The 1% roughly corresponds to a few ER's at concentrated sites where sailors can first seek care, where the main cost is provider salaries. State of the art th

The 1% roughly corresponds to a few ER's at concentrated sites where sailors can first seek care, where the main cost is provider salaries. State of the art then, but not comparable. Also I suspect the main goal was to displace anger about working conditions and get the distressed sailors out of the hair of ship owners and captains, likely prompted by the need to isolate society from infectious diseases and horrifying cripples. I.e., the goal was to contain the damage from the sailors to the shipping business and society, not to protect the sailors.