Pay car at one of the construction towns.  There are two types of pay cars in use here.  There is a smaller car in front of the larger passenger car size.  According to the book "Diagrams and Photographs of Railroad Equipment Used to Constuct the Panama Canal" by Bert E. Davis, the smaller version was used in the Culebra area.  With that, I would say this photo was taken in one of the "cut" towns. Look at that mob!!