commissioners and the periods of time during which
they have served:

APPOINTED BY PRESIDENT OF PANAMA.

FEDERICO BOYD.
March 1, 1913, to March 15, 1915.
April 20, 1915, to September 22, 1915.
November 1, 1915, to November 5, 1919.
November 24, 1919, to finis.

SAMUEL LEWIS.
March 1, 1913, to September 14, 1915.

JORGE E. BOYD.
March 15, 1915, to April 19, 1915.
November 6, 1919, to November 23, 1919.

R. J. ALFARO.
September 23, 1915, to November 11, 1918 and in
cases considered thereafter in which Commissioner
Fabrega was interested as an attorney.

RAMON ARIAS F.
September 23, 1915, to October 31, 1915.

JULIO J. FABREGA.
November 11, 1918, to finis.

MR 73741-2

Ii

APPOINTED BY PRESIDENT OF UNITED STATES.

LEO S. ROWE.
March 1, 1913, to September 23, 1913.
ROLAND P. FALKNER.
March 1, 1913, to December 17, 1913.
LEVI M. KAGY.
May 25, 1914, to November 29, 1915.
DAVID MARKS.
May. 25, 1914, to July 17, 191.4.
NICHOLAS CORNET.
September 18, 1914, to June 30, 1917.
C. L. BOUVE.
April 7, 1916, to June 30, 1917.
GEORGE A. CONNOLLY.
November 27, 1917, to January 31, 1920.
BURT NEW.
November 27, 1917, to finis.
H. A. A. SMITH.
February 2, 1920, to finis.

With the enlargement of the work of the Commission
due to clearing the Canal Zone of all private property
owners, it became necessary for the Commission to
adopt definite rules of procedure so that its work might
be carried to conclusion. As the treaty was silent on the
subject, the two Governments have at times given
consideration to the methods that should be followed
by the Commission to enable it to accomplish the pur-
poses of its formation, and certain instructions have
been issued by the Governments concerned, which were
thereupon adopted by the Commission for its guidance.
The various rules and instructions are included in
Appendix'A, attached hereto.

All awards, opinions, and rules of dismissal have been
published in The Panama Canal Record and thus arc
readily available.
Attached to this report is a list of all the claims filed
With the Commission since March 1, 1913, prepared by
the Secretary thereof, Miss Genella Bliss, and her
assistant, Mr. John J. Dudak, showing th? docket
number of each claim, the amount claimed, the amount
awarded if an award was made and the cause of dis-
missal if the claim was dismissed as well as the ini-
tials of the Commissioners or the name of the Umpire
acting on the claim. This statement is designated
as Appendix B.
All documents, records, transcripts, the complete files
in claims numbered from 1 to 3598, inclusive, and all
other property of the Commission, except the records
and files in the claims pending before the Umpire which
will be left in the office for his use, will be turned over
by the secretary of the Commission to the American
Minister to Panama, just as soon as the secretary
completes the check she is making of the statement to be
attached to this report.
In closing this report we wish to thank the officials
of the Republic of Panama for granting the use of the
commodious offices in the National Palace.
Respectfully submitted,
FEDERICO BOyD,
BURT NEW,
H. A. A. SMITH,
JULIO J. FABREGA,
Co mission ners.

S

APPENDIX A.

Joint Commission Rules of Procedure for Filing of Claims and
Conduct of Hearings, etc., 1913 to 1920:
Adopted March 18, 1913.

I. All persons having title or claim to, or interest in lands. or lands under
water, situated in any part of the Canal Zone, except in the exempted area, or
who have suffered damages of any kind by reason of the grants contained in
the Treaty. or by reason of the operations of the United States, its agents or
employees, or by reason of the construction, maintenance, operation, sanita-
tion, or protection of the said Canal, shall file ith the Joint Land Commission.
a statement of the entire extent of their property rights and interests. Such
statement should include the name, residence, and post-office address, of the
claimant, the amount of the claim, the location and extent of the property,
indicated wherever practicable hb niaps or drawings, the uses to which such
property is put and a description of the improvements which have been made
thereon, and should be accompanied by a statement of the title and rights
of the claimant thereto, supported by all existing documentary proofs of title.
Statements referring to claims of ownership to land or land under water.
together with accompanying documents should be filed in fanr copies, but
of the legal documents submitted as proofs, one copy only need be attested.
All other claims presented to the Commission should be filed in at least two
copies. All claims should be submitted on a form supplied by the Com-
mission. Such statements of claim and all other forms required by the Coin-
mission can be obtained on and after March 14, 1913, from the secretary of the
Commission, at the several police stations in the Canal Zone, or at the office
of the secretary of the municipal council of the City of P.nama.
II. The statements above described to le presented by all claimants to pri-
vate property, should lie filed with the secretary of the Joint Land Commis-
sion, National Palace. Panama, with as little delay as possible. Claimants
to land located in the area between (atun and (iamboa should file their
statements not later than March 31, 1913, and claimants to land located in the
remainder of the Canal Zone should file their statements not later than April
15, 1913.
III. Failure on the part of claimant- to file the required statement will not
preclude the Joint Land Commission from acting upon all cases properly com-
ing before it, without the cooperation of the persons most directly interested.
IV. After an examination of the papers filed with the Joint Land Com-
mission, an opportunity will be given to all claimants to present further evi-
dence in public hearings. The Joint Land Commission reserves the right to
call upon claimants for further information and for documents supplemental%
to those filed with the original statement.
V. The Commission will begin hearings upon claims which are ready for
adjudication, relating to any lands, in the district between Gamboa and
Gatun, excepting townsites, on Monday, March 17, 1913, in the Assembly
Hall, National Palace, Panama. Due notice of further hearings will be given
from time to time.
VI. Proceedings before the Commission may be instituted by the claimant
in person, or through his or her attorney in fact or agent. If the claimant i-
represented by an attorney in fact or agent, a written declaration designating
the person to represent the claimant must be filed with the secretary of th,

Joint Land Commission. Claimants presenting such a declaration in person
should sign the same it! the presence of the secretary. In case such declarations
are not presented in person, the signature of the claimant should be attested in
the Republic of Panama, by a municipal official, or in the Canal Zone by the
agent in charge of any police station. Forms for the designation of attorneys
or agents can be obtained from the secretary of the Commission, and within
the Canal Zone at the several police stations, and at the office of the secretary
of the municipal council of the City of Panama.
VII. All documents required by the Commission, as well as proceedings
before the Commission, may be in either Spanish or English.
VIII. With reference to the admissioility of evidence, the Commission will
follow the procedure of a commission of inquiry rather than the technical
rules of evidence.
IX. If the claimant be an executor, administrator, guardian, or repre-
sentative appointed by a judicial tribunal, a duly authenticated copy of the
record of the appoint nent must be filed with the secretary of the Commission.
X. The Commission reserves the right to require that motions submitted
be put in writing.
XI. All expenses incident to the pre~-cntation of witnesses .,hall te paid
by the party at whose motion the witnesses appear.
XII. Upon the filing of claims, notice thereof will be served on the counsel
for the I nitedr States. The Commission will, in each case, fix a time for
the filinE of an answer, a n will then proce4.ed to fix a tine for hearing. Notice
of such hernriig \will 1,e ier\vd on ,iu claim ant. or hi> representative, and on
counsel for the I'nitcd Mat t.'.
Such notice shall be signed by the secretary of the Commission and shall
recite the time when such cause shall be called for hearing and be served upon
the parties affected thereby by sending the same through the mail or otherwise,
as the C(ommision shall determine. Such notice so sent shall be deemed
sufficient notice to said parties, unles- it shall later appear that it has not as
a-fact been received; and, in that event, further notice may be given, if it
appearss necessary to the C'onimission.
XIII. .\r the rim,- fixed for the hearing 'or at a later date, if so determined
by the Commission i any party posse -sing an interest in the land or improve-
ments thereon may appear and enter a plea in writing, or orally, to be set
forth in the record. stating the nature and extent of interest, the amount of
damages. ;.nd .iny itht r matter which the party 1may' desire to have considered
in the prlemisf-.
If mor, than one party claiming damages shall appear, they may plead jointly
or separately as they miy elect.
XIV. The counsel for the United States shall. at the 'time of the entry of
such pleadings provided for in Rule XIlI. or later, if the Commission so
determine, file an answer in writing or verbally, to le entered upon the record,
joining issue in the premise.. A copy ol such ann\\ r shall he served upon the
claimant or upon the attorney in fact, or agent.
XV. In all cases in which the claimant, or his representative, and counsel
for the United States are agreed on all questions of title, area, and boundaries,
a stated case imy be presented to the Commission, which will enable the Com-
mission immediately' to proceed to a hearing of the case and the valuation of the
property.
XVI. In all public hearings, as preliminary, the claimant, or his repre-
sentative, will make a brief but substantial statement of the claim, in which he
will embrace the material facts which, in his opinion, are established by the
evidence. After the statement on behalf of the claimant, counsel for the
Government of the United States, will, in like manner make a statement of
the Government's position. Witnesses will then be called by the claimant
for direct and cro;zs examination, to be followed by witnesses for the Govern-
ment of the United States for direct and cross examination. The claimant, or
his representative, may then call witnesses in rebuttal, but the Commission
reserves the right to fix the time allotted to such rebuttal.
At the conclusion of the testimony, the claimant, or his representative, and
counsel for the Government of the United States will proceed to argue the
case in detail. Arguments will be limited to one-half hour on a side. In all

cases, however, 20 minutes will be allotted to counsel for the claimant for final
summing up. This limit of time may be extended by the Commission. When
additional time is necessary on either side, application therefore must be made
in writing before the hearing begins.
XVII. If a claimant fails to appear after due notice has been given, the
Commission reserves the right to consider such evidence as may be available.
The claimant may, however, appear at any time prior to the final award.
XVI II. If the Commission, or a majority thereof, shall agree upon a decision
in any cause heard I'efore it, it shall make the same a part of the record of the
proceedings and send a certified copy of the same to the Government of the
United States, and to the Government of the Republic of Panama, and any
party affected by such decision shall have a right to take a copy of the same.
XIX. "In the event of a disagreement of the Commiision, such disagreement
shall be certified to and forwarded to both of said Go\vernments.
XX. Subpoenas, at the requ;et of counsel for the United States, or of any
claimant or his representative, Tshall be issued by the secretary of the Joint
Commission, which said subpo-nas may be served by the police of either
Government.
XXI. These rules may le repealed or amended by the Commission at any
time hereafter as it may determine.
The Commission furthermore reserves the right to modify the application
of these rules to any particular case if, in the opinion of the Commission, the
interests of justice are promoted thereby.

Adopted IMarch 18, 1913.

The Joint Land Commission will not take jurisdiction of claims arising from
leases or licenses of the Isthmian Can.il Cominnis-.ion or the Panama Railroad
Company, which leases or licenses provide for the taking over of :uch proper-
ties for Canal or railroad purposes upon notice to tenant or licensee; this
being a matter of agreement between the parties and governed by local law.

Adopted March 18, 1913.

In case of disputes between private land owners as to the limits of their
property, the Commission will, in a proper case, make a separate award for
the disputed territory, depositing the amount of such award with a court of
competent jurisdiction and leaving to such tribunal the adjudication of the
rights of the several claimants. The Commission will, however, undertake to
determine questions of title as between the United States and private owners.
If, in the course of the adjudication of a claim, an adverse claimant to title
appear, the Commission will deposit any award that may be made for such land
with a court of competent jurisdiction, and leave the adjudication of the rights
of adverse claimants to such tribunal. If, however, a lessee of private property
present an adverse claim for the value of improvements, the Commission will
make award to the holder of title for the value of the land and a separate award
for the value of improvements. The latter will be deposited with a court of
competent jurisdiction, where the respective claims of lessor and lessee will be
adjudicated.

Adopted March 24, 1913.

In determining the value of lands taken by the United States.the Commis-
sion must be governed by the terms of Article \'I, which provides:
"The appraisal of said private lands and private property and the assess-
ment of damages to them shall be based upon their value before the date of
this convention."
In the application of the Treaty, the Commission will follow the principles
of the Commission of 1908, which are stated in their report to have been the
following:

"To hear all evidence presented bearing upon the fair value of the prop-rty
to be expropriated by the United States, and upon damages thereto; to con-
sider especially, as elements of such valuation, the extent and character of
the property affected, its location, for what it is adapted or could be adapted
within a reasonable time: as well as to take into account other pertinent
considerations and, in determining the basis upon which damages are to be
assessed, to eliminate from consideration the effect which the building of
the Canal may have had upon the value of such estates."

Adopted June 3, 1913.

The Commission takes judicial notice of all official records of the Govern-
ment of the United States and of the Government of Panama pertaining to the
inquiries conducted by the Commission. The Coummission will at all times
receive any papers or documents submitted by claimants or counsel relating
to or tending to controvert the content of such official records.

Adopted June 3, 1913.

In the matter of claims of corporations, it is the purpose of the Commis-
sion to make the award to such corporations, allowing persons who have an
interest or who own equities therein, to assert such interest or equities before
a court of competent jurisdiction.

Adopted June 11. 1913.

Where the existence of a release is pleaded in bar of a claim, the Commission
will of its own motion make an examination of the releases filed in the office
of the Examirer of Accounts and Disbursing Officer, and of such official records
the Commission will take judicial notice. Where a verbal agreement of settle-
ment is pleaded the claim will remain before the C(ommission until the Com-
mission receive official notice that payment has been made by the Govern-
ment in settlement of such claim.

Adopted June 17, 1913.

Settlers or occupiers on public lands in the 'anal Zone, who went upon such
lands prior to the Treaty of 1903 are entitled to compensation,-.nd the fact
that such persons subsequently accepted licenses from the Government of
the United States does not extinguish the rights which accrued prior to the
treaty.

Adopted July 28, 1913.

In view of the provision of the treaty that "all the decisions by a majority
of the Commission or by the Umpire shall be final" the Commission is without
power to receive any protests against its awards.

Adopted June 9, 1914.

When a case is set for hearing, and the claimant or the Government, or
defendant is not ready for trial at the time the case is set for hearing, the claim-
ant or the Government or their respective attorneys desiring that the cause
be continued or reset, shall file an affidavit in writing stating the reasons why
such party is not ready for trial, and, if the affidavit is found sufficient by the
Commission, then the case shall be taken off the setting and shall be put on the
call docket, to be called at the pleasure of the Commission after all the other
cases have been disposed of. The affidavit shall contain these words: "This
affidavit is made in good faith and not for the purpose of delay, but that justice
may be done."

Rules entered of record June 27, 1914, after adoption by the Governments of
the United States of America and the Republic of Panama:
1. The jurisdiction of the Conimission shall be invoked by pettition of the
claimant, verified by his oath, or that of his agent, made before some officer
authorized to administer oaths in the United States, the Republic of Panama
or the Canal Zone.
2. The Commission maydesignate two of its members, one from each coun-
try. to make inspections and to take evidence: but the decision shall be based
on all the evidence in the case and shall be made only by the Commission: and
in every case the Commission shall, upon the request If either party, grant a
full and free hearing..
3. Claims not prese-ntted to the Commission within six calendar months after
it resumes its sessions at Panama shall'he barred, unless the Commission shall
for exceptional reasons extend the time three months in a particular case.

Adopted August 18, 1914.

The time fixed by the Gov'erlnment of the United States and the Republic ol
Panama within which claims may he file' with the Joint Land Commission
for damages which have accrurcl to an\ person or persons, on account of the
construction of the Panama Canal and under the treaty between the UTnited
States and the Republic of Panama, under Rule No. 3 lately adopted and as
amended by the two Governments will expire on December 27, 1914.

Adopted October 19, 1914.

All pleadings, motions, and affidavits, for continuance shall be filed in writing
by the parties in interest, or their attorneys, and by the attorneys repre-
senting the United States Government, in triplicate. The secretary shall
immediately upon receipt of such motions, pleadings, or affidavits, in tripl;-
cate, in accordance with this rule, mail to the attorney, or party of the opposing
side, one copy thereof. The motion, pleading, or affidavit shall then stand for
final disposition by the Commission at any time after five days from the date of
filing, unless I)oth sides agree to its disposition at an earlier date.

Adopted October 24, 1914.

The trial docket for claims to be heard by the Joint Land C omlmisiiun shall
be made up of claims in accordance with their numerical order on the docket
and their date of filing, regardless of their location on the Canal Zone.
Causes shall be set on each .Monday afternoon for the following week and the
Secretary shall immediately cause notices of thesettings to be published in the
Star & Herald, the Panama Morning Journal. The Panama Canal Record,
and the Gaceta Oficial, and shall also mail or deliver copies of the setting to
the respective attorneys interested therein.
All rules or parts of rules in conflict with this rule, are hereby repealed
annulled, and set aside.

Adopted March 22, 1915.

The Commission will not proceed to the hearing of.claims in which there are
Adverse private claimants. In all cases in which there are adverse private
claimants to the same property, they should either adjust their differences by
compromise or settle them by adjudication before urging their claims before
the Commission.

Adopted October 2, 1915.

1. The claimant who first filed his claim with the Commission or whose claim
has the lowest number on the docket will be treated primarily as the real owner
of the claim unless an adverse claimant proves to have a bona fide claim to the
whole or some part of the property taken for Canal purposes in conformity
with the provisions of the treaty of November 18, 1903.
II. All persons having a claim in conflict with the rights asserted by previous
claimants shall present evidence within a term to be fixed in each case by the
Commission in order to show that such conflicting rights are in course of being
decided by a competent tribunal of the Canal Zone or by arbitrators or by
direct amicable settlement.
Ill. The evidence required by the Commission for the above purpose shall
be a certified copy of the complaint of judicial proceedings brought by the
second claimant against theclaimant who has the lowest number on the docket,
ora copy of the act whereby the case was submitted to arbitration, or a showing
that an amicable settlement will be reached within a reasonable time.
IV. If, within the term fixed by the Commission no evidence is produced to
show that proceedings have been instituted in order to have the controversy
properly decided or settled as above set forth, the Commission shall direct
that the claim first filed be heard and final decision shall be rendered on its
merits.
V. The preceding rule is set down without prejudice to the right of private
individuals or corporations to institute whatever proceedings may be allowed
by law in order to recover, from parties in whose favor any award has been
rendered, such moneys as may have been paid them by the United States
according to the award as a compensation for land or prop-rty taken for Canal
purposes and belonging to such private individuals or corporations.

Rules relative to the continuance or dismissal of cases, adopted
April 13, 1916, after approval by both Governments:

It is ordered that when a case is set for hearing, and the claimant is not ready
for trial \when his case is called and the claimant or his attorneys desire that the
cause be continued or reset, he shall filean affidav it in writing, stating the reasons
why such party is not ready for trial, and, if the affidavit is found sufficient by
the Commission the case shall be put on the call docket to be called at the
pleasure of the Commission, or placed at the foot of the docket to be called
after all other cases have been disposed of.
If the affidavit is not considered sufficient by a majority of the Commission
to entitle the claimant to a continuance, or in case no affidavit for a continu-
ance is filed, a rule of default shall be entered against the claimant.
I'pun the entry of such rule of default (at the end of each month) notice there-
of shall be given by four successive publications, one each week, in the English
and Spanish languages in newspapers of general circulation in the Republic of
.Pnanam, notifying such claimants to appear in person or by attorney, within 60
days from the first of said publications and show good and sufficient cause why
such default should be set aside, and take active steps to prosecute their claims,
and failing to so appear within 60 davy from said first publication their claims
will be considered as having been either settled or abandoned and the same
will be dismissed and forever barred.

Adopted April 18, 1916.

All oral arguments of claim and other matters coming before the Joint Com-
mission appointed under Articles VI and XV of the Treaty between the United
States of A.m:rica and the Republic of Panama, signed November 18, 1903,
for the adjudication and settlement of damages to private property caused
by the construction, operation, sanitation, etc., of the Panama Canal, will be
limited to one hour on a side, including the opening and closing arguments.
When additional time is desired by counsel for either side in a particular case,
a request therefore must be made to the Commission before the argument

begun, counsel stating clearly the grounds on which the request is hascd. On
a proper showing being made, the Commission may, within its discretion,extend
the original time limit. Any rules conflicting with the above are hereby
repealed and annulled.

Adopted May 4, 1916.
Disagreements shall be certified to the "U'mpire appointed tinder the treaty,"
instead of to the "Governments, parties to the treaty." Before the certifica-
tion of any case to the Umpire, the conclusions reached by the commissioners
shall be stated in writing and shall le supported by written opinions, all of
which shall form a part of the record certified to the Umpire.

Adopted June 30, 1916.

\'rhen the Commission -shall certily a case to the empiree under the pertinent
provisions of the Treaty of 1903 between the United States and Panama the
fact of such certification shall be announced in open court, and the Secretary
of the Comnission shall forthwith notify the parties interested through their
attorneys that such certitila tion has been pe-rfected. Counsel shall be allowed
ten days from the date of such notification to file with the Commission such
brief or writt ars they may t, ef or ritt arg th maee t hichrief or written argument
.hall be attached to the record and form a part thereof when the papers in the
;cas.e e ;linbmitted to the consideration of the I'mpire.

APPENDIX "B."

STATEMENT OF CLAIMS FILE) WITH 11HE JOINT COMMISSION
S.HOwINc DISPOSITION THERIEOF.

iSymbols indicating Commissioners r ting in claims

A = RICARnO J. ALI-ARO.

Ar =RAMON ARIAS F.

IP =FEDERICO InM ).

Bd=JORGE E. BoYD.

BV=CLEMEN I L. Bouv.:.

C = NICHOLAS CORNET.

Cy =GEORGE A. CONNOI.LV.

!" = J LtI() J. F.1Hkr-.A.1

Fk = ROLA.N P. F.LKN-.K..

S=LEVI AL. KAV.

L =bA.NI'.I LA.EWk..

NM =I)\.In \l.\RK3.

N = BURT NEW.

R =L L. SL nIw .

-= H. A. A. SMITH.

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	Front Cover
	Title Page
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	Back Cover

MILLISECOND	CLASS.METHOD	MESSAGE
0	sobekcm_page_globals.constructor
0	sobekcm_page_globals.constructor	Application State validated or built
0	sobekcm_database.verify_item_lookup_object
0	sobekcm_page_globals.constructor	Navigation Object created from URI query string
0	sobekcm_database.verify_item_lookup_object
0	sobekcm_page_globals.display_item	Retrieving item or group information
0	sobekcm_page_globals.get_entire_collection_hierarchy	Retrieving hierarchy information
0	sobekcm_assistant.get_entire_collection_hierarchy
0	cached_data_manager.retrieve_item_aggregation
0	cached_data_manager.retrieve_item_aggregation	Found item aggregation on local cache
0	item_aggregation_builder.get_item_aggregation	Found 'all' item aggregation in cache
0	system.web.ui.page.page_load (ufdc.page_load)
0	sobekcm_page_globals.constructor.on_page_load
0	html_echo_mainwriter.add_style_references	Adding style references to HTML
0	html_echo_mainwriter.add_text_to_page	Reading the text from the file and echoing back to the output stream
54	html_echo_mainwriter.add_text_to_page	Finished reading and writing the file


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