"The state, as employer, alone determines the terms upon which its new canal shall be built. It defines in great detail its standard of materials and workmanship, but takes no thought for the workmen who must operate in great transient groups. It does not leave to chance the realization of its material standard, but sends inspectors to make tests and provides a staff of engineers. It does leave to chance (in the ignorance and cupidity of padroni) the quality and price of foods and care of the men. It takes great care to prevent the freezing of cement, but permits any kind of houses to be used for its laborers. (p296)"