GIFT OF Emergency Immigration Legislation HEARING BEFORE COMMITTEE ON IMMIGRATION UNITED STATES SENATE SIXTY-SIXTH CONGRESS THIRD SESSION ON H. R. 14461 A BILL TO PROVIDE FOR THE PROTECTION OF THE CITIZENS OF THE UNITED STATES BY THE TEMPORARY SUSPENSION OF IMMIGRATION, AND FOR OTHER PURPOSES MONDAY, JANUARY 3, 1921 PART 1 Printed for the uee of the Committee on Immigration ^T>. WASHINGTON GOVERNMENT PRINTING OFFICE 2W11 1921 committep: on immigration. LeBARON B. colt, Rhode Island, Chairman. WILLIAM P. DILLINGHAM, Vermont THOMAS P. GORE, Oklahoma. BOIES PENROSE, Pennsylvania. JOHN F. NUGENT, Idaho. THOMAS STERLING, South Dakota. WILLIAM H. KING, Utah. HIRAM W. JOHNSON, California. WILLIAM J. HARRIS, Georgia. HENRY W. KEYES, New Hampshire. PAT HARRISON, Mississippi. WALTER E. EDGE, New Jersey. JAMES D. PHELAN, California. Henry M. BARur, Cleric. it ^"^ T3 e:mek(ienoy boiigration legislation MONDAY, JANUARY 3, 1921. United States Senate. Committee on iMMKiKATUtN. ^yal declaration nuist be filed in the embassy, legation, or consulate by which the passport is first viseed, one copy forwarded immediately to the conunissioner of immigration or inspector in charge at the port of entry by whicli the declarant expects to enter the United StaH's and one copy fastened to the passport of the declarant in such a way that it may be removed upon liis departure from the United States. The copy last mentioned must l)e presented with the passi)ort to the official at the poi-t of entry into this country who t'xamines i)a.'^sports, and to the inunigration ofik-ial who in- spects the holder, and to such other officials in the ITnited States as may be authorized to inspect such documents. Sec. 4. (a) xV citizen of the United States twenty-one years of age or over, who is a resident of the United States, may, under regulations prescribed by the Secretai'y of I.iabor, apply to him for permission to bring into the United EMERGENCY IMMIGRATION LEGISLATION. 5 States or send I'oi- an otherwise adniissihle wife, pai'ent, .grandparent, unmarried son or brother under twenty-one years of age, unmarried or widowed daughter. or sister, grandson under sixteen years of age whose father is dead, or unmar- ried or widowed granddaughter wliose father is dead : and any alien who lias declared, in the manner provided by law, his intention to become a citizen of the United States, and who is a resident of the United Slates, may make like application in reference to an otherwise admissible husband or wife, unman-ied son under twenty-one years of age. or unmarried or widowed daughter ; but no application may be made under this paragraph in the case of any relative by adoption. ( !)) If the Secretary of Labor is satisfied that the entry into the United States of such relative would not be in violation of the innnigration laws, and that such relative is likely to prove a desirable resident of the United States, he may issue a permit to the applicant, under such regtUations as he may prescribe, which shall authorize the immigration officers at the port of entry to examine such relative upon arrival at such port. Thereafter the right of such relative to admission shall Ite as provide d by the innnigration laws, except that it shall not be subject to the act entitled "An act to prevent in time of war departure from and entry into the United States contrary to the public safety, approved May 22, 191S," or to the provisions of any proclamation, order, rule, or regula- tion made thereunder, and except that the literacy test may, in the discretion of the Secretary of Labor, be waived in the case of such rehitive. Sec. 5. Nothing in section 2 shall be held to prevent the importation of skilled labor under the conditions prescribotl in the fourth proviso to section 3 of the immigration act nor to the importation of persons employed as domestic servants. Sec. 6. The joint resolution approved October 19, 1918, entitled " Joint resolu- tion authorizing the readmission to the United States of certain aliens who have been conscripted or who have volunteered for .service with the military forces of the United States or cobelligerent forces," is hereby amende• fidl investigation of the wdiole subject of immigration — with the idea in the future of passing some permanent or construc- tive legislation after a thorough investigation of the whole matter in view of present \Yorld conditions. In order that the testimony may be limited at this time. I desire to say to those j)resent that, as I understand it, although I am only one member of the committee, the testimony to be introduced at these hearings should be confined to the emergency proposition ; that is. to the proposition of suspending, temporarily or for a year, all immigration. In dealing with an emergency question of that cliaiacter we would naturally look at its effects from the economic standpoint : How would the sus[)ension of iTnmigration affect the business of the coun- try ^ Then, in dealing with the question of emergency legislation or a suspension of immigration, you would naturally look, secondly, to the menace that is threatening this country with regard to immi- gration. As to the flood of immigration, which it has been represented is about to |)our in upon us from Europe, the committee have desired, and do desire now, to ascertain data, facts, and information upon that subject. That information would naturally ilivide itself into two ))roj)ositions : First, the extent and character of the immigration for the year ending June 1. IDjJO. but more esj^ecially the number of immigrants, their character, during the months following the 1st of July, or from the 1st of Julj', 1920, down to the present time or EMERGENCY IMMIGRATION LEGISLATION. 7 down to the 31st of December, 1920. The committee desires to have data really upon the proi^osition of how much increase there has actually been during the last four or five months, and from what countries the immioTants have come. That is one class of data. Secondly, the committee desires information as to the truth of the reports oi the number of immigrants from foreign countries who purpose to come to this country — that is, whether the statements that have been ^i yen out of the number who purpose to come from Italy or from Russia or from various European countries are cor- rect; in other words, Avhat is the true situation with regard to the alleged threatened flood of immigration. Having ascertained, first, the facts with regard to the threatened flood of immigration, and, secondly, the actual number of immi- grants who have come i)i down to the 1st of December. 19'2U, and especially the so-called increase during the last three or four months, the committee would be prepared to judge of the emergency char- acter of the situation; and then, before any final decision upon the question, of course the committee would feel bound to look into its economic effect upon the country. At the last meeting of the committee, when this general subject was before us, a strong desire was expressed to hear Representative Johnson, or to invite Mr. Johnson to be present at this meeting, with a view, if he was willing, that he should express before the committee his thoughts upon this subject. The committee would be very glad, therefore, to hear from Mr. Jolnison, chairman of the Committee on Immigration and Naturalization of the House of Representatives, and the author of the bill. STATEMENT OF HON. ALBERT JOHNSON, A REPRESENTATIVE IN CONGRESS FROM THE STATE OF WASHINGTON. Representative Johnson. Senator Colt and gentlemen of the com- mittee, I desire to be brief and to deal entirely with Avhat I consider the emergency condition, and to answer such questions as I can. At the outset I desire to remind Senators of the attempts to enact a permanent law relative to passports. It will be remembered that both the House and the Senate passed a bill, or, rather, enacted a law, assuming that there would come peace, providing for an exten- sion of the war passport situation in so far as it applies to aliens. The Chairman. Mr. Johnson, if I may add right here, I have received information that may possibly be helpful to a solution of this emergency problem, and that is that the (iovernment of Italy would issue aii order shortly, if it has not been already issued, deny- ing passports to all emigrants; in other words, suspending emigration from Italy, with a view of entering into cooperation with the United States to the end that Italy might supply such immigrants, peoples of such classes, as this country might desire. That opens up quite a broad (piestion, viewing immigration from an international standpoint — and it is really an international ques- tion — considering it from a world standpoint. It, of course, might be possible that through the State Department arrangements could be entered into Avhereby foreign nations would not permit any more immijrrants to come to this countrv than the United States desired. 8 EMEllGENCY IMMIGEATiON LEGISLATION. sujoplyinp^ none at all or only such classes as conditions here war- ranted. Senator Dillingham. Maj-^ I add to what the chairman has said that I think there is now a provision of the law enabling the Presi- dent of the United States to enter into agreements with foreign nations with respect to such matters? When the immigration com- mission were in session in 1909-10, I had interviews with govern- mental officers — for instance, of Hungary — and at that time they expressed a very strong desire to enter into some sort of an arrange- ment Avith this country that would govern the flow of emigration from that country, they at that time not wanting to lose an undue proportion of their citizens. On my return I called the attention of the administration to this matter, liut nothing was ever done about it. But I think the right exists on the part of the Government, even outside of diplomatic relations, to enter into such arrangements. The Chairman. Of course, quite a number of immigrants have come from Italy, and immigration from Italy has increased. But I have direct, and I might say very positive, information that the Italian Government has already issued such an order as I mentioned a few moments ago. How that may affect this matter I do not know, and I am only mentioning this matter with a view to hearing it dis- cussed and getting information thereon. Representative Johnson. The rumor has run all over Italy, and other countries as welK that the United States would suspend all immigration by January 1, 1921. That rumor created great excite- ment throughout Italy, and some semiofficial statements by the Italian Government were made along the lines the chairman has mentioned. But in the meantime a representative of the Govern- ment of Italy is here, spending much time around steamship offices in New York, and he is begging that the time allowance of this bill, which is 60 days, be made six months, in order to permit Italy to send to this countr}'^ those of its people alreadv in line for passports. This would rather indicate that Ital^'^ could not shut the movement off quickly. I started to say a minute ago that one law passed by the Congress was to the effect that the war passport suspension, in so far as ap- plying to aliens, should operate until the 4th of March next. That law has not been operative for the reason that the provisions of the w^ar-passport matter continue to operate until we have a declaration of peace. I think this situation alone creates an emergency concern- ing immigration for the reason that some day, soon, we will have a declaration of peace, and no passport laws. But I think, Mr. Chairman and gentlemen of the committee, that the passport system is here to stay. I think further that, even as a temporary matter, that it is a mistake to have such a law operate partly under the De- partment of Labor and partly under the State Department, because of the confusion that necessarily ensues. I think the argument that this temporary suspension bill might serve to end the United States as an asylum for political refugees falls for the reason that under the passport system a refugee is unable to get a passport from certain countries. Our consular agents in all parts of central Europe have only the right to refuse these in certain cases, and not in cases that fall under the immigration laws them- selves. EMEEGENCY IMMIGRATION LEGISLATION. 9 That is to say. the consular agent declines to give his vise to a man whom he determines is a political disturber or a revolutionist. But he can not refuse, under the instructions that the Department of Labor gives to him, to refuse to give his vise to an alien ^vho is physi- cally deficient, nearly blind, or suffering from some other disability of the kind. He must let him go on to the United States and try it out at the gates of Ellis Island. Senator Phelan. The ])ower is in the Government, under war legislation, to prevent the issuance of passports? Representative Johnson. I think so. Senator Phelan. And a consular agent may refuse to vise a pass- port to some he thinks unfit ? Representative Johnson. I think so, but State and Labor Depart- ments have agreed upon regulations by which one does not usurp the other. The particular bill now before your committee is just what it has been designated at this table, a temporary measure ; and I have sin- cere hopes -that we can combine the good features in the so-called Dillingham bill and in the so-called Sterling bill, and even add to those certain features of the proposed constructive plan that were stripped from this emergency bill — taken out because an emergency existed. This bill at one time had a voluntary registration plan, but any- thing that contained a constructive idea we thought would require too long consideration to meet the existing emergency. This bill is not, as it is called so often, an absolute suspension. It is extremely liberal. I have one complaint from a consular agent, in Greece or in Italy, and I am not sure which at the moment, that the real charge against this suspension, bill, so called, is that it admits dependents. You will notice that the bill, while it suspends immigration, turns right around and lets citizens who are in the United States send for their blood-line relatives. In other words, Tony, the barber, may send for his grandmother, a person who is likely to be not only a liability to Tony but to the United States. The bill provides that if Tony wants to send for his grandfather or his grandmother or his mother or his father, he may make arrangements so to do with the Department of Labor here. Senator Harrison. And you think that ought to be eliminated? Representative Johnson. I thonght so at one time, that we ought to have a suspension in that regard, but after carefully going into the matter I found that it was too hard to do, too abrupt a proce- dure. The Chairman. The caption of the bill is that it is a temporary suspension. Representative Johnson. Yes. The Chairman. That is its main purpose. Representative Johnson. Yes. The Chairman. While, of course, you will admit relatives of those who are citizens of the United States, and I agree with vou that this hearing relates to the emergency, yet you are so familiar with this whole subject that if you will deal with the emergency situation I will appreciate it. I am only s[)eaking as one member of the com- mittee, but I Avould like to hear from you on that subject. 10 EMERGENCY IMMKJKATION LEGISLATION. Kopreseiitativo Johnson. All ristahlishments by the workmen have had a serious effect upon the popuhition. an increasitig number of which desire to emigrate as socai as steamship accommodations can be found. Agents state that To i»er cent of tiiose asking for tickets desiie to go to the United States. NETHERI.AXDS. Kottcrdaiii. — The great mass of aliens i)assing through Rotterdam at the present time are Russian Poles or I'olisli Jews of the usual ghetto type. Most of them are more or less directly and frankly getting out of Poland to avoid war conditions. They are tiltliy, un-Ainericai>. and often dtingerous in their habits. poi..\Nn. Warxair. — ('oncerning the general charjicteristics of aliens emigrating to the United States from Poland and the occupation or trade followed by them reports indicate such to be substantially as follows: (a) Physically deficient : (1) Wasted by disease and lack of food sui)piies. (2) Reduced to an imprecedented state of life during the iteriod of the war as the result of oppression and want. (3) Present existence in scpnilor and tilth. (b) Mentally deficient: (1) Illy educated, if not illiterate, and ton fre(|uently with minds so stulti- fied as to admit of little betti>rnient. (2) Abnormally twisted b(>cause of (a) reaction from war .strain, (b) shock of revoluticmary disorders, (c) the dullness and stultification resulting from past years of opi»ression and abuse. ((.') Economically undesirable: (1)' Twenty per cent is given as a round and generous estimate of produc- tive laborers among i)resent applicants for visees. This estimate is meant to include workers, or those who may be expected to become workers, from both sexes. The remaining percentage nmy b(> expected to be a drain on tlie resources of America for y{>ars. (2) Of the ">(> percent nf emigrants frnni Poland who may be termed efficients, 40 per cent — of the total innnber of inunigrants — ^will enter trade as a tniddle- man, not a producer. These will thrive on the efforts of their associates. (3) The productiA-e labor, small percentage as it is. will be found in America in the sweatshops in the large centeis of population. It is decidedly not agri- 12 EMERGENCY IMMIGRATION LEGISLATION. cultural, hut uihiui in cluuiuUn-. In this report female applicants iis house- wives, etc., are, of course, ternied as efficients. ((/) Socially un(lesiral)le : (1) Ki{ihty-fiv(> (o ninety per cent lack any couception of patriotic or national spirit, and the niajorty of this percentage is mentally incapahle of acquiring it. (2) Seventy-five per cent or upward will congrejiate in the large url)an centers, such as New Yorli or Baltimore, and add to undesirable congestion, already a grave civic problem. (3) Immigrants of similar class are to be found already in the United States who, taken as a class and not individually, have proved unassimilable. (4) All Europe is experiencing in the reaction from the war a corruption of moral standards. This may even be most noticeable in Germany. The intro- duction of these lowered standards can not fail but have its evil influence in the United States. (e) At the moment, 90 per cent may he regarded as a low estimate of the proportion representing the Jewish race among emigrants to America from Poland. (/) The unassirailability of these classes politically is a fact too often proved in the past to bear any argument. EXTKACTS FJ{OM KKPOKTS OF OFFICERS WHO HAVE VISITED POI.ANU. Report of March 3. — A large number of people are endeavoring to proceed tt> the United States regardless of travel and other difficulties. The majority of these people belong to the undesirable classes ; that is, tliose who are prone to congregate in the large cities, and from whom the present type of political and labor agitators are drawn. These do not belong to the good classes of agricul- tural and factory workers. Report of April 6. — Approximately 100,000 persons are desirous of immedi- ately leaving Poland for the purpose of coining to the United States. Ninety- five per cent of these persons are of the very low'est classes of the country and are considered to be thoroughly undesira'ile. Many of these per.sons have trachoma and other quarantinal)le diseases and come from typhus-infected areas. They are filthy and ignorant and the majority are verminou.s. Persons who come in contact with these prospective emigrants are obliged, owing to their insanitary conditi(m, to take the greatest precautions to avoid contami- nation. There is a grave menace to other parts of Europe because persons from typhus-infected areas travel to European ports. The strictest quarantine regulations should be observed for emigrants from Poland. To permit large numbers of such pei'sons with such characteristics to enter the United States is believed to be a dangerous policy, inasmuch as it is im- possible to determine the attitude of these persons toward orderly government owing to the present political and social unrest in this part of Europe. There appears to be under the present serious circumstances no ad«'d Stales are objecting to quarantine restriction>s, and are endeavoring to avoid these regulations through transshipment through other countries. Some emigrants are objecting to certain sanitary provisions, such as removal of beards and clipping of hair. Report of May 11. — One inunigrant aid society, which has offices in I'oland, is said to be i)lanning to sen canqiaign against it. Kefugees from infected regions in Russia are constantly pouring into PoL-iihI. irncontirmed report shows that 8 per cent of the i)()pulation of the city of /itnmir, T^krnine. died of tyjilius li(>tween Jan- uary and April. 1920. EMERGENCY IMMIGRATION LEGISLATION. 13 Report of July 11. — All emigrants who pass through Danzig are decidedly in- I'erior type, physically, mentally, and morally, and because of their insanitary habits constitute a menace to the health of all Avith whom they corae in contact. Report of July ii.— Crowds collecting in Warsaw for the purpose of procuring necessary papers to enable them to emigrate are alleged to be a menace to the health of Warsaw. It is alleged that one of the reasons for the remarkable increase in the number of intending emigrants from Poland to the United States may be found in the activities of representatives at Warsaw of American immigrant aid societies, who are reported to have aided the emigrants to obtain passports, to have arranged for special care on trains to ports of departure, to have negotiated w'ith steamship companies for ships to intermediate ports, and si^ecial trains to connect with the trans-Atlantic liners. Report of October l.—lt is estimated that 350,000 Polish subjects of the Hebrew race alone ai-e anxii>us to proceed to the Unite}i I niniif/rotioii. House of UeprcHcniativefi My Dkak Mk. Johnson: In conipliiince with your request, I jini sendiuf; liere- witli additional extracts from reports concerning inunif,'rjition wliich Iiave just reached tlie department from officers of this Government who iiave visited the countries mentioned. Very sincerely, yours, Wii.HKK .T. Cark. CZECHOSLOVAKIA. Pni(/uc. — II is estimated that there are 5,000 persons wlio intend to apply for vises durinji the montli of Decemher. There are also many thousands of persons in the surrounding: co\intries desirous of i)roceeding to the United States who have heen advised to make theii- applications in the country of orifriu. Applica- tions for vises are increasing- at the rate of .5,000 each quarter. At this rate 25,000 persons will he ai)plying for vises during the .Tune (luarter. The niuiiher of persons desirous of emigrating is increasing I'apidly owing to the present unsettled conditions. The majority of these persons are aged parents, wives, and children of pensons already residing in the United States. The occupation of most of the prospective emigrants is farming, but they are going to the mining and manufacturing disti-icts of Pennsylvania. The destination of these persons should undoubtedly be restricted. London. — The non-British aliens who obtain vises consist chiefly of Poles and Polish Jews, who have large families, and generally are engaged in the garment trade. They are an undesirable class of innnigrant, as they live almost entirely in large cities, particularly New York. Cutduia. — Approximately 10.000 persons have obtained vises and are now waiting opportunity to emigrate to the United States. It is estimated 100,000 or more persons want to come to America. During the spring and summer applications for vises will increase, with requests estimated at 3,000 per month. N(if>t<'-'<- — It is estimated that 76,000 iiersons are awaiting, ojtportunity to emi- grate to the Uiuted States. Any further increase is, of course, contingent on tiie augmentation of the number t)f steamshiiis to facilitate departure. There appears to l)e no ]iossiliility of a decrease in enrgration during 1021. I'aJcnno. — There are ."iO.UOO emigrants who have already procured vises wait- ing to deiiart from Pidermo, but many are discouraged from seeking visfs at this time because of steamship accommodation and winter weather. During the following spring and sununer it is estimated that there will be between four and five othu.sand applications per montli. Owing to the limited capacity of Sicilian endgrants for only manual labor and their failure to assimilate proi)erly, which is evid(>nce< will tend to lower the American standard. NKTHKKLANnS. Rottcrdd in-.— At all times there are awaiting in barrat-ks on an average of 2,500 i)(>rs(Mis who desire to sail to tlie I'nited States. This number is con- stantly increasing, conung generally from Lithuania, Czechoslovakia, Poland. Rumania, Switzerland, Austria, Hungary, ami llie Netherlands. Rotterdam is a large clearing house for these countries. EMERGEXCY IMMIGRATION LEGISLATION. 15 Sliipp 'if- <'<'noeiiis are luakiiij,' prepai'ations for a larpre increase in innnigra- tlon after the tiist of the yeai'. This increase is helieved to l)e inevitable, par- ticularly if restrictions against Germans and Austrians are removed. SEBBIA. lU'ltintilr. — It is estimated that 5,000 persons desire to proceed to the United States within the next six months. There are many nioi'e perstjns. who are Russian refugees and fni-mer enemy sMdiers. SPAIN. YahncUi. — Emigi'ants from this district apparently without undesirable ten- dencies, but apjtear to have no infent'ou of becoming American citizens. Viyo. — Spanish press reports are discouraging to emigration, as tliey ai-e pointing out the bad labor conditions in the United States. Cou.sf(iiiti)ioi)le. — While there is at the present time no congestion of persons waiting transportation to America, there are thousands <»f Russians recently evacuated from the Crimea hoping to procure permission to make the journey. There are also some 25,000 persons of local lower clas.ses who, if they can procure funds, contemplate to emigrate to this country. There are doubtless many more than this number in the interior who are unable to make the journey at this time, due to abnormal conditions. The almost unrestricted innnlgration under the present regulations of able- bodied persons will make dangerous complications in the labor conditions of the United States. Not only would it aifect the United States, but in addition it will deprive the Neai- Ea.st of its raw labor supply, and therefore retard by years the rehabilitation of countries and affect the economic situation of the world. Seventy-tive per cent of present api>licants are fleeing from taxation and war conditions. Their obvious intention is to engage in petty businesses upon arrival in this country, being petty middlemen by profession. Existing local conditions would force these people to work into the ranks of labor if they were not permitted to emigrate. They should be obliged to remain at home and assist in repairing the destructi(»n \\rought by war, if world conditions are to be improved. American prestige abroad has been seriously injured by the travel of natur- alized but unassimilated persons of foreign origin. ^ One-third of the.-^e Ameri- cans are uuable to speak English intelligently and are u.sually the ones who are wrongly involved in cases requiring protection. Trieste. — It is contemplated that there will be no material change in the num- ber of applications in the following few months. De.spite iiresent system of consular control, it is impossible to prevent labor agitators, criminals, and other undesirables from obtaining vises. Malta. — The class of emigrants belong to .skilled and unskilled workmen. The skilled workmen come mostly from the British dockyards ; the others are largely farm laborers, cabmen, and small traders. Warsaic. — It is estimated that persons waiting for visSs at the present time will be in excess of 400 per diem. At least .3-50,000 Polish .Tews and Poles are preparing to ijroceed to the United States during the current year. Some esti- mates place the total at 500.000 and 1.0(K),000 as the number of persons who may emigrate. This is due to filtration of persons from the newly acquired territory of Poland. T,he emigration of this number depends upon their ability to obtain fluids from American relatives or associates, steamship accommodations, etc. The per ' b»'»'n Inuiid in the posst'ssinn nf uii- iiuthorizcd individuals. C»tH'iili(i{/cii. — Tilt' iniiiiltei- of persons who liavc hocii .uranlcd vises l)y the United Slates in the present year plus those estimated for the remaining por- tion will amount to about 0,500. There is a very heavy travel from Poland by way of Danzijr and tl-e P.altic States to the East. It is estimated that each ship sailing,' from ('openliaf,'en to the United States carries from 200 to HOO I'oles who are practically all of the .Tewish race. The travel is practically only lim- ited by the capacity of the vessels, and the ojiinion has been expressed that this pas.senger movement could easily be doubled if sullicieni accommodations were afforded. Pon-s.— There are at iiresent some 3,000 eastern Europeans in Paris waiting an opportunity to emigrate to the Uuiietl States. It is impo.ssible to estimate the number from other sources wiio wish to glats. They are not over- intelligent, but their almost total lack of education nnikes them appear more stupid than they are. A smaller proportion represent a not too de.s.irable cla.ss of .iourneymen arti.sans more or less skilled in their trades. These are young hachelors who make periodic visits to the United States for a few years with the intent to save their money to return to their mttive village an(l live in idleness until it is .sjtent. when they go again. This class has more education and forms susceptible material fol- subversive socialistic pmpagamMi. Barbers, wheelwrights, carpenters, waiters, fishermen, blacksmith.s. metal workers, tobacco pickers, etc., make up this class. The proportion of educated persons is very small and is drawn principally from the Jewish population of the city of Saloniki. Socialist propaganda of a decided bolshevist color has made considerable .strides in Macedonia during the past year. Gradual relaxation of the present emigration restrictions by Balkan Governments has increased the present movement of persons to the United States. EMERGKNCY IM.MIORATIOX Li:(MSLAT10N. 21 HUNGARY. Budapest.— AUeuH emigrfiting from this district appoar to be of no special class, occupation, or trade. JUGOSLAVIA. Zagreb. — Emigrants from tliis district are of a desii-al)le class, being bard- working peasant farmers free from taint of bolshevism. anarchism, and other undesirable traits. Later when the restriction is removed from those having served in the Austro-Hnngarian army the class will become less satisfactory, many having been prisoners of war in Russia. NETHERLANDS. Rotterdam. — Rotterdam is the princir)al outlet for emigration from Holland, the Baltic States, Luxemburg, Finland, Lithuania. Lettland. Germany, Poland, and Switzerland, as well as a large outlet for emigration from Czecho.slovakia. Hungary. Austria, Rumania, and the Ukraine and other near eastern countries. Something like nine-tenths of the emigrants leaving this port for the United States are Poles or come from Poland, and of these at least nine-tenths are Polish Jews. The proportion of these people infected with disease is very large, but perhaps the worst featui-e of their sanitary condition is that most of them are infected with lice and other vermin, which become a highly dan- gerous menace to tlie health of the United Statesin view of the typhus situation in Poland. All of them are first-class carriers of smallpox, now raging with iniusual virulence in Poland and north Europe, and all of them also are potential carriers of cholera, which also is spreading through Russia and adjacent countries. Politically most of these people are refugees. They are largely withont any political principles or convictions, are entirely without patriotism, and are usually evasive, dishonest, and incapable of appreciating any responsi- bility toward any government. A large proportion of the young men are anxious to get out of Europe to avoid military service, and a large proportion of the families represent relatives accompanying them. A very large pro]iortion of this entire movement is " assisted Immigration." i. e.. the emigration of relatives of people now in the LTnited States who sail either on tickets furni.shed by such relatives in the United States directly or purchased with money furnished from the United States. Educationally the great mass of these people can just manage, largely as a matter of instruction received immediately before their departure or on route, to sign their names and scrape through under the tests applien would be purely voluntarily, i. e,, in no wa.v assisted by relatives on the other side. The " assisted " classes constitute so large a proportion of the emigration now moving because of their ability to invoke and use the influence and assistance of relatives or organizations* here or in the United States to enable them to secure passage on steamers for the United States whereas the unassisted or voluntary emigrant is usually without that assistance and is unable to compete with them for accoininodiitioiis. At the pi'esent time and under present regulations we are mostly getting people fit for no other work than tliat of laborer or work of the lowest grade, many of them in fact, narrowly escaping the provisions of the law against being liable to become public charges and that only ou the basis of assistance from relatives in United States. The worst cl.-iss of emigrants from Europe at the present time, eliminating tlie que.s- tion of bolshevism or political undersirability, is of the assistetl clas.ses — the relatives of Polish Jews. Poles, Rumnniaus, Lithunnians, Letts, and so on, who are enabled to reach the United States through the direct financial assistance of sucli relatives. It is quite apparent tliat the. proposed law proliibiting all emigration to the United States for a period of say two years except of relatives of persons already in the United States will have the immediate effect of increasing the number of undesirables going to the United States since it will render available for such classes that i»roi)ortion of the stejim.ship accommodations available or .soon to be available which would be talven by other and more desirable classes. It would, in fact, confine emigration from this part of Europe almost solely to tlie undesii'- able classes. On the other hand tliere is no probability that it would actually reduce the number of emigrants going to the United States for there is every reason to anticipate that the number of emigrants departing for the Unitele Avere thrown into jail for preaching dislo5'alty, we are hearing from it to this day. Senator Phelan. Do steamship companies stimulate immigration to this country ? Representative Johnson. The report from Rotterdam indicates that steamship companies are stimulating it, and that they are mak- ing arrangements for additional facilities, Rotterdam being one of the outpouring ports for all that section. Senator Phelan. Don't you think a plan by which an inspection would be made on the other side would be helpful? EMEKGEXCY I^MMIGEATION LEGISLATIOX. 33 ReiDresentative Johxsox. Such a plan was offered in one bill but not thoroughl}' perfected. This bill at one time had a voluntary registration system, intending to open a registration system begin- ning with first entry into the United States. Senator Hakkisox. Have you told the committee what feiitures were cut out in the House ? Representative Johxson. No; there were few. But the period of suspension was shortened from tw^o years to one year. The bill specifies who are covered thereby and specifies the exemptions and carries out the war passport system. There are some provisions as to visitors between Canada and Mexico. This bill provides a sus- pension to serve in the present emergency. Senator Phelax. What is the condition as to Canada and Mexico? Representative Johxsox. Aliens who are now admissible and who have resided continuously in the Dominion of Canada, Newfound- land, the Republic of Cuba, or the Republic of Mexico for at least one year may be temi^orarilj^ admitted for a period not exceeding six months, which is renewable on application. The Chairmax. That would not allow Mexicans to come over unless they passed a literacy test ? Representative Johxsox. No ; and pay a head tax also. The Chairmax. That is, they must conform to the provisions of the present law ? Representative Johxsox. Yes. The House committee has gone on record that under no circumstances, if the law is to be made for the United States, should broad exemptions be made for one State or group of States, or for any j^articular industry. It can not be made that way or it falls down. The great trouble our committee had in presenting such a bill — even though this was carried by about 7 to 1 in the House — 295 to 41 — was that we found an increasing tendency upon the part of our people to have common, household, or factory labor, serf, if you please; and so many of the States had come to the point that while they want that labor to be always working they do not Avant them to become naturalized citizens. The appeals that I receive in the committee room for a much longer period of naturali- zation are numerous, but I am firm in the conviction that the United States makes a mistake to increase the number of people in the United States that do not take part in elections by ballot and take part in the Government as we do. It is fatal in the long run. When 3'ou find great nests of them in the cities and in the smaller places not coming into naturalization, not invited and not helping in the government, we can not be surprised that they join communist parties and that they believe when they are told that they can take part by direct action. The Chairmax. In the part of the country I come from the politi- cal leaders get hold of those people. Representative Johxsox. That may be true of some places. Senator Phelax. What is the head tax ? Representative Johxsox. $8. Senator Phelax'^. That applies to all? Representative Johnsox. Yes, sir; $8 for ever3^one — man, wife, and child. 26911— 21— PT 1 3 -K 34 EMERGENCY IMMIGRATION LEGISLATION. Senator Harrison. You spoke of an interest in some countries to pfet rid of the undesirable element. Don't _you think the best invest- ment the ITnited States could make would be not only to not allow them to come in but fjet rid of that kind who are in? Rej)i-esentative Johnson. I do. But in rep;ard to deportation, the United States (Tovernment bends backward to be fair to all people. All that we have de]iorted in 10 years has been 27,000, I })elieve. Senator Piielan. This applies to all alike. Representative Johnson. Yes. I am very much oblifjed to you, Mr. Chairman and frentlemen. The CiiAiRiMAN. The committee is A^ery much oblifijed to you, Mr. Johnson. Mr. Siegel, who represented the minority in the House committee and filed a minority report, is unable to be here to-day, but can be here to-morrow or next day. The committee are quite anxious that he should also be present and that we hear him. The applications for hearinii: naturally divide themselves into, perhaps, economic objections and racial objections. I think it will serve to shorten the hearino; if we can take up the Mexican labor situation next. Senator Harrison. Is it the intention to fix any date for the clos- ino; of these hearings ? The Chairman. I do not want to act without tlie sanction of the committee. There are some people who are attending here at great inconvenience and, of course, would like to be heard as soon as pos- sible, and, at the same time, I know the situation confronting Sena- tors and the condition of public business and how difficult it is to remain very long in session. The question is whether we should not have an afternoon session to-day and then come back to-morrow morning at 10.30. Senator Harrison. What T was driving at was whether we could fix a day for closing the hearings and then decide whether or not we would report out the bill. The Chairman. I think that is a very proper suggestion, but I do not believed we could do that to-day. I have tried to indicate that this is an emergency matter and that the testimony should be limited to that, and therefore the hearings ought to be comparatively short. Senator Harrison. I thought we might take action for each group to select a representative; and if we fix a time to close the hearing that could be arranged better. If we go along for three or four weeks it will be too late to pass anything in the Senate. The Chairman. If I have anything to do with it, it will not go along in that way. Senator Harrison. How many want to be heard? The Chairman. I do not know exactly. As suggested, we might have one or two representatives of each class. Suppose I call Mr. Knox at this time, representing the Arizona Cotton Growers' Asso- ciation. Senator Fletcher. The Miami Chamber of Commerce and people of that community have a representative here who wants to be heard very briefly on the question of permitting, temporarily, at least for six months, the Bahama Islands peoide in order to cany on their vegetable growing operations. In addition to that the Tampa people have a delegation here, some six or eight who would like to be heard, EMERGENCY IMMIGRATION LEGISLATION. 35 or some one or more representatives of them at least, on the question of admitting the Cubans, who are skilled in the cigar industry. These gentlemen are all here and at j^our service, and if you will signify when you can hear them, I shall be giad. Senator PIarris. I suggest that at 2.30 we resume and then hear Senator Fletcher's people. The Chairman. Without objection, the committee will now recess until 2.30 p. m., when we will hear the gentlemen in accordance with Senator Harris's suggestion. (Thereupon, at 12 o'clock noon the committee recessed until 2.30 o'clock p. m.) AFTER RECESS. The committee resumed at 2.30 o'clock p. m., pursuant to recess. The Chairman. The committee will come to order. Senator Fletcher has a statement to make. Senator Sterling. Mr. Chairman, since I am oobliged to leave the room in a moment I would like to call attention to an article ap- pearing in the New York Herald of January 3 entitled : " Can see no enormous exodus from Europe to America this year — New York Herald correspondents find no basis for Wallis's statement that 15,000,000 are now planning to emigrate from continent and British Isles to the United States," etc. And while I have not gone over the article carefully, I think it would be well that it be considered, and I offer it for the record. The Chairman. Is it the sense of the committee that this article be put into the record ? (It was. the sense of the committee that the article in question be placed in the record, and it is here printed in full, as follows:) [New York Herald, Jan. 3.] CAN SEE NO ENORirOUS EXODUS FROM EUROPE TO AMERICA THIS YEAR — NEW YORK HERALD CORRESPONDENTS FIND NO BASIS FOR WALXIS'S STATEMENT THAT 15,000.000 ARE NOW PLANNING TO EMIGRATE FROM CONTINENT AND BRITISH ISLES TO THE UNITED STATES GERMANS FAVOR SOUTH AMERICA ; POVERTY AND EXCHANGE OBSTACLES MOVEMENT FROM FRANCE IS EXPECTED TO SHOW A DECREASE AND FEWER THAN 400,000 .TEWS ARE HEADED WESTWARD, WHILE STEAMSHIP FACILITIES ARE LACKING TO CARRY GREAT HORDES. Estimates made by F. A. Wallis, United States Commissioner of Immigra- tion af tlie port of New Yorli, that l.'),000,000 Europeans were preparing to emigrate to the United States are not borne out by individual surveys by European correspondents of the New Yorlv Herald. Mr. Wallis estimated that Italv was preparing to send .'i.OOO.OOO of her people to the United States and Germany S.000.000. and that 5.000.000 European emigrants were already packed ready to leave their old homes for America. Since that the House of Representatives has passed a bill prohibiting immi- gration for one year. The Senate is expected to act shortly on the measure. The New York Herald correspondents found that many p]uropeans wanted to emigrate, but that the totals by no means reached the proportions visual- ized by Mr. Wallis. Meanwhile two factors check this tide. They are, first, the position of European exchange, which makes it impossible, because of their poverty, for a grear majority of these would-be emigrants to pay for a steaniy ship ticket or to pass the United States immigration requirements, and, second, the lack of steamship facilities. The principal steamship agent in Berlin says that from the eight chief north European emigration ports the steamship companies have facilities for tran.sportiug no more than 350,000 steerage passengers in a year. Also it was 36 EMERGEXCY IMMTGRATIOX LEGISLATIOTST. found tbfit hatred of the United States was turninj; thousands of Germans to South America, and that the German exodus to the United States would he rela- tively small. French emigration experts estimated that fewer than 400,000 European Jews, chiefly from Ressara^m, Poland, and the Ukraine, which form the bulk of the emigration tide, were headed this way. CONGESTIOX NOW IX OKKXrAN POKTS — T'MTED STATKS HATRKD AFKKCTS HOME CHOICE. (By Raymond Swing.) New York Herald Bureau, Berlin, •Jminary 2, 1921. Even in the event 1.1,000,000 Europeans are anxious to emigrate to the United States, only an inconsiderable proportion of this numl)er could be transported there for several years to come, is the view of men who are in a po.sition to know the emigration and sliipping situation in northern and central Europe. It was said tliat there were 50,000 steerage passengers in Rotterdam await- ing transijortation to America, and that prol)ably there were a third of that numl)er in Antweri) awaiting a chance to leave there for tlie United States. This is the only emigrant congestion reported liere. The highest estimate placed on possible emigration from central Europe to the United States was that by an official of the American State Department here, who said that the emigration problem had reached a stage where nearly 3,000,000 of the "most undesirable peoples of Europe" might be dumped into America. Meanwhile, the Holland-America and the Red Star lines are booking steerage passengers from their European ports of call to the United States for vessels leaving these European ports late in February. The eiglit north European ports from which emigrants go to America are Rotterdam, Antwerp, Copenhagen, Stockholm, Chiistiania, Hamburg, Bremen, and Danzig. "All told, not two dozen stejimship?* touching at these ports are availalile for steerage passengers, and these vessels are able to transpoi't not more than .3.50,000 such steerage passengers in a year," INIr. Peters, the leading American steamship agent in Berlin, told The New York Herald corre- spondent. "All the lines from Europe to America probably would not be able to transport more than a million and a half of these passengers a year." The congestion in Rotterdam and Antwerp is due almost exclusively to the exodus of Polish .Tews reaching Holland through Germany, he said. " In these countries, where living conditions are severe' and where there is constant danger of war, tliere may be millions of persons who wish to emigrate," he continued, " but the deflated currency make travel impo.ssible for them, and, furthermore, there is not enough tonnage." A steerage ticket from Rotterdam to Ninv Y''ork costs 7,000 German marks, and a man with a family needs nearly .50.000 marks to reach the other side of the Atlantic. The currency east of Germany is more worthless than that ot Ger- many. " Emigration being economically possible, 5,000,000 or 6,000,000 Germans might leave the fatherland in the next 10 years." said Dr. .Tung, president of the German Emigration Bureau. " \Yhile it is impossible to make an estimate of tli(> inunher that will actually go to America, I do not believe that more than l.dOO.OtMl or at most, 2,000,000, will cross the Atlantic. Of these I believe a great majority will go to South America. "The chief exodus. I think, will be from Russia and the Balkans. At least, the desire of the people there to emigrate is more general than it is in Ger- many. Inderd. the feeling of many Germans against America still survives to deter them from a choice of the United States as their future home. This I find in many letters of inquiry addressed to me. " Even when the passport jparrier is removed I do not expect a great ('migration movr-ment from Ger- many to the United States. The Germans who go tlH>re will be chiefly those who have relatives in America who will help them with tickets." About 10,000 Germans have gone to South America since the signing ot the armistice. Steamship companies are perhaps more careful now than ever before in accepting emigiants for the Uniied States owing to the requirements of the EMERGENCY IMMIGRATION LEGISLATION. 37 United States immigration laws and the certainty that if these emigrants are l)arreti the steamsliip lines will have to bring them back to Europe. Strong efforts are being made to keep radicals and anarchists ont of the United States, but according to innuigration officials here this is next to im- possible, as applications for passports can not be investigated carefully enough to bar all undesirables. Meanwhile grafters are preying upon ignorant persons who would leave European ports for America. These men assert that they can, for a fee, assist an emigrant to get a passport. Some of them are reaping a rich harvest. MERE FANCY, IS FRENCH VIEW — .lEWS TURNING TO P^i-K.-sflNE. (By Lawrence Hills.) .\i;w V()i;k Hkham) ISikkai'. /V/r/.s'. Jo 11 11(1 ry 2. Immigration authorities and (tfticials of iuniiiiirant slielt<"r organizations here consider the estimate by Ellis Island authorities of l.">,on<).();i(> Europeans being bound for America as a wild flight of fancy. Indeed, they expresses! doubt whether one-tenth of this number of immigi-ants wouhl try to enter the United States during the next live years. Even of .lewish emigrants, which is adniitteilly the largest group to go from European countries, far fewer are expected to go to America during the next 12 months than went there last year. It was said that fewer than 400,0(»n .Tews from all countries were prei)aring to leave the Old World for America when they were able to get their passage there. The exodus of Jews is piincipally from Bessarabia, Poland, and the Ukraine. Jacques Shapiro, head of the Hebrev>- Sheltering Immigr;:ut Aid Society, with headquarters at IG Rue de la Mariiek. told a reporter for rhe New York Herald that the Jewish iunnigrant problem had assumed a new asiiect since the opening of Palestine to the Jews. " ^^'e had envisaged a million Jews seeking refuge in the United States from persecution," he said. " but now it is certain tliat a majority of those in the T'kraine will go to Palestine as soon as the Ukriiine's borders are opened. Not a single Jew will be left in the Ukraine once the migraticm connnences toward the Near f^ast. Already our society is arranging to send -li),(K)'J Jewish children who were ori)lianed in the I'kiaine ixigioins ftran tiie Ukraine to eifhei' Palestine or to Argentina." Mr. Shapiro's bureau is taking care of on an a.vera.ue .")i)L! iiev. immigranr ca.ses daily, he said. 90 per cent of which arrive in Palis without funds and with only the most meager informatioi! ivgardiisg tiieir !(>!aiives in the United States, who are exi)ected lo i>ro\ide f«.r them. Most of (hert a constant increase in the number of requests for vise of passport.s, most of the applicants ct)nung from the Balkans, while Greek emigration was said ti) be less than it was before the war, Polish and Lithuanian emigration is moving chietly through Danzig and Lem- berg, where the emigrant agencies are thronged every day, but through other European gateways the foreign exchange rate situation permits only a small peii'entage of emigrants to America t,(>iK), iiicliulinK rlioso ;iln':i»l.v in tlit> riiitod Slates. In s(» far as Austria, Hungary, and Serbia are coneerned, inunigration ofti- cials lierc say tliat it would be sale to say that praftically the entire )toiiulations " lire anxious to K<> to America or anywhere else whore tliey could get food, Init they will not be able to get out of Ii^urope for many years to come." The i'aris police assert there are at least 150,fX)0 foreigners now In this city who had intended to go to America, but are unable to find the neeessary funds, oi- else have been rejected by the eujbarkation inspectors, MoltK lllUroNS (,()IN(; HOMh: FUOM I'M III) STATKS THAN AKK CO-MIXt. W KSTU AK1>. Nkw VoiiK Hkkai.d I*>Liu;Ar. IjOVilon, .ftiiinarji 2. There is no arciii iiuuinii tide troiii llir Uritisli isles striving to reach the United States. Altlmugli the last otlicial iigures lor the nine months e:iding September oO, lUi'O, give 1(»4,441 eiiiigraiits, of whom (55,252 were Rritish, sail- ing for the I'nited States, there was during this ))eriod a return immigration into the British isles of 9(),530. Since then reports from American consuls indicate there has b> en a further heavy falling oft" of applications for passports. Meanwhile steamship companies are held up for steerac'e acconmiodatloiis. bur this is due largely to liu.ssian, F'olish, and IJaltic .lews and for Scaiidinnviaii i)assengers tlirough England from northern Europe. While no figures are available regarding- these transients, it is estimated there are several hundred tliousand of them. Although British ports are thus sharing the pressure wiiidi is l)eing placed on Antwerp and Amsterdam by tliese refu- gees from Bolshevism and starvation, the .solid, industrious English-speaking iiterntes, who oftentimes are skilled workers of England, Scotland, and Ireland, are not leaving home. Excepting the Irish and to a lesser degree the Scotch, they have never been emigrants: and it was with a distinct shock that the House of Couunons rect-ntly heard Premier Lloyd-George say that the economic situation, with more than a million workers in excess of what there were before the war, might necessitate emigration. However, the premier was careful to specify that it would be emigration with the Empire, and thus the workers would not be lost to Great Britain. Tlie reduction in the number of British applications for passports reported this autunm and winter is regarded as strictly seasonal. The coal strike marked the beginning of hard times and to-day thousands of able-bodied men are parading the streets of London demanding work. Labor authorities esti- mate that more than a million and a half persons are absolutely out of work and that 5,0(»0,000 workers are working on reduced time in England to-day. American machinvm a favtor. — Aside from the real falling oft' of business, there are two reasons for the unemployment here. The million more workers than in 1913, of wliom Premier Lloyd George si)oke, typities the slackness that has come aftcsr the superhuman efforts made during the war, in which millions of men fought and during which industry was carried on at a pitch never before known. The industrial pitcli was raiseuildings, and employing efllcient meth- ods. England's gi-eatness in manufacturing, and particularly in the small plants manufacturing textiles and the engineering trailes, rested on faithful, [ilodding, underpaid British labor. The laws permitted free importations, manufacture was clieap, and the product of this manufacture was distiibutetl and sold throughout tlu; world by a banking and .sliipping system founded on generations of special training. This was the industrial elTiciency Germany began to challenge successfully in 3913. To-day hardly a stone of that prewar industrial edifice is intact, but unemployment has resultetl, and to-day out-of-^vork doles from the imperial treasury, the subsidization of unemployment insurance, and direct dealings between the Government and the coal and other strikes are accepted as a matter of course. Meanwhile the Germans, with their low prices and depreciated currency, are winiung temporary victories over the British in machinery and electrical mar- EMERGENCY IMMIGRATIOX LEGISLATION. 39 kets and are making headway in Russia in tlmt world's next great Eldorado for traveling salesmen. And if Germany can not keep up this competition there is a new factor in the world's markets. It is a tall, gaunt figure, with unending natural resources and a wealth not essentially impaired. He is commencing to catch up with his domestic demands, and has a huge ne^^■ fleet of merchant ships to play with. That is the intelligent Briton's view of " ITncle Samuel." They recognize him as a rival, and there is not the slightest disposition, either among statesmen or prospective emigrants, to help him with British brawn to rival the homeland. Ireland would aid Uncle Sain.—The one exception is Ireland. They would be glad to help "Uncle Sam," but .iust now they are supremely concerned with " dark Rosaleen." Walking into tli«' office of F. J. Dumont, American consul in Dublin, the first thing that greets the eye on the stair landing is a bilingual proclamation informing all Irishmen that they can not leave Ireland without obtaining the approval of the minister of the interior of the " Irish Republic." It is signed by the Dail Eireann. Mr. Dumont said he had never seen it and never would. " It is off my part of the hall," he said. Mr. Dumont lives in the worst n<» man's land in Europe to-day, in Sackville Street, Dublin. , . , r„x. But that little proclamation has kept thousands of Irishmen in Ireland. The Sinn Fein believes that England hysterically conspires to encourage Irish emi- gration to make Ireland a vast cattle ranch, and would let the Irish go wiiere they can. The Sinn Fein plans include the development of small agricultural holdings first and then the development of industrialism in order to support a population of 8,000,000, which Ireland had a hundred years ago, instead of 4,500,000, which she has to-day. Lately, however, there has been a heavy increase in the number of male emigrants as compared with women. There is little appreciable change in Scotch emigration, which is running, as usual, about 15,000 a year, representing the best type of skilled laborers, ship builders, domestic servants, and housewives. Glasgow, Scotland's largest port, has few refusals of passport applications. In Birmingham and Livei-pool, repre- senting the Midland manufacturing district, where the depression due to unem- ployment and loss of savings has been great, emigration has shown an increase. Reports from Wales indicate the same effects there as a result of the reduc- tion in mining, although Cardiff shows a heavy proportion of non-British appli- cations for passports, these applicants being seamen of nationality other than British. There is one element which is probably working strongly against British emigration to the United States, and that is prohibition. Persons here coming in contact with prospective emigrants report that many of them will go to Canada and Australia because of their inability to get their accustomed beer and spirits in the United States. IMMIGRATION FLOOD REPORT IS EXPLODED — GEX. DV PONT SAYS TALK OF MILLIONS COMING TO L'NITED STATES IS WITHOUT FOUNDATION. In Statements issued yesterday by T. Coleman du Pont, chairman of the board of directors of the Inter-Racial Council, and by Miss Frances A. Kellor, vice chairman, the proposed legislation restricting temporarily the flow of immi- gration to this country is criticized. Gen. du Pont maintains the bill that passed the House and is now before the Senate " fails to apply scientific principles to immigration," barring for a year or more able-bodied laborers who will be needed by the country's incfustries as soon as there is a recovery from the present slump, but at the same time admitting thousands of dependent relatives of aliens already here. He says an adequate staff enforcing the present restrictions would remove the dangers of ultraradicals getting into the country without enacting further legis- lation. If the present laws excluding applicants on mental, moral, physical, political, economic, industrial, and educational grounds are not enforced fully, what benefit will further laws be? he asks. The Italian Government, in view of the proposed legislation, is sounding the State Department with a proposal voluntarily to withhold vis§s from the pass- ports of Italians intending to emigrate to America, according to Miss Kellor, and at the same time is making treaties to direct its emigration to Brazil and other countries, where it feels its nationals will be more cordially received. 40 EMERGENCY IMMKJRATION LECJISLATION. Geii. l)u Tout .sta(i>s tliat lalk of Ironi ir),0(),O,()00 to 25,000,000 linmi},'rjintK for tliis fount ry in the next few years is witiioiit foiiiMlatioii. If would tai vohnne of emigration to America if, after a conscientious and liberal minded investigation, that step is found to he in keeping with the best interest of the nation. " Such an investigation sliould be instituted at once and carried out under the direction of a nonpartisan commission which will look over the field botii in America and in Europe, studying the subject from all of its angles, scientifi- cally, with a view to evolving constructive policies. Immigration is too im- portant a subject to permit of our rushing pell-mell into a program of restric- tion without proper consideration of the consequences of our legislation. "The council recommends principles of legi.slation which will consider selec- tive immigration as one important aspect, and yet but a single aspect, of immi- gration. It suggests legislation that will provide for the effective distribution of immigrants, an intelligent policy of assimilation, the establishment of ))roper facilities for those entitled to naturalization, who in large number find very great difficulty in securing the privilege they have earnestly earned. All these should be integral parts of a single policy. " We can not continue to interpiet immigration in terms of prejudice and intolerance. It is a question for patient study and investigation, for it is clo.sely bound up not only with our industrial prosperity hut with our civic and social development as well." The Chairman. Senator Fletcher has a statement to make. Senator Flktchior. Mr. Chairman, may I state that Mr. G. S. Fletcher appears for the Florida East Coast Growers' Association, and I have a tele^jraTn from the Florida East Coast Growers' Asso- ciation (Inc.) as follows: Our Mr. G. S. Fletcher left to-day for ^\'ashingtoll. \\\]\ arrive Sunday morning, registering Hotel Raleigh. He h;is stuiction from .Miami Cliamher of Commerce, Rotary Club, and growei'S of lower east coast of Florida to extend his best efforts in securing amendment to inunigrati(»n lull now before the Senate relative to Bahama lal)or being admitted. Your assistance to Mr. Fletcher will be liighly appreciated. I will ask to file that teleo;ram with the se^'retary of this com- mittee, Mr. Chairman. And then I woidd call the attention of the committee to an amend- ment which I offer to the hill, referrinoj to the Bahama Islands: On page 9, line 1. after the woi-d "Cuba," insert the following: "Bahama Islands." I will fih' this proposed amendment with the committee. Xow, Mr. Fletcher desires to l)e heard on this subject, oentlemen. EMERGENCY IMMIGRATION LEGISLATION. 41 STATEMENT OF MR. G. S. FLETCHER, MIAMI CHAMBER OF COMMERCE, MIAMI, FLA. ^ ' Mr. Fletcher. Mr. Chairman, we have a very peculiar situation I on the east coast of Florida, a situation which I think is not paral- ' leled anywhere in the United States. The CHAiLiarAX. Mr. Fletcher, the Johnson bill calls for the tem- porary suspension of immigration. Mr. Fletcher. Yes, sir. The Chairman. I understand that you oppose it in its present form; that is, you oppose the Johnson bill? Mr. Fletcher. Yes, sir. The Chairman. And therefore you will give your reasons for op- posing the bill in its present form ? Mr. Fletcher. Yes, sir. And our reasons are as follows : The first crop of vegetables on the east coast of Florida was put in approxi- mately 25 years ago. and it was grown by the labor from the Bahama Islands, and the last crop was grown and harvested by the same labor from the Bahama Islands. It takes approximately six months to grow and harvest this vegetable crop, commencing the first of De- cember and finishing the first of May, and it is utterly impossible for us to get any other class of labor to do this work than the Bahama Island laborers. NoAv. they get over there in the Bahama Islands about 75 cents a day for their work. We ])ay them $2.50 to $H a day. They come over to Florida and work for us for six months and make more money during that six months than they make in the Bahama Islands dur- ing a whole year, and the 1st of May, when their work here is fin- ished, 99 per cent of them go back. They would not stay here; they go back home. Hence we can not get labor from any other section of the country to come there for just the six months — that is. the spring of the year — when the laborers in the different sections of the coun- try are preparing their own little farms. Their expenses in coming down there and staying for just those six months would be approxi- mately $200. Hence they have never come, and the labor from the Bahama Islands does not come in competition with any other labor. In fact, if we shoidd fail to get this labor from the Bahama I.slands the vegetable business will go out of business. It is utterly impos- sible for us to get any other labor to come down there and do this work. We have tried it. When Ave ha\'e tried to get other labor they said. " We can not come doAvn and Avork for six months." Xoav. these islands being only 1-iO to 150 miles from Miami, furnish us all the / labor that Ave want, and this arrangement is satisfactory to them and / satisfactory to us. ^ NoAv. I have been in the business there for 11 or 12 years, and I have never heard of anyone of them causing any trouble. They are law-abiding people. The}' do not sympathize with the unions. There are no radicals among them. Now. I wish to say. Mr. Chairman, that Avithout these laborers, the^ farmers, the bankers, and the merchants Avill suffer the loss of millions I of dollars. /^ 42 EMERGHNCV 1 MM Kil'.ATlOX l.E(MSLATIOX. Senator Dilli>;(;ham. Let Jiie ask you this question? What is the extent of that gardening iniUistry? Mr. Fletcher. Why, we liave, sir, about 12,000 acres, and we have to have anywhere from 4,000 to 6,000 of these laborers from the Ba- hama Ishmds to carry on this work. Senator Joiixson. That is the total acreage of j^our State devoted to that i Mr. Fletcher. Yes; on the east coast of Florida, in the three counties of I'alm Beach, Brevard, and Dade. Senator Johnson. And j^ou have how many men coming there from the Bahama Islands? Mr. Fletcher. About 5,000 to 6,000. It will average that. But I would like to impress this fact upon you, that it is utterly im])ossible I to get any other laborers to do this class of work. The Chairman. What nationality are they? Mr. Fletcher. They are British subjects. And their labor comes in competition with other labor, and without their labor this business can not exist. Senator Fletcher. Will a^ou explain, Mr. Fletcher, the nature of that business, please? Mr. Fi^TCHER. Yes, sir. Xow, this could be classed as expert labor for the simple reason that it takes men who have had years of experi- ence in planting, cultivating, and harvesting this crop to do this work, and particular!}' to harvest the crops so that they are fit for the market. For instance, after we have spent thousands and thousands of dollars to make a crop, then if that crop is not harvested properly, it is a loss. Those fruits can only be picked and are only marketable at a certain stage. And this labor from the Bahama Islands knows at a glance when the tomato is read}'^ to be picked. Consequently it is expert labor in that line. It would be impos- sible to take a laborer who had never worked in that business down there and have him put to work at harvesting a crop. If such a thing were done, it would mean that the crop would be lost, that the man who grew it would suffer loss by reason of the lack of expe- rience of the laborer who was not an expert in that particular line. Senator Dillingham. These men are all Negroes who come from the Bahama Islands? Mr. Fletcher. Yes; they are all Negroes. And they come without their families. We call them Nassau Negroes. I have never seen two dozen Nassau women on the east coast of Florida, and that is for this reason, that they leave their women home. Senator Johnson. How do you get them there ? Mr. Fletcher. They come across from the Bahama Islands to the east coast of Florida themselves. Senator Johnson. AVithout any solicitation? Mr. Fletcher. Yes ; and they have been coming here for 25 years. Senator Johnson. Isn't there any means of contracting with them? Mr. Fletcher. No, sir: we do not contract with them. They come across themselves. Senator Johnson. Don't you deal with any particular individual that farms them out? Mr. Fletcher. No, sir; they come across on the boats of them- selves. EMERGENCY IMMIGRATION LEGISLATION. 43 Senator Johnson. That is, from 4,000 to 6,000 of them come across of their own accord? Mr. Fletcher. Yes, sir ; they come across of their own accord. Senator Johnson, and when thoy come across they are taken up on those farms ? Mr. Fletcher. Yes; and a man that has been coming for years and years — say he has been coming across for 10 years — why, he will . bring other men with him, and so they know where to go to get this work. Senator Johnson. And your dealings are with them individually and not with somebody that takes care of bringing them over? Mr. Fletcher. Yes. sir; our dealings are with them individually. In other words, we are not allowed to deal with them in any other way; we deal with them individually. Senator Dillingham. Haven't you plenty of colored laborers in Florida to do this work? Mr. Fletcher. No, sir; less than 1 per cent of our labor is what we call American labor. Senator Nugent. These laborers that you are speaking of come over from the Bahama Islands on steamships? Mr. Fletcher. Yes, sir; on steamboats. Senator Nugent. Do the steamship companies do anything, to your knowledge, to induce these people to come ? Mr. Fletcher. No, sir; the}' do not. These Bahama Island la- borers have been coming here for 25 years, and they look forward to the time when they are going to come over here to engage in the work of harvesting these crops. Senator Dillingham. "What other crops than tomatoes do you raise ? Mr. Fletcher. Well, that is the principal crop. I will say that out of the 12,000 acres there will be 11,000 acres that are in tomatoes. The rest is in eggplant, beans, and so forth, but that is a compara- tively small amount. The Chairman. You stated, Mr. Fletcher, and perhaps Senator Nugent did not hear your statement, the difference in the wages that were paid them here over what they get at home. Will you repeat that statement of the wages they get in Florida as compared with the wages they get at home ? Mr. Fletcher. They get 75 cents a day at home, and here we pay them from $2.50 to $3 a day for their work. Senator Nugent. There is, however, a corresponding increase in the cost of living, I suppose ? Mr. Fletcher. Yes. The Chairman. How long do they remain here? Mr. Fletcher. Thej^ always go back home about the 1st of May. The crops are picked by that time, and then they leave for home. The Chairman. They remain from three to six months? Mr. Fletcher. Yes, sir; from three to six months. The Chairman. Do any percentage of tliem remain permanently ? Mr. Fletcher. Not more than 1 per cent. The Chairman. That is all, thank you. Senator Fletcher. Mr. Chairman, there is a delegation from Tampa here that wishes to be heard on the subject of modification 44 EMERGENCY IMAIIGRATION LEGISLATION. of this bill so as to except Cuba from it. We ought to permit Cuban labor to come in for the reason that Cuban labor is needed in the ci<2:ar manufacturing industry. And these gentlemen are here repre- senting that industry, and I will not endeavor to make a statement for them, but will let them go into the facts. In addition to Avhat the gentlemen Avill have to say, T would like to say that I have received a few telegrams from citizens in Florida who can not be here at this time, and I have also a set of resolutions passed by the Rotary Club of the city of Miami. If there is no ob- jection, Mr. Chairman, I would like to have the telegrams, as well as the resolutions of the Rotary Club of Miami, placed in the record, the resolutions of the Rotary Club being particularly in connection with the statement of Mr. Fletcher, and these telegrams l)eing in connection with the statements of the delegation from Tampa. (The telegrams, as well as the resolutions presented by Senator. Fletcher, are here printed in full, as follows:) .fAf KSONVILLK, Fl.A., .1(1111(011/ ,?. Iil21. Senator Duncan U. Fletcher. Utiited States Seriate. Washington, D. C: The imniijiration bill now before tlie Senate, if jiassed witliont aniendnient, will do great damaj,'e to the cisar industry of Florida. Many factories at Tampa, Key West, Miami, St. Augustine, and .Jacksonville will be unable to continue operations if the supply of skilled labor they usually draw fi-oni Cuba is stopped. Cuba is the only source from which this labor can be obtained, and alien skilled labor entering from Cuba do not come into competition with unemployed American laboi'ers. Several thousand .skilled toliacco workers who normally work in Florida factories are now in Cuba temporarily on account of a strike existing in factories at Tampa since April. These workers will return soon as strike is ended, which may not be for some months. It is vital to the industry that residents of Cuba engaged in tobacco trade be exemi)t from operation of law. » Geo. W. Hakdee. Harry B. Hoyt. .Jacksonville. Fi.a.. .J((iii((irii J. li>2J. Senator Duncan U. I^'uetcher. Senate Office Building, W'ashinf/toii, D. V.: We note from Associated Press you favor an* amendment to pending inmii- gration bill permitting immigrants from Cuba and near-by islands, and we con- sider it of highest importance to Florida industries that boiui fide residents of such neighboring islands be not includtd in Ibe iir()iM>sed strict iiniilations on immigrants. A. W. COCKREL, Jr.. J'rcsitlcnt .liichsi^iiville Chamber of Commerce. Frank C. Groovkk. I'rcxideiit JiK-kximriUe Rotanj Clidi. .Jacksonville, Fi.a., ■/aiiKari/ .2. I'.riJ. Senator Duncan I'. Fletcher. Senate Office Iliiihlinn. \\'((shiiigti))i. /). ('.: In my opinion it wouid b(» great benefit to the fruit Jiiid truck growers of the east coast and to the cigar industry in Key West. Tamjia. and .Jacksonville to have l)ona-tide residents of Cul>a and Hahamas exempted from pending immi- gration bill, and I hope you will fnicceed in your fight on that line. .\RTnru T. Wn.i.LVMs. EMERGENCY IMMIGEATIO^ST LEGISLATION. 45 Jacksonville, Fla., January 2, 1921. Senator Duncan U. Pletchp;r. Senate Office BniUlivg, Washiiif/ton, D. C: Our people here seem very nnich opposed to passage of proposed iinmigration bill. The cigar industry of this State would be severely crippled by such legislation, in addition to our general objection to the bill. I believe you will do us a big local service if you will oppose bill. Please advise nie your con- clusions. Aethur Y. Milan, President Jacksonville Kiwanis Club. Miami, Fla., December 31, 1920. Hon. Duncan U. Fletcher, Washington, D. C: Our Mr. G. S. Fletcher left to-day for Washington. Will arrive Sunday morning, registering Hotel Raleigh. He has sanction from Miami Chamber of Commerce, Rotary Club, and growers of lower east coast of Florida to extend his best efforts in securing amendment to immigration bill now pending before the Senate relative to Bahama labor being admitted. Your assistance to Mr, Fletcher will .be highly appreciated. Florida East Coast Growers" Association (Inc.) Resolution of the Rotary Club of the city of IMiami with reference to Hou.se of Representatives bill No. 14401, entitled "An act to provide for the pro- tection of the citizens of the I'nited States by the temporary suspension of immigration, and for other purposes." Whereas the House of Representatives of the United States has passed bill No. 144G1, the effect of which, if passed, will prevent, GO days after its passage and for a period of one year, any aliens from coming into the United States, Avhich l)ill is now pending in the Senate of the United States ; and AVhereas there have been engaged in Dade County, Fla., as common laborers upon our farms, groves, and in city work during the last two years an average of 5,000 colored natives of the Rahama Islands, an English possession; and Whereas owing to the lack of other common laborers the prosperity and progress of the city of Miami and of Dade County depends and will eiepend to a large extent upon the labor performed by the feaid natives of the Bahama Islands ; and AVhereas the marvelous growth of this city and county are such as to make it practically certain that the labor of Bahanra natives will be in greater demand each year from this time forward; and Whereas these common laborers in large numbers return each year to their homes in the Bahama Islands after the cropping season in Florida anvl come again to this State for the following season's cropping; and Whereas because they are not American <>itizens said natives of the Bahama Islands after returning to their homes will be unable to return to this city and county GO days after the said bill becomes a law; and Whereas should these workers be i^ermitted to enter the United States they would not come in competition with any ot tlie labor of the United States, as their places have not been filled vid can not be filled except by the same class of conmion labor, of which there is great deficiency throughout the United States; and Whereas there is little, if any, immigration from the Bahanra Islands to the United States, excopring comnion laborers, to be engaged upon the farms, groves, and public work of this city and <'ounty ; and Whereas the intent and purpose, of the jiassage of an act such as the one under contemplation is simjily to prevent a surp'tis of labor: Therefore be it Rcsolrrcl hi/ the Rotary Club of Miami — First. That if said act is passed we strongly urge that the Bahama Islands be excepted from its opeiatiou. so that the alien workers who have heretofore been engaged upon the farms, groves, and public works of this city and county and who are now in the Bahama Islands may be able to return to the State, 46 EMERGENCY IMMIGrATTON LEGISLATION. iiiid sii tlial additional workers who may desire to enter this country to enjiage- in eonunon hdior in tne Slate of Floriiia may do so. We i)eiieve this is neees- sary in order that we may meet the re;ihama Islands. Second. That our Senators and our Kepicsenta fives in ('onj;ress lie re(pieste(l, witli all tlie viiior and ability at their eommand, to use their best elTorts to- have the act amended so as to exclude the Uahaiira Islands from the operation of the propo.sed act. Third. That copies of these resolutions be sent to Senators Fletcher and Trammell and to our Kepre.sentatives in Congress and that copies of the fore- jroinii' lie jiiven to tlie press of the city. Passed bv thi> Rotary Club of the city of Miami on the 30th dav of December^ 1920. John W. Clausskn, Secretary. Senator Fletcher. ]\Ir. K. I. McKay is a lawj^er of Tampa, and he will make a statement. STATEMENT OF MR. K. I. McKAY, ATTORNEY FOR THE CIGAR MANUFACTURERS' ASSOCIATION OF TAMPA, FLA. Mr. McKay. My name is K. I. jSIcKay ; I am attorney for the Cigar JNIannfactiirers' Association of Tampa, Fla., and will speak in the interest of that organization. Mr. Sparkman is the head of a delegation from the board of trade, and, of course, the board of trade is interested generally in the situation, the same as all the citi- zens and all the business interests of the city. This important question is not on]j of interest to Tampa, and is not only confined to Tampa, because there are a number of factories at Key West, St. Augustine, Jacksonville, and Miami that will suf- fer equally with Tampa; but Tampa is the principal place Avhere cigars are made, and therefore this question is of more importance to us, perhaps, than to any other section of the State. I will briefly set forth the importance and the purpose of the amendment we are going to ask this committee to recommend. Now, in this connection it is necessary to outline the extent of the cigar industry in Tampa and the number of men we require in this work,, and the conditions that exist at the present time, and also the im- portance of the industry as a source of revenue to the Government. The industry has been in existence in Tampa for 35 years. It has grown to a considerable size, and during the last four years has ex- panded very rapidly. We now have constantly employed in the factories approximately 15,000 workers of all classes. We have about 10,000 cigar makers. We have ftbout 225 wrapper selectors; they are the people who classify the leaves and grade them accord- ing to texture and shape and size — that is, the leaves that go onto the cigars. There are about 500 packers who grade the cigars after they are made, according to color. They pile them up into about IGO differ- ent colors, and they grade those cigars and put them in jMickages in the boxes so they will present a beautiful and uniform appearance when they are placed on the market. EMEEGEXCY IMMIGEATIOX LEGISLATION. 47 In adition, there are certain skilled laborers who blend the tobacco, who take the tobacco grown in one field or plantation and blend it with that from other fields or crops, in order to produce a good burn and flavor. They are the chefs of the industry. There are also wetters and dryers, who are experts in their trades, and there are in addition from 3,000 to 3,500 strippers, banders and clerks or mis- cellaneous employees, who are really skilled laborers, but not so highly skilled as the others. This latter class of labor can be supplied locally. The stripping and banding is largely done by women, and it does not take such a long time for them to learn their trades. But the cigar-making trade, by the Spanish hand method, which is emploj'ed m the factories in Tampa, is something that has to be learned hj these people in their youth, while their fingers are sup- ple and before their hands have been twisted or hardened by manual labor. The Chairman. Do they come in competition with American skilled labor? Mr. jSIcKay. They do not come in competition with American skilled labor, because the cigar factories in the North, I suppose to the extent of about 95 per cent, make their cigars by the suc- tion-table method ; the wrappers are cut out and they are spread out on a little table that has an air suction underneath that extends them. The fillers are made in molds, and the girls roll them out. Now, that method of making cigars will not do in our high-class industry. That method will not do in making cigars as we make our cigars. There are in Tampa normally about 30,000 people who are em- ploj^ed in the cigar industr}^, or dependent upon those who are en- gaged in that industry; that is, the workers and their families. About 15,000 of them are customarily employed in the factories. And of that 15,000 I would say that approximately 20 per cent are Italians, about 20 per cent are Spanish, about 55 per cent are Cubans, or of Italian, Spanish, or Cuban parentage, and the other 5 per cent are Americans and other nationalities who have learned the trade. That indicates that the trade is not popular Avith the average Amer- ican workman, because it is a sedentary occupation, and such an occupation does not appeal to the average laborer that has been raised in this country, who would rather follow an occupation that takes him out in the open, if he is going to be a laborer. Now, a large percentage of these people learned this trade in Cuba, "where it originated, and it has been the custom since 1885. when the industry was founded in Tampa, for these peoj^le to go back and forth between Tampa and Cuba. They will,come to Tampa and work there for a while, and then they will go back to Cuba for a while, and per- haps work in Havana, and go l)ack and forth. That is caused by the changing conditions in the trade, by the demand for labor in the different places. It is only a 30-hour run from Tampa to Havana. They have their friends and their families over in Cuba, and when times are good and monej^ is plentiful they will go over to Cuba and visit their friends. They are temperamental people. We have got to keep them satisfied. We get along ver}^ well with them. They are law-abiding as a general thing, and we have very little trouble 48 EMERGEXCY l.M.MIGRATIOX LEGISLATION, with them, and if they are treated with proper consideration they make very desirable and industrious citizens in our community. Now, the weekly pay roll in the factories is approximately $eiO0,000. That money is put into circulation in our city and is of benefit to all our business institutions. Our chief industry is the cigar-making industry. The welfare of the merchants and the various other lines of industr}^ is largely dependent upon the continuation of the cigar- making industr}' in Tampa. Since 1900, and up to 1919, both years inclusive, the cigar industry in Tampa has paid to the United States Government $19,'297,323, that being the amount paid into the internal-revenue otlice at Tampa, and the customhouse has produced $32,496,579, or a total of $51,793,902. Our production of cigars started in 1900 at 147,848,000 per annum, and in 1919 our production was 422,795,819. It is the judgment of the members of this association that the cigar industry in Tampa is going to grow, and it is going to require more men, and it is going to pay more revenue to the Government, and that the Government can safely count on $6,000,000 a year from now on as the revenue and import duty paid at Tampa. We have an unfortunate situation there. About every 10 years a strike comes on. This j'ear in April — that is, in April of 1920 — the factories were working to capacity, the wages being paid were the highest ever paid in the industry, the highest ever paid any place in the world where the cigar manufacturing industry is engaged in extensivel}^ the hours were satisfactory; and there was apparently no reason for dissatisfaction or disturbance. However, the strike was called, and the sole demand was for the " closed shop." They made no complaint nor demand as to the hours of labor, the wages, or the working conditions. And that strike has continued until this time, although the factories having closed down at first when they were compelled to on account of the strike have opened their doors and invited the laborers to return. A census was taken in the week beginning the 20th of December, and it was found that 3.277 workers had actually returned to the factories and Avere actually at work. I should say that these fac- tories remained closed until in July, 1920, when they were reopened and offered employment to the laborers. Some exceptionally skilled workers earn as much as $100 to $125 per week, although the average earning per worker is substantially less. Their earnings depend largely upon their skill and diligence. They are paid, with the exception of a few hundred workers, on the piecework basis, and fix their own hours of labor. They have made no complaint as to Avages. hours of labor, or working conditions. Xow, this demand for closed shop could not be met by the manu- facturers for very obvious reasons, and the stand of the manufac- turers was approved by the board of trade, by the Rotary Club, and other civic and business organizations of the city, and the citizens of the city have stood firmly behind the manufacturers. The strikers, however, to further their purpose have induced about 5,000 of those who are normally employed in the factories to go to Cuba and to other places in order to handicap the manufacturers. They have ])aid their way, sent them away, in many instances paying their EMERGENCY IMMIGRATION LEGISLATION. 49 transportation on condition that they would go a distance of not less than 300 miles and remain away until after the termination of the strike.* Many have gone and engaged in other industries. The result is that now we have a demand for approximately 15,000 people in our factories, and we have less than 3,500 at work, and less than 2,500 are in the city remaining on strike who could go to work, and that leaves us with a shortage of from 5,000 to 7,000 work- ers, if everybody in the city capable of working in the factories should return. These people who have gone to Cuba went there in the hope of find- ing emjjloyment, because the factories were operating there at that time. However, since the moratorium was declared in Cuba on October 1, 1920, the cigar factories of that country have been work- ing with short forces, many of them having closed. Because of the prohibitive tariff on tobacco recently adopted b}^ Great Britain, and the unsettled condition of European exchange, manj^ of the Cuban factories will not reoj^en in the near future, as Europe is the chief consumer of Cuban cigars, and so these people are out of employ- ment ; they can not come back to the United States ; they haven't the means of paying their way ; and they have got to dig up the money to pay their way back to the United States in some way, through some kind of labor which they may find in Cuba, and we are pre- cluded, under the present immigration law, from aiding them to come in unless they can get a permit from the Secretary of Labor. The result is that half of our normal operating force is in Cuba, and many of th^i have their families in Tampa, having gone to Cuba leaving their families behind in Tampa, and we have got to get those people back, for our industry will be destroyed. The CHAiR:\tAN. Do they remain permanently in Tampa?. Mr. McKay. Yes, sir; they remain permanently in Tampa. In other words, it is more or less of a shifting population; there is a small percentage that is going back and forth all the time. They are an industrious class of people, they work steadily, although I must confess that a great number of them are not very provident, spending their money as fast as they make it, but they do spend it in a legitimate waj^ Senator Nugent. Perhaps that is one of the reasons why the Eotary Club adopted these resolutions. Mr.* McKay. I will confess that they are necessary to our business prosperity. Senator Nugent. Are the men that went to Cuba Americans? Mr. McKay. They are aliens, mostly Cubans. Senator Nugent. You say their families are still in Tampa ? Mr. McKay. Yes; a great many left their families in Tampa. Senator Nugent. What wages are paid to the white people engaged in this business in Tampa ? Mr. McKay. They are practically all white people. Senator Nugent. I will qualify that in this way : What wages are paid to Americans engaged in this business in Tampa? Mr. IMcKay. They receive the same wages as the others. 2G911— 21— PT 1 i • 50 EMERGENCY IMMIGRATION LEGISLATION. Senator Nugent. What is it, about? Mr. McKay. They are paid by the thousand, dependin^^ on the size of the cigar and the quality of the goods, ranging anywhere from $15 for the \evy cheapest, up to as high as $50 and $00 and $70 a thousand. Senator Nugent. Are these Cubans paid the same price? Mr. McKay. Yes, sir. We have this regulation there in the factories. After the strike of 1910 the board of trade got the manu- facturers and workers together and made arrangement for the workers to select delegates from among themselves, and the w^orkers got together and selected a committee of four members and the manu- facturers selected a committee of three, and the four workmen's representatives and the three representatives of the manufacturers went to every factory in the association, which is composed of 78 factories, and regulated the sizes and prices by agreement, we paying them so much a thousand for making a cigar a certain length and so big around, etc., and then in case of dissatisfaction there was the right of appeal given them. Any workingman wdio was dissatisfied had a right to call on that committee, and they would inspect the work and the prices that were being paid, and when there was a disagreement the board of trade was called in to settle it by arbitra- tion. That had worked for 10 years satisfactorily until this de- mand for closed shop was made ; they couldn't find any other reason for striking. Senator Nugent. I understand from your statement that Ameri- cans will not engage in this occupation to any great extent; that is,, they will not engage in it to as great an extent as these Cubans Avill? Mr. McKay. Yes; that is true. It is a very difficult, hard occupa- tion — it ife a sedentary occupation — and it is difficult for an American to accustom himself to such labor. The Cubans are of small physique,^ and the}'' like that kind of work because it does not require much exertion. Senator Nugent. So if you are not in position to acquire this- Cuban labor the cigar industry in Tampa will be seriously affected? Mr. McKay. Yes; w^e can not get help. There is not enough of such labor, outside of these Cuban workers, to do the work. There are not enough cigar workers in the United States acquainted with the Spanish hand method of making cigars to supply the needs of Tampa alone, even if all the factories were closed; and if we can not get these people back from Cuba, we can not do the Avork. Senator Johnson. How long have these people been with you? Mr. McKay. For 35 years. It was first begun back 35 years ago, and some of them came over then, and since then the colon}' has growm. Senator Johnson. But these w^orkers still remain alien? Mr. McKay. Some of them have been naturalized. I can not tell you the percentage of these people who have been naturalized. Senator eloiiNSON. Are the majorit}' of those that have gone back to Cuba aliens? Mr. McKay. I would say yes. Senator. Senator Johnson. How do you expect to get them back ? EMERGENCY IMMIGRATION LEGISLATION. 51 Mr. McKay. Well, they can make their own way over; they have to make enough money to meet the immigration law requirements. Senator Johnson. Do .you assume that others will come in their places or that these same people will return ? Mr. McKay. I think the same people will return, largely. Know- ing these people as I do, I know that 90 per cent of them would like to come back to work. They have been dominated by a few agitators and leaders, and they have left, and they desire to stay away until the conditions are settled and they can come back and start in again, but they don't care to come back so long as conditions lire unsettled. Senator Johnison. What do you mean by "when conditions are settled " ? Mr. McKay. Well, there is a small organization of perhaps 100 leaders that has kept this strike alive. Senator Johnson. That is, you mean until the strike is settled? Mr. McKay. Yes, sir; until the strike is settled. Senator Johnson. And then when this strike is settled you ex- pect these same men who have been here for these many years with us and who still are aliens to return here, come back here to their jobs? Mr. McKay. Yes, sir. Senator Johnson. And if they do not come, you want others to come in their places? Mr. McKay. Well, we want the door open. We occupy a peculiar position toward Cuba. Senator Johnson. Do you know there is an exception in this bill with reference to Cuba? Mr. McKay. Yes, Senator ; but that would not meet the situation, because it only allows us to bring them in for six months. Senator Johnson. Yes, sir; that is correct. Mv. McKay. Now, I have a suggestion to make, and that is this: That in order that Cuba may not be used as a means by which unde- sirable aliens may be admitted, I have roughly drafted an amend- ment to the bill, which I will give to Senator Fletcher, and which I will ask him to put into proper form. This is' an amendment to section 2, reading as follows : Provided, That this act shall not apply to aliens \vho have formerly heen admitted to the United States, and who are temporarily in the Republic of Cuba, or to aliens who have been bona tide residents of the island Cuba for one year prior to the passage of this act. Now, the Cuban people are law-abiding, and they are not of the class that this act is aimed at, as I understand it, and if a man has established his residence in Cuba, and been there for a 3'^ear prior to the passage of this bill, and such a person attempts to come into the United States, we are not apt in such case to get anyone from the Island of Cuba, whether he has ever been in this country or not before, who will cause us an}'^ mischief, and those people will not come in competition Avitli American labor. Senator Nugent. Well, under j'our amendment any person who has resided in Cuba one year will be entitled to admission into this countrv? 52 EMERGENCY IMMIGRATION LEGISLATION. Mr, IMcKay. Provided he complies with the other requirements- of the immifrration law; yes, sir. Senator Nugent. I know, but your amendment is restricted to Cuba only. ]\Ir. McKay. Yes. Senator Nugenx. I understand from your statement that the peo- ple that you are particularly desirous of securinf^ for work in. Tampa are Cubans? Mr. McKay. Yes; the people we are particularly desirous of se- curin*; for our work in Tampa are Cubans, and some Senator Nugent. That being true, why do you prcfiwse this amend- ment, which provides that any alien who has resided in Cuba for the period of a 3'ear shall be exempt from the operation of this bill? Mr. McKay. Well, when the Republic of Cuba was established there was a laAv put into effect — and I don't know Avhether it is a part of the' Constitution of the Republic of Cuba or not — which gave ta residents who had formerly owed allegiance to the Spanish Crown the option of coming in as citizens of Cuba within a certain specified time, and I know that there are some who Avere careless and negligent in this matter, and their status as citizens of Cuba is undefined, and they would probably have difficulty in establishing their citizenship, although they belong to the class of people that have been coming- here. Senator Nugent. But under jour proposed amendment a Russian or a German or an Austrian or an Englishman or a man of any other nationality, who had resided in Cuba for a period of one year, would be exempt from the operation of this act. Mr. McKay. I don't think it is possible to have any such result, because there are very few objectionable aliens in Cuba now, and under this proposed amendment they must have resided there for one year before this bill goes into effect, and therefore it Avould exclude any objectionable alien from coming in through Cuba. Senator Johnson. Isn't your amendment made more for the pur- pose of ending the strike ? Mr. McKay. No ; if the strike ended to-morrow we would have ta make arrangements to get those people back from Cuba. Senator Nugent. Do you think this strike will be settled until such time as the closed-shop principle is settled or agreed upon? ISIr. McKay. The strike is practically settled now. We can not yield closed shop to those people. We have been operating under the open-shop principle for 35 years satisfactorily, and tliey had no complaint whatever to make of the conditions under Avhich tliey have worked nor of the wages. Now. I have preparell a memorandum, Mr. Chairman, in which I have set forth a numlier of these points, and I would like to present it to the committee. The CiiAiiorAN. Will 3'ou file that with the reporter? Mr. McKay. Yes, sir; I will file this, and I thank j'^ou. Senator, for the opportunity of addressing this committee. EMERGENCY IMMIGRATION LEGISLATION. 53 (The brief filed by Mr. K. I. McKaj^ is here printed in full in the record, as follows:) HKIEF OK K. I. M KAY, ATTOUiM';Y 1 Ult THIO ClUAK il A.\ L.l' ACTt'KERS" ASSOCIATION OF TAMPA, FLA. The ciaiir iiidustiy of Tampa was founded in the year 1885 by two cigar uianufiictiiring tirms that moved to Tampa from Key West on account of con- stantly recurring hibor troubles at that place. From these two factories the industry has groM n until at present there are approximately 3U0 factories in oi)eratlon in the city of Tampa and immetliate vicinity. Many of these factories, however, are small and employ only a few workmen. All of the larger factories are members of this association. The Cigar Manufacturers' Association of Tampa is a voluntary association organized to deal with problems affecting the industry as a whole. The membership of the association is made up of the following firms: Solis Alvarez. Fi-ancisco Arango & Co. Abana Cigar Co. M. Alvarez & Co. IM. Amo & Co. Arguelles. Lopez & Bro. Kamon Alvai'ez & Co. P>erriman Bros. Dulin & Co. Diaz, liaphael & Co. Demmi Cigar Co. .Felipe De Soto & Co. Andres Diaz & Co. Rafael Espina & Co. p]vcry Day Cigar Co. Jose Escalante & Co. Fernandez Bros. & Co. Sobrinos Fernandez & Co. Garcia & Vega. Perfecto Garcia & Bros. F. Garcia & Bros. (Inc.). Guerra, Diaz & Co. Maximo Grahn & Son. Henriquez Cigar Co. Hygiene Cigar Co. Havatampa Cigar Co. Havana-American Cigar Co. Thomas Leon & Co. Jose Lovera Co. La Vista Cigar Co. Jose M. Lopez. Loi)ez, Alvarez & Co. F. Lozano Son & Co. Celestino Lopez. J. 'M. Martinez Co. Jose Maseda & Co. Morgan Cigar Co. St. Minitol Cigar Co. F. Benjamin & Co. These firms manufacture approximately 95 per cent of the total number of cigars made in the city of Tampa and employ approximately 95 i^er cent of the labor engaged in the industry at this place. . The total investment of the members of this a.ssociation in their enterprises is approximately .$20,000,000. More than 90 per cent of the labor employed in the cigar industry of Tampa is Latin or of Latin descent, chiefly Spanish. Cuban, and Italian. The Italian element of tlie labor employeil in the industry is approximately 20 per cent of the whole, the Spanish element is approximately 20 per cent of the whole, the Big 4 Cigar Co. M. Bustillo & Co. Cueata Key & Co. Corral, Wodiska & Co. Maximo Cueto. F. Capitano & Co. Mulero Cerra Co. Marsicano Cigar Co. Newman Cigar Co. Y. F. O'Halloran & Son. Preferred Havana Tobacco Co. A. M. Perez. Marcelino Perez & Co. S. Perez & Bro. Pent & Wright. Pride Cigar Co. Salvador Rico & Co. F. Rodriguez & Co. Salvador Rodriguez & Co. E. Regensburg & Sons. J. W. Roberts & Son. AVm. J. Seidenberg & Co. El Sidelo Cicrar Co. L. Sanchez & Co. M. Stachelberg & Co. A. Santaella & Co. South Florida Cigar Co. San Luis Cigar Co. San Martin & Leon Co. Sanchez & Haya Co. Salvador Sanchez & Co. Tampa Best Cigar Co. Tampa-Cuba Cigar Co. Tampa Token Cigar Co. F. Torres & Co. (.^elestino Vega & Co. M. Valle & Co. Wolff Bros. Cigar Co. 54 EMKKGKNCiV IMMIGRATION LEGISLATION. ('ul)aii eleiiK'iit is iiiJinoxiiiiateiy 55 i)er cout of the whole, and I he reiuainiiig 5 jier cent is made up of Americans and persons of other nationalities who liave learned the trade. A huKO percentaj^e of the Spanish and Caban element learm-d the trade in Cuba, where the manufacture of cijxars is largely engaged in. and many of rhis element who learned the trade elsewhere, liave at times followed it in Cuba. There are a number of factnr.es at Key West, wliich is an inter)Mediate point on the steamboat line bet^^een Tam]>a and Habana. There are also cigar factories located at Miami. St. Auiiu,stine, and Jaclcsonville, but Tampa is the principal i)lace in Florid;, where citrars are made, Key West being the next in importance. It is customary with ;'. cerlaln element of tlie lobacco-working .population of Tampa to make frequent changes of residence. Many of them will work in tlie factories at Tampa for a few months and then go to Key West or Habana, afterwards returning to Tampa. Such frequent shifting of residence is in- Jluenced by changing conditions and tlie varying demand for labor at the different places where the trade is followed, but the city of Tampa has an average pcjpulation of approximately 30,000 persons who are directly or in- directly engaged in the cigar industry, or dependent upon those engaged in the trade for thi-ir support, the total number of workers of all classes normally employed in the Tampa faclories'being approximately 15.000. A very large percentage of th(> workers in the cigar factories of Tampa is alien, not over 10 per cent of the foreign-born workers having become natural- ized citizens. There is no source from which labor to meet the requirements of the cigar industry of Tampa can be obtained except Cuba, and aliens conung from Cuba to be employed in the Tampa factories do not enter into competition with American .skilled or unskilled laborers. If the C'uban supply of labor to the Tampa factories is cut off, it will not result in giving employment to unem- ployed American laborers, but wili merely result in destroying or .so handicap- ping the industry that it can not be continued. At the beginning of the year 1920 substantially all of the cigar factories of Tampa were working to their full capacity and there was an unprecedented demand for their product. Labor was scarce and every available qualified person had opportunity for employment. The wages being paid were the highest in the history of the industry, and the highest paid at any place in thi^ world where the cigar manufacturing industry is engaged in extensively. About the 1st of April, 1920, a number of labor unions existing amongst the workers in the Tampa factori< s combined and made a demand upon this asso- ciath)n for " clo.sed sh(«p " ; i. e., that the members of this association would agree not to give employment to any workers in their factories who were not members of the unions. For obvious reasons this demand was refused. This action of this association was approved by the board of trade. Rotary Club, and practically every other civic and business organization of the <'ity. No complaint was made by the unions as to wages, working conditions, or hours of labor, the sole and only demand being for " close(T shop." Upon this de- mand being refused, the unions called a strike in the factories of half the members of this association, and thereupon, as a measure of self-protection, the rem;iining factories closed down. All of these factories remained closed until July S, 1920, when they reopened and olTered employment to all qualified workers, regardless of membership or nonmembership in any labor union, and at the same scale of wages and under the same working conditions that ex- isted prior to the calling of the strike, with the exception of a readjustment in the manner of paying the wrapper .selectors, which affected not more than 185 employees. Since the strike was called in April, 1921), a large number of persons who had been employed in the factories have left the city of Tampa, many of them going to Cuba in search of employment in the cigar factories at that place, and the unions, for the purpose of handicapping tlie employees, induced a large number of woi'k<'rs who were not radical union sui)porters. to leave the city, in many instances jiaying their triinsportation on condition that they would g« a distance of not less than 300 miles and i-emain away until after the termina- tion of the strike. The records of the Peninsular & Occidental Steamship Co., which operates a steamship line between Tampa and Habana. show that from April 1 to De- cember 1, 1920. L939 second-class passengers left Tampa for Habana, and during the same period 3,859 second-class passengers left Tampa for Key West. A large EMERGENCY IMMIGRATION LEGISLATION, 55 number of those going to Key West subsequently went to Cuba, but it is not practicable to make an accurate estimate of the number doing so, but sub- stantially all of the second-class passengers leaving Tampa on the Peninsular & Occidental boats were tobacco workers who were leaving in search of employ- ment at Key West and Habana. It is conservatively estimated that between four and five thousand persons who up to April I, 1920, were employed in the cigar industry of Tampa are now in Cuba, having gone there by direct or indirect routes, and practically all of tbem are aliens and will not be able to return to the United States if the proposed law is enacted. Many have left their families in Tampa, and these families may become public charges if the working members are not permitted to return and care for them. In addition, not less than 2.000 persons previously employed in the Tampa factories have gone to other places in search of employment, and many of them have engaged in other trades and will not return. Since the moratorium was declare l,882,770 1,800, .870 201,405,000 1901 1911 293,360,000 1902 1912 273,4^5,000 1903 1913 1914 2S6. 148,000 1904 2r)7,.«G6,000 1905 '. '. 1915 1916 2'v5,836,000 1906 312,4.56,376 1907 1917 .352.690,194 1908 1918 368,072.628 422.795,819 1909 1919 . EMERGENCY IMMIGRATION LEGISLATION. 57 From tlie foveLCoiiig tis;nivs it will Ix.^ seeii tliar the internal revenue ollice at Tampa lias I'rodnced r« venne to fhi' Federal (Jovi-rinuent during the jjeriod covered hy this coniijil'ition amounting to $10,297,323, and the customhouse lias produced .$32,496,579, a total of $ijl,7;)3,'J02. and the remarkahle increase in the Government revenue for the past foui years should be noted. Substantially all of this revt nue is deiivetl (rom import duties and revenue taxes on tobacco importeil into Tampa and cigars manufactured at this place therefrom. Under normal conditions from this time on the cigar industry of Tampa will pay the GoveriinuiU in customs duties aiul internal revenue appvoximately .$0,000,000 per annum. Any legislation that will result in destroying or seriously handicapping an industry that is so i)roducti\e of revenue to the Government should not be enacted in th.e absence of some compelling emergency. Not only does the industry produce i-evenue to the Government, but in normal times it pays in wages to the employees of the factories an average of more than $300,000 per week, which money is promptly placed in circulation in the connnunity and so stinnilates all classes of trade and industry. Any serious interference with the industry will correspondingly aftVct every class of busi- ness m this community. There is no compelling emergency requiring the suspension of inunigration of tobacco workers frohi Cuba to Tampa. These aliens do not enter into com- petition with American workmen. Their trade is peculiai'ly their own. The piocess followed by them is the " Spanish liand metliod." It is true th;!t some of the factories are using molds in making cigar.s, but this process merely adds to the quantity the iiverage workman can turn out. and the same method of making cigars by hand is employed, except that tlie filler is pressed into shape by a molding process after it is put together and before the wrapi)ev is put on It. It is thei-efore respectfully submitteE(;iSLAT10N. STATEMENT OF HON. S. M. SPARKMAN, REPRESENTING THE BOARD OF TRADE OF THE CITY OF TAMPA, FLA. Mr. Sparkman. Mr. Chairman and gentlemen of the committee, in connection with ex-Mayor D. B. McKay, of Tampa, and Mr. Hugh C. MacFarlane, I represent here the board of trade of the city of Tampa, which feels a deep interest in this subject, indeed such an interest as induced that body to send this deputation before the committee here with the request that the bill in question be so modified as to permit the entrance of the people mentioned by Mr, McKay into this country when the proper time may arrive for such return by them. Mr. McKay has covered this matter so completely, generally and in detail, that I don't feel it necessary to go into many of the matters that he has touched upon, I only wish to say that it is very essential, in my judgment and in the judgment of the members of the board of trade, that the law be modified in such a manner as will permit these parties to return, and others to come over whenever they see fit and proper to do so. The industry can not be carried on as it has been carried on, and can not be carried on as we hope to see it carried on in the future unless we can have free access to that particular class of labor in the future. Cuba, I ma}' say, occupies a unique relation to the United States and one that would naturally suggest an exception — indeed, an excep- tion is already made in the bill, but it is supposed that that exception will not meet the requirements, will not meet the Tampa situation and the situation of other cigar-manufacturing centers in the United States, particularly in Florida. We exercise a kind of guardianship, as you know, under the Piatt amendment, over Cuba. Such guardianship and such supervision as would permit us at any time to have officials in Cuba to investigate conditions, the relation of every man in Cuba and to good govern- ment who might desire to come over to this country; in fact, we have such agents over there now who are hampered, of course, by the present immigration faws. Apparently, we have to have permit* from the Secretary of Labor, from the Department of Labor, to per- mit parties to come over when we have these acute conditions. Again, the Cuban is not an undesirable citizen; he is not such a person as this bill is aimed at. He makes a good citizen. He is not a violator of laws. And while many of them remain here for years and do not become naturalized, that is because of the fact that they do not take a great deal of interest in politics. They would just as soon not vote as vote. But there are quite a percentage of them, however, that have become naturalized, and the number that have become nat- uralized have taken such a step for the purpose of voting and exer- cising other rights of American citizenship. But, however, a large majority have not been naturalized, and they go back and forth, as stated by Mr, McKay, from time to time, as they may see proper to do so. Then, again, the laborers that we Avant from there are essentially expert laborers. They would not come in competition, as was stated by Mr, McKay, with any other class of labor in this country. Now, for those three reasons it seems to me that it would be very proper for this committee to make an exception, a broader exception. EMERGENCY IMMIGRATION LEGISLATIOX. 59 a more comprehensive exception, than this bill undertakes to make at the present time. Just what the amendment should be, just how it should be shaped in order to cover this proposition, I have not fully made up my mind on. But Mr. McKay a few hours ago wrote out a tentative amendment which he read to tlie committee. That might not be satisfactor3% and I can conceive of other language that could fill the bill quite as well as the language used by Mr. McKay. I want to suggest to the committee that we will collaborate with Senator Fletcher and probabh^ submit through him an amendment to the committee, or possibly to the Senate, just as lie sees proper to do. In other words, we w^ill trust to him and to the other Senator from Florida to take care of the matter with this committee. Again I wish to urge upon the committee the necessity of making an exception in this matter. This is a great business, a great indus- try, and, of course, there are a great number of people interested in it. And the Government is also interested in this business because of the revenue that will come to it from this industry. And it is of in- terest to all the people in this country who smoke, and I notice a great many around here to-day in this meeting who smoke, and I know a great manj^ people in our section of the country smoke, and I know they do in other parts of the country. And I wish to say that there is not a cigar in the country — and I hope I do not tread on any- body's toes when I make that statement — that meets the bill quite as well as the Tampa-made cigar. So I hope that you will permit us to carry on the business as we did, and that we will be able to carry on the business not only as before the strike but in a manner that will permit us to enlarge the business. If it were permissible, Mr. Chairman, I would like to have either Mr, McKay or Mr. MacFarlane, one or both of them, to address a few remarks to the committee. I am sure they would be quite brief. The Chairman. Very well. Senator Fletcher. Mr. MacFarlane- will 5-ou make a statement in addition to what has been said ? Mr. MacFarlane is one of the fore- most citizens of Tampa- and he is tliorouo;hly familiar with this in- dustry, and knows its history from beginning to end. STATEMENT OF MR. HUGH C. MacFARLANE, OF TAMPA, FLA. Mr. MacFarlane. Gentlemen of the committee, I think that the subject, as far as Tampa is concerned, has been sufficiently covered by the gentlemen who have preceded me. I don't know that I have any- thing that I could add to what they have already stated. I think Col. Sparkman may have called on me to say a few words before this committee, because the cigar industry in the city of Tampa has grown up with me, and while I never have been actively engaged in that business, my associations and business connections with the manufacturers have given me an understanding of it that probabl}' is not in the minds of either, of the gentlemen who have already addressed you. The cigar industry in Tampa had its beginning in 1885. Up till that time there had l)een \ ery few clear Havana cigars manufactured in the United States. You gentlemen must understand that the dif- fereiu'c betwecni a eleiu- TIa\'ann cignr and a domestic cigar is that the 60 EMERGENCY IMMIGRATION I^GISLATION. clear Ilavaiiu ci^^ar is nKUiiifacturc'd entirely l)y hand. There is no niachineiv or mold used in connection with its manufacture. There was no skilled labor in the United States that could l)e used in that industry at the time it was commenced, outside of the city of Key West, which had in a small degree prior to that time manufactured clear Havana cigars there. Since the estal)lishment of the business in Tampa it has grown from nothing until during the year preceding the one which has just passed there were manufactured in the city of Tampa something over 400,()00,0()0 clear Havana cigars. Mr. McKay, who first addressed you in our behalf, stated the amount of revenue that that had .brought into the (rovernment. The American labor has not taken kindly to this industry, and very few of them during the 30 years that it has been in Tampa have learned the trade, and we are almost entirely dependent upon the Cuban citizens that have come to Tampa to work in our factories and to a few Italians — probably 20 per cent of the labor employed in these factories — who have learned the trade after coming to this country. I am a little hard of hearing, and I did not hear entirely all that Mr. McKa}' stated here, but I think he made some mention of a strike that had been called in the cigar factories of Tampa about 10 months ago, and there was no trouble about Avages or working conditions, but the employees of the cigar factories simply demanded that there should be a closed shop and nobody who was not a member of the union could be employed in any of these factories. The manufacturers would r^ot accede to that demand which had been made by their employees, and the employees left the factories and remained out about three or four months. The manufacturers then opened the shops and a great mah\^ of the emploj'ees have been returning, until, I suppose, at the present time there are employed in the factories about 40 per cent of those who had formerly been employed there. As a means of opposing the opening of these factories, the leaders of the strikers have been deporting these workers to the island of Cuba. At that time the cigar factories in Cuba had an abundance of orders and they employed and were able to employ nearlj' all the cigar makers that were sent there. Since that time, however, they have fallen short of orders and a great many of these worlcmen are anxious and willing to return. The manufacturers, cognizant of the law, of course, are not at- tempting and do not attempt to make any contract with them, and a great many of them are coming back at the present time, but as there are numbers of them in destitute circumstances it is hardly possible that those who had formerly been employed in the cigar factories of Tampa will be able to return before this law goes into operation, and it would work a great hardship on the manufacturers ol' Tampa and prevent the people from coming back who formerly had been employed in the factories, if there was not some exception made in regard to the citizens of the island of Cuba, It has been considered, and the business men in our locality have always felt, that Cuba was a part of the United States, as far as the interchange of business and labor was concerned ; and if there is any dependency in the West Indies, if there is any comitry outside our EMERGENCY IMMIGRATION LEGISLATION. 61 own that the Ignited States has an interest in and has in the past taken a great interest in, it is the island of Cuba. In fact, I think we have favored it more — I think, in fact, we have done more for it — ' than we have any of these islands in the West Indies or any of the Republics in Central or South America. And it is the hope that you would be willino; to continue that guiding hand over the island of Cuba that has caused us to come up here and ask that the relations that in the past have existed between this country and the island of Cuba should continue, because it is absolutely necessary that that condition of affairs should exist, and that the relations heretofore existing should continue. Now, it will not and can not in the least affect American labor for us to receive what we are asking at this time; and if Ave do not receive it it will simply drive an industry out of this country into the island of Cuba and prevent the collection of the immense revenue that this country needs so much at the present time from continuing. I thank you, gentlemen. The Chatrjman. Thank you, sir. Senator Fletcher, do you have anv others that you wish to call upon? Senator Fletcher. Maj'or McKay, would vou care to add any- thing? Mr. D. B. McKay. Yes, sir. Senator Fletcher. I will introduce, gentlemen, former Mayor D. B. McKay, of Tampa, Fla. STATEMENT OF MR. D. B. McKAY, EX-MAYOR OF TAMPA, FLA. Mr. McKay. Mr. Chairman and gentlemen of the committee, this subject was thoroughly covered by my brother and Col. Sparkman and Mr. MacFarlane, and so thoroughly covered that I don't think it is necessarj^ to take up any more of your time. I would only say this, that this relief which we are asking is vital to the continuance of this industry. It is extremely important to us and absolutely vital to our city. The bringing in of this class of labor will not bring in labor that is in competition with any other labor in this country. This class of labor is not a class that will be in competition with any other labor in this country, and it is certainly to the pecuniary advantage of this Government to permit that in- dustry to develop ; and it can not be developed if this class of labor is not permitted to come in. We have paid into the Treasury of the United States a great many millions of dollars, and we are assured by the manufacturers who are now engaged in business there, and by other manufacturers in this country who desire to move to Tampa and develop business along the same lines, of the same character that we are doing there, that the cigar-manufacturing industry in Tampa will probably de- velop more than 50 per cent within the j-ear if they can get this class of labor to come to work. I thank you, gentlemen. Senator Fletcher. I believe that is all. Senator. I want to thank you, Mr. Chairman of the committee, for your kindness in permitting us to appear before you and in permitting all these gen- tlemen to give their statements. 62 EMERGENCY IMMIGRATION LEGISLATION. The CiTATUMAN. Thank you very much, Senator, for your present- ment of this case. Senator Fletciiek. And I would say, Mr. Chairman, that "we could add any number of other thinf^s to Avhat has been stated so AA^ell on behalf of the ve<:?etable f!;ro\vers of the east coast, and these "[entlemen of the ci<^ar manufacturing industry, but I won't burden your record by briniijini; others in. And so far, the statements we have presented have not been contradicted. The CiiAiRiMAx. The subject, Senator, has been fully and clearly jDresented. STATEMENT OF CONGRESSMAN HUDSPETH, OF THE SIXTEENTH DISTRICT OF TEXAS. Congressman Hudspeth. Mr. Chairman, I shall ask the indulgence of the committee for but a few moments to suggest an amendment to the bill that I offered on the floor of the House. I will read the amendment, and if you have copies of the bill before you you can see where the connection is made. After the word " aliens," on page 8, line 17, insert a comma and add the following : " including those applying for admission tempo- rarily, pursuant to the last proviso in section 3 of the immigration act." And I will explain briefly the purport of this amendment, gentle- men. As the chairman of your committee, Senator Colt, remembers, under the last immigration law of 1917 the Commissioner of Labor had the authority to suspend the literacy test and the head tax on immigrants coming from Canada and Mexico. That is, he concluded he had that authority. If he had that authority, then all this amend- ment seems to do is to give him that authority under this act. And the purpose of this amendment is to enable the beet growers of Colo- rado and the Northwest to harvest their crop; to enable the cotton growers and the avooI men of Arizona to have proper care for their flocks and the gathering of their crop, and for the farmers of Texas and the live-stock interests of Texas to properly take care of the product of their farms and their ranches. Now, let me suggest to the committee that the class of people who came in under this provision, the sus]iension of the literacy test, were Mexicans, 90 of whom were unable to read or write. Now, gentlemen, they come to this country for the purpose of earning a few dollars. Their land has been devastated by the numerous revolu- tions since 1910. They come here and work six or eight months, and then they go back. Now, in the hearing before the House committee the contention was made that they were undesirable peo])le, not a good class of people, not people Avho should be admitted into the Ignited States and to be made citizens. They do not come here for the purpose of be- coming citizens, although many of them do stay in this country. A committee was appointed after the charges were made that they were l^eing brought across as serf labor, and this committee con- sisted of two gentlemen who were apjwinted by the Secretary of Labor to make an investigation of the condition. Tliis committee was com- posed of Ml-. Grant Hamilton and Mr. A. L. Faulkner, two gentle- men from the Department of Labor, and I have with me their report. EMERGENCY IMMIGRATION LEGISLATION. 63 Senator Harrison. When yva?, that filed. Conautment of IjAhor, Washington, August 12, 1D20. REPORT OF SPECIAT. COMMITTEE APPOINTED BY THE SECRETARY OF LAROR TO INVESTI- GATE COMPLAINTS AGAINST THE TEMPORARY ADMISSION OF ALIENS FOR AGRI- CULTURAL PURPOSES. Sir: Pursuant to your appointment of the undersigned investigators to con- duct a survey of tlie labor conditions obtaining as a result of the departmental order of February 12, 1020, and the sui)plt'uientary order (tf .\]ii-il "12, 1920, admitting temporarily Mexican laborers for employment in agricultural pur- suits, we have visited and made a study of the greater portion of the country into which these laborers have been imported. The protests tiled in the Depart- ment of Labor and presented to the House Immigration Committee against the Issuance of these orders have likewise been given thorough consideration, and a systematic effort made to determine whether these protests were leased upon a comprehensive knowledge of the labor conditions in the communith^s where these protests originated. In addition to tlie conversation had relative to this subject, you directed your assistant, Mr. H. L. Kerwin, to provide the signers of this report with the following memorandum : " May 8, 1920. " Memorandum for Mr. Grant Hamilton and Mr. A. L. Faulkner. " In connection with the verbal instructions given you by the Secretary con- cerning your investigation into the temporary admission of Mexican laborers into the United States, and after a conference with the Secretary this morning, he feels that there are three paramount phases of the situation : " First. Surplusage of labor. " Second. The allegation tliat a large percentage of Mexican people coining into the States for agricultural pursuits drift into the cities and go into com- petition with wageworkers there. " Third. It is claimed that the necessity for the temporary admission of Mexi- cans for agricultural purposes was of first importance to the agricultural in- dustry of the border States because of the inability to obtain tlie necessary help to plant and harvest crops. The bureau granted temporary admission of this class of labor, realizing that any impairment of the supply of food brought about through any cause would affect the workers and all our people and would be reflected in the cost of living. " H. L. Kkrwix, "Assistant to the Secretary." In proceeding to carry out these instructions no effort was made. to gather an elaborate array of statistics. The gathering of such statistical data would have required a large field force, and would have resulted in only an elaboration of our findings. Our practical plan was to make a i-apid survey of a wide ter- ritory, tapping those sources of information that were essential to secure reliable general information. Approximation based on first-hand knowledge, the result of a visitation of an extensive area of the country west of the Missouri River, indicates very clearly the status of the labor situation in the entire western territory. The purpose of this investigation originates in the claims and counterclaims of individuals and organizations relative to the dearth or sur])lusage of farm labor, the movements of INIexcan labor admitted under (he exemption order of February 12, 1920, and the supplementary order of April 12. 1920. The inves- tigation involves the question of whether the exemption orders were .instilled by the circumstances exi.sting in the farming communities, it having been declared that Mexican labor, in the absence of other procurable labor, was imperatively necessary to plant, cultivate, and harvest foodstuffs in order that an increased acrenge of essential ]iroducts might be planted, given proper attention, and pre- pared for the market. The order of February 12, 1920, and the supplemental order of April 12, 1920, admitting alien laborers, contained specific instructions to supervising immi- grant inspectors to admit aliens without enforcement of the head tax and the literacy test provisions contained in the immigration laws for the purpo.se, as stated in the order, of admitting temporarily agricultural laborers from Mexico and Canada during the season of 1920, to perform labor in the border States and Florida, together with provisions expressly authorizing the sugar-beet EMERGENCY IMMIGRATION LEGISLATION. 65 growers in the large western beet belt to recruit alien labor under the terms of the orders. That this survey may not be wholly restricted to the order of February 12, 1920, and the supplemental order of April 12, 1920,' there is incorporated in this report statistics which have been gathered by the Immigration Service covering the entire period of four years, during whicli time exceptions have been author- ized permitting the entrance of alien laborers for agricultural work. In order that a comprehensive survey might be made, your investigators visited 10 of the Western States, selecting those cities for our field of operation that formed the gateway through whicli these laborers ])assed, and also those cities adjacent to the communities in which the IMexicans were emi)loyed. This route traversed the territory in which the great bulk of western farm products are produced, as well«s covering practically the larger portion of that territory where sugar beets are grown. The States in which the investigation was made are as follows: Nebraska, Colorado, Missotiri, New Mexico, Texas, Arizona, j California, Kansas, Nevada, and Utah. ' Information was secured from representatives of the organizations of labor, •employment offices and labor recruiters, representatives of sugar companies, chambers of commerce, social service bureaus, immigration ofhcers in charge of ports of entry, immigration inspectors, railroad employees, farmers, and in any other quarter which, in our judgment, seemed likely to be fertile ground for securing information bearing upon the general subject under consideration. The rapid expansion of the sugar-beet industry in the western country cre- ated a likewise expanding field for the employment of common or unskilled labor. Immediately following the declaration of war on April 6, 1917, the normal flow of immigration into this country practically ceased, and with the mubilization of a large army there came an acute shortage in labor of all kinds, and particularly was this true of farm labor. It is coumion knowledge that even before the war there was a distinct drift of labor from the farms to the cities. This condition was intensified during the war and is still a serious problem. From the date of the declaration of war to the date of this report it is uni- versally conceded that the demand for labor of all kinds generally has been greater than the supply. No data exists showing the numlier of men in this country who have been or are unemployed, but doubtless the aggregate reaches stigation with an interpreter secured at the IMagnolia found these Mexicans had been sent from the Laredo district to do work for the Texas Co. This was denied by the superintendent. However, they are working on the line that belongs to the Texas Co., which follows the Magnolia 8-inch line (oniiiig in on the main highway from Wichita Falls. Another instance, a 12-in(li line being laid acro.ss the Wagnor pool to block 821, under construction by Booth & Flynn, contractors.' EMERGENCY IMMIGRATION LEGISLATION. 69 " Mr. Evans arranged meetings with other heads of crafts allied with his organization with a view to gathering data upon which an investigation could be commenced, advising that Mr. U. IM. Lee, deputy, district No'. 5, Fort Worth, Tex., Bureau of Labor Statistics of the State of Texas, was assisting him and his associates in the investigation, and requested the wi-iter to accompany him to Hillsboro, Burkburnett, and Breckeuridge, Tex., Mr. Evans courteously supplying the services of an interpreter and stenographer for use in the fields. " On the 19th instant, accompanied by Mr. Lee, statements were obtained from the Mexican pipe-line crew employed by the McPhearson Contracting Co. in laying a gas line in the viciTiity of Hillsl)or(>. Tex. The records indicate the status of the laborers as follows : Admitted under departmental exception^ Domiciled 1 Admitted, payment of head tax 4 Entered without inspection 11 Total 16 " Mr. Lee advised that there was no other Mexican labor employed in the vicinity of Hillsboro, Tex. "Accompanied by Mr. Lee and piloted by J. A. Russ, secretary Burkburnett Local, No. 49, every oil lease, refinery, and tank farm in the entire district be- tween Burkburnett and the Red River, including the entire BurkbuiTiett field, was visited, resulting : Mexican laborers or residents found White labor laying pipe lines, crews 3 White labor engaged in other vocations All. " On the 24th instant, accompanied by Mr. Lee and piloted by Messrs. Harris Campbell and R. Hoyt, members and organizers of the Breckeuridge local, Breckenridge, Tex., statements were obtained from Mexican laborers employed by Westinghouse-Church-Kerr & Co. (Inc.), engineers and contractors for the Texas Co., working in the pipe-line crew on Parks lease. The status of the Mexican laborers is as follows : Admitted under departmental exception^ Admitted, payment head tax 2 Entered without inspection 1.5 Total 17 "Approximately 50 other Mexicans were employed in performing common labor on the Parks lease. Mexican labor was not being used on other leases visited in the Breckenridge field. " Mr. U. M. Lee to-day informed me that he knew of no other fields where an inve.stigation was desired by this service. " Supplemental to this report you are advised the several labor agencies visited in Fort Worth, Tex., indicate the following with respect to Mexican laborers : Oregon Short Line Union Pacific G. W. Beet Sugar Co. Rock Island & Frisco. Santa Fe Shipped. Standing 200 5,000 2,000 8,000 3,000 8,000 1,000 1,000 1,000 ' Shipped. Texas & Pacific Pipe lines Farm laborers (ne.xt 30 days) . . i. ». Total Standing order. 400 200 1,500 16,100 " M. H. Jones. "Immigrant Inspector." In connection with the foregoing statement it will be interesting to refer to the statistical record compiled by Mr. F. W. Berkshire, supervising inspector of immigration at El Paso, Tox. This record is a compilation of the Mexican agricultural laborers admitted under departmental exceptions for the vears 1917, 1918, 1919. and 1920. This record is compiled as of June 30, 1920. It 1 Mexican labor was being used to assemble the rubber gasket joined pipe line in the vicinity of Hillsboro, Tex. (McPhearson Contracting Co.) * White labor was being used for ox-welding the joints of the pipe line on the Parks lease, in the Breckenridge field. (Westinghouse-Church-Kerr & Co. (Inc.).) 70 EMERGENCY IMMIGRATION LEGISLATION. shows that dniing the period mentioned there were 40,700 Mexican laborers imiiortt'd into llie I'nited States and that 19,004 are now employed, while 12.800 liave he(>n retnrnWl and S.OTS di'serted. Included in the statistical statement is tlie iiunil)or of Mexicans iini>orted for Government construction and mining duriii<; tlic year 1!)10. Addin.u the totals of IMexicans imported for Government construction and nuniiifr in 1919 to the total nmnber of Mexicans imported dur- ing the four years mentioned it is found that there has been a grand total of these laborers imported amounting to 50,852. 17,1SG having been returned, while 22.G3T are now employed and 10,091 reporteil deserted, with a death list of 327. Analyzing' the grand totals, as.suming that all the deserters are still in this country, whicli is exceedingly improbable, it is found that there are remaining in this country as a result of th<> importations some 33.000 Mexican laborers, over 22,000 of whom are now employed, with desertions of approximately 11,000. A reference to the immigration statistics of the country during the years pre- ceding the war shows that a vast nndtitude of workmen, approximating some- thing like 1,000,000 a year, entered this country, and while this vast number did not all secure Inbor for which adequate remunei'ation was received, yet the great bulk was absorbed by the expanding industries of the country. In 1917, when Congress declared war, this large volume of immigration ceased, while the demand for labor at the same time liecame greater than at any period within the history of the United States. The records show that during the period of the war and since the signing of the armistice the shortage of unskilled or common labor has been very acute. It is a generally accepted fact that upon the signing of the armistice and returning to this country of the vast Army sent abroad and its demobilization, the men demobilized did not generally return to the vocations in wliich they were engaged at the time they were called upon to perform military service. In fact, the authorities claim that there has been a general reluctance upon the part of farm laborers to returu to the farm. With the mounting cost of living, particularly in food jn'oducts, great efforts have been made to inorense farm production, but the supply of labor has been difTicult to ol)tain to cultivate the vast area necessary to produce sufficient for the wants of tl;e people of our own country and meet the demands for export. The figures given with reference to the number of Mexicans coming to this country under the exceptions appear as exceedingly modest when the actual conditions which obtained at the time that the exceptions were made are taken into consideration. In making this comparative statement your investigators are of the opinion that a dire and imperative need was met in making the exceptions and per- mitting INIexican labor to enter this country on easy terms to meet the abnormal demand for common labor. The fact that this country comprises a large area, and that our industries, particularly agriculture, must expand to meet an in- creasing population, makes imperative a similar increase in conmion labor to meet the demands of expansion. The increase of sugar-beet acreage of the country indicates the growing de- mand for labor in that industry alone. The following table is a sununary of the United States sugar-beet acreage, as compiled by the statistical divisions of the sugar companies: state. Colorado Michigan California Utah Nebraska Idaho Ohio Wisconsin lo.va Wyoning Montana Washington.. Kansas South Dakota Minnesota Illinois Indiana Total... 1920 1919 260,514 153,000 136,783 112,000 81,689 56,500 52,050 3»,800 19,500 18,600 50,315 230,348 138,298 130,168 110,200 67,644 54,700 47,462 18,800 > 81,800 975,751 879,420 1918 141,508 123,627 126,989 90,478 46,069 40,500 45,376 23,850 172,236 710,633 183,600 109,450 190,200 91,100 54,194 46,500 30,750 21,300 2 45,747 72,811 > Including lo ,va and Wyoming. ' Including lo .va, Wyoming, Oregon, and Nevada. EMERGENCY IMMIGRATIOIT LEGISLATION.. 71 The number of sugar-beet refineries in opei-ation this year will aggregate 98. Utah will hold lii-fet place by operating 20 refineries, Colorado next with 18, while Michigan will operate 17 . According to the generaly accepted estimate that one laborer is needed for each 10 acres, the growing and harvesting of the 1920 beet crop will require 97,500 laborers. In some quarters there has been developed a strong opposition to imraigi-a- tion, and in some of the arguments against the immigration of certain aliens there is a general acquiescence in the oppo'sition. but it can be said that so far as the Mexican is concerned, he presents certain economic advantages not possessed by other nationalities. The acreage of sugar beets, and likewise cotton, is expanding, and these two industries require manuiil laborers in increasing numbers. Other elements enter into this problem. They are questions of wages and conditions. The southern portion of those States resting on the ^Mexican border has been known as the low-wage section. Mexicans coming across tlie border in normal times have not always been able to secure adequate remuneration for their labor in the sections referred to; but as the war creiited new demands for labor in all sections, m ages of Mexican labor rose in accord- ance therewith. It would be presumptuous to make the positive statement that Mexicans in all parts of the West were receiving adequate renunieration for services performed, but it can be said that tlie remuneration received by the large body of Mexicans now employed in the beet tields. cotton fields, and upon the railroads is a wage which ranges fi-om 100 to 300 per cent greater than before the wai'^ It undoubtedly is true that in some localities where Mexicans are employed the conditions are not what they ought to be, but the fact that ; there has been such an imperative )ieed for laborers has brought home to the j employers of this class of labor the imperative necessity of continually improv- I ing conditions, so that the laborers employed can be retained. ' Another feature of the situation is the illegal entry of Mexicans. It has been impossible for the Immigration Service to maintain an adequate patrol on the Mexican border because of lack of funds, thus opening the way for illegal entrance. Another reason assigned for illegal entrance is that in the northern Mexican States, which were under the domiiiation of Villa, the people of the comitry became so impoverished for lack of food that it became necessary for them to migrate to keep from starving. At one time during this year a large number of Mexicans came to San Antonio. Tex., and for a brief peritKl were given aid by the municipal authoi'ities. The officials of that city are given authority for the statement that four meals to each refugee was the limit of the assistance rendered. No definite statement can be secured as to the number of illegal entrants into San Antonio or any other place on the border. Notwithstanding the fact that the number of these ^Mexicans so entering reached considerable proportions, yet the elfect upon the labor market was not appreciable. Without luiderstanding the characteristics of the Mexicans, it is quite prob- able that the uninformed would assume that all of the Mexicans coming into this country — those who came in under the exceptions, those entitled to come by complying with immigration regulations, as well as the illegal entrants — remain in this country indefinitely. Such is not the case. There is a stream of Mexicans coming out of Mexico into the United States, and another stream returning from the United States into Mexico. Of the returning stream there are no complete records being kept, neither are they possible. Your inves- tigators, however, made observations of the trains nnuiing south in sections near the border, and it was found that on practically every trflin running in this direction there were carrier- ican citizens, and in the sections of the country where they reside they have made for stability of goverinnent and progress, and while the Mexican of the present day is not of pure Spiinish blood, being an at deal of interest. And his remark was aimed at the question of the unemployment which now exists. The Chair put the question to one of the speakers here as to whether he did not think that the unemployment now existing would prevent immigration from the other side, due to the fact that people on the other side would be discouraged from coming over to a place where there was already a large amount of labor unemployed. And I want to say that that is certainly true, for it happened exactly that way in 1907. At that time I went before the board of education (in 1907) and oi)posed the giving of a certain amount of money for the normal increase of the educational system in the city of New York, and I said to the mayor of New York at that time : jNIr. Mayor, there will be no normal increase, for we have had no immigration, and out of every 100,000 people that come into this country as immigrants through the port of New York, that enter the United States as immigrants at the port of New York, fully 40,000 remain in the city, and as there is now no Immigration, we can not look for that normal increase which has been coming to us heretofore. And although the board appropriated something like $250,000 for normal increase in the educational system, not a dollar of that money was spent. And I will say that the chairman was perfectly right in that. The Chairman. Mr, Witness, not only was that substantiated in 1907, but in other years when there has been a reaction, as in '95, in '73 and '74, in '57. Now, that is a demonstration of this proposi- tion : At such times immigration has fallen off materially. Dr. Berg. That is a well-recognized fact in economics. It is not only true and a fact as a matter of experience, but it is a fact in economics, that when people can not get emploj^ment in one place they go somewhere else where they can get employment. Now, there is another interesting fact in connection with this un- employment feature, and that is that the unemployment now exist- ing is due not to lack of work, but it is due, gentlemen, to the high prices paid for w^ork. In other words, if the laboring people will work for lower wages, for reasonable figures instead of the highest possible figures that can be obtained, they will create a product that will be salable in the markets of the world. If they continue as they seem to wish to do to limit the amount that enters the country and in that way gain a quasi monopoly of labor, they will defeat their own purpose in this way. Such a monopoly of labor is always very dear and costly labor, but it is only temporary, it only exists for a short while. Very soon it is found that the product that they create can not compete with a similar product created by the labor of the world, 76 EMERGENCY IMMIGRATION LEGISLATION. which is not the labor of the United States alone, but the labor of tlie Tvhole civilized world, and the man who employed them last year at a hi;Lrh price can not do so now. and if he can not get a lower- priced labor he will be obliged to go out of business, because he can not sell the product that they create. Now, if they will understand that, if they will remember that, then they will not come before your committee, as I suspect has been the case, with the animus behind this bill being the attempt to con- serve for labor now existing in the United States a monopoly. The greatest misfortune that could possibly come to this great country would be a monopoly of labor. It would destroy not only the capitalists, not only him who has land, but it would destroy the laboring man himself, and there is no progress where there is no competition. If labor is so limited in its importation that there is no competition, there will not only be bad labor, but there will be no progress, financial or economical. Those are some of the truths which we could bring before you if it were not for the fact that we have been limited to the economic facts alone. I am going to tell you one thing, however, and I appreciate the fact, gentlemen, that there are a gi-eat many people here who want to be heard, and I do not wish to take up too much time with the presentation of the subject I am discussing, and I certainly feel grateful for this opportunity to come here before you gentlemen; but I want to say this, gentlemen, that a curious thing happened in 1907. The Argentine Republic up to that time had not been a factor in immigration. Xow, mind you, the Argentine Republic is not to be sneezed at. It has natural resources which compare very favorably with those of the United States. It has gold, it has silver, it has coal, it has oil, it has vast pampas and vast fields, where they can create great agricultural wealth, where they can grow wheat, and where they can raise live stock, and they are a dangerous com- petitor, and would be a more dangerous competitor for the United States, if it were not for two reasons : One of them is the lack of labor, and the other one is that their institutions are not as well and as systematically defined as ours. It means that they ai'e suffer- ing under the disadvantages of a constitution incomparably inferior to that of the United States. In the Argentine Republic in 1911. for the first time, the total amount of immigration that entered that country was a dangerous amount from the standpoint of competition. It consisted of 225.772 people in one year, mostly Italians and Spaniards. Xow, if it be true that the United States dreads immigration— is afraid of it — how can you reconcile that dread with the desire of the Argentine Republic not only to meet immigration with wide-open arms, but to give to the immigrants advantages — support them prac- tically, the men. the women, and the children for five days after they have entered that country? That is what they do in the Argen- tine Republic. And the Argentine Government believes that immi- gration is the salvation of that country — that it created the United States. And they bring up this point constantly in their literature, both in the Spanish and in the literature translated into English : That the thing that has made the United States is the vast immigra- EMEEGE:t^CY IMMIGRATION" LEGISLATlOlSr. 77 tion ever since 1850. And the thing that they hope will make the Argentine Republic is the vast immigration that they expect to get if the United States is foolish enough to suspend even for one year this great source of our wealth, this great source of our prosperity — the people that come from the other side. The Chairman. Is it not also true that Argentina offers certain bonuses and inducements to immigrants, and isn't that also true of Brazil, of Chile, and of some of the other countries? Dr. Berg. I believe it is particularly true of Chile. The Chairman". That they give large bonuses in the shape of land? Dr. Berg. Yes. The CnAiRiMAX. Now, go on. I don't mean to interrupt you, be- cause our time is short. Dr. Berg. I want to say that if the United States continues in this attempt to keep out this immigration, which has been the A-ery life blood of our growth, this country is going to suffer a great loss. I saw an estimate recently which was made of the number of people who would have been in this country if we had had no immigration, giving the total amount of people that we would have had in this country from the natural increase by birth, excluding the additions that have come to this country from immigration, and the figure was about 25,000,000 people in 1916, beginning with the 3,000,000 people that were in this coimtiy at the time of the Revolution in 1776. The Chairman. Isn't it true that we have now 30,000,000 aliens or descendents of aliens? That is a fair estimate? Dr. Berg. But, as a matter of fact, we have 110,000,000 people, as compared with this estimate of 25,000,000 people. And the wealth of the country has come from this great number of people that we have in this country. Now, in regard to the war which has just ended, when we had to send to the world battle field a vast armj^ prepared in six months, who fought this war for America? It is true that the boys were Americans, a great many of them, but less than half were Americans by birth. Half and more than half were either aliens who had come to this countiy and afterwards became citizens or the sons and daughters of former aliens. And we sent across the water an arm}- that was the envy of the civilized world, and now we are fighting against the kind of immigration that gave us these men. Senator Johnson. AVould you under any circumstances limit immi- gration ? Dr. Berg. I would limit immigration never, but I would regulate immigration. There is no reason why you should take sick people in; there is no reason why you should take in people who are men- tally incompetent. Senator Johnson. I think there is no disagreement on that point at all. Dr. Berg. No. There is no reason for dreading to take them, however, because you fear that there may be bolshevism introduced by these people. As a matter of fact, if you want to guard this country against bolshevism — and wo all want to do it — the safe- guard lies in the multitude of nations. The ethnological differentia- tion of nations that w\as planned by President Wilson was a very logical one. He intended to keep one nation balancing against the other. 78 EMERGENCY IMMIGRATIOX LEGISLATION. But if YOU liaYe these multitudinous nations as part and parcel of our citizenship you will never o;et bolshevism into this country, for bolshevism needs one nationality to be at the top, to be supreme, and the others to be forced to follow that nationality. They must have one nationality in the majority, and as lon^r as we have no nation, or as long as Ave have no nationality in the majority except the Ameri- can nationality, so long will this country be free from the danger of bolshevism. Senator Harrison. Were you in favor of the present immigration law? Dr. Berg. I was very much in favor of everything except the literacy test. I was never able to see the logic of the literacy test. I find that bolshevism, if it exists, exists in those who can read and write and does not exist in those who can not. Senator Dillingham. If you will look into the record of the en- actment of that law a'ou will find that it was enacted simph^ as a restrictive measure to cover certain classes. Dr. Berg. I appreciate that, and I want to call attention to the fact that with the enactment of that restrictive measure the Argen- tine immigration began to grow. Senator Harrison. How do the wages in the Argentine compare with the wages in the United States? Dr. Berg. I am unable to sfive vou anv exact figures on the wages in the Argentine as compared with the wages in the Lnited States. And to show you that I intended to give you the wages of the two countries, comparing them with each other. I went over to the Library during the intermission and I find that we have, unfortu- nately, no books on that subject, except some in Spanish. But I am under the impression that the wages in the Argentine Republic are about what they are normally in this country — that is, they are on a somewhat lower scale in actual money, but when you compare the purchasing caj^acity of the dollar with the purchasing capacity of the peso they are about the same in the Argentine Republic as they are here. Senator Johnson. Eliminating the infirm, the sick, and the feeble- minded, can you conceive of any set of circumstances under which immigration ought to be limited into this country? Dr. Berg. Immigration should be regulated. Senator Johnson. Xo ; I am not speaking about immigration being- regulated. I am speaking about immigration being limited. Dr. Berg. Absolutely closed? Senator Johnson. I am speaking about immigration being limited. Dr. Berg. Immigration being absolutely limited? You don't mean absolutely stopped? Senator Johnson. Well, we will make the question in two forms : Can you conceive of any set of circumstances under which immi- gration ought to be stopped? Dr. Berg. Absolutely stopped? Senator Johnson. Yes. Dr. Berg. Xo : I can not at the present time in the United States. The onlj' country that can afford to stop immigration is a country that hasn't got land enough to support the people that are living in it. EMERGEXCY IMMIGRATION LEGISLATIOX. 79 Senator Dillingham. May I interrupt you a moment? At the time that the Immigration Commission made its investigation in 1909-10 ^t demonstrated very clearly that there >vas at that time an oversui^ply of common labor in this country. In the great industries, for instance, in the steel industry, it was found that the men were organized into different classes and one would be given work this week and another would be given work the next week, and while the daily wage was satisfactory to the men, when the end of the year came they found that the yearly wage was only substantially one-half as much as it would have been if thej'^ had had constant employment. Men were coming in in that stream of immigration from eastern and southern Europe in such great numbers that here in America they were competing against themselves as well as against native Americans. The same measure of restriction was looked upon as being necessary, something that would decrease that flow and save them from that killing competition that was exist- ing. It was found by an examination of the statistics that substan- tially one-third of that particular class of immigration that was coming in was illiterate, and that test' was recommended as a law simply as a restrictive measure and to decrease the flow of immigra- tion that came in in such numbers that they were, in fact, competing against themselves. Dr. Berg. And yet recently we did not have enough of this class of labor. It was a case of post hoc procter hoc. The Chairman. Following out what Senator Dillingham just said: In the last report they estimated that the so-called literacy test — which I do not believe, as you do not believe, is the proper test — had the effect of preventing the coming into this country of great numbers of people in certain years before the war from those parts of Europe that he referred to, the southern and eastern parts. It was thought best that we should not have such immigration. The literacy test attained its object in a measure, not as a proper test, but it just happened to meet these needs which the framer of that bill saw. Senator Dillingham. It was not put in for the purpose of increas- ing the difficulty of getting into this country; it was not a difficult test at all. It was not intended as such. But it was looked on as a restrictive measure to reduce the number. The Chairman. Yes. Dr. Berg. I would like to call your attention, however, to this fact, that had the labor unions at that time not existed, which I think would have been very unfortunate, because the labor unions have done a great deal of good, but had they not existed then this ignorant labor of to-day would have been the trained labor of to-morrow. But they have limited the number of men that could be trained in their factories and their shops by their labor organizations. The result was that economic laws were not allowed full play. Where%'er you allow economic laws to play out their role in full you have a perfect government, and you never see any type of surplus in the way of labor for much longer than a few months. Senator Johnson. Do I understand your position to be that under no conceivable circumstances would you limit immigration, except that limitation which would occur from sickness, disability, and the like? 80 EMERGENCY IMMIGRATION LEGISLATION. Dr. Berg. Yes; I think I am williiiir to-day to say that for the United States, as lonp: as we have undeveloped natural resources in the amount that "vve have. The Chairman. Is that all, Dr. Bersr? * Dr. Berg. Yes. sir. The Chairman. There is a witness here who has to make a train, and who will not take more than five minutes. That is Mr. Scara- melli, the president of the Italian chamber of commerce. STATEMENT OF MR. LOUIS J. SCARAMELLI. PRESIDENT OF THE ITALIAN CHAMBER OF COMMERCE, NEW YORK CITY. Mr. Scaramelli. Mr. Chairman and gentlemen, as president of the Italian Chamber of Commerce of Xew York, I am going to present to you a short brief, and if the chairman will permit. I will leave it with the secretary. The Chairman. It may be filed, (The statement presented by Mr. Scaramelli is here printed in full in the record, as follows:) Italian- CHAiiBEK of Commerce in Nfcw York. Xew York, December 27, *1920. Chairmax of' the Committee on Immigeatiox. United States Senate, Wa^shingtoti, D. C. Sir: The Italian ChamV)er of rommenv in New I'ork. an organization com- posed of American citizens, incorporated under the laws of the State of New York, for the purpose of fostering the welfare and commercial relations be- tween the United States and Italy, is gravely concerned in the proposed bill, now before Congress, to temporarily suspend immigration to the United States for a period of one year, and desires to voice, respectfully, its protest against this measure. Its passage, which we believe is prompted by ^i misapprehension of present conditions, seems to be detrimental to the prestige of this country, which it has borne so nobly since its inception, as the home of liberty, freedom, and op- portunity. Our protest is prompted in fairness to the spirit of Americanism, and while some of us may have sentimenral reasons, nevertheless it would indeed be a sad event if this Nation should at this late date make such a suq< den and drastic departure. Let us not lose sight of the fact that a large share of our present population are but late immigrants to our shores or their direct descendants. That the remarkable progress of the past few decades could not have been accomplished but for the vast army of toilers who came to this country looking for opportu- nity, and who. when given the chance, have made good. That this country is in any danger of being engulfed by an army of fifteen or eighteen million emigrants about to flock to these shores, as has been voiced in Congress, is beyond the pale of reason. In the first place, there are no available means of transportation for .such a number. It is conservatively estimated that the present means of transportation could not bring annually to this country more than a million .immigrants. Further, we should not lose sight of the fact that at the present rate, at which so many have become alarmed unnecessarily, tlie net surplus of the incoming aliens over the outgo- ing emigi-ants will be far less than a half million this year. We would think that long before that large number of people had reached here, the opportunity that they most seek would long since have vanished, and this movement would thus per se terminate. Labor represents by far the largest part of immigration. Labor is a com- modity, aiui as such is governed by the law of supply and demand. An oversupplied lal)Or market here would automatically stop further emigra- tion. This has bei>n illustrated in more than one occasion. We may recall that after the signing of the armistice at the conclusion of the late war and the consequent closing of war works here many were those who left these shores seeking better opportunities abroad, and at one time the outgo of emigrants EMERGENCY IMMIGRATION LEGISLATION. 81 became almost alarming and threatening for the industries of this country. Those that come now seek the opportunitj' to better themselves, and as soon as that opportunity no longer exists there is little fear tliat they will be encouraged to come' An excellent and unfailing proof of this is the significant fact (this is applicable to Italy) that the affidavits of emigrants here calling for their relatives or friends abroad have already decresed 40 per cent. The migratory habit of humankind has been a phenomenon as old as time. It is a natural process and follows natural lines. It is an asset that should be carefully taken care of. ^Yhat we need to-day is not prohibition of immigration, but proper regulation, selection, and distribution of the immigrants. In the United States to-day we have a vast need of farm labor. The cry of the farmers is continual for hands to sow and harvest their crops. "While we to-day suffer from an abundance of labor in the cities, especially the large cities of the East, the farm is neglected. Could not labor be deflected to remedy this evil rather than resort to exclusion that might maintain or further accen- tuate the actual scai'city of farm hands? A large number of laborers coming to this country may be classed as unskilled, of whom there are at present a dearth and wlio are essential for the basic work necessary to the building and maintenance of big industries. They con- stitute further an element that does not much come into competition with the native or skilled labor. To the credit of the Italian immigrant, in whom we are most interested, must go his share in the development of some of our great industries, our great public works, and above all the railroads and highways. We can not deny that the rapid growth and extension of our railroad system is in great measure due to the manual labof of the Italian immigrants, and this country could never have developed so fast as it has without them. They have supplied us with hands to do the " hard work." the hands that we most needed and lacked. Immigration has always been the main factor in the development of trade, which would disappear and could not be replaced with its passing, a prospect not very encouraging, especially under the present depressed conditions. Aside from tile great maritime traffic maintained by immigration, the emigrant carries with him his habits and love for certain goods, which create a trade to supply, and upon his return to his native land even for a visit must be supplied then with the American connnodities he used here. He is a great factor in popularizing Amei'ican wares abroad. While we are opposed to a suspension of immigration we are heartily in favor of rigid regulation. We should not deny admittance to the clean able- bodied man willing to work who has courage to leave his home and seek better opportunities by his toil far from his native land, but there is incumbent on us a duty to protect ourselves from the agitator, the radical, the man who will not labor, but who lives on the labor of others : the man who spurns work and lives to inculcate his spirit in the minds of others. It must be considered that the war has left Europe in a deplorable condition. At present many individuals find their condition precarious and the future dark. To try to escape this unhappy outlook is human nature. But these con- ditions can not endui'e much longer. Europe must sooner or later find herself, and begin anew the work of reconstruction. Even now we begin to see signs of a healthier time. The radical .sentiment is receding in the west, and is by no means strong in the central or even tlie eastern i>art of Europe. The people are beginning to work again. Renewecl work brings renewed opportunities and lessened fears for us. The proposed legislation seems to be based entirely upon a too pessimistic view of Europe's future and a lack of confidence on our part in being able to cope with the situation. Let us keep in mind that one nation's loss is another nation's gain. It is in this spirit that we should attack the situation that confronts us. What is neeiled is a better understanding with the foreign nations and honest coopera- tion. Every prospective emigrant to our shores should be thoroughly investi- gated and known to be fit before he is allowed to embark for this country. The passport system, which has already acconiijlished much, should be extended, and the consular service could be amply empowered for the work at hand. We can not doubt but that all the foreign Governments whose nationals are most likely to seek opportunities liere would be glad to endeavor with us along these lines in a spirit of cooperation. The best guaranty that they would need or require is that several of these countries have already concluded treaties 26911— 21— PT 1 6 82 EMERGENCY IMMIGRATION LEGISLATION. (as, for instance, between France and Italy), or have under way (as between Italy and Brazil and other South American Ilepubllcs) negotiations for treaties regarding iraraigration. These treaties contain many elaborate provisions for the protection of the emigrant and the mutual rights and interests of the countries and their respective nationals. Thus, in lieu of the contemphited policy of drastic measures and methods, immigration could be regulated along the technical and objective lines suggested by the law of supply and demand, and should, in our opinion, enter the more constructive phase of a conventional regime by replacing the pri)hibitive measures with the advantages of honest and rational cooperation. Is it not within the realm of possibility that our Government could nego- tiate like treaties with the other (Governments most interested, so that this em- barrassing question might be settled in a calm, deliberate, and equitable man- ner and to the best interests of all concernerELiii. No : 1 thank vou. EMERGEXCY IMMIGRATIOX LEGISLATIOX. 87 STATEMENT OF MR. W. H. KNOX, MANAGER OF THE ARIZONA COTTON GROWERS' ASSOCIATION. The Chairman. We will next hear from Mr. Knox, manager of the Arizona Cotton Growers' Association, and he Avill speak in regard to Mexican labor. Mr. Kxox. Mr. Chairman and gentlemen of the committee. I had the privilege of appearing before this committee something like a year ago on practically the same proposition that we are talking of now to-da}': The temporary admission of Mexican labor for agri- cultural purposes only. There was no legislative action taken at that time, thanks to Senator Colt and some others. The Secretary was convinced of his ability to extend this privilege, and the privi- lege was extended, and we have operated this year, as we have for the past three years, bringing in Mexican labor for the purpose of growing and harvesting our crops. I wish to say that I speak for the cotton industry of the Southwest ; the Imperial Valley of your State. Senator Johnson, and the Salt River and Yiuna Valleys, as well as the Gila and the Santa Cruz Valleys of Arizona. The cotton industry there has grown in the last five years from something like $100,000 a year to where the combined crop this vear in all these vallevs will be worth close to $100,000,000. Senator Hakrisox. Is that based on this reduced price of cotton ? Mr, Kxox. At the present price of cotton that will probably be cut down to about $70,000,000. If the price had stood where it was last spring, the Salt River Valley alone would have harvested something like $50,000,000 worth, besides what would come from the Imperial Valley, which is even larger than the Salt RiAer Valley, and in the Yuma Valley. This industry is dependent entirely upon Mexican labor for its common or hand work, both in the chopping and in the picking. The district at one time belonged to Mexico, and it was the white man who pushed the Mexican out, instead of the Mexican running the white man out. and I think that condition will always exist. The greatest opposition that we have always had to this privilege has come from the labor unions, and pursuant to demands for inves- tigation, as Congressman Hudspeth told you. there was a committee appointed by the Secretary of Labor to investigate. I beg leave to read certain extracts from the summary of the report of that committee. I wish to say that both of these men were labor- union men. One of them was for years walking delegate of the American Federation of Labor, and the other one was president of the Glass Blowers' Union, and certainly could not be accused of being particularly friendly to ca]^ital: in fact, they were appointed on this commission because of their labor affiliations. In summarizing their report they said : That protests filed asiiinst the admission of Jh'xican labor under the excep- tions could not be substantiated by facts. That thoush the restricrions on tlie southern border were even more lax than they are under the exceptions, ni> detrimental economic situation ^\'Ould be pre- sented. That our investigation jiroves beyond a reasonable doubt that white men are averse to accepting, and refuse to accept (as they have the right to do), em- 88 EMERGEXCY IMMIGRATION LEGISLATION. ployment as unskilled or coiuiuon laborers, except, perhaps, where that employ- nn'nt is within the limits of towns or cities. That at the time tliis report is submiltetl the employment offices in all of the Western States visited are unable to supply the demand for common labor. That wages paid and conditions provided for common labor, while perhaps in many instances not ideal, yet presents a vast improvement over the period preceding the war. That our investigation disclosed the fact that Mexicans are not displacing white laborers in any appreciable degree. I do not wish to take up the time of this committee in going into tliis thing any further, except to say this, that in our own case, where in 1917 Ave imported about 2.500 ^lexican hiborers, in 1918 we brought in 3,500, and in 1919 about 10.000, and this year about 20.000. The actual number of cards issued for aliens over the age of 16 was in excess of 15,0(JO. Senator Dillingham. "Where were they distributed? Mr. Kxox. They were distributed in Arizona, all except one train- load that were sent to the Palo Verde Valley in California. They went to the district of the Salt Riyer Valley and the Casa Grande and the Gila Valleys. Senator Dillingham. And they were engaged in raising what ? Mr, Knox. Cotton raising and picking cotton. Senator Harrison. How many went to Texas? Mr. Knox. Xone. There is a gentleman here who will represent Texas. I am merely representing Arizona and southern California. These men are now returning. A letter from my office the other day said that the cotton picking was rapidly coming to a close, and that the people were returning yoluntarily, so that there was no period of unemployment. Senator Harrison. Why was it that you got them into those States and the Texas people did not get them into Texas ? Mr. Knox. It was a matter of organization, I guess. Senator. Our particular district has had an organization of farmers, and we haye organized our work, and make a regular effort to get them. We haye operated down the west coast exclusiyely, and these people come in year after year, regularly. One man came in this year for the fourth time, and the fact that he was satisfied might be illus- trated by saying that he droye out in a brand new Ford car when he went. Senator Harrison, What you want is the same amendment that Congressman Hudspeth suggested, about letting the matter rest the same as it is now. being placed within the discretion of the Secretary of Labor? Mr. Knox. Well, we are absolutely willing to place our case be- fore the Secretary of Labor, and if we can not make out a case we are wililng to abide by his decision. If there are no further questions, that is all I haye to offer. The Chairman, The last witness to be called to-day will be Judge Sanders, of New York City. He desires to appear to-da}', and what he will present will be yery short. EMERGEls^CY IMMIGRATION LEGISLATION. 89 STATEMENT OF JUDGE LEON SANDERS, OF NEW YORK CITY, REP- RESENTING THE HEBREW SHELTERING AND IMMIGRANT AID SOCIETY OF AMERICA. Judge Sanders. Mr. Chairman and gentlemen. I represent the Hebrew Sheltering and Immigrant Aid Society of America. I want to say that I have made a thorough study of the bill known as House of Representatives bill No. 14461, and of the report of the House Committee on Immigration and Naturalization thereon, and I re- spectfully submit the following reasons for opposing this legislation. First. There is no emergency warranting any restrictive immi- gration legislation at this time. There has been a great deal said about the number of immigrants who have arrived in this country. We have the exact figures, taken from the manifests published by the steamship companies. These figures show that the total arrivals in the United States from Europe, from January 1, 1920, to November 30, 1920, were as follows : First class, 63,695; second class, 121,090; third class, 439,563; a total of 624,348. During the same period, that is, from January 1, 1920, to Novem- ber 30, 1920, inclusive, the departures from the United States were as follows : First class, 60,159 ; second class, 87,187 ; third class, 280,165 ; or a total of 427,501. Leaving an excess of arrivals over departures for the 11 months of the year 1920 referred to of 196,847. Senator Nugent. Excuse me a moment. Do those figures relate to the country as a whole or are they confined to the port of New York only? Judge Sanders. No, sir; those figures refer to the country as a whole. Those figures refer to all arrivals from Europe. Those fig- ures do not include Canada or Mexico. I am speaking particularly of that class of immigrants that there is so much talk about in refer- ence to the fact that they are likely to overrun the country, and that millions of them are waiting on the shores of Europe to board steamers for America. Senatpr Dillingham. Do you understand that those third-class passengers, the figures for which you gave, were of the immigrant class — representing the immigrant class? Judge Sanders. I included the immigrant class in those figures, be- cause the figures which I gave you include all of them, cover them all. Senator Dillingham. I know, but I wanted to get at them sepa- rately, as distinguished from the first and second class passengers. Do you understand that the third class embraces all the immigrants ? Judge Sanders. Yes, sir. Senator Dillingham. Can you give us the excess of those arriv- ing over those departing ? Judge Sanders. It is merely a matter of computation. The num- ber that have arrived as immigrants, which are known as third-class passengers, are 439,563, and the number that have gone back are 280,165. In other words, there is a difference of about one hundred and fifty-nine thousand and some odd that have remained here. That figure represents the excess of arrivals over departures. And this is the great influx of immigration that we hear so much about. 90 EMERGENCY IMMIGRATION LEGISLATION. Senator Dillingham. You say that goes down to Tvhat date? Judge Sanders. Down to Xovember 30. 1920. These are the exact figures, sir. and I challenge any contradiction of those figures, be- cause we have made it an object to come here with the figures, because there has been so much said about figures, and you know the old proverb that '* Liars can figure, but figures can not lie." Senator Dillingham. One more question to make this perfectly clear: Does that cover simply the port of New York or all of the United States ( Judge Sanders. All of the United States. Senator Dillingham. It refers to all of the United States. Judge Sanders. It refers to all immigrants arriving from Europe. It does not include ^lexico or Canada or South America. The second point that we raise is this : The present flow of immigra- tion is by no means abnormal. It is but deferred or postponed immi- gration. The immigrants who are coming here now would have come during the last six years had traveling conditions between Europe and this country been nonnal. A very large percentage of those immigrants had in their possession for a long while either pre- paid tickets or funds sent to them by their financially able relatives in this country to enable them to join them here when the war broke out and made the journey, for the time being, impossible. The third point we raise is this : The immigrants coming at the present time are largely women and cliildren destined to heads of families who are American citizens or declarants residinir here. In other words, the bill before you refers to declarants, and I assume by that it means those who have declared their intention to become American citizens. The passaire of these immigrants has been paid for by these relatives who are also in a position to take care of them. Senator Harrison. In that connection may I ask a question: Do you know of any Polish or any other society of foreign people in tliis country that practices the sending of money to their relatives or friends abroad, so that when they get to Ellis Island they are able to show that they have this amount on hand, and it helps them to enter, to get through at Ellis Island, and then they turn over this money to the society from which they received it, and the society in turn sends it to some other immigrant abroad, and it thus turns over and over again? Do you know of that or have you ever heard of any such practice as that being carried on ? Judge Sanders. I have never heard of any such practice. I don't believe there is any such j^ractice going on, and I have been engaged in immigrant aid work for a period of nearly 1.") years, 10 years of wliich time I have been president of the Immigrant Aid Society, and I know that there is no such practice. I have heard it talked about, and I have heard it talked about by those who are in favor of restrictive legislation, and not one of them has been able to point out one single instance where that had been done. The Chairman. You do not think that that is true? Judge .*^anders. I know it is not ture. The present inmiigration is a reunion of families, a rehabilitation of broken-up homes, and. hence, the greatest case of constructive re- lief work. These statements are substantiated by the following facts and fiofures : EMERGElSrCY IMMIGEATIOX LEGISLATION. 91 .STATUS OF IMJirOUANTS' RELATIVES. Thousands of citizens and declarants in this country have signified their in- tention of bringing over tiieir relatives, namely, parents, wives, children, brotli- ers, and sisters. An analysis made by the Hebrew Sheltering and Immigrant Aid Society of America of 30.0UU of these American citizens and declarants brings to light tlae following facts : Total wealth, $73,888,000 ; bought Liberty bonds, and war savings stamps to the amount of $10,589,840; 19,200 of these 30,000 Jew.s are members of fra- ternal, benevolent, and labor organizations; 32,550 families comprising 97.000 indi\iduals are involved. The average eai-nings of these 30.000 persons, are .$62 per week. NO FEAR OF VAST IJIMIGRATION SHOWN BY LATEST REPORT OK COMMISSIONER GENERAL OF IMMIGRATION. Bill H. R. 14461 m based upon the enormous assumption that millions of people in eastern Europe are ready to emigrate to the United States. This is mere hearsay for which there exists absolutely no wan-ant in fact. The surest guide to the volume of immigration into the United States is tlie Annual Report of the Commissioner General of Immigration to the Secretary of Labor. This report for the fiscal year ending .Tune 30, 1920. shows the fol- lowing : 1. The immigration from eastern and southeastern Europe is very small. 2. The immigration from v.^estern Europe is about eight times as large as that from eastern and southeastern Europe. 3. The immigration from western Europe, Canada, Cenrtal and South America, constitutes 88.5 per cent of the total immigration. 4. The number of inunigrants from eastern and southeastern Europe who left the United States during the fiscal year was five times the number of inuui- grants who were admitted into this country from eastern and southeastern Europe during the same period. The total number of immigrants admitted to the United States during the fiscal year ending .Tune 30. 1920, was 430.001. Only 28.024 (6.5 per cent) came from eastern Europe, that is, Russia. Poland, Finland. Austria, Hungary, Szechoslovakia. Roumania. Bulgaria, Greece. Serbia. Croatia, and Euroi)ean Turkey; 218,271 of these immigrants (50.7 per cent), or almost eight times as manv,\'ame from western Europe, that is. from France, Italy. Spain, Portugal, Switzerland, Germany. British Isles. Sweden, and Norway ; 162,666 immigrants (37.S per cent) came from Canada, Central and South America. Thus the number of inuuigrants who were admitted to the United States during the fiscal vear ending .Tune 30. 1920, from all countries, except eastern and southeastern Europe, was 401.977. The number of innnigrant aliens who left the United States for these countries, was 163 372. The imnilgrant alien population from these countries thus increased by 401.997—163.372—238,605. There is, therefore, no emergency which requires our departure from the time-honored policv in vogue since the establishment of our Republic of giving an asylum to the (Oppressed peoples of the world and opportunity to enjoy free- dom and the pursuit of happiness, all of which has made our country the great- est and most beloved nation on earth. ^ ANALYSIS OF FIGI^RF^ OF PRESENT IMMIGRATION. In order to show how specious is the cry of the alarmists, a detailed analysis by the Hebrew Sheltering and Immigrant Aid Society of America, of the .Tewish immigrants who arrived at the port of New York during October, 1920, has been made, and the following incontrovertible facts have been ascertained : 1. The number of children and females constitutes somewhat more than (5 per cent of the total number of immigrants. 2. The number of adult males constitutes only somewhat more than 20 per cent of the total number of inuuigrants. or. • i 3. The number of male immigrants between the ages of IS and 39. is only 11.3 per cent, which means one out of every nine. The significant facts brousrht out by further study are as follows : 1 INIore than 65 per cent of the total number of immigrants arrive here to join the members of tlieir immediate family; that is. husband, wife, parents, sons, or daughters. 92 E.MERGEXCY IMMIGRATION LEGISLATIOX. 2. Approxiniatoly one out of every five immigrants between the ages of IS and 39 arrives here to join his immediate family, and there is only 1 out of 20 males who arrives here without being destined to more or less near relatives. 3. Only 15 per cent of all Jewish immigrants arrive here without being destined to relatives. The number of Jewish immigrants who arrived in this country during the whole year of 1920 is reliably estimated at 65,000 souls. THE committee's REPORT. In the report of the Committee on Immigration and Naturalizatiou, which accompanies bill H. R. 14461, on page 6, we find the following statement : " It is fair to state, however, that the largest number of .Tews coming to the United States before the war in a single year was 1.53,748 (1906) ; while during the one month of October, 1920, it is estimated that of the 74.665 immigrants arriving at Ellis Island more than 75 per cent were of the Semitic race." From this statement it is evident that the report, instead of citing the num- ber of Jewish immigrants for the month of October, 1920, only gave the figures for the whole year of 1920. This is erroneous and not the facts. Our figures, carefully compiled, show that on the steamships which arrived at the port of New York in October, 1920, 35 ships all told, there were approximately 12,217 Jewish immigrants. We cite here the names of the steamers which arrived at the port of New- York during the month of October. 1920. FIGURES FROM STEAMSHIP MANIFESTS. The following is a list of steamers arriving at the port of New York in October, 1920, giving the number of Jewish immigrants arriving at the port of New York, also name of steamers and name of foreign ports of embarkation : Steamers (35). Number of Jewish pa-ssengers. Cabin. Steer- age. Total. 12 La France Oct. Imporiatcr do. Frederick: VIII Oct. Me^allas Hellas do. Olympic Oct. Noordam do. Asia Oct. Aaiiitania Oct. G othland Oct. La Lourraine do. United States do. New -Vmstordam Oct. New York do. Adriatic Oct. Havorford do. Noordam Oct. Kroonland Oct. Ryndam Oct. St. Paul do.. Losan do.. Roohambenu Oct. Rousillion j . . -do Ferdinand Polasciano do Lapland j . . -do Maiiretania ■ .do Re D'ltalia .do . . . . Philadelphia | Oct. 25 La Sovia do Sa.xoma i Oct. 2S Pannonia ;.. .do Oscarll I Oct. 27 Monj'olia ...do President Wilson do Madonna Oct. 23 Giuseppie Verde do 2i Total. Havre Southampton . Copenhagen... Greece Southampton . Rotterdam Marseille Liverpool Danzig Havre Copehnagen... Rotterdaim Southampton. do Liverpool Rotterdam Artwerp Rotterdam Liverpool Trieste Havre Marseillp Naples .\iitwerp Liverpool Antwerp Southampton. Havre Liverpool Trieste Copenhagen... Hamburg Trieste Afarseille Genoa 180 50 96 15 15 !40 375 ! 161 I 210 I 85 I 116 1,108 I 211 396 100 131 1.248 25 110 600 350 180 698 •25 80 415 5.50 275 1.250 354 1.53 693 621 3.50 615 435 613 150 438 164 2.50 250 15 95 65 35 12,217 EMERGENCY IMMIGEATIOX LEGISLATION, 93 A FIGURATIVE STATEMENT. On page 6 the report further states : " The conmiittee lias coiitinnetl the published statement of a commissioner of the Hebrew Sheltering and Aid Society, made after his personal investiga- tion in Poland, to the effect that ' if there were in existence a ship that could hold 3,0(X),fX»0 human beings, the 3,000.000 Jews of Poland would board it to escape to America.' " A\'here did the committee get this conformation? It requires no argument to show that this statement was not made to mean that the 3,000.000 Jews of Poland are coming here, but was rather a figurative way of expressing the distre.ssing conditions in thar country: and it goes without saying that this number of people neither could nor would come here. ^loreover, it is an established fact that large numbers of the Jews of Poland are migrating to Palestine. AX EKRONEOIS STATEifENT AXD WITHOrT FOUXDATIOX IX FACT. We quote the sections of the report headed '' Poland," on page 10. (A statement presented by Judge Sanders is here printed in full in the record, as follows:) WARSAW. Concerning the general characteristics of aliens emigrating to the United States from Poland and the occupation or trade followed by them, reports indica^ such to be substantially as follows : (a) Physically deficient. (1) Wasted by disease and lack of food supplies. (2) Reduced to an unprecedented state of life during period of war as the result of oppression and want. (3) Present existence in squalor and filth. (?)) Mentally deficient : (1) 111 educated, if n<>r illiterate, aiid too frequently with niip.d- s) tuiii^ied as to admit of little betterment. (2) Abnormally twi.sted because of (a) reaction from war strain, (6) shock of revolutionary disorders, (e) the dullness and stultification resulting from past years of oppression and abuse. (c) Economically undesirable : (1) Twenty per cent is given as a round and generous estimate of productive laborers among present applicants for vis§s. This estimate is meant to include workers or those who may be expected to become workers from both sexes. The remaining percentage may be expected to be a drain on the resources of America for years. (2) Of the 50 per cent of immigrants from Poland who may be termed effi- cients, 40 per cent — of the total number of immigrants — will enter a trade as a middleman, not a producer. These will thrive on the efforts of their asso- ciates. (3) The productive labor. smaU percentage as it is, will be found in America in the sweat shops in the large centers of population. It is decidedly not agri- cultural but urban in character. In this report female applicants as house- wives, etc., are of course termed as efficients. (d) Socially undesirable : (1) Eiihty-five per cent to 90 per cent lack any conception of patriotic or national spirit, and the majoi'ity of this percentage is mentally incapable of acquiring it. (2) Seventy-five per cent or upward will congregate in the large urban centers, such as New York or Baltimore, and add to undesirable congestion, already a grave civic problem. (3) Immigrants of similar class are to be found already in the United States who, taken as a class and not individually, have proved unassimilable. (4) All Europe is experiencing in the reaction from the war a conniption of moral standards. This may even be most noticeable in Germany. The In- troduction of these lowered standards can not fail but have its evil influence in the United States. 94 K.MKRUENX'Y IMMIGRATION LEGISLATION. (e) At the nioiiient TK) iter cent may be re}rartleil as a low estimate of the proportion represintinc tlie Jewish race among emijn'ants to America from Pohind. if) The unassimilability of these classes polltleally is a fact too often proved in the past to bear any argument. We emphatic-ally exct-pt to this section of the reix)rt of the committee. The jaeat majority of immi;rrants from Poland are women and children who are comin'^: to their liusbands and fathers already in this country. Under normal conditions in Poland they l>elouged to the self-supiwrting element of the com- unniity and never were objects of charity, nor are they objects of charity now any more than any other group of people stricken by war conditions, such as the Belgians, the French, the Serbians, the Armenians, and others. The.se im- migrants are from the same .stock froni wliich .Jewish immigrants have been coming here and are now numbered in this country among the most law- abiding, thrifty, and industrious aiul patriotic citizens. The children of these immigrants have made splendid records in the public schools and the univer.sities of the country and rank high in citizenship. The family life of these immigi-ants. their morality, their general reputation — are unchallenged and unquestionable. Their standard of living in this countrj' is on a par with that of the average Americari citizen. Their standard of wages is high, and they are living in comfort and are saving money, as the re- ports of savings banks and the United States Post Office Savings Department conclusively show. To further show what the true facts about present-day Jewish immigration are. the following figures have been compiled and are here presented. The total arrivals, including all classes of transportation, to the United States from January to December 1. 1920. inclusive, is 624,348. Of these, the above- mentioned figure of 65,000 for Jewish immigration is only about 9.6 per cent of the total. Of these 65,000, after undergoing the most rigid examination by the im- migration officials, less than 7.000 were detainetl for the board of special in- quiry, and it was found upon tlie most stringent reexamination by the im- migration authorities that only 4.V2 of these 7.0. or six-tenths of 1 per cent of the total Jewish immigration for the 11 months of the year 1920. had to be excluded by the boards of special inquiry. Not one of these 4.!i2 who were excluded were debarred from entering be- cause of immorality, criminal record, or radical tendencies. As for general health condition of the immigrants, the exact records show that of the 6o.CKX> Jewish immigrants who came here during the 11 months of the year just passed, only 131 were excluded on account of contagious diseases ; 40 liad ringwtirm of tlie nail — an ailment that- is usually cured after a week's treatment. This splendid record goes to show once more that the efforts made on the part of certain pullic men to exaggerate tlie alleged "poor" state of liealth of the present-day Jewish immigrant are very deplorable, for they are in direct contradiction with the records of the physicians of the United States Public Health Service. No one can doubt the great ability these medical men pos.sess and the great care they exercise in determining the health conditions of immigrants arriving to this country. It is still further important to point out that of these 131 innnigraHts tem- porarily detained, every one v.-as subsequently admittetl to the country after having* undergone treatment at the hospital, for which their relatives here paid at the rate of ?2.7." per day, which, incidentally, once more sh<»ws the ability and willingness of tho.se relatives to care for their dependents, as these hospital charges are much higher than those exacted at other hospitals. Regardinir the e. refute this slander- ous statement most convinciusly. Jewish immigrants from eastern and south- eastern Europe fought most valiantly in the Great War and their graves across the sea testify most elotpiently to their bravery, heroism, and to their self- sacrificing devotion. In every Liberty loan drive these immigrants have re- sponded -spleutlidly, and in every drive for funds, whether it was for the Retl Cross or for some other relief agency, they gave most liberally. EMERGENCY IMMIGRATION LEGISLATION. 95 Maj. Gen. Robert Alexander, the valiant' conimamler of the Seventy-seventh Division, in a speech delivered in New York, on Saturday evening. May 10, 1919, said : " You all know, without nie telling you. that the Seventy-seventh Division, with which I had the great honor to l)e associated, was representative of this imperial metropolis, and that it contained in its ranks representatives of all those wlio have here sought freedom and citizenship under the flag wliich I see before me. And fully represented in the ranks of that division was the race to which you (.Te\\s) belong. I can only say here that when I thiuk of the conduct of the boys who wei'o intrusted to my guidance my heart swells with pride that I was their commander. And I am thrilled to think of the fact that the principles of Americanism and the principles of loyalty to our coun- try can so animate human nature and humanity in general, as to carry them through the trials and the dangers and the discomforts to wliich tliey were necessarily subjected, and triumphantly as they did. " I was fortunate to have with me as senior cluiplain of the division Rabbi Voorsanger. I don't know how many of you know him, but he is a very good man. He was my senior chaplain, and he had charge, as' part of his djities, of the burials of tho.se who unfortunately were killed, and every night he brought to me a list of the men over wlKtse liodies he had performed that said duty during the day. and as I had a chance to tell the Tresident of the United States on Christnuis Day, I found that Hel)rew names on that honor roll were "fully up to the proportion that they should have been; in other words, the Hebrew boy paid his full share of the price of victory. "' When the time came for recommendations to go in for marks of distinction which we were able to give. I found there again that the name of the Hebrew was as fully represented on that list as the numbers in the division warranted, by long odds." This is the official, unchallengable i-ec(n-(l of the foreign-born soldiers who fought so heroically in the Great War for America. It refutes completely anything and everything in the report of the com- mittee in regard to the pati'iotism and assimilabiliry of the immigrants. It is evident that whoever was responsible for the drafting of the paragraph headed " Poland." on page 10 of the report, has used every word in the dictionary that could be employed to decry and degrade a whole people. It is a most jiitiful case of malice and ignorance. It is astounding that Govern- ment officials .s-hould have lent Themselves to such tactics. It is an old maxim that something good may be found in any human being no matter how degraded, but the framers of the " Poland "" iiaragraph could not find even one redeeming feature in the hunted persecuted Jews of I'oland. OPENS DOORS FOK EXPLOITATION. The new bill contains a provision, section 4 (A), whereby it becomes neces- sary to make application to the Secretary of Labupply the demands of the people of the country and try to reduce the cost of tlie merchandise that we supply and increase the output ? As it is, when they know that you can not get operators, drapers, or finishers, they are just soldiering on the job. If tliey know that immigration is entirely stopped, they will feel that they have their job for a life- time and they do as little as they can, and we will be at their mercy. And I say to you, gentlemen, that we are not able to get the American girl to come into our factories and work. EMERGENCY IMMIGRATION LEGISLATION. 97 Senator Xugent. AVhj^? Mr. Flam. They will become stenographers, they will become t5'pists, they will be salesgirls, but they wnll not come to our shops and work. And let me say that we have sanitary control, good Avorking hours, and the girls make from $40 to $50 a week on piece- w^ork, and everything is apparently satisfactory as far as conditions of labor and hours of work and wages are concerned, but somehow or other we can not get the American-born girls to come and work in our shops. Yes, they will become designers or go into the higher crafts, but 3'ou can not get them to come to a shop and work as finishers or cleaners or pressers or operators. We must dei^end on our labor from Europe for that. Senator Dillingham. How do your wages compare Avith the wages that the American girl gets in the other industries that you haA'e mentioned? Mr. Flam. They are very much higher in our shops. A girl will Avork as stenographer for $15 to $18 a Aveek, and Ave are paying them from $25 to $30 and more in our shops. Yet they Avill Avork as stenographers and typists rather than Avork as operators. For this reason, gentlemen, we are asking you not to report this bill. The Chairman. Have you got any explanation for that? Mr. Flam. I haA^e no explanation, Mr. Chairman, Avith the excep- tion that they just Avon't do this. They think the Avork is beneath them. That is all. They will not work in the shops. They will not work in dress shops. The Chairman. And you knoAV that from experience, do you? You are not speaking from theory? Mr. Flam. I knoAv from experience, having been in the trade for 10 jenrs and employing them, and we can not get an American- born girl to come and Avork in our shops. Senator Dillingham. You are not acquainted Avith the tailoring trade, the gentlemen's tailoring trade, I suppose? Mr. Flam. I am. Senator Dillingham. Hoav many American men haA'e CA'er learned the tailoring trade? Mr. Flam. None. I Avill say that very few of them have. I Avill correct it to that extent, that very few of them do learn the tailoring trade. I don't want to speak for the tailoring trade, but I have very dear friends who are in the tailoring trade, and all their help is Russian and Italian, and if you curtail that immigration you Avill deprive them of their help. The Chairman. In the making of clothes, Avhat proportion of the work in the United States is done by aliens ? Mr. Flam. I dare say 90 per cent. The Chairman. Well, that confirms a statement that I have read. Mr. Flam. Well, I don't know, Mr. Chairman, about the state- ment that you mean, but 90 per cent of them are aliens. We adver- tise in the papers during the busy seasons, and we offer from $40 to $50 for drapers, and you would not see an American girl come in, although she knows how to make a dress in her own home, but she will not come to the shop, that is beneath her. Now, we liaA'e got to have foreign labor. If you close the doors to us, why, your wives and 26911— 21— rT 1 7 98 EMERGENCY IMMIGRATION LEGISLATION. dau<:hters will pay more for goods, and instead of reducing the prices we will have to raise them. Senator HARRisttx. They will have to cut their dresses a little shorter, won't they ? Mr. Flam. They are short enough now, Senator. The}' aj'e short enough as they are. I thank you. gentlemen. The Chairman. I want to ask the sense of the committee : We have been hearing a considerable amount of argument against this bill. It seems to me that it would l>e a good plan to ask Commissioner Wallis, of New York, to come here. Then there are Mr. Husband and Mr. Bennett, and Mr. McBride. of the State Department, and Mr. Stewart ; and among the people of this country- who have made a careful study of this whole subject of immigration, and especially in conne<.-tit»n with the Americanization feature of it, is Miss Kellor, and I know the committee would all be very glad to hear from Miss Frances Kellor. of New York. We will now stand adjourned until 10.30 o'clock to-morrow. (Thereupon, at 4.30 p. m., Monday, January 3, 1921, the committee adjourned until 10.30 o'clock to-morrow, Tuesday. January 4. 1920.) Emergency Immigration Legislation HEARINGS BEFORE COMMITTEE ON IMMIGRATION UNITED STATES SENATE SIXTY-SIXTH CONGRESS THIRD SESSION ON H. R. 14461 A BILL TO PROVIDE FOR THE PROTECTIOX OF THE CITIZENS OF THE UNITED STATES BY THE TEMPORARY SUSPENSION OF IMMIGRATION, AND FOR OTHER PURPOSES TUESDAY, JANUARY 4, 1921 PART 2 Printed for the use of the Committee on Immigration yd), WASHINGTON GOVERNMENT PRINTING OFFICE 26911 1921 COMMITTEE ON IMMIGRATION. LeBAROX B. colt. Rhode Island. ClKiirmun. WILLIAM P. DILLINGHAM, Vermont BOIES PENROSE, Pennsylvania. THOMAS STERLING, South Dakota. HIRAM W. JOHNSON, California. HENRY W. KEYES, New Hampshire. WALTER E. EDGE, New Jersey. THOMAS P. GORE, Oklahoma. JOHN F. NUGENT, Idaho. WILLIAM H. KING, Utah. WILLIAM J. HARRIS, Georgia. PAT HARRISON, Mississippi. JAMES D. PHELAN, California. Henry M. Barry, Clerk. EMERGENCY LMMIdiKATION LEGISlATIOiS'. TUESDAY. JANUARY 4. 1921. T NITKD StATKS vSkXATK. Committee ox Immi({1{atiox. ]Vas/)itu/fon, I>. ('. The committee met at 10.30 o'clock a. m.. in Ivoom 2:^5, Senate OHice I5nildin\ John- son. Xu^ent. Harris, and Harrison. The CHAiii.MAX'. Mr. AVallis. the commissioner of immi<>iation at New York, has a good deal of knowledge with regard to innnigra- tion and is somewhat apprehensive. I understand from what he says^ of the flood. It .seemed to me yestenhiv, and I nndeistood that it was the sense of the committee also, that we should ask him to be present. I therefore telegraphed him yesterehiy, aiul in re]jly he states that he will be here to-morrow morning. Wednesday. He will then (Milighten ns as to his views with regard to the conditions of immigration, especially at Xcav York city, and the threatened flood from P^nrope. Senator Sterlixg. Mr. Chairman. I have a telegram here from Mr. J. L. Clarkson. Avho I'epresents the National Federation of Com- j)etitive Industries. Representatives of these industries wish to be heard, but can not very well be heard before the week beginning danuary 10 — next Monday — and I wondered whether or not they might be given a hearing on January 10. Senator Dillixgham. In that connection. Mr. Chairman. I have a telegram from Chicago, from Mr. "William S. Bennet, who was for sevei'al years a member of the House of Representatives from New York City, and was a member of the Immigration Commission of 1900 and did very effective work with the commission. He makes- the same statement, that he wants to be heard but can not come be- fore the 10th. He is a man that has apparently given as much study to this question as anybody outside of some other members of the- commission like Prof. Jenks. The Chairmax. Senator Johnson, might avc get an expression of yowx views on this matter? Senator Johxsox. I should be delighted to hear them all. I do' not see any reason why we should not accommodate these gentlemen l)y hearing them on the' 10th. You are going to be occupied to-mor- row with Mr. Wallis and the witnesses who are now present. They will take two days at least, I imagine. Senator Diij.TxcjHA^r. There are some others that will want to be heard. From the correspondence I am receiving I underetand the- 99 100 EMERGKXCY IMMIGRATION UIGISLATIOX. ? ••i:ev is receiving a pitat cle.;l of aUL-mion uiroiighout the country and I do not think there is anj* possibility of closin*r it ii)^ thi- .veek. The CiiATR>rAX. If if be tlie sense of the committee, let it be under- stood, then, that we Avill have further hearings beginning cm January 10 at 1<).*K) o'clo -k and notify- all the parties to be present then. Senator Johxsox. 1 think we ought to conclude our hearings next week if v.e can and reach some determination as to what the com- mittee is going to do. so that if the bill is reported there will be opportunity for it to be heard at this session. What is your view on that ( Can it be heard at this session with the multifarious things that are arising? Of course it will not be of any value at all if it can not be heard. The Chairman. When we get through with these hearings — and I do not see that they i-hould be greatly prolonged — we will naturally take up the Johnson Inll with the amendments, and then the other bills that have been submitted by members of the committee. Senator Johxson. Well, let us tentatively agree that we will con- clude next week and that the committee will act next week. Can we not do that ? The Chairman. I do not know as to the latter proposition — as to when the committee can act. I think we might say that the hearings will be finished next week. Senator Sterling. I think we should hesitate to say whether we shall report out a bill next week or not. but we can close the hearings. Senator Johnson. I was suggesting that we agree tentatively that that might be done. The Chairman. I have found the disposition now to be rather to close the testimony as soon as practicable. If we proceed along that line and do not have any delay, then we can take up the next propo- sition — that of deciding what action shall be taken. Is ^Ir. Marshall present ? !Mr. Marshall. Yes. sir. The Chairman. About what time will you require. Mr. ^larshall ^ Mr. Marshall. I think I may be able to conclude in about 15 minutes. I shall try to he very concise. STATEMENT OF ME. LOIHS MARSHALL. 120 BROADWAY. NEW YORK CITY. REPRESENTING THE AMERICAN JEWISH COM- MITTEE. Mr. Marshall. In view of the fact that the chairman of the com- mittee has announced that the discussion will not cover a wide range, but that the real question that we are to consider is whether or not. to use legal language, a restraining order shall be granted which will prohiljit immigration to the United States for the period of one vear. we wh'» have come here to oppose the granting of such an order feel somewhat at a loss to discuss the question intelligently, because we do not know exactly on what basis of fact those who are seeking such a restraining order are proceeding. One would naturally suppose that thev had the burden of proof to establish an overwhelming reason why uix)n such short notice as has been given ~o drastic an order should be granted. The Chairman. Mr. Marshall, as suggested by Senator Dilling- ham, while I did announce — having the Johnson bill before us. -which EMERGENCY IMMIC iRATiOX LEGT^L,ATIOX. 101 provides for a temporary suspension — that that ^vas the main pur- pose of the hearinof, at the same time there foHows. dii'ectly. the ques- tion whether the emergency is so great that that restraining order shoukl be granted, or whether the emergency not being so great we wouki have time to frame temporary constructive legishition. Therefore, in a measure the whole subject is open, and while I stated that to be the objective point, so as to shorten the testimony some- what, the general question of the restriction of immigration is in- volved. Mr, Marshall. If I were to discuss that broad (juestion in its various aspects. I would not be able to say anything like what I would desire to say in the short time that I have myself imposed as a limitation upon the duration of my remarks. I think I sliall, however, be able to cover the ground sufficiently for the present pur- poses, believing that after the committee has given the matter further consideration it will come to the conclusion that if it is necessary to deal with the subject of immigration in its wide aspects and to con- sider the advisability at some time or another of enacting a measure which will be restrictive of immigration beyond what the present legislation provides, I shall have another opportunity, I trust, to be heard before the committee. The first fact that strikes the student of American history is that immigration has now been in progress for a century, and there has been no abuse resulting from immigration. T'ntil 1H20 there was comparatively little immigration, except that of the original settlers, all of whom, of course, were immigrants. AVe have just celebrated the tercentenary of the arrival of the first immigrants in Xew England, and we have all believed the day a blessed one when they arrived upon our shores. A century ago. however, immigration from Europe began on a somewhat broader scale and in considerable numbers. The first immigrants Avere not welcomed by those who were already here. Those who have had the opportunity of reading the literat^ire of that day on the subject will remember that in Niles's Register — which appeared. T think, about 1821, the annual of that year — there was an article in v\hich the writer inveighed against the new immigration. The nev\' immigrants were -people from Ireland and from England and from Germany, and there was a great deal said about the evil and the harm they would do to our country; that an alien race was coming, and that our prosperity was threatened. Well, we did not suffer from th.it immigration, and from year to year the number of immigrants increased. From time to time, as you indicated yesterday, there were periods of economic depression in this country, and whenever there was such a period there was more or less of an outcry against the immigrant. The panic of 1S57 wtis preceded by the "' Know-Xothing "' movement, the cry of America for the Americans, the idea then being that innnigration of all kinds was evil. But we passed through that i)criod. and again when the panic of 1878 arrived we heard the same outcry. AVe heard the same in 1895, when for the first time in our history it was sody who understands the American people thoroughly, who understands the vurious strains which constitute the complex and the composite American as he is to-day. would venture to say that the immigrant has not contributed his share to the creation of the stalwart Americanism that e.xists in this country. I was horn in Onondajra County. X. Y.. where I think Senator Johnson also fii-st saw the liirht of day. and there I was in contact with the immigrants of that community. My parents were both immigrants. My uncles and aunts were all immigrants. Many of my cousins were immi- grants. All the jieople with whom I came into assx^x-iation in the early days of my life weru immigrants, and they were immigrants from the various countries of Eurojte. I have watched those people and their children from that day to this, and I can give testimony that there are no truer, no more loyal, no more loving Americans than those people. As a matter of fact, as was called to the attention of the conunittee Te^terday, a very large jiercentage of the Ameiican people to-day are either immigrants or the sons or grandson> of immigrant>. You do not have to go very far back to find an immigrant >train and an inmiigrant pedigree. P'our years ago our i)residential candidates on both sides, the Repuljlican side and the Democratic side, were sons of immigrants. President Wilson's mother was an immigiant. and the father and mother of Judge Hughes were both immigrants. And if you go through the list of members of the House of Eepre- sentatives and of the Senate of the United States you will find tliat you run u]) again.st the immigrant strain everywhere. And yet to-day we hear about a flood of aliens that are <-<)ming to this country, tlie idea being to impart with that slogan the thought that the alien is a destructive force, that he is injuring the well-being of this nation, and that if he arrives America will cease to Ijc America. They forget that in the last century probably ~'> per cent of the po))ulati(tn of this country has descended from immi- grants. TTe can point to all of our great national works — the transc(»nti- nental railroads, the great canals, all of our great industries. By Avhom were they constructed^ Who built them? T am proud to say that my father worked as a track hand on the Northern Central Tvailroad. which wms l)eing constructed from C'anandaigua to Har- risburg. Men of that tyi)e came to this country, strong in their faith in America, strong in their belief that this country was a haven of liberty, a plnve where those who desired to develop under our institutions would have the opportunity that they .sought, and that opportunity was to work hard, to save, to earn a competency for themselves and for their children, to educate their childjcu. and to make them citizens willing to live and die for the country. And that faith has never been misjdaced. In every war our im- migrants have heljjed win our battles. They did it in tlie Civil War; they did it in the late (ireat War. As has l)een j^ointed out here, nearly half a million of the men who entered our Ainiy during the EMERGENCY IMMIGRATION LEGISLATION. 103 I'ecent Avar were men who had not even received their natiiralizution papers, and yet they were willing to serve. I had the honor to be a member of the district board of the citj^ of New York which passed on the appeals in the cases that arose in 189 district l)oards. Mr. Justice Hughes was the chairman of that board. We all felt proud of the immigrants who had come to this country, of tlieir willingness to serve, of their readiness to serve, of their Avaiver of the right to have exemption because of the fact that they were not citizens. And those who Avere most insistent u])on the immi- grant performing his duty Avere tlie men who themselves were immi- grants and sons of immigrants, believmg that they owed a duty to the country, and that that duty consisted not only of thus serving, but of also inducing others to perform that duty, in order that they might show to the American ])eople that they could be relied upon in the hour of stress. Now. I am not speaking merely as a sentimentalist: I have to sup- port me in this statement the absolute facts shown by the records Avhich have come to the attention of every man who has given thought to the subject. I passed through the Argonne Forest a year ago last spring, and I stood on the field where our American boys won that great victory, and my heart thrilled when I stood uj^on the ground where the Lost Batallion had burrowed into tlie hillside. That Lost Batallion consisted largely of Jewish young men. practically all of them born abroad, immigrants, quite a number of them not yet natur- alized, and they performed a feat that will live in American liistory. Why. then, should Ave become hysterical Avhen somebody suggests that Ave are obliged to look out for a flood of aliens, if that flood of aliens consists of men Avho are Avilling to Avork and able to Avork, and Avho are able to giA'e us the man poAver that this country requires and will continue to require for many, many decades; yes, for centuries to come: if these aliens Avill give to us their ideals — because all people wlio come to this country have ideals, the American Indian Avas not tlie only one Avho liad ideals, all of us are able to bring something to this country and to contribute something to the Avell-being of it and to its aggrandizement and to its ennoblement. Senator Sterling. Mr. Marshall, you recognize the difference, do you not, betAveen that earlier immigration of Avhich you spoke awhile ago and the later immigration, and the difference in the countries from which that immigration comes? M)'. Marshall. I do not. T do not, sir. The same things that are said about this immigration, this later immigration. Avere said about that earlier immigration. Senator Sterling. Do you think those of the later immigration are as readily assimilable as those of the earlier immigration coming from northern Europe, the Scandinavian countries, Germany, and Great Britain? Mr. M.vrshall. I do. I think the only reason why they have not assimilated more readily has been the fact that our country has neA^er performed its duty toAvard the immigrant. Rights and duties are always correlative, and if our country allows people to come here from other countries and does not protect them, allows them to be exploited, does not gi\'e them an opportunity to assimilate by giving them the education that thev craA-e and Avhich thev can not get un- 104 EMERGENCY IMMIGRATION LEGISLATION. less there is some systeniiitic work done in that direction, the assimila- tion, so-callecl. is not rapid. The question of assimilation is one about which I would like to say considerable if time would permit. A man is not assimilated merely because he wears certain clothes or cute his Vieard just the way the average man does, or even because he speaks the Same lan- guage: a.ssimilation is. after all. a matter of the heart and of the mind. And a man can be a true American even though he does not get his Americanism through an English newspaper. The best Ameri- can that I ever knew — and I speak here in the presence of men whom I honor and respect as Americans — nevertheless. I say — perhaps I am partial about it — that the best American I ever knew was my mother. She taught me whatever I know of the true spirit of Americanism. I imbi]>ed it from her during my youth, and yet she could scarcely speak the English langiuige. She imderstood it. she could read it, but she came to this country when she was 28 or 24 years of age, and circtmistances so shaped themselves that she had no opportunity to learn to speak the English language. And yet I never knew such ardent Americanism as she manifested. There was not a day in her life that she did not pray for America, because she knew what it meant for her and for her children, and what it meant for her con- temporaries and what it meant for the world. The Chairman. ^Ir. Marshall, is not Americanism, according to your riew. based upon something akin to the family tie ? Mr, ^Iarshall. Largely : that is one of the bases. The Chairman. An attachment or affinity in the nftture of af- fection ? ;Mr. ^Iabshall. Precisely — love. The Chairman. Not created by force, but created l\v all that which goes to form an attachment, an affinity, to America and its institu- tions ? Mr. Marshall. It is. indeed. The Chairman. Of course, that is the foundation of the national- istic spirit i Mr. ^Marshall. That is. indeed, the idea. Senator Dillingham. Mr. Mai-shall. I suppose you would admit that that class of immigration that comes as families, as yours did, ■where the father brings the mother and brings the children, is the best type and the most easily assimilated ? Mr! Marshall. Well, that was not the case in my family. My father came, and later on my mother came, and they met here. Senator Dillingha^i. Well, they intended to come? Mr. Marshall. They intended to come, yes : and they came I)ecause they had a craving for liberty. My father was of the 1848 migration. Senator Dillingham. Exactly: but speaking generally of immi- gration, you would look upon that class that intended to come and bring their families and make their homes here as the class that Wduld naturally l)e most (|uickly assimilable? Mr. Marshall. That is an added fact. Senator: I appreciate that, and for that reason I feel that most of this immigration that is now being maligned, that is being called a flood of aliens, is really accom- plishing the very thing that yon indicate as lieing of sr» inii)ortant a character. EMERGENCY IMMIGRATION LEGISIATION. 10& For instance, before the war — by that I mean 1914 — a great many men came over to this countr}" for the purpose of blazing the way for their families. They hoped to gain a competency, and then they would send for the wife and for the children and for brothers and sisters, so that they might come liere and be reunited on these shores. Unfortunately, the war made it impossible for that reunion to take l^lace, and the consequence was that the head of the family was on this side and the wife and children on the other side, and they have been on both sides yearning for the day of reunion of the family. And the husband, after the doors were opened and after transporta- tion became possible, sent for his familj' to come here, and the people who are now coming are largelv people who answer that description. The evidence taken before the llouse committee shows that there are many women and children among the immigrants coming from east- ern Europe. They are coming for the purpose of joining their hus- bands and fathers. It is to reunite the family that these people are coming to our shores. Senator Dillingham. You are now speaking of the most recent immigration ? Mr. Marshall. Of the most recent, the present immigration. Senator Dillingham. I have figures for the month of August that • are official; these are the latest I have been able to obtain. I find that the number admitted was, in lound numbers, G9,000, and of those 38,677 were men and 28,692 were females. Mr. Marshall. That is the explanation of it. Senator Dillingham. That is a larger percentage, I think, than has before obtained. Mr. Marshall. And that is due to the facts to which I have just called attention. Senator Dillingha:vi. During that same month the outgoing num- ber was something over 43,000. Mr. Marshall. Yes; I have those same figures from another point of view. But let nie further answer your question as to the more recent inmiigration — because I never care to dodge a pr()[)Osition, The more recent immigrants are men that we do not know as well. as we do the older immigrants. They are people who are working in the industries, and to some extent they are men who have not yet| established their families and have not taken root to the extent that^ those took root who came with their families or those who shortly after thej' arrived in this country were married. But as rapidly as, is possible a large percentage of those people do settle down. '. I know that in Syracuse — and a man knows a great deal more of a toAvn like Syracuse than he can of a city like Xew York, unless he. has a chance to visit the various districts — I know that some of thel most estimable citizens of that city are men of that same immigration^ that you speak of, men who came from southern Europe and from^ eastern Europe, who are respected, who are prosperous, whoare^. honored by their fellow citizens in every possible way. And amono^ them we find men whose sons have entered the learned professions. They are physicians and lawyer^ and membei's of the clergy. Theii daughters become .-chool-teachers. They enter different vocations ^ Some of the leading citizens of Xew York City who are iuterestecj in, for instance, the interracial movement ai'e men of those samtj^ 106 KMKH(;1:NCV I.M.MIGHATION I^EtilSLATlOX, types — nit'ii fi-om StM-hiii. men From KuDiania. men fiom Hiilhall. is it not true that many of the recent immi: they worked on the sui)way in Xew York that was just then bein^f built, and they havv a ritrht to treat them as (ontemijtuously as they are treated in new>])ai)er head- lines, especially inspired newspaper headlines. Now. then. 1 say we start out with a presumption in favor of the immi«irant based on history — not on prejudice, not on imaua^'e news[)apers of the second-class mailing privileges, the claim being made that these newspapers were minis- tering to those who were hostile to the country. I had the statistics there showing the numl)er of the newsi^apers and how they were divided as to languages. There were approximately l.'iOO, and they were in almost every language of the world. I think there were representatives of at least 48 diiferent languages. The Chaik.aiax. Mr. Marshall, will you mail a copy of that to each member of the committee ( ]•.^rERGEX('v i.\r.%[[(;RATi()x lkgi^^latfox. 107 Mi-. JMakshai.i-. I sliall Uo veiv fflad to do so. Xot more than 2^ ])er cent of those newspapei's were in any way tainted with tlie ideas of coniniiinisni oi* tliose views wliich tend to destrnc'tion and to disruption. At tlie same time we had ])nl)lislied in tlie Enuafres. and even then, Avhen the feelinjr between Enjrland and (irermany was at its heieak the lano;ua^e of the ])eople where they did business, and in that Avav they <).000 immifrraiits a year. There was one year when we had l.OOo.OOO or l.*250.(K)0. Those people Avere all absorbed in our indus- tries. They were all busy, they were all occupied, thev were all useful. Xow, the war be:o at the same time a great need in munition factories, in our war indus- tries, of man power and woman power. The immigrants worked there, those that did not go to war and those that did not work else- where. A large number of them worked there. During all that time this menace that is talked about did not exist. It was absolutely nonexistent. Xov,-. wlnit has happened since that timei' From the 30th of June. 1920. to the 1st of December. 192(». the official figures show that the total immigration for July. August. Septeml^er. October, and Xo- vember w-as 472.000. in round numbers: the total emigration was 181.00(». and the net immigration was 291.00O. If that same ratio continued for a year, that would be less than 700.000 for the year, as I calculate it. What menace is there in that ;' What occasion does tiiat give for this hasty legislation f Sen.itor Sterling. Have you the figures for the last two months, Mr. ^larshall. showing how many have come int(j the country ( Mr. ]SIar>hall. Yes. I do not have them for December, of course. For October the immigration was 6c>.oOO: for Xovember. (i9.')00. The Chairman. Senator Sterling, I might state that these figures from the Department of Labor show for Septeml)er. 9b.4O0 admitted; depaitures. 31.200: October. 101.000 admitted: departures, 33.(X)0; Xovember. 103.000 admitted; departures. 34.000. Mr. Mar.shall. Those are the figures that I have just given. The Chairman. I have not received from the department the December figures. Mr. Marshall. I have not the December figures either. Those are tiie facts, now. upon which you are called upon to legis- late, to legislate by way of a prohibirion. and to legislate on the theory of an emergency. Xow. in the first place, you have got to have the emergency. You have the fact that in these five months the excess of immigrants over emigrants is 291,00<3. Is that such an emergency as will justify this drastic kind of legislation, this closing of the door, this establishment of a precedent which is contrary to the traditions of America, contrary to the traditions of which we have been justly proud I Does it justify the insulting — I think that is the correct word to use — of men of alien liirth who have become incor- porated into tlie body of American citizen.'^hil^ and the men of immi- grant descent wlio are attempting to do their duty as Americans by saying that because 291,000 people have come to the T'nited States since the 1st of July over and above those who have gone out you must close the doors to all immigration? EMERGENCY IMMIGRATION LEGISLATION. 109 The Chairman. Mr. Marsluill. there is another phase of this threatened flood. AVe are al)le quite accurately to tret at the facts as to the number of arrivals and departures down to. we will sa}-, the 1st of January. altliou«rh some of the details are lacking as to the countries durinides. and where, of course, the numl)ei-> nuist of necessity he limited l)y the numher of jjeople on this side can help them come o\'er. limited by the (jues- tion of expense and limited hy the othei- circumstances which natu- rally would prevent the people from cominast years, of n ])ercenlnfre basis. I y any board, no matter how high-minded the men may be who compose that board. The standards of legislation, the standards of law. must be such as are laid down by the Congress of the United States, the law-making lK)dy: they must take the responsibilty and they must not shift it upon any official body, whether it be called a board or a commission, which is to determine Avhen the doors slinll be open and when they shall be closed, how far they shall b.e opened, to whf»m they shall be opened, and to determine what the economic condition of the country is on the 1st day of January and vchat it may be <>n the 1st day of July or any intermediate day. or for how long present conditions are going to prevail and when the change may take place, and how this industry may be affected or that industry may be affected. It is all too artificial: it is all too much dependent upon the length of the chancellor's foot, and I have no desire to introduce into this country any such elastic standards of measurement as would be created by the establishment of such a bureau. T merely say this as an outline, to indicate that there is a great deal to be said in honest opposition to measures which I know have re- ceived very careful con.sideration at the hands of those who have introduced them and those who have discussed them, but which I feel, nevertheless, would not be conducive to the welfare of the country. Senator Sterlixg. I just want to say this one word, if I may be permitted, concerning the powers of the board. I think we find some analogy to it in the powers conferred on other boards and commis- sions, as. for instance, the Interstate Commerce Commission. In the bill to which you refer, and I may say my own bill. Congress does declare a policy Mr. Marshall. In a general way. but I do not think the analogy is a perfect one. The Interstate Commerce Commission deals with the subjects of freight rates and passenger rates. These are de- pendent upon facts which you can determine at the time- when those rates are determined. Under the law the railroads have to make EMERGENCY IMMIGRATION LEGISLATION. 113 reports as to their proceedings, as to their earnings, and as to their expenditures. You have passed a law as to the valuation of the property of the railroads ; I think that law was passed in 1913, and I believe that so far only one railroad has been partially valued, and the Supreme Court of the United States recently held that it was valued on an erroneous basis. But you nevertheless have a fixed basis on which you may proceed, and then you have a right of review in the courts. You have no right of review here. Senator Sterling. One further question: Would you be in favor of any restriction on immigration? Mr. Marshall. My answer to that is that I am in favor of a re- striction on immigration, and you have it. Senator Sterling. We have certain excluded classes, of course. Mr. Marshall. That is an effort toward restrictfon. No person who is mentally, morall3\ or physically unfit ; no person who is opposed to our Government or to organized government ; no person who would be a public charge: no person who would come to this country with the idea of not being faithful to the Constitution and laws of this country should be admitted or is to be admitted to-day. And now you have also added no person who does not know hoAV to read and write. Senator Sterling. Not write. Mr. Marshall. To read ; and that is where you are on the wrong side of the proposition. I think that is absolutely erroneous, but I shall not discuss that. Those limitations you now have keep out the undesirables. We do not want criminals, we do not want people of a low mentality, we do not want people who are physically un- fit. They are an injury to the- country, they are an injury to any country, and we do not want them and will not have them. What we need, however, is one more limitation — and I rather would not call it a limitation. It is a limitation upon the economy practiced by Congress with regard to the administration of the ex- isting laws. I am generally very much in favor of economy in public expenditures, but Avhen you have a law I believe that that law sliould be faithfully and effectively administered, and you can not administer the immigration law unless you have a sufficient number of men to perform the duties that your immigration laws as they are now written demand. Take, for instance, the question of public health. Nothing can l>e more important than that. Nothing can be more im- portant than to have the immigrant when he comes to this country thoroughly examined for the purpose of finding out whetlier he is in good health or bad health. And yet, as the minority report of the House committee on this very bill points out, they have not sufficient physicians to perform that duty in the various ports of entry to this country from abroad, the various gateways through which the immigrant enters. Now, as to the other examinations that are required by the statutes of the immigrants as they arrive : We are told by the newspapers, and it is admitted also by Congressman Johnson, that it is a very sad sight to see the way the people are herded on Ellis Island when they arrive. Thej^ are treated as though they were cattle; they are manhandled. The excuse is that they can not do better than they 26911— 21— PT 2 2 114 k.mi:k(;k.\(\ iM.\n(.i;ATi(ix j,E<;isLATif ix. do. l)eraiise they have not ^ot the facilities, they have not trot the men to go throu<2:h and make the examination, to pass upon the im- mier. and Xovember. as read by the chairman of the com- mittee a little while ago. would give a little in excess of an average of 6«.000 for each month. That would be at the rate of .slG.lM)0 per year. I think that for the month of December the net immigraticm will exceed 75.000. Mr. Marshall. I have not any knowledge on the subject. l>ut I should doubt it on general principles. Senator Sterling. Assuming, however, that it does, do you not think it will amount to more than a million a year at the present rate ( Mr. Marshall. Xo. Senator Sterling. Suppose it does amount to a million a year; do you think we ought to admit many in excess of a million a year? Mr. Marshall. Of course, the (juestion is what you mean by '"many." It all depends, after all. upon the question of whether or not there is a need for the men. If we need more there can be no ol>jection to more coming in. If we do not need them and their coming leads to unemployment in the Ignited States to a great ex- tent, why. then, it is a matter which should recei\e consideration. Senator Sterling. Now, we come back to a principle involved in the bill to which you referred. Can Congress at any given time determine how many may l)e entered, how many may be safel}' ad- mitted, so far as our economic and industrial situation is concerned? Mr. Mar-shall, When that time comes Congress can act. l)Ut that time has not come, and I wish to say in that connection that I do not think the time ever will come. Because the economic principle EMERGEXt'Y IMMIGRATION LEGISLATION. 115 which was adverted to ^-esterday and which I can testify to from observation as being a correct principle, is that the moment that un- empkjyment arises in any connnunity then from that moment immi- •rration to that community necessarily ceases automatically. If people leave their homes it is with the expectation of betterinjx their condition, and if they feel that wlien they arrive in their new liome they will have no employment, no chance to occui:)y themselves, and that they face starvation in a forei<>n land, they will not come here. That has been shown to be the fact in every one of these various l)eriods of depression that has occurred in our history. Senator Xugext. Mr. Marshall, let me ask you a question, for in- formation only. Suppose that in such a situation as you have re- ferred to the wages here in this country are far in excess of the wages received by men in the old country and at the same time far below the recognized American standard of living. Do vou think the people from the old country could l)e induced to come to this country under those circumstances if they could make more here than they could at home and if at the same time the wages here are less than the recognized American standard of living? Mr. Marshall. That depends upon a great many elements, Senator. Senator XruEXT. I am speaking of the general proposition. Ml'. Mausiiall. As a general proi)ositon I can not answer it. but from tlie practical standpoint I Avould say this : The man abroatl who wants employment wants to go where he can find that employment. If, for instance, it is sheepherding in Idaho he will not know any- thing about that, or if it is a question of being a lumberjack in the State of Washington he will know nothing about that. Senator Xi cent. Supi)ose it were working in a coal mine in Penn- syl\ ania. or in a steel mill in Pennsylvania, or in a woolen or cotton manufacturing establishment in the Xew Englaiul States. Mr. Makshall. Well, he is confronted in the first place by the fact that many of those industi'ies are unionized and he would not be able to get work there anyway. Senator Xr(;KXT. The steel mills are not luiionized. ^Ir. Mahshall. Xot yet. Senator X'^itiKXT. You remember. I presume, that Judge (xary dur- ing the strike last year complained \ery bitterly, according to the l)ublic prints. l)ecause of the alleged fact that an oxerwlielming ma- jority of his strikers were foreignei's^ Mr. Marshall. Yes. Senator Xr(;ENT. And the same thing is true of the coal operators? Mr. Marshall. I do not think tiiere can be very much complaint then of the aliens, that they are strikers: if they are trying to get a higher wage and better conditions they can not be a menace to the employed. Senator- Xi <;j;nt. I am very much in accord with your view, be- cause if the public prints aie to be l)elie\ed he was very instrumental in bringinii- tiiose gentlemen here. Senator rI(»HXs(»x. Yes: on the facts as developed he is estopped from complaining. The Chair:max. On the (juestion of emergency I am very much interested in the increase that is going on in the imuiiirration from 116 i:mkk(;excy immigration legislation, month to month. I find that durinir October. September, and Xovt'mber there was no increase. I do not know about December. 1m otlier ^^ords. in September 98.400 came in and 81,0(J0 went out. Iji ( )(tol)er 101.000 canie in and 83.000 went out. In November 103.000 cnme in and — tliere we have an increase — 34.000 went out. So tliat during: those three months — I am dealinjr with the emer- irency — (birinir those three months of September. October, and Xf)veiiiber we find no increase. Mr. MAR.'iHALL. Precisely. The Chairman. I do not know about December. Mr. M.VRSHALL. They talk about an increase. I heard Mr. Wal- lis's name mentioned, witli the suircrestion that he will probably be here. I saw that lie made a statement to the effect that from S.OOO.OOO to 15.000.000 people were expected to come over here. I do not know wliere lie pets his ideas. The Chaiilman. Do you know anythinttoii crop we must have outside help in savinjr it when once made. This lahcr must be of the variety tiiat can stand the sun and exposure of this heated clinjate in cotton pickinjr time, and Mexico furnishes the only available ma- terial of |in them for years and must coiitinue to do so. Itespectfully ursed that the immigration hill he amended so as to provide for the use of this labor at this time. At the request of Senator Sheppard the followinir teleirram from the Fort Worth Chamber of Commerce is read : Senator Morris Shkppard. Waxhinnton. D. C. ' We resptH-tfully urge that you cooperate and assist, and at the same time re- quest that you present oiir position which follows in reference to the inuui- gration bill now pending before Senate committee: Whereas there is an imperative need for .seasonal farm labor in the growing of agi"icultin-al crops : and Wherea'15 an exodus of labor from Texas to Northern ami Eastern States occurred during the years 1917 and 1918 and which the commissioner of labor of the State of Texas estimated at the time as amounting to nearly 1.50,(X>0 persons ; and Whereas the floating labor now available to the State of Texas is no; capable of supplying the demand fur this agricultural labor ; and EMERGENCY IMMIGRATIOiSr LEGISLATIOX, 117 Whereas Texas looks to Mexican labor to supply this demaiul ; now therefore be it Resolved. That the executive committee acting for and by the autliority of the board of directors of the Fort Wortli Chamber of Commerce hereby call to the attention of the United States Senate committee and Federal immigration autliorities thes^e very important facts and urge that any proposed immigra- tion legislation provide some relief which will perniit Mexican labor to be brought into the United States for agricultural production under such rules and for sucli lengths of time as may be necessary to serve this purpose in tlie most efficient and proper manner. Then we have tek'crrams from the followin*: Texas commercial or«ranizations. etc.: T'vahle Chamber of Commerce: San Marcos Chamber of Commerce: Brownsville Chamber of Commerce. San Juan Commercial Chib; San Benito Chamber of Commerce; Farm- ers" State Bank. Donna ; Center Chamber of Commerce ; Aransas Pas.s Chamber of C(mimerce; Victoria Chaml)er of Commer-e: Rock- dale Chamber of Commerce : Vernon Chamber of Commerce : La- redo Chamber of Commerce: Pearsall Chamber of Commerce: Brownwood Chamber of Commerce: Dallas Chamber of Commerce; McAllen Chamber of Commerce: Waco Chamber of Commerce; Austin Chamber of Commerce: Electra Chamber of Commerce: Tem- ple Chamber of Commerce : Kleebero^ County Coinmercial Club ; L. L. Shackelford, Denison, Tex. The Chair-aiax. Alono- that line of the a«rricultural situation in the Southern States, and Florida, I will now call Mr. Happer and several other witnesses, and 1 will ask them if they will be as brief as possible, as I think the facts with regard to the ^Mexican situation are pretty well before the committee. STATEMENT OF MR. J. A. HAPPER, OF THE EL PASO CHAMBER OF COMMERCE, EL PASO, TEX. Mr. Happer. I will be very brief, gentlemen. I represent the El Paso Chamber of Commerce, and the Mexican-American Border Chamber of Commerce, an association of chambers of commerce from Brownsville on the Gulf to San Diego. Calif., of the west. That territory along the ^Mexican l>order is a semiarid tcrritor}', with various places where we cultivate cotton and other crops by irrigation. We have been cultivating it since 186.S, and we used only Mexican labor. It is itinerant Tabor. Most of the farms are owned by American citizens, or Americans of Mexican decent, but the laljor that we use durinof the farming season has ahvays been itinerant labor from Mexico. Previous to the law of 1917 they came voluntarily. We had no trouble. But after the new- law went into effect we ha^-e had to have help to get labor for our fields, for our cotton, for our corn, and otlicr crops, ^.uch as alfalfa, etc., and we have used Mexican la'jor under the section of article 3 of the law of 1917, granted by the Secretary of Labor. We have never had any other kind of farm labor or itinerant labor but this Mexican labor. It is the onl}^ kind we can get that can .stand the extreme heat of day, and in places in the high altitude, the cold nights, and that will come and stay during the farmiT>g season, and then leave. The same thing is also true for the wool- growers in the lambing season. Thev have used Mexicans exclu- 11(S K.MKiaiKXCV lAlAIKiltA riON l.KdISLA'l l< »N . si\('ly i"(»r tluit woilc: it is only f<»i- a short tinu*. iiiid thcv couk* aiul <:<). We lia\t' at various times tried to jiet lal)or from tlio imlustrial centers diii-iiiir dull times, but they will not come as far as the Mexican border, or particularly as far as the western part of Texas, and Aiizona, and New Mexico, on account of the lon<; distances and the «riH'at expense, and it is too expensive for us to brinrotit off them. We have in the El Paso \'alley increased our farm acreajre in the last 9 years from 18,000 to 114.000 acres, and it is nearly all owned by American farmers, and the itinerant labor is the Mexican labor. We have increased our cotton acreufrt' in the El Paso \'alley from l.GOO acres to IS.OOO acres in the last year alone, and we have to have that kind of labor to })ick our cotton and cultivate it. and if this emero'ency l)ill i>'oes through and some pro\ision is not made whereby we can take our case to the Department of Labor, we would ])e in a very batl way as far as our farms are concerned. AVe do not ask a special provision allowin*r them to come in. AVe simply ask that in case we can not X I.KlilSLATIOX. three or four or five hundred at a time — and this time of the year especially, from the first of N«>vember up to the latter part of De- cember, when the cold weather comes on. they are letiirnin*: in cfreat numbers. Senator I)ii-mn(;ha.m. How many have been admitted annually of late, in the territory of which you are speakinjr :ind which you represent ". Mr. Maxdkvillk. \\'ell. do you mean under this exception? Senator Dillixoham. Yes. Mr. Maxdeville. I haven't got the 1920 figures from all of our people, but for our purpose we had about 12.0()() that we brought over in 1919. and I should say. Senator, that if we did not have those 12.000 Mexican laborers it would be a loss to us of 120.000 acres of su^rar beets. ^'ow. we ha\e a pecidiar condition existing in the sugar-beet busi- ness which probably you people know. AVhen the sngar-l»eet indu-?- trv was first started in the United States and first talked of. the great demand, the great necessity of hand labor, was scaring the farmer, making him afraid to plant sugar beets, for he didn't know where he could go and get this labor. So the sugar-beet companies said, " You sign uj) for your beet aition. and it is hard work for them individually to get help, so they enter into this agreement with the sugar-beet companies, and the sugar-beet companies arrange to supply them with the necessary labor. Senator DiLLiXGHA>r. Are the beets raised by the farmers under contract ( Mr. Maxi.evillk. Yes. sir: and this work is done by tlie Mexicans for the farmer under contract. It is paid for by the acre, as a rule, ex- cepting in California, where the topping is done by the ton. The thinning and hoeing is all done by the acre. California is practically the onlv place where the topping is ka they have to be all out before the 19tli or 2<)th of Xovember. or there is danger of them freez- ing, and there are a great many factories operating there to-day. I thank you. gentlemen, for thi> oj^portunity. The CiiAiR^fAX. Ml-. IJov Miller. STATEMENT OF MR. ROY MILLER. SECRETARY OF THE RURAL LAND OWNERS" ASSOCIATION, CORPUS CHRISTI. TEX. Mr. Mii.i.Ki:. My name i- Koy Miller, of Corpus Chri-ti. Tex.. representing the tiural Land Ownei-s' Association, an organization rompo.sed of landowners and farmers of 20 counties in South Texas. Mr. Chairman and gentlemen of the committee. I shall endeavor to l)e very brief, because I think the committee has a fairly good under- .standing of tlii» (iuesti(m. representatives from various Texas organi- KMEROKNC^Y IMMIGRATION LEGISLATION. 128 /ations have presented teHtinionv before this cominittee at its hear- in": hist January. The section which I re|n'esent. an airi'icnkuiai and live stock sec- tion, is dependent ahsolntely and entirely upon the Mexican lalior. The section of Texas which 1 represent was formerly a part of Mexico. That section lyin: in this ^lexican labor at times when they need it. the agri- cultural deAeloj)nient of that secticm of the country will be abso- lutely dojie for. Our country is cliiefly a cotton country. Cotton is a crop which re(juires. as you know, a large amount of labor for brief times during the year. The chopping season, which occurs early in the year, say in ^lay or June, is a season which re<|uires this labor: and then this labor is re(]uired chiefly in the ])icking season, which occurs in August and Septembei'. And particularly in the picking season Ave need from five to six times the amount of lai)Oi- for a few Aveeks in the year which the industry could i)ossibly sup- ])ort the year around. For instance, during the season Avhich has ju.st clo.^ed. in Xueces County, of Avhich Corpus Christi is the county seat. Ave used lietAveen ten and tAvehe thousand laborers for a period of about two months to pick the crop. Most of those laborers came from Mexico. The organization which I rei)resent endeavored to get cotton ]uckers from other sections of the South. They sj^ent several hundred dollars in an advertising canijiaign; but Ave Avere unable to get the laiior. We haA'e no Xegroes in our section. We dej)end absolutely on the Mexican labor. So avc merely suggest to this connnittee the impor- tance of some ])rovision Avhich Avill i)ermit the farmei's and ranchmen in our section of the country to use this Mexican labor Avhen the need exists. We are perfectly willing to iea\e the mattei' in the dix-i-etion of the Secretary of Laboi-. because Ave would prefei'. 1 thiidc. as a mat- ter of patriotic i)rinciple. to employ American laborers if they were a\'ailable, and if conditions are so changed that it Avill be possibh' for us to get labor Avhich is American laboi-, Ave avouUI be perfectly willing that the Secretary of Labor shall have the authority to say that there is a sufficient amount of that kind of labor, and tliat this 124 EMERCEXCY IMMIGRATION LEGISLATION. year we shall not have the privilege of importinrr labor from Mexico liecaiise thcv don't need it. And we think that is a fair provision, a fair request. We merely desire that the Secretary of Labor shall have the authority to permit us to import this labor if the need exists. Senator Dillixgiiam. Taking the State of Texas as a whole, how great is this demand for Mexican labor? Mr. Miller. Senator, it is rapidly increasing. There was a time a few years ago when north and central Texas, which are more generally developed than our section, was able to obtain Xegro labor for the most part to pick the cotton crop, but for some reason or other, whether it is the short hours and the high wages and the bright lights of the city, I don't know, but the Xegro labor in Texas left the rural districts and have gone to the cities to a very large extent, so that each year there is a constantly increasing demund for Mexican labor, so that in many instances the counties around Dallas. 500 rniles from the Mexican l)order. have to imjiort their labor by going to the inspectors in charge of the immigration office at one of the liorder points and making application for permission to bring in Mexican labor. Senator Dn.LiNcnAM. I understand you to say that that is a grow- ing demand { Mr. Miller. It is a growing demand ; yes. sir. Senator Johxsox. AVliat is the population of vour countv. please, Mr. Miller? Mr. ^Miller. The population of the county in which I live is 30.000. Senator Johnson. And of Corpus Christi ? Mr. Miller. Well, we had a storm down there a little over a year ago. The census gave us 10.700 odd. but the census was taken after the storm, so we clairn that we really have more than that. Senator Johnson. It was mere curiosity on my part. Mr. Miller. The CnAnniAN. Thank you. We will next hear from a re])resentative of the Texas Chamber of Commerce. Dallas. Tex.. Mr. Walton Peteet. STATEMENT OF MR. WALTON PETEET. MANAGER AGRICULTURAL DEPARTMENT, TEXAS CHAMBER OF COMMERCE. DALLAS. TEX. Mr. Peteet. Mr. Chairman and gentlemen. I represent the Texas Chamber of Commerce, which is a State-wide body. To save your time I adopt as my own the argument and statement made by Mr. Miller and the statements made by the other gentlemen who have spoken. But to qualify somewhat as a witness I will say that for l."> years I was connected with the airricultural college of the State, and have thus gained some knf»wledge of agricultural conditions in the State. I want simply to direct the committee's attention to this phase of the question. Agriculture everywhere has its peak load of labor, which necessitate- seasonal labor, bringing them in from other sec- tions; and with us the demand is greatest in the cotton industry and in the grain and wool indu.stries of the West. We are out of the line of niigratoiy labor. To^^ut us off frf»m imj^ortarion*^ of Mexican labor during peak loads would be equivalent to denying the grain EMERGENCY IMMIGRATIOX LEGISLATION. 125 farmers of the XortliAvest their annual supply of harvest hands, because they moA^e in a circle there. The orrain labor begins in Texas Avith the f^rain harvest along in the early summer and moves on a circuit north and west. And then there are the migratory movements of labor employed in the hoi'ticultural industries, both east and west and north. But we are in a })Ocket down there and out of the circuit of that migratory labor, and thus our only source of supply is from Mexico. Xow. in stating these vieAvs to the committee I wish to say that these views represent the judgment of the business interests of Texas, and the views I have here expressed are those obtained by the Texas Chamber of Commerce from a referendum of this question among the business men of the State. We realize that our State is an agri- cultural State: that its prosperity depends upon the prosperity of agriculture; and therefore Ave realize that argiculture requires sea- sonal supplies of labor in excess of the normal requirements, and that there are no other sources of supply than Mexico. I call the committee's attention further to the fact of the estimate that Avas made by the State commissioner of labor that the State lost during 11)17-18 15(),()()() Xegro laborers, Avho came to Avork on the railroads and in the mines and the factories in the Xorth. and that supply of labor has gone from us. A feAv of these Xegroes liaA'e returned, but nothing like the total number that left. We have no large cities from Avhich Ave may recruit the labor. Especially is that true in the region Avest of Dallas, Avhere our great grain-sorghum crops and our cotton crops are raised. So Ave can not go into the cities and recruit bands of labor to come out onto our farms as you can for your harvest hands of the West and of the XortliAvest. And so the production of cotton, of our grain and sheep and cattle, de- pends to a A-ery large measure upon having access to the labor market •of ^Mexico during these seasonal periods. I thank you. gentlemen. The Chairman. The Texas Cotton Growers" CooperatiAe Associa- tion, represented by Mr. Fred Roberts. STATEMENT OF MR. FEED ROBERTS, OF CORPUS CHRISTI, TEX., REPRESENTING THE TEXAS COTTON GROWERS' COOPERATIVE ASSOCIATION. Mr. Roberts. Mr. Chairman, I am here to-day first of all represent- ing myself as a farmer. That is my business. That is the only source of income that I have — groAving cotton. Secondly, I repre- sent about 1,200 farmers in Xueces County. Avho this year grcAv and gathered approximately 73,000 bales. I also represent the Texas Cotton Growers' CooperatiA'e Association, an institution that is State wide. In Texas Ave have a peculiar condition. A strip about 800 miles Avide by about 500 miles long depends entirely upon Mexican labor. We have never had any other kind of labor, and to my certain knowl- edge for 35 years Ave have not had an influx of labor from any other source. There was a time when Ave could get cotton pickers from the large cities — Houston. Dallas. Waco, and other places — but that condition 12() K.MKIKillNCV I.\1.\1I(;UATI<>X l.K ilSLATKtX. lit) loiiifei" exists. The lalioivrtf in tliose coiiiinimitii's luive drifted north. So then it is up to us to use what labor we ha\e. and Avljat we can ifet. and that is Me.xican hd>or. ^^'e know nothinales of cotton in Texas, when we have a normal crop, can not be Mr. Rosemund present ? I^ Mr. Jeshurin present ? STATEMENT OF MR. E. H. JESHURIN. PRESIDENT OF THE WORK- MEN'S CIRCLE. NEW YORK CITY. Mr. .lEsiiUKix. Mr. Chairman and gentlemen of the committee. I represent the Workmen's Circle, a fraternal order composed of 83.000 members .scattered all over the United States. I have been authorized by the executive committee of this organization to be |)laced on record as being opposed to the susjjension of immigration. The CiiAiR.MAx. Have you anything further to say ^ Mr. Jf.shirin. That is all. The Chairman. You are opposed to it ? Mr. JEsnrRix. Yes. Senator Joiin.sox. Yes; he wants it to go in the iccor.l that tlie oiganization he represents is opposed to the bill. The Chairafax. Senator Phipps. KMKRGENC'V IMMrORATlOX LECISLATION. 127 STATEMENT BY SENATOR LAWRENCE C. PHIPPS, OF COLORADO. Senator Phipps. Mr. Chairman and <(■( III lirr .^-S. I'.i20. Hull. L.VWHKNCK {'. rHU'l'S. I'liitcil SIdfrs f. C. 1>KAU Skxatok : It has <-()iiit^ to (mr iitU'iUion that the hiwer house of Cou- irress lias jiassed a hill known as ihe " Teiuporary Siis|U'iision of Iiunii.m-ation " of all persons into the I'nited States for a period of i>ne .vear. AVe, the farmers of Otero Count.v. known as the "Otero ("ount.v Farm Bureau." feel that the raisinji of suirar heets is onr ehief pa.vin;; industry and the only labor that we have dei>ende;l on ever since the raisinsr of suirar he«Ms 128 KMERGENCV I.MMIGllATIOX LECJISLATlOX. sfjirlod ill this territory jilxmt 20 years ajro for tlie Iiniid liilmr and also for practii-ally all other coiiiinoii lahor on our faniis has hecii the Mex'caii. If this l>rivik';:e is taken aw.iy rrum jis we fee! tliat if will practically I'u'n all oi' the farmers located in the Arkansas Valley in the St.ite of Colorado. We, therefore, petition yon to nse your hest efforts to have an ainendiuent or proviso put in the hill wherehy we can at least ohtain the lalior under suspension of the iinnd- ^raticHi re.indations as we have for the past three years. Yon know that the sujiar heet and seed crops are our principal money-making crops, and it takes lots or hand lahor for all of them, and the Afexican is the only lahor that w:!I do this work in this territory, so it is ahsolutely essential that we have the Mexican in this territory if we are .i;oing to continue protitahle farming in this valley. Hopin.ir that you will nse your .irood ofhce in onr hehalf. we remain. Yours. v(>ry truly. OtKKO rOXNTV F.XKM UlRKAU. By Wm. F. Dkoge. Agent. H. I'. Badokr. Secretary (iml Treasurer. C. J. Cover. Senator Phipps. The other seed crops that are referred to in that letter particithirl}^ are the potato crops. There are sections of Colo- rado, particularly the San Luis alley, which were originalh" peopled by ^lexican settlers, and where to-day the Mexican element predomi- nates to at least as high a percentasre. I should say, as To per cent. The potato crop is a heavy crop that requires extra labor, and the Mexican labor is also extensively used in harvestino- th.e wheat crop through the Arkansas Valley, the San Luis Valley, and several other large agricultural districts of Colorado. The same conditions T un- derstand exist in W^^oming, and. as I said before, in Nebraska largely, and in sections of Kansas. It would seem to me that it would be most advisable to permit in any event the continuance of this practice or plan of bringing in under temporary permit the labor which is essential to maturing and harvesting the crop in those western agricultural States. I notice the Senator from California is here. He is familiar with his own problems, and I believe from my own observation that con- ditions there in his State are somewhat similar in regard to other staple products of California. I think I may add that I have been an eyewitness to the fact that ^Mexican labor is brought in there very largely to assist in the harvesting of the California crops. I believe that is all I have to offer. Mr. Chairman, unless there are some questions which you would like to ask. T thank you very much. The Chairman. I might say. Senator, that we have heard a good deal of testimony as to the necessity for the admission of temporary labor of this character from Mexico. I thank you. Is Mr. Max Pine here? Mr. Pine represents the United Hebrew Trades. STATEMENT OF MR. MAX PINE. REPRESENTING THE UNITED HEBREW TRADES-UNION IMMIGRATION BUREAU AND THE UNITED HEBREW TRADES. Mr. Pine. Mr. Chairman and gentlemen, the United Hebrew Trades are composed of all the trade-tmions of (Jreater Xew York and vi- cinity. "We ha\e a membership of a quarter of a million out of 10.5 unions, and 32 different trades and professions. Our Trade-Union EMERGENCY IMMIGRATION LEGISLATION. 129 Immifrration Bureau was recently ororanizecl for the purpose of dis- tributing the new arrivals throufrhout the country so that they should not be grouped in one particular district, and so they should not hurt the standard of wages in any section. Senator Johxsox. Are you doing that work noAV? Mr. Pine. To a certain extent. We have established an office and we have an executive secretary and we raised a fund to do this work. Senator Johnson. That is, you are endeavoring to allocate the im- migrants who come over? Mr. Pine, Yes, Senator Johnson, A work that the Government ought to do, Mr, Pine. The United Hebrew Trades, an organization constitut- ing the central labor body of the various trades in Xew York City, and the Trades-Union Immigration Bureau, organized for the regu- lation and distribution of labor over the country, representing ii membership of 250.000. desire to be recorded as opposed to the so- called Johnson bill, which provides for the temporary suspension of immigration into the United States, These organizations are opposed to the bill because they find it unnecessary and inadvisable for this country to suspend or restrict immigration at this time. The membership of these organizations is by the very nature of things familiar with labor needs of this country, and it does not fear the menace of labor competition for the following reasons: The present conditions of depression are by no means due to an overflow of immigration. On the contrary, whenever business comes into its own there is a lack of immigration. After the armistice the conditions of unemployment were similar to the present conditions. We were afraid that the demobilization of the American forces would aggravate the situation, but found our- selves, after a short period, again short of labor. We believe that America, with its splendid industrial development, and with its immense resources, ought to be the workshop of the world, and will always be able to absorb to advantage the lalior im- migration. As trade-unionists we are not afraid that a few immigrants will undermine and lower American standards of living. If it wore true that the immigrants lowered the standard of living, American wages Avould be steadily declining. As a matter of fact, wages have steadily mounted up to the present day. Senator Johnson. What is your union, please? Mr. Pine, The United Hebrew Trades, the Trades-Union Immi- gration Bureau, The United Hebrew Trades is an organization con- stituting the cential labor body of 105 unions composed mostly of immigrants. We have got negroes and Americans in it. too. but the dominant membership of the organization is composed of immi- grants. Senator Johnson, And that represents what particular trade ? Mr, Pine. The needle trade mostly. However, we have other organizations in it: we have some members of the tailoring trade and we have got some of the metal trades, 26911— 21— I'T 2 3 130 i;;iF:RrTE]srt"Y immfcratiox i.E'.mslatiox. S«Miator JoiiNsox. Is it substantiallj'^ composed of members of the needle trade? Afr. Pine, Yes, sir; such ns the ladies' fj^armeiit workers and the men's <;arment workers. But we have fjot branches of various other trades in the orfranization, unions that belonj^ to the American Fed- eration of Labor and also belonging to our bod}'. Senator Johnson. Principally the needle trades are represented in your organization? Mr. PixE. Yes. Senator Johnson. Would you mind a personal question? Mr. Pine. Xo, sir. Senator Johnson. If 3'ou prefer that I not put it, I will not ask you. Where were you born, if you please? Air. Pine. I was born in Russia. Senator Johnson. And you have been here how long '. Mr. Pine. I have been here 31 years. Senator Johnson. And resided in New York during tiiat period? Air. Pine. I resided in Xew York City all that time : yes. sir. Senator Johnson. Can you tell me something more of the plans that you have for taking care of immigrants? We have such a sclieme, you know, and that is the reason I am particularly interested in it. Air. Pine. We called a conference of all the trade-unions, with the approval of the American Federation of Labor — that is. of all the trade unions interested in the distribution of the immigrants, so that they would not be crowded into one section — and we raised a certain amount of money for this organization, and we organized branches in Chicago, Philadelphia, Boston, and Baltimore, and we have con- nections with other trade-unions in those cities. Senator Johnson. Have you those branches established now? Air. Pine. Yes, sir. Senator Johnson. And do they represent more than the needle trades industries? Air. Pine. Yes. sir; we have got metal workers and printers in our organization also. It is not only the needle trade workers. Senator Johnson. Now, how do you take hold of the immigrant when lie arrives, if 5^011 do take hold of him at all ? Air. Pine, ^^'ell. we are trying to get in contact with the Immigra- tion Bureau, I mean particularly at Ellis Island, and the immigra- tion office in New York C^ty. And we also come in contact with the Hebrew Immigrant Aid Society, which society is giving the immigrants first aid, you know, and we are trying to take a record of the immigrants and seeing about locating their relatives, and so on; and then we are trying to see that they are not all crowded to- gether in one section, and if there is no work in one place, for in- stance, we will try to find some other place for them to go to. Senator Johx'son. Are 3'ou maintaining an organization to do that woi'k now ? Air. Pine. Yes. Senator Johnson. And it is actually being done now ? Air. Pine. Yes. I want to say. Senator, that for the present we do not send out any immigrants from New York, but we are placing them in the various unions and the various trades. I should sav that. EMERGENCY niAIIGEATION LEGISLATIOX. 131 Senator Johxsox. Do you look forward to perfecting your or- ganization and accomplishing work along the particular lines you refer to ? Mr, Pine, Oh, yes ; we hope to do that. This organization has been in existence only three or four months, however. Senator Johnson. Well, I wish you success. Mr. Pine. Thank you. The Chairman, ^'Ir. Bernstein, of the Hebrew Sheltering Aid Societ3^ STATEMENT OF MR. JOHN L. BERNSTEIN, NEW YORK CITY, REP- RESENTING THE HEBREW SHELTERING AID SOCIETY. Mr. Bernstein. Mr. Chairman and gentlemen, my particular pur- pose in appearing before you this afternoon is this: Mr. Louis Mar- shall has quite fully covered the point at issue, but it seems to me that in the mind of the Immigration Committee of the House the emer- gency which has been referred to so many times here is due to reports which the Immigration Committee received from abroad. And in two or three instances it refers to our society, and I would like to have you gentlemen a little bit better acquainted with our work. The very first thing that the Immigration Committee says in this report is that it has confirmed a statement by one of our men. " The committee has confirmed the published statement of a commissioner of the Hebrew Sheltering Aid Society of America, made after his personal investigation in Poland to the effect that if there were in existence a ship that could hold 3,000,000 human beings the 3,000,000 Jews of Poland would board it to escape to America." Xow, on this statement the House Immigration Committee builds the so-called emergency, Xow, all of you who are acquainted with poetry and oratory can well understand that that statement was not made by the gentleman to indicate that there are 3,000.000 people ready to come to America, but merely that the conditions six months ago Avere such that 3,000,000 people would like to come to America if they could. I remember reading a few years ago a statement in a book on America, written by a foreigner, to the effect that every school boy in America has the desire, ambition, and hope to become the Presi- dent of the United States, Xow, I think that statement in the main is true, but that would not give us the right to suppose that in the next generation there will be about 10,000,000 Presidents in the United States, v^enator Johnson, There might be 10,000,000 candidates though, Mr, Bernstein. Yes; I was just going to say that only recently we have had an illustration of a very strong desire for the Presidency which was not realized. And so 1 say, to build an emergency upon the statement of a man who, I believe, spoke the truth — and the gen- tleman was here this morning, but he could not wait — is not a proper thing to do. This statement, if true, and I believe at that time it was true that they would have liked to come to this country, should not be made the basis for saying that there is an emergency, that this country will be overrun by Jews. Senator Johnson. Whose statement is that, that you are referring to? 132 EMERGENCY IMMIGRATION LEGISLATION. Mr. Bernstein. That is the statement of one of our directors. He went to Pohind. Senator Johnson. Wliat is his name i Mr. Bernstein. Mr. Leon Kamaiky, the publisher of tlie Jewish Daily Xews. And in givinjr an interview to his own reporter, or to some other reporter, he made that statement. Xow. there is another reference in this report which I believe is directed to this societ}'. because there is no other society just like it. and we are operating in Europe to a small extent. It says in this report : One immigrant aid society which has offices in P*20, throu^rh (Octo- ber, 19'20. our country lic is founded. The open gate to the immigrant of the desirable sort, whether of high or low degree, we symbolized in that magnificient statute in the harbor of our principal port. Liberty Enlightening the World. EMERGENCY IMMIGRATION LEGISLATION. 145 So much have these principles of liberty and equality been tht very breath and spirit ul our bein<^ that in all previous immigrant legislation, witli due regard to our need for self-protection, we have never before ventured to close the avenue of escape for the oppressed of the world to enter. So definitely established was this policy tliat in the changes re- corded in the immigration law which included the provision of the literacy test, a certain class was exempted from its operation; to wit, " those who were seeking admission to the United States to avoid religious persecution in the country of their last permanent residence, whether such persecution be evidenced by overt acts or by laws or governmental regulations that discriminate against the alien or the race to which he belongs because of his religious faith." In this exemption clause was embodied the cardinal sentiment of our leirislators and our Xation that the Pilgrim Fathers, whose founding of this Kepublic we are now celebrating, coming to this country to escape the persecution of the Old World, left the door open for all the sutt'ering and the oppressed to enjoy the same benefits of wor- shiping their (iod and living their lives as tliej- willed. We are not here to j^lead for any special privilege for a class. We urge, however, that there be no action taken which runs counter to the verj^ life and spirit of our democratic institutions, firmly be- lie\ing that this act if passed would in effect do so. Not only the Jew, but other immigrants for whom American hearts have bled, will suffer. So far as Jewish immigrants who are desirous of entering this country are concerned, it may be worth while to i^oint out that under normal circumstances a large number of them would have come over to unite with their families in this countr}'. The Jewish im- migrants who come here are not of a migratory class. They come here to settle permanently in this country. As soon as thej^ are well established they bring their families over and in this w'ay create a normal life as permanent settlers. They Americanize rapidly, they become citizens at the earliest opportunity, they have a stake and an interest in the country equal to that of all other Americans. They have cast their lot with our country as the early settlers did, and for moral, social, and economic reasons, they have proven to be an asset. It is hardly necessary to point out, so thoroughly has this been established before, that the Jewish immigrants represent an important economic addition to our country. They have proven themselves an economically self-dependent body. The burden upon our vreneral charitable institutions has been practically nil because the Jews of this country have always taken care of their own. From an economic standpoint, the Jewish immigrants have been a vital factor in the building up of some of our largest and most important industries. The needle industries which have been developed almost entirely as a result of the efforts of Jewish immigrants are in the forefront of our manufactures. American ready-to-wear clothes are a synonym to the world of the best in American manufacturinir and commerce. Apart from their material contributions to our wealth, their intellec- tual achievements are significant. As physicians, surgeons, dentists, laAvyers, teachers, judges, statesmen, Jewish immigrants have made 26911— 21— PT 2 4 * 140 H.MERGEXCV l.M .\1 IGRATIOX LEGISLATIOX. their mark. Their communal life is orderly, sane, well-balanced, and distintjuished by an active love of things xVmerican, in promoting and adding to the best in American life, literature, and art. A quarter of a century of experience with Jewish immigration has demonstrated that the warmth of the welcome accorded them in the early eighties, when the pogroms in Eussia began, has been thor- oughl}' justified by wiiat they have contributed to^vard the strength- ening of American life. On the occasion of the celebration of the two hundred and fiftieth anniversary of the settlement of the Jews in the United States the great-hearted and ever-lamented Theodore Roosevelt wrote the following letter to the chairman of the remark- able gathering held on Thanksgiving Day, 1905. (Tiie letter presented by Mr. Rothen])erg is as follows:) The White House, Washington, D. C, November 16, 1905. My L»eak Sir : I am ioixed to make a rule not to write letters on the occasion of any celebration, no matter how important, simply because I can not write one without either committing myself to write hundreds of others or else run- ning the risk of giving offense to worthy persons. I make an exception in this case because the lamentable and terrible suffering to which so many of the Jewish people in other lands have been subjected, makes me feel it my duty, as tlie head of the American people, not only to express my deep sympathy for them, as I now do, but at the same time to point out what tine qualities of citi- zenship have been displayed by the men of .Jewish faith and race, who. having come to this country, enjoy the beneSts of free institutions and espial treatment before the law. I feel very strongly that if any people are oppressee accompanied by its exceptions, and I believe that those exceptions would be larffe enough and heavy enough to take up the entire cajnicity of the steamships: and that was the point I was leading to, sir, that after all I tliiidv the advocates of suspension, to total exclusionists on the EMERGENCY IMMIGRATION LEGISLATION. 151 one hand and the open-door people on the other, mi.ss the whole point at issue. That is my personal opinion. The Chairman. Commissioner Wallis, Avill you suspend for a mo- ment. Congressman Kahn is here and wishes to make a short state- ment. STATEMENT OF HON. JULIUS KAHN, MEMBER OF CONGRESS FROM CALIFORNIA. Mr. Kahn. ]\Ir. Chairman and o-entlemen of the committee, Si- mon AA\)lf. who probal)ly is well known to all the members of the committee, wanted to appear and present his views upon this ques- tion. But unfortunately he is sick abed, and he sent me word and asked whether I would not come here just to read his bnef state- ment ; and if it is agreeable to the committee I shall be very glad to present his views. The Chatr^.ian. The committee will be very glad to have you do so. Mr. Kahn (reading) : Tho Memi!EI{s of thk Senate CoMJtrriKE on Immigration. (Jentikmen: Illness prevents my personal appearance before your honorable coniniittee. As the cliairnian of the board (»f delegates on Civil Hijrhts of the Union of American Hebrew Consi-psations. and resident menilier of the executive com- mittee of the Independent Order of B'nai R"rith, a national and international body, I bes leave to sulmiit in brief what I consider essential in the matter of leirislatinjr on the fireat problem of immigration. Mr. Siegel's amendment in regard to fugitive relatives of citizens of the United States who seek our shores, is a step in the right direction. In tlie annual report to the executive committee of the Union of Uongrega- tions, tlie board of delegates speaks in emi)hatic teruLs of the great proi)lein of inuiiigration : that while heretofore it was largely a measure not only of senti- ment liut of practical statesmanship to be lil)eral in legishition, the board could not forego the fact that owing to the present unrest prevailing all over the world, and tlie abnormal onrush of immigration, that a temporary restriction had l)ecome essential, but modified so as to jiermit the landing of such refugees as had relatives here who were citizens of the United States. Tlie above report also discusses quite exhaustively rhe literacy test, which I consider a grievous l)lunder on the part of a former Congress. It is brawn and bniin that is needetribution of information, and such assistance as can be given on this side, then I think that the immi- gration problem would be solved. Senator Johnson. AVell. Mr. Wallis. Avhat is scientific selection on the other side, from your point of view, please ? ]Mr. AVallis. Physical and moral. I don't believe the day of judgment will disclose cases as sad as we haA'e at Ellis Island. One is taken and the other is left every day. It is wrong, in my opinion, to bring these people OA'er here, sometimes 2.000 of them on one vessel, and begin the system of fanning the chaff from the wheat over here. Senator Gore. Could that process be as well applied over there as on this side? 'Sir. Wallis. Not entirely so. But I believe that 90 per cent of those we send back could be culled out. And instead of sending back the full 100 per cent that we send back now I believe that we would only have to send back 10 per cent of that number if the mat- ter was taken care of on the other side. Senator Phelan. As a matter of fact, how many do you return at the expense of the steamship companies monthly? Mr. "Wali^s. Oh. I understand it is less than 1 per cent. It runs into the thousands, but it is less than 1 per cent. Xow, this is the point that I was making. Senator. Most of these people who come over here have spent all the money they have got to come here. Instead of paying $25 to $27 fare like they used to pay some years ago. they noAV pay $110. $120. and $1?>0. and from Danzig they pay from $^140 to $150, and in fact all the way up to $160 to travel in steerage, and we used to travel first class cheaper than that. And they are brought over here, 2.000 of them in the hold of a boat and we examine them. And when we send these people back they have no money at all, and of course they are sent EMERGENCY IMMIGRATION LEGISLATION. 165 back at tlie expense of the steamship companies. But when such a man is sent back he is bankrupt. Now, that in itself is tragic enouetter clothed, and a great manv of them seem to me to have as much money as they need. It is nothing to hear a man say that he has $1,000 or 82.000 or $2,500. Manv of them show vou Libertv bonds. EMERGENCY IMMIGRATION LEGISLATION. 171 The other day a boat came in, and Ave were oblitred to detain 85 per cent of the people on that ship. The Chairman. You detained them for what purpose? Mr. Wallis. We detained them for further inspection — for eye in- spection or for further examinations of other kinds. Kecenth' a French boat came in that had 1,082 passenjTers on it, and I took a Cono;ress- man out to that boat to let him see the condition. We immediately sent 47 of the people on that boat to the hospital. There were over 400 people on that boat that had less than $1. There were over 200 of them detained for special inquiry boards. Perhaps a total of 65 per cent of the people on that boat we could not pass upon imme- diately. Senator Johnson. Where did they come from? ]Mr. Wallis. They came from Palermo, from Sicily. And the record of that boat is in the Congressional Record. I see that Con- gressman Vaile in his speech used our findings on that boat. He wrote to me and asked me for the figures, because he was present on the boat and saw the conditions, . and the exact figures can be gotten from the Congressional Record. Senator Johnson. Xow, is there a large proportion of the char- acter that you indicate coming in now? Let us take the last two months, for example. iSIr. Wallis. Well, in the last two months the congestion at Ellis Island has been very heavy, and congestion is a pretty good test. The congestion at Ellis Island during the last two months has been so heavy that we have been compelled to sleep people on the floor. I will say, however, that a large part of that congestion is due to the lack of funds on the part of these people Avith which to proceed to their destinations, although our hospital is so full of people that our doctor, who is the head of the Public Health Service, told me that not long ago he Avas compelled to have in some cases two people sleep- ing in one bed. But I think this condition arises from the fact that Ellis Island Avas built to handle not half, perhaps, of the immigra- tion that Ave receiA'e now. The accommodations are not adequate to handle what the boats can bring in at full capacity. Senator Johnson. Well now, summing u]d AA-hat you saA^, Mr. Wallis, see if I do it correctly : Judging from Avhat the steamship com- panies tell you, from your OAvn observation, and from your couA-ersa- tions Avith immigrants and pasesngers, the indicati\'e influx is one that is very, veiT great, is it not? Mr. Wallis. Yes, sir. Senator Johnson. And you would consider that within the next year we will haA^e all that the traffic will be able to carry? Mr. Wallis. Yes; I think that immigration will remain at a level Avhere it is now, coming into this port. Even under restrictions, I think it Avill remain leA^el. Senator Johnson. And noAv it equals the carrying capacity? Mr. AVallis The carrying capacity of the ships; yes, sir. Senator Johnson. Xoav, let me turn to your suggested remedy, be- caiise Ave are all intensel}- interested in doing AvhateA'er can be done Avith this question constructively. You say that you would begin your work on the other side; that there you Avould begin to cull among the immigrants on the other side, so that vou would jret the 172 EMERGENCY IMMIGRATION LEGISLATION. character of immigrant who woukl be ready practically to do as we desire he shall do in this conntr3\ Now, jnst how would you go about accomplishing the desired result abroad? ^Ir. Wali.is. A^''ell, I think it is a delicate situation. My opinion is — and I think perhaps you would Imow a great deal more about it than I would, Senator — that it could be arranged, if it coukl be arranged at all, dijilomatically, and not l)y k'gislation. Senator Johnson, "\^^len you say " diplomaticalh'," what do you mean '. Mr. AA'allis. I mean liy some reci])rocal arrangement with those countiies by which we would have a right to have, at least at the ports of embarkation, our own inspectors and our own physicians. Senator Johnson. Xow, would you have your inspectors and your physicians at the port of embarkation determine the physical and the moral condition of the emigrants? ]Mr. Wai.lis. Yes. sir; to ])ass, in so far as possible, upon their condition, with the understandin; discovered, a mark is made on the man's coat With a piece of chalk; if there is any difficulty with the eye, he marks an "' E '• on him : if he has tuberculosis, he is mai-ked with a "T," and so on. Antl then these people that are marked are put off into different rooms. Xow. at least to that extent we could have an examination on the other side, which would not require a great amount of work. Those people who are suspicioned at all cotild be set aside and given a more thorough examination, and in that Avay a great number of undesir- ables would be caught in the first place. Senator Johnson. I quite folloAV you there that that would be a possibility not difficult of accomplishment, to determine the physical condition on the other side. But won't you go beyond that? Mr. AYali.is. Into the moral side? Senator Johnson. That was what I was asking you. Mr. Wallis. Xow, when you come to the moral side of this question, it is always, I think, difficult to find out about a man's morals. I think judgment day will come nearer revealing that to a great many of us than it can be revealed to us in anv other way. EMERGENCY IMMIGRATION LEGISLATION. 173 But there is a way of finding out whether a man is a criminal or not, and whether he has served in prison. There is a way of getting a man's penal and police record, and there is a way of finding out whether that man in his community has been a desirable citizen or not. Xow. if we can not find it out over there we certainly can not find it out over here. But we can find out a great deal more over there than we can here. Senator Johnson. "Well, what is running through my mind is the difficulty of maintaining an organization on the other side of the world tiiat would enter into the speculative realm, as of necessity it must, in determining a man's moral condition or his political opinions. Senator Dillingham. Senator Johnson, I wish you would ask the witness if any attempt has ever been known to have been made before. Senator Johnson. Yes. Will you answer that? Mr. Wallis. Xot to my knowledge, Senator. Senator Dillingham. "May I interrupt for just one moment. Sena- tor Johnson, to ask a question of Commissioner Wallis ? Senator Johnson. Yes ; I wish you would, because I am ver}" much interested in this question. Make any suggestions you wish. Senator Dillingham. Mr. Wallis, you are not conscious that any similar arrangement was ever proposed by our Government? Mr. Wallis. No, sir. Senator Dillingham. Well, my recollection is that the Department of Labor for several years in its report recommended something of this character, and it was finally suggested that the foreign Govern- ments might have some objection to that matter, and under my advice it was referred to the Secretary of State. He took the matter up with the European Governments, and my recollection is that China and Italy were the only two that were favorable to it; that the others objected. We had an officer of the Public Health Service stationed at Xaples thereafter, a very able man. too, a man of determination and judg- ment. We were at that time receiving substantially one-fourth of our immigration from Italy, and the examinations were made under our direction at Naples. But my recollection is that there was a larger number of rejections when the Italians reached this country, from among those that had been examined there, than there has been under our present law, where the steamship companies have compelled a physical medical examination before coming on board, showing that the examination that is now made by the steamship companies to protect themselves against the necessity of taking back those who are not found fit to be admitted here is a closer examination than was made by our own officer at Xaples at that time. Xow, that is my recollection of it. Senator Harrison. Senator, that examination was made under the old law. • ^ Senator Dillingham. Yes: that examination Avas made under the old law. Senator Harrison. And it Avas not as strict as the ])resent hiw. Senator Dillingham. Well. I don't know about that. That was mnde as late as 1900. AFr. Wallis. I should not like to admit that a steamship company would be able to eet more efficient doctors than the Government : that 174 EMERGENCY IMMIGRATION IXGISLATIOX, tliey would make a better examination tlian we avou1<1. AVe have the welfare of the Nation at luart. anan7.ijr, Bremen, and Itotterdam. ^Ve are therefore tryinji to reconcentrate them in Greek and Italian jiorts for transportation to the Uniteoiuf plaj^ue is present in all Mediterranean ports. Several outbreaks have occurred and recently, I hear, there have been 20 cases in Paris, which means that the disease EMERGENCY IMMIGRATION LEGISLATIOX. 177 evidently reached Havre or other ports and so the cases found their way to the capital. " Tliis is outrageous, for while one can well understand that with tlie un- sanitary conditions prevailing in uncivilized or dirtier southern localities these diseases are frequent, in the nortli they are almost unheard of. " To lessen the dangers this country is subject to from these sources the United States Pul)lic Health Service has medical officers stationed at Danzig and at Dutch and IJelgian ports, as well as at the more important Greek ports, to inspect all vessels and see that proper precautions are taken in the case of the emigrants. For many years we have had this service in operation in Italian ports. Recently, however, and without any formal notice, the Rome (lovern- ment has raised objections to United States medical officers being stationed in Italian ports, basing its positi(»n upon an old treaty which was dug up from goodnes knows where. We CJin, therefore, do nothing except prevent vessels from infected ports entering I'uited States waters. I believe this measure will cause Italy to change her unreasonable attitude. " In Mexico both plague and yellow fever are rampant, as well as in Guate- mala and Salvador. We are taking precautions there and have agents aboard American steamships plying to those places. " In the United States we are represented at all quarantine stations and our agent are boarding incoming foreign vessels in order to fumigate them and destr<;y every rat aboard. This is the only way to keep the bubonic plague out of America. " It is high time that the people antl Government awoke to a realization of the fact that Europe's plagues will olitain a foothold here ere many mouths go by unless we keep close watch uiion all inunigrants newly arrived in this country. I can not emphasize too strongly that the I'ulilic Health Service wishes the peiiple themselves would aid us with full information of any suspicious cases occurring so that prompt assistance can l»e rendered and precautions taken." [Editorial from New York Times, Oct. 21, 1920.] THE PLAOUK >[KNACE. Siirg. Gen. Cummings again warns the country that it uuist protect itself by stringent sanitary measures against the post-war plagues of the Near East and Europe. He thinks that the United States is in grave danger, because " 7,0(K).(XIO people" (he is quoted as saying) "are trying to get here" from Asia Minor, the Black Sea district of Rus.sia, and other parts of eastern Europe where the Inibonic plague, typhus, and smalli)ox are raging. Perhaps as many people hope to reach America to escape from famine, pestilence, and misgovernment, but they will have to reckon with the proper enforcement of our immigration laws. It was estimated in July that 300.(KW aliens would arrive at the port of New York in the tirst eight months of the year. Before the war half that numi)er sometimes came in a single month. With amended inunigration laws and vigilance in dealing with plague conditions there is no danger that ".millions" of refugees and undesirables will be admitted. At the same time it must be considered that the shiploads of a single week might bring in the germs of a deadly infection. It becomes necessary for boards of. health and port officers to be constantly on their guard with all the resources at their comnmnd. Bub!)nic plague was reported at Pensacola, New Orleans, and Galveston early in the sununer. At Vera Cruz, with which the United States does considerable business in the course of a year, the plague was cheeked by the use of serum furnish(>d by the American hospital avithorities, but several scores of per.sons died. It is to be noted, however, that the percentage of fatalities was not high; indeed, the bul»onic plague that appeal'ee of ship lias proven to be not so good as the smaller shi]). but of the conservative type of the Caronin. for in- stance. Now, those ships will be able to carry a great number of immigrants, and they are able to bring in a lot of freight. I remem- ber during the shipping war — and I was not in immigration in those EMERGENCY IMMIGRATION LEGISLATION. 187 days, althoug-h that is not po very lono; afro — that an inimifjrant was brought all the way from Hamburg; to New York and on to Chicago for $11, his passage to New York being $10, and his passage from New York to Chicago being $1. The Chairman. Mr, Wallis, I understood that you desired to get aAvay at a comparativeh' early hour. Senator King wishes to ask you a question. Senator King. I just want to ask you one or two questions, Mr. Wallis, and it may be that you have already answered them, and if so, I wish 3'ou would tell me so and in such case I will withdraw the question. In view of the fact that there is a feeling of unrest in the United States, that a large part of the people are out of employment, and it is quite apparent that lack of employment may continue for some little time; in view of the fact that the feeling prevails here that there are a large number of persons in the Old World, many of whom are unfitted for citizenship, who propose coming here at the earliest possible moment ; and in view of the fact that we. perhaps, do not have sufficient data to frame a scientific bill that would deal justly with the immigrant, as well as with America itself, don't you think it would be the part of wisdom to cut oif all immigration for six months, and in that time make full investigation as to conditions in Europe, and by that time our dislocations here, industrially and economical!}^, might have adjusted themselves partially, and we would be in a better frame of mind, and have more information so that we could draft a proper and scientific and sensible and rational bill? Don't you think that would be a desirable course to take? Mr. Wallis. Well. Senator, that really has all been gone over quite thoroughly, if you will permit me to say so, and it has been answered to the best of my ability. Senator King. Well, if that is the case, very well. Mr. Wallis. But I would like to say this, Mr. Chairman, if I may, as a matter of information : I believe there are sections of this coun- try that need immigration to-day more than ever before. I believe there are certain sections of the country, certain cities, that ought not to have immigration right now. Senator King. For instance. New York and Cleveland and Detroit? Mr. Wallis. Yes, sir. There are places that are suffering from the cancellation of war contracts. There are other places willing to pay $8 and $8.50 a day for unskilled labor, and I say that as soon as our readjustment is effected following the war that the commercial and industrial life of this Nation will again go forward with irre- sistible momentum. This country needs immigration. It has always had immigration. It has it to-day, and I believe it will always have it. But the thing to do is to take out the best of it. That is my contention. Senator Johnson. Have you read this Johnson bill carefully, Mr. Wallis? Mr. Wallis. I have gone over it ; yes, sir. Senator Johnson. Let me read section 5 to you : Sec. 5. Nothing? in spction 2 shall bo hold to prevont tho iiuportatiini of skilled labor under the conditions prescribed in the foxu'th proviso to section .3 of the- imniisration act, nor to the importation of persons employed as domestic servants. 188 EMERGENCY IMMIGRATION LECJISLATION. Has tliat particular subdivision of this bill Ijeen called to vour attention at all. Mr. "NVallis? Mr. Wallis. Well, not with any sjjecial si^mificance: no, sir. Senator Johnson. Now, in regard to that portion which I read about skilled labor, do you know whether or not it would enable skilled labor to come in? ^Ir. AVallis. The skilled-labor proposition is a pretty sensitive thin^r. Senator Joiix.son. Yes. And aren't there some cases that are pendinjj in connection with one of the steel companies concerning that proposition i Mr. AVallis. It says: Xothiufr in section 2 shall be held to prevent the iuii)i>riation of skilled labor. Senator Johnson. Xow. if there were an attempt made to limit or restrict immi11. the commissioner recommends that it be reonacted. ^Ir. AA'alms. By all means. Senator Phklan. The committee has that in mind. That is not contained in that l)ill. though. Mr. AA'ali.ts. I suppose that is a separate and distinct proposi- tion. It is not a part of the bill. The Chairman. Mr. Max Levy, of Xew York, representing the Jewi.sh AA'ar A>terans and other organizations, requested that he might be allowed to file a statement in the form of a series of resolu- tions. I will not read them now. but if it is the sense of the com- mittee that they be received, they will be filed. AA'e will have them incorporated in the record. The organizations represented by Mr. Levy are : Young Israel Synagogue of Brooklyn. Young Israel of Williamsburg, Young Israel EMERGENCY IMMIGRATION LEGISLATION. 189 of Boro Park, Young Israel of Bronx, Young Israel S3^nagogue of Jersey City. Sister-Hood of I. S.. Jewish Veterans of Worlds AVar, League of the Jewish Youth, Y. M. H. A, of Williamsburg, Y, M. H. A. of Bathbeach. Y. W. H. A. of 110th Street. Intercollegiate Zionist Association. Zionist Advancement League, Harlem Zionist Society. Tifereth ]\Iizrachi, Junior Mizrachi. Bnos Yohuda Mizrachi, Hebrew League Mizrachi, Hebrew League of Xew York, Institu- tional Cynagogue, Bnai Am (?hai Y. M. Talmudical Society, Jewish Sabbath' Alliance, Xew Era Club, Slutzker Progressive Y. M. B. A., Pamela Girls Social Club. (The statement referred to by the chairman and submitted by Mr. Levy^ is here printed in full, as follows:) [Presented bv Mr. Max Lew. of Xew York City, to the Senate Committee on Immigration, Jan. 4, 1921.] KESOI.UTIONS L'NANIHOUSLY ADOPTED AT MASS MEETING OF THE HARLEM FORUM FOR THE DI.SSKMIX \TIOX Ol" JEWI.SH KNOWLEDGE, AT AVADLEIGH HIGH SCHOOL, NEW YOKK CITY. OF JANfAKY 2. 1021. This ireetius: was addressed by Hon. Frederick A. Walli.s, Commissioner of Tmmijrration, and the following resolution had tlie commissioner's enthusiastic support : AVhereas there are pendins? before the Senate of tlie United States measures to regulate and restrict immigration ; and Whereas these measures if enacted into law in their present form wiM malve impossible the entrance into America of vast numbers of persons from eastern Europe wlio are at this time tlie victims of political, religious, and racial persecution, and these populations having in the past contributed serviceable, self-sustaining, and law-abiding elements to our American population ; and AVhereas these persecutions are brutal, merciless, and frequently bloody, and its victims include, in large numbers, our own fellow Jews : Now, therefore, in public assembly, be it Resolved by the Harlem Forum for the Dissemination of Jewish Knowledge, formed to he a point of contact between Ajnericans inspired by the tcealth of the content of Jewish culture and our fellow Americans, That it is the sense of this gathering that wliatever crisis shall, in the judgment of the Congress neces- sitate a departure from the traditional American policy of free access to all law-abiding peoples, that it would be a denial of fundamental concepts of the Republic to broadly shut our doors, as never before, upon refugees from political, religious, and racial persecution and oppression, and so, in the spirit of mercy and by witness of the notable character of our immigrant citizenship in the past, we call upon the Senate to make provision that law-abiding persons who are refugees from political, racial, and religious per.secution shall continue to find in America a safe and protecting shelter ; and be it further Resolved, That these resolutions be submitted to the United States Senate Conunittee on Immigration at its public hearing on the 3d day of Januarv, 1921. Dated January 2, 1921, Henry Keller, Chairman. Max luExr, Associate Director. The Jewish Veterans of the "World War, in conference assembled this 30th day of December, 1920, in Pacific Hall, city of New York, unanimously adopt the following resolutions : Whereas there is at present a bill pending in the Congress of the United States of America whhch would restrict immigration ; and Whereas this bill is opposed to our historic policy of an open-door America ; and Whereas it has been through this historic policy that America has reached her present state of power amongst the nations of the world : Now, therefore, be it Resolved, That the Jewish Veterans of the World War who fought for and who helped vindicate the traditional principles and policies of true American- ism do hereby protest against the passage of this bill : And be it further 190 EMEKGEXCY IMMIGRATION LEGISLATION. Resolved, That a copy of these resolutions be presented to the Senate hearing committee iu Washington lor the purpose of having said committee reiKjrt unfa- vorably upon this bill. Joseph 'M. Klein, Chairman J. V. W. W. The Anti-Pogrom Society, in behalf of the amalgamated societies it represents, registers with the United States Senate Committee on Immigration a solemn protest against the pending bills, which it is considering. So long as pogroms are sulferi'd to continue, America must be open. The way to stop immigration from I'oland. the Ukraine, and Hungary is to stop pogroms. But until organized murder is abolished America must not condemn pogrom victims, and that is the effect of rigorous exclusion. We urge the rejection of these un-American and inhumane proposals of the bills your committee is considering. The Chairman. I would also suggest to those who are present that before bringing this hearing to a close all those who will be unable to appear later before the committee are entitled to submit their state- ments in the form of briefs. Mr. AVallis. ]Mr. Chairman, may I extend an invitation to this committee. I wish that the members of this committee, when you are in Xew York, would come over to Ellis Island. I think you can get more there in five minutes from a visit to the island than I could tell ,you upon the subject in a hundred years. The Chairman. Thank you, ^Nlr. Wallis. The committee now stands adjourned until Friday morning at half past 10. (Thereupon, at 3.30 o'clock p. m., the committee adjourned to meet at 10.30 o'clock a. m., Friday morning, January 7, 1921.) Emergency Immigration Legislation HEARINGS BEFORE COMMITTEE ON IMMIGRATION UNITED STATES SENATE SIXTY-SIXTH CONGKESS THIRD SESSION ON H. R. 14461 A BILL TO PROVIDE FOR THE PROTECTION OF THE CITIZENS OF THE UNITED STATES BY THE TEMPORARY SUSPENSION OF lAIMIGRATION, AND FOR OTHER PURPOSES FRIDAY, JANUARY 7, 1921 PABT 4 Printed for the use of the Committee on Immiffration 1^ WASHINGTON GOVERNMENT PRINTING OFFICE 1921 com:mitti:e ox immigration. LeBARON B. colt, Rhode Island, Chainnan. WILLIAM P. DILLINGHAM, Vermont. THOMAS P. GORE, Oklahoma. BOIES PENROSE, Pennsylvania. JOHN F. NUGENT, Idaho. THOMAS STERLING. South Dakota. WILLIAM H. KING, Utah. HIRAM W. JOHNSON, California. WILLIAM J. HARRIS, Georgia. HENRY W. KETES, New Hampshire. PAT HARRISON, Missls.sippi. WALTER E. EDGE, New Jersey. JAMES D. PHELAM. California. He-NRT M. Barry, Clerk. n r EMERGEXCY IM:\IIGEATI0N LEGISLATION. FRIDAY, JANUARY 7, 1921. T'xiTED States Senate, Committee ox Immigration, Wa-shiiu/to7i, T). C . The Committee met, pursuant to adjournment, at 10.30 o'clock a. m. in room 285, Senate Office BnikUng, Senator LeBaron B. Colt presiding. Present: Senators Colt (chairman). Dillingham, and Sterling. The CHAiR:\rAN. The committee will come to order. We have pres- ent with us Mr. Siege! ,■ of the House of Representatives, who framed the minority report on the Johnson bill,. and the committee would be ver}^ glad to hear from him. STATEMENT OF CONGRESSMAN ISAAC SIEGEL, REPRESENTATIVE FROM THE STATE OF NEW YORK. Representative Stegee. Mr. Chairman and gentlemen of the com- mittee, under the Johnson bill no person who is at present a declarant in the United States and might leave this country for the purpose of going abroad in order to bring a relative, whether mother, father, sister, op anybody else, back here could possibly return to this coun- try, because no provision has l)een made in that bill for that purpose. Xo political refugee could possibly enter this country under any con- ditions. The Chairman. Mr. Siegel. I might say that I had a letter from Senator Nelson in which he called my attention to a number of . Italian aliens who left Minnesota. He said they were a high class of men, that they went to Italy to enlist in the army, and that they can not return to this country under the Johnson bill. Representative Siegel. There is no question about that. The Chair.aian. Is that in line with what you are saying? Representative Siegel. That is correct. >s^ot only that, but a num- ber of these men left America to join the allied forces, under the legislation passed by Congress during the war urging them to go to Europe and enlist over there. In other words, we furnished, by our own legislation, the means whereby these men, who were aliens in this country and who desired to go abroad, could do so, and. as a matter of fact, we gave authority to their recruiting officers to recruit them in the United States. I might also direct attention to the fact that, assuming, for the sake of argument, that immigration was to drop, sa}'. one-half, the Secretar}^ of Labor does not possess the facilities" to handle the applicants under the Johnson bill, because this is what Avould occur: Assuming that a citizen of the United States has a father or a mother on the other side and he desires to bring that father or mother to America, in order to do that he would have to make his application to 1!»1 192 EMEra?:x('v immicration legislation. the Secretary of Labor. If there were only to be 300,000 immigrants c'oiiiino- to America inside of one year's time, that wonhl mean that (),(){)() applications i^er week wouhf have to be handled by the Secre- tary of Ijabor. At the ])resent time the total number of appeals wliich the Secretary of Labor handles in Washinie launber in 1914. The ntnuber arriving between .July fyid November. 1920. is estimated at approximatelv 3.5{».000, or e(|ual to a yearly rs-te of 8.50,000. In .spite of the large niunber of complaints, it is clear that the number of innnigrants arriving i.-; not anywhere nearly as great as before the war. It would •. had to depend upon immigrants for a very large proportion of our unskilled and farm labor. It has been only a few months since the country was complaining because of a shortage of labor. The farmers in V'ii'ticular faced a very serious situation last spring. The present business degression is only temporary. The question of whether we may not need the better class of these inmiigrants in our ^industries and on our farms a few months hence should be given careful consideration. In any consideration of this nnestion. it is important to note the principal sinirces of mn* present stream of innnigration. The following table gives the nationalitv of the immiirrants from the principal countries for the fisc-!] vears 1913 and 1920: Xntionalif]/ of immigrants. Princinal countries. Riissii, Finland, and Poland. Itnlv Aiistria-Hunearvo United Finsrdom Germany Greece .'. Pweden Turkey in Europe Portural France Spain All Europe. British North America. Mexico We.st Indies and Bermuda. All America Total A>ia Total Africa... Total Oceania. All other 25t 88 34 79. 1"; 15, M. Per cert of tot.^I. 1,05."..S.T,T 7.3, 9i)2 11,926 l-.>.4.-S 3.1.. 3-58 1.409 1,340 23 Grand total : .'1, 197, 892 1920 P"; f "t of total. 24.3 22.1 21.3 7.4 2.9 1.9 1.4 1.3 1.2 .8 ..5 6, .564 9.T,l!.=i 6,666 4S,062 1,001 ll.PSl r,, 862 1.933 1.^. 472 8,9!.^ 18, 8?1 88.1 \ 246,29.5 6.3 1.0 1.0 8.7 2.9 .1 .1 90,02.5 .5?. 361 13. SOS 152. 666 17, .505 648 2,1S5 702 430,001 1.5 22.1 1.6 11.2 ..2 2.8 1.4 .4 3.6 2.1 44 .57.3 20.9 12. 2 3.2 37.8 4.1 .1 a 1920 fiRures include Austria-HunjKiry,Czccl!Oslovakii, and the Ferb, Croat, and Slovene ICin^dcms. 'Approximate nunilur for five month.s ((luivaUnt to year!y rate of ahoi.t 850,000. 194 EMERGEXCV l.M.AIlcnATIOX LKGISLATIOX. ^ It bas been st.-ited frequently tliat we are reeeiviiijr a ^'rcat iiiuiKhitioii from Eiirojie. Yet during' 1913, 88 per cent of our tota iiiiiui^rants came from Europe and in lOl'O only TiT per cent. Tbe frreatest in.crease in the relative number of inimiirrants to tliis country lias lieen in tbe case of Canada, wliicb in 1920 fur- nished 21 jier cent of the total immi^'rants, awtinst a littl" over (J jier cent in 1913. Larj,'e numbers are also coming: from Mexico. The total number coming from Asia is oidy about one-half as larjre as in 1918, althoufili tbe proportion of the total is .somewhat {ireater. Another matter of no smal con-secpience. and one which is not ordinarily dis- cussed in this connection, is the larfre number of emigrants which have left tbe country durinj; recent years. For tbe year endint: June 80, 1920. 288,31") aliens emi^'rated from this country. This is almost as larjre a number as in tbe pre- war years. For example, in 1913 tbe total emi^rration was 303,338. Our net gain in population durintr the last year was only 141.P>S«;, compared with 889.702 in 1913. When the number of inunigrants and emigrants for tbe last year are arranged according to the principal grand divisions, it is seen that 240,29.i per- sons came to this country from Europe, wbi'e 256,433 left this country for European destinations. This is a loss of over 10,000 persons so far as Europe is concerned. The big net gain in population for the last year came from other countries in tbe Western Hemisphere. This was chiefly from Canada and ^Mexico. Gatu or loas in population. l!tl9-20. Grand Division. Immi- grants. Emi- grants. Gain or loss Gain or lo's in 1913. 246.295 162, 666 17,505 648 1,340 702 2.56. 433 21,776 9,441 121 519 25 - 10, 138 + 140,890 -f- 8,064 + 527 -1- 821 -f 677 + 807,296 America -t- 49,863 -i- 30,668 + 1,200 + 666 All other. + 9 Total 430,001 288.315 -f 141.686 ~ S8O,702 lu view of the fact that the present business depression is only temporary, it might be a great mistake to put an absolute ban on immigration. For example, tlie heavy immigration from Canada is largely farm laborers : and if we expect to omtinue to produce large crops an abundant suppl.v of labor willing to worli on our farms is necessary. A mistake in this matter may have serious con- sequence.s. Ky all meiins our laws should be so made and so enforced as to keep out the undesirable elei.ients from foreign countries. It should be perfectl.v possible to do ti:is and still allow the better class of immigrants to enter. Kepresentative Siegel, Xow, it will be of interest to the committee to learn tliat of those who arrived here up to June 30. 1920, 191,000 people were such as had left America and were returning. estal)lish- inof beyond contradiction the fact that they were cominnr back with their wives and children and other relatives. Senator Dillingham. ^Miat class do you refer to. Mr. Sieofol ? Representative Siegel. I am referrinji to tliose who left America and returned with their relatives. Senator Diij.ixgham. But Avhat were the dates? Representative Siegel. Between June 30. 1919. and June 30. 1920. Senator Dillixgiiam. Durinof the last fiscal year ? Representative Siegel. Duiinration, Mr. Caminotti, asserted that he liad certain rilace. there Avould be a saAing of time by doing this. I don't haA'e to go A-erv' far to find an illustration of that point, gentlemen. Just take the case of these orphans that Avere brought oA'er by Admiral McCulh' the other day. The admiral brought thHin with him intending to take care of them, but it was decided, Avhen they came to Ellis Island, that under the act as it stands to-day they could not be admitted, because they might become public charges. An appeal had to be taken to Washington. These children had to be sent oA^er to Ellis Island, and the surroundings in Avhich they might be placed there are at. the present time not of the best. The admiral had to come down to Washington, see the Secretary of Labor, or the Assistant SecretaiT of Labor, and take up the question Avith him. and these children haAe noAv been released temporarily upon bond. Xow. if Ave had had an Assistant Secretary of Labor at Ellis Island he could haA'e acted on this cpiestion immediately, and this red tape, as it is called, could haAc been cut at once. He could either haA'e decided on the spot that these children could come into this coimtry or he could have determined that these children should not be alloAved to come to America, and action could have been taken Avithout delay, and they could haA'e been put back on the same ship and returned to the port from which they embarked. But in the ordinary course of business this is Avhat occurs, gen- tlemen : The appeal would be taken: the Cjuestion Avould be taken up at Washington: and sometimes a week, sometimes a month, and often seA'eral months, would elapse before the case Avas finallj' deter- mined. Meanwhile these Avomen or children, or whoeA^er was being detained. Avould be kept at Ellis Island pending the decisions on the appeal. XoAv. gentlemen. I say that the placing of an Assistant Secretary of Labor at Ellis Island is one Avay of relieving congestion there. Senator DiLLiXGHA^r. ]Mr. Siegel. I want to ask you one practical question to clear a matter in my oAvn mind. The complaint that has been made to us is that there is not a sufficient number of inspectors, and that Ave are unable, at the salaries paid, to obtain those Avho are 198 EMERGENCY LM .MIGRATION LEGISLATION. best qualified for tliat service. Now. how should we remedy that condition ( Kepresentative Siegel. The first remedy. Senator, is to increase the number of inspectors at Ellis Island Avithout dela\-. Second, fix the salaries of the inspectors: pass a bill in Congress providing that inspectors should receive a certain salary. Third, we could relieve conditions, as far as inspectors are concerned, by passing the same kind of a law which we have passed applying to the customs service. I might say this, gentlemen, as long as you have brought up the question of inspectors and clerks at Ellis Island, that we have only 85 inspectors to do all this work. Heretofore we have not examined the crews of the ships. That is being done now. Last year I called attention to the fact that most of the two hundred and fort}- and odd men that were shipped away on the Buford under the action that the committee took under what is called the " Siegel resolution " were found to be men that came into America as sailors or seamen. There is a distinction between " sailors "' and " seamen." the distinc- tion being that men who are known as first-class sailors are called seamen, the other men being called sailors, but as a matter of fact the terms are used interchangeably. Xow. a lot of these people used to come in as sailors, landing in Xew York and deserting their ships. The majority of those two hundred and forty and odd men, as I have stated before, came into the United States in that fashion. For that reason, u^ion our urgent request, the Commissioner of Immigration at Ellis Island started a proper inspection, as should have been done long ago. of the seamen and sailors arriving upon these ships. He must examine 18.000 of these men every week, because there arrive at the port of Xew York every year 800.000 of these men. Senator Sterling. Do you mean sailors and seamen? Representative Siegel. Sailors and seamen. Senator Dillingham. How many of these men do you say arrive at tha.t one port, the port of Xew York, every year? Representative Siegel. Eight hundred thousand. Senator. Xow. have we increased the staff i Xot at all. We have the same 85 in- spectors ready for duty daily. In addition to that, we have passed vise laws, and the inspectors, before admitting the immigrant, must examine his passport to see whether it is correct in every particular. Then comes the literacy test which the inspector must apply to the immigrant, and in which he must use very great care to make certain that he does not pass an immigrant who is not able to qualify, and he must also be very careful not to hold an immigrant who knows another language. Gentlemen, we are asking the inspector, for the salary which we are paying him. to be able to understand all of these languages, to be a man with ability, possess some judicial discretion, and then we ask him further to work 12 and l-i hours a day. practically 7 days a week in most cases, and then we give him the big salary which we pay him. starting at around SI .200 to $1,300 a year, though I think most of them are getting between $1,700 and $1,800. including their bonuses. Senator Dellingham. Is there any legislation in the House, Mr. Siegel, to correct that situation ? EMERGEXCY l.MMIGRATIOX LEGISLATION. 199 RepresentatiAe Siegel. I have presented a l)ill in the House pro- viding for the giving to these men of the same extra pay from the steamship companies which we have given to the customs men. l)ut some of the members of the committee, and others, have felt that it woukl 1)e wrong to have the steamship companies pay these men. and for that reason we have never been able to get it out. Senator Dillingham. Why should the steamship companies pay them { Representative Siegel. AYell. they really should not. Senator Dillingham. With the head tax that we have we have money enough out of this business to pay our own bills '. Representative Siegel. Yes: to pay more than that. With the head tax we have made a profit of over $5,000,000 over all appropria- tions, including the millions of dollars which were appropriated for these anarchist and deportation cases. Senator Dillingham. Xow. excuse me. Mr. Siegel. but with that clause requiring the steamship companies to pa^^ that expense elimi- nated, can that bill not be hurried out '. Representative Siegel. The Committee on Immigration and Natu- ralization. Senator, is not an appropriating committee. If you can find time to read the record of what occurred yesterday on the floor of the House, at which time I endeavored to obtain >'500.000 addi- tional for the purpose of enforcing the law. you will find the position in which I found myself, with only twenty -odd men of the House taking my view, although every member of the Immigration Com- mittee was present upon the floor of the House and urged its passage. Mr. Box. from Texas, and Mr. Wilson, from Louisiana, and every other man of the committee was present upon the floor of the House at the time and urged the passage of this bill. Senator Dillingham. Well, would an independent measure pass vour committee? Rei)resentative Siegel. An independent measure could pass my committee: yes: if it came from the Senate first. You have asked me a question. Senator, and I am telling you the candid and blunt truth about it. .Senator Dillingham. That is what I wanted to know. I Avanted to know how we could best do it. Representative Siegel. Let me say to you, gentlemen, that these S5 inspectors, by reason of this increased work, are practically, to all intents and purposes, reduced to 42 men to handle the arriving imniiiirants. Under the amendment which I put into the Burnett Act it was provided that two doctors should carefully examine each immigrant, because I have alwavs felt that great care should be exercised in the mental, the moral, and physicafexaminations of all the immigrants arriving in this country. 'It was at my suggestion that this provi- sion went in as one of the amendments to the bill. Now, what is the situation? In many instances the examinations are made so rapidly that grave errors are found to creep in, Avhich is not the fault of the doctors themselves but is due to the fact that we have an insufficient number of doctors. I was up at the Canadian border about six weeks ago looking into conditions, and I found that we have 76 ports of entry, and 23 200 EMERCENCY TMMICHATIOX T.ECISLATION. doctors to do the examining idon*:: that entire line. The same com- plaints as are made by the inspectors at Ellis Island were made to me by these employees up along the Canadian border. I will show you the great injustice that is being done to these men. For example, in one building the doctors of the United States Public Health Service are located in the room next to the one in which these men are located, and these doctors of the United St sites Public Health Service were receiving their salaries, i)lus the amount al- lowed them for board and lodging, while the ins])ectors in the room adjacent were simply getting their salaries — nothing else. The un- fairness of it is disclosed immediately. The.se insi)ectors have families, and there is not a man among them who wants to remain up there in the service, and the result is that there is a continuous transfer and change in ordei- to keep competent men — but we are not keeping competent men. They are leaving us, and leaving us very rapidly, because it is the only branch of the service, outside of the custodians of public* buildings, which has not received a fair deal either at the hands of Congress or anj^one else. Senator Dillingham. All this you think bears u])()n the cjuestion of the congestion at Ellis Island at the present time ? Representative Siegel. There is no question about that. Senator; no doubt of it. Now. I will go a step farther. A couple of years ago, I believe it was you. Senator, who suggested that Ave have doctors on the other side for the })urpose of making medical examinations, and there was at that time at least some correspondence between our State Department and the countries of Europe, if my recollection serves me correctly. The Chairman. Mr. Siegel. doesn't it also bear upon the question of the admission of undesirables? Eepresentative Siegel. It does. I was alluding, of course, to the inspection b}^ doctors, because we just touched upon it. and I wanted to say a few words about it. The European countries at that time objected to the doctors being over there, although at the present time I understand tliat the Public Health Service has a number of its best men on the other side. The suggestion which I have to make is that we put into the bill a proviso that medical inspection shall take place aboard ships, as well as a general inspection, while the immigrants are coming over here. Senator Sterling. Can you inform us. Mr. Siegel. as to what countries objected to inspection by the Public Health Service, and what countries now have permitted such inspections? Representative Siegel. Well, at that time I understood that Ger- many and Italy had filed protests. Senator. Senator Dillingham. T think that Italy and China agreed to it at that time, and we had officers stationed at Naples who were in the Public Health Service. It was so when I was over there in 1009; they were then making examinations. Representative Sjegel. I understand that later Italy i)ermitted it, but I also understand that there has been some question about it again lately. But we possess the power to say to these steamshij) companies: "If you Avant to bring these immigrants over here. Ave will place our medical examiners on board your shii)s, and Ave Avill place our ins})ectors on board 3'our ships." ;::«ii;rgexcy immigration legislatio:'. 201 Senator Diij^ixgham. Your idea is to have this Government make its own examinations durin"e these immigrants unless you permit us to make these inspections and examinations.'" Senator Sterling. Mr. Siegel, do you know to what extent such examination and inspection is made on board ship ? Representative Siegel. At the present time? Senator Sterling. Yes. Representative Siegel. In the port of Xew York there is a litt 'e : not very much. The reason they have done it lately is because of the congestion that occurs in Xew York, and Commissioner AVallis urged that authority be given for such examinations on board ship. The Chairman. Let me say. Mr. Siegel. the inspection may be at three places — the port of embarkation, on board ship, or on the ar- rival at Ellis Island. Xow. so far as the matter of inspection in the foreign countries is concerned, that might have to be arranged dip- lomatically, but your idea is that inspection on board the steamship is entirely within our control, because we could say to the steamship company, '' You can not land immigrants in America unless you submit to an inspection on board the ship.'" Is that the idea ? Representative Siegel. That is my view. Senator Sterling. Could not the same principle be extended to in- spection at the port of embarkation? Representative Siegel. Xo : and I will tell you why : If you en- deavor to do that over there, you would take away the very safeguard which AA'e have here by virtue of the practice of putting different in- sjiectors on board those ships from time to time, changing around the same as a police force would be changed around. Xow that this subject has been brouglit up. gentlemen, let me say that you can not realize the conditions that have arisen as a result of the vise provision. Practically every immigrant coming over here has told the same story about it, that there is corruption OA-er there, not on the part of our own officials over there, but on the part of the subordinate officials of the particular countries in which our consulates exist. I will go a step further and say this, that even some of our own Department of Justice men who were investigating certain applications for vises here were corrupt. And in making that statement I want to point out one specific case. A certain De- partment of Justice agent, who Avas in Xew York making a large number of iuA-estigations, had the audacity, the nerve, to write a letter to a man. in his own handwriting, sayins:. •• If you desire the vise to go through you must pay the sum of $75 to a certain attorney in Washington, otherwise your vise can not go through."" He signed his name to it. and iiave the Department of Justice telephone number. 202 KMKnC'KNC'Y I.MMIC.RATIOX LPZGISLATIOX. and the phue where he conhl he reached, so that the money couM he •riven to him either in Xew York or passed to him liere in Washin. Making: a total of 467,031 who are endeavoring to become citizens. The Chairman. Do you think, Mr. Siegel, that has any very great bearing upon the emergency proposition, the flood of immigrants about to come over? Kej^resentative Sieoei.. It has: yes, sir, Senator. The Chairman. Of course, we are dealing now with this thing purely from an Americanization standpoint, fjut the Americaniza- tion standpoint, while it has a certain bearing, has not a very marked bearing upon the immediate problem that confronts us. It would have more of a bearing when we come to deal with the problem of constructive legislation. But I want to know now, to-day. about the threatened flood of immigration from Europe, and whether, if we do not pass some- thing similar to the Johnson l>ill, the immigration arriving at the port of New York and other ports will be of phenomenal extent. Representative Sie(;ei.. If I may say so. Senator, the reason that I discussed the naturalization Cjuestion was that one of the members of the committee here the other day made incjuiry as to whether the men who were going abroad to bring their relatives here were either citizens or declarants. He stated that that would be an indication as to whether they were becoming American citizens or trying to become American citizens. And I was endeavoring to point out that practically the whole of the 191,000 that come over, bringing their relatives, were Ameriian citizens or had declared to become American citizens, Xow. in Xew York City the situation is this, gentlemen, that many immiofrants have not become citizens, but the reason therefor is not anv lack of desire on their part to become citizens, but because they are obliged to. repeatedly, day after day, go to the clerk's office and are turned avray because of the lack of facilities for taking care of them. They go to the courts and to the clerk's office, but they can not be taken care of. as I say. because of lack of facilities to take care of them. Xow. I want to saj-'to you. gentlemen, that there is not the grave danger which some of our friends who favor the Johnson bill would have this committee or the country believe exists. In the first place, conditions in Poland have changed during the past few weeks. Poland has awakened and commenced to realize that her success as a nation, to the extent that she is either to exist or to fall as a nation, depends upon her al)ility and capacity to have all of her people, regardless of race, creed, or religion, obtain the same rights, so that all might work in harmony together to build up the economic structure in Poland. There is every reason to be- lieve that the majority and the minorities, as they are called over there, will be able in 'the very near future to make more progress along those lines than they have made in the year gone by. And thev are making at the present time, and have made especially during the' past few weeks, considera1)le progress, gentlemen, along those lines. They are commenciu« to turn from war to peace. And that EMERGENCY IMMIGRATION LEGISLATION. 205 is one of the most satisfactory episodes that has occurred in Euro- pean history during tlie past few Aveeks. The Chaikman. You are now dealing with the cross currents that may check emigration? Representative Siegel. Yes, The Chairman. And j^ou are dwelling upon the proposition, as I understand it, that these new nations which have sprung up will exert all the influence they can to retain their own nationals in order to build up the new nations; and while you said, I think, a short time ago that those who went home went home to get their families, is it not also true that the alien Poles and other aliens are drawn to their old country for the very purpose of remaining there perma- nently and building up these new nations? Rej^resentative Siegel. That is true, and we are losing, beyond any question, a great number of them. The Chairman. And when you see that 34,000, if you please, went over in the month of November — if that is the right figure? Representative Siegel. That is the correct figure. The Chairman (continuing). Isn't it fair to assume that that cross current is checking immigration to this country from these new countries? Representative Siegel. That is true. The Chairman. There are other cross currents affecting this sit- uation, but that is one of the cross currents? Representative Siegel. That is one. The Chairman. Now, that all has a bearing upon this emergency problem. What forces are checking immigration? The unemploy- ment in this country is checking immigration. It ahvays has. Representative Siegel. Yes, Senator; unemployment has checked immigration to this country since the beginning of the history of this countr3\ The Chairman. It always has. Immigration is at the flood when there is prosperity here. Immigration falls immediately when busi- ness conditions are depressed here. Now, we have new factors here entering into this situation, owing to present Avorld conditions, and among the strongest factors is the domination of this new nationalism which these nations feel. I have myself talked with Poles who said they were going back to Poland because now thev could acquire land. That is a cross current, is it not? Representative Siegel. That is a cross current. Furthermore, I might call attention to the dispatch which appeared in the Phila- delphia Public Ledger yesterday and in the Brooklyn Eagle, reading as follows : London, January 6. Within a iiiontli all the large passongor sliii)s iu the British-American service will lie withdrawn. The White Star liner Oli/nipic and the Ciinarders Aquitania, Mnuretanla. and Impcrator will be laid up. ostensibly for repairing and refit- ting, but in reality because of the unprecedented slump in ocean travel. The Brooklyn Eagle-Public Ledger foreign service learned to-day from a shipping and travel bureau in I>ondon. The Olj/mpic already is undergoing repairs and enlargement of her oil tanks and the Aquitania will make her tinal voyage from Liverpool instead of Southampton on January 22. 26911— 21— PT 4 2 206 EMERGENCY IMMIGRATIOX LEGISLATIOX. A large number of freifrhters also are being withdravNii from the Atlantic service, becaiii*^ the world-wide trade depression has strangled foreign trade and seriously affected both freights and express. In the British shipping world, accnrding to to-night's statements, a situation has arisen which is without precedent. The slump in freights, coupled with high cost of building ships, has caused wholesale cancellations of new merchant and passenger vessels. The Chairman. Mr. Sie08 r.MKRCEXCY I.M.MIGRATIOX LEGISLATION. chiklien are tivin» to come over and join the heads of the families. And. jjentlenien. these people are not (). These censuses were taken in this way: When a man comes to join the seamen's or^janization he is asked about his nativity and the names of his nearest relatives in order that they may be notified if anythin. as compared icith July Jo, 1911. [Table compiled by United States Shipping Board on basis of information furnished by ihe International Seamen's Union.1 SEPT. 1, 1919. All dis- tricts. Atlantic and Gull coasts. Counirv o! birth. |Num- I ber. Per Sail- cent, ors. Fire- men. All count ries 89, 167 United States 139, 347 Scandina-v-ia 16, 078 Briti.^h Empire 10,990 Mediterranean coimtries i 9, 700 Eastern and southeastern Europe ' 5,072 Central and southwestern Europe 4,937 Latm America (including Dutch West Indies) 2,465] Philippines and Hawaii 576' All others I 2, . Cooks and stew- ards. 100.019,06825,286 44. 1 8, 4f>3 10, 123 18.0 5,614 .3,489 12.3 1,070| 2,503 10.9 1,2231 5,962 5.7 1,610| 888 5. 5 9691 915 Great Lakes. Sail- Fire- ors. 1 men. 2.9 .6 119 907 499 11,594 7,104' 6,938 4,857 3,888 4,079 559! 1,315 706 934, 1,052 164] 310 2,674- 1,3.37 135 1,040 992 4431 424 357| 367 Cooks and stew- ards. 3,702 2,910 111 448 47 86 Pacific coast. Cooks Sail- Fire- i and ors. men. stew- : ards. 8,781 3,570 1,609 2,192 3,625 367 1,266 328 160 303 l,-330 669 122 125 151 101 3 3,124 1,226 292 715 194 31 374 218 74 JT'LV l.i, 1917. .\ 11 countries 42,407 100.0 7.9.56 6.567 5,629 i.-m 4,416 1,073 6,669 3,011 2,847 I'nited States.... . . 12,219 10,854 6,866 3,061 28.8' 1,327 1.2.50 1,910 230 2, 152 465 1,910 1,006 614 56 2,234 457 926 134 799 529 70 3,102 135 651 6 83 1,.350 550 352 311 910 Scandinavia 25. 6| 3,413 16. 2 i .VW 7.3 374 1,739 709 1,441 287 Rrit ish Empire 797 Medil erranean countries 191 Eastern and southeastern Eu- rope 3,423 8.1 1.144 378 47 260 206 16 1,225 1U8 39 Central and northwestern Eu- 1 rope 5,582 13.2 1,163 \,m: 748 361 454 46 1,038 321 459 Latin America (including 1 , Dutch West Indies) 258 .6; 5 48 54 1 41 19 90 All others 144 .3 23 42 4 1 74 EMERGENCY IMMIGRATION LEGISLATION. DEC. 1, 1920. 219 [The Pacific : About 90 per cent orsaniztd ; sailor.s practically all A. B.'s. The (ireat Lakes: About 50 per cent organized; sailors are in the majority A. B.'s, a minority ordinary seamen. The Atlantic: Practically 00 per cent organized.] Nationality. All districts. Atlantic and Gulf coasts. Great Lakes. Pacific coast. Num- ber. Per cent.' Sail- ors. Fire- men. Cooks. Sail- ors. Fire- men. Cooks. Sail- Fire- ors. men. Cooks. Argentina 323 917 1,197 19,065 16 837 275 4,937 3,574 476 2,767 3,045 7 45 19 1,415 7' 26 29 494 2 49 2 40 10 617 2 91 8 1,141 '""60 13 839 5 2 34 1 473 3 5 298 114 320 376 405 3,520 4,650 Austria 187 BelRium Britain • 336 5,934 6 6 Chile 50 40 692 Cuba 1 17 12 15 59 12 4 24 218 2,246 1,296 56 Denmark 580 925 '45 605 140 164 50 180 1,675 14 7 17 74 ""'"io 103 1S2 38 18 78 182 3 95 10 25 250 12 52 30 70 169 1.39 151 11 179 21 45 159 29 64 7 130 75 21 18 461 Finland 1,874 -.542 76 1,154 463 538 113 478 2,182 541 645 468 2,865 699 " "250 Germany 421 Greece.. 345 Holland 2, 776 757 Italy 1,818 935 8,810 716 107 1,281 1,091 57 3,653 1,103 7,251 8,3.50 292 295 79,563 475 411 139 Norway 696 1.52 53 2,427 591 Poland . 71 29 12 2 161 62 536 1,269 47 532 476 4 lOo 4 435 10 292 34! 1.643 471 52 275 181 8 38 4,146 195 342 2,464 20,' 963 100 4,890 3,249 68 197 23,695 756 Spain Sweden Switzerland 1 32 1 1,348 13 13 2,335 79 60 30 3 1,802 15 431 9 2 4,914 1 22 31 201 17 3 3,191 8 2 38 13 1 3,718 1,585 336 132 38 United States 14,801 Others 3 27i 2 416 1 Total 1.56,002 .iin. ins 5,170 3,468 8,328 5,044 4, 576 38, 9.54 50. 871 28,483 1 United States 49 per cent: all other countries 51 per cent. 2 Includes all British possessions. 3 Includes Serbia, Hawaiian Islands, Lithuania, Hungary, Bohemia, SjTia, Jugo-Slavia, Porto Rico, Asia. Iceland. Note.— Total active membership is about 104,000. An active member is one paid up witiiin. six months. The total as given arises from the great turnov^er, especially on the Lakes and among the firemen on thr Atlantic. The Chairman. Mr. Furusetli, what have yoii to say with regard to the statement of 800,000 sailors comino; into New York in a year? ]Mr. FuRUSETH. Of course, the statement about 800,000 sailors is simph' absurd; 800,000 seamen would mean everyone employed on all these vessels. That would be a dirt'erent thing. But it makes no difference whether there are 200,000 or 400,000 or 800,000. If the law is carried out as it ought to be carried out, there will be the same number going out as there are coming in. And if that is considered the hole in the immigration system, it might be a very good thing to put in a proviso requiring thtit any vessel coming to the Ignited States shall carrj- away in her crew the same number of men that she brought. The Chairman. I understood you to say that that was the rule. Mr. FuRUSETii. Well. I think that that is really the law. I think that that is so, though Mr. Chamberlin, the Commissioner of Navi- gation, seems to have held otherwise. That fiuestion is now up for the consideration of Mr. Alexander, the Secretary of Commerce, and it came to him in this way: A vessel named China, belonging to a San Francisco corporation and sailing under the American Hag, but 220 EMERGENCY IMMIGRATION LEGISLATION. hirin<)- her men in Hon^kon department — and i think it is a very commendal)le thing — has been getting the Scan- dinavian citizens to write to their friends in Scandinavia, asking them 240 KMKKCKXCY IMMIGRATION LEGISLATION, to come to Xorth Dakota, and telling them about the advantages of North Dnkota and the chances of getting profitable employment, and evervtliing of that sort. If one of those immigrants comes over from Scandinavia and shoAvs that letter in New York at Ellis Island, that immigrant will immediately be debarred. Furthermore, the letter will be sent to the Bureau of Immigration, and the man that wrote it will be fined $1,000 for each immigrant that came in response to that letter. Senator Johxsox. Well, you will find, you know, that in reciting the contents of such a letter he was extremely careful, and instead of inducing them to come or telling them to come in those letters, the letters were confined to descriptions of the particular individuals, the conditions in North Dakota, and how they enjoyed them, and how profitable they were, and the like. Mr. Bexxet. Senator Gronna will tell you that it is not five years since a neighbor of his wrote a friend of hi> up in Canada about com- ing over, and he was very careful too when he wrote that letter, and the last that I heard of that letter Senator Gronna was working very hard to get a fine of $5,000 i-emitted. Senator Phelax'. Do you think that is a good law or a bad law. Mr. Bexxet. I am in favor of the contract-labor law, but I do think that it ought to be modified so that a man can write exactly what Senator Johnson says, stating that the United States is a good country, that the opportunities here are large, that the surroundings would be congenial, and that if he has tli^ pioneer spirit and is willing to come and take the chances that a man with the pioneer spirit takes in coming to this country, the chances of his success are good. I think a man ought to be permitted to do that. But under the law as administered, when a man shows one of those letters at Ellis Island he would be debarred as an induced laborer. Congressman Littauer was a glove manufacturer. One of his fore- men wrote a letter to some friend in Europe, and the furthest he went was to say that the glove industry was good: that they were employing a good many Englishmen in Gloversville. and the chances were that if he came over he could get a job in Gloversville. The man came to America, showed that letter at Ellis Island as the reason for coming, as any sensible man would, and he was promptly debarred as an induced immigrant. Senator Dillixgham. ^Ir. Bennet, you will. I presume, agree with me that our investigations showed very clearly that a very large pro- portion of the immigrants coming to this country came as the result of private correspondence they had had with people of their own acquaintance who had preceded them to this country, who told them where they were working, and what the price of labor was. and what the cost of living was. and had probably assured them that on reach- ing here they were certain of employment. ^Ir. Bexxp:t. I have always agreed with your statement, Senator, that the greatest inducement for people to come here was the United States mail. And why shouldn't it be? If a Scandinavian of the first or second generation — and the Scandinavians are a people who care for their kmsfolk, they have all those virtues — has gotten along well in North Dakota, why shouldn't he write back to the Scandi- navian country from which he came and say to his i^eople, " I have EMEEGEXC'Y IMMIGRATION i.EGISLATIOX. 241 done this, that, and the other thing, and I have een. to put the immigrant where he could do the most good, and I think I can see his point of view that the im- migrant probably would do the most good if he would go on the farm. The Chairman. Is that the problem of distribution ? Mr. Bex-^xet. Yes. sir. I think that is a great problem. And I will come to that a little later. Now, this other proposition that Congressman Box brought up. I want to agree with very heartily. I think that the Department of Labor has entireW misconstrued that particular section of the law under which they are acting. I di-ew the section of the law. and with the assistance of Senator Dillingham got it in the bill. -And when we got through it had the unanimous approval. I think, of every member of both Immigration Committees. Here is what it was drawn to cover. It was drawn primarily to cover a sad case that brought the situation to our attention. There was a man in Austria, a man of wealth, who had a daughter that had a disease which could only be relieved by a surgical operation, and after this man had exhausted every means of curing her in Europe he was told that the greatest specialist in that particular line was located at the Johns Hopkins University in Baltimore. So he put his daughter on board ship and came along with her, and when she arrived off of Baltimore she was debarred under the very strict provisions of the law in relation to physical qualifications. She was debarred, although it was not denied tliat this surgeon within 20 miles of her cured similar cases by surgical operations. There was another case of a priest who was afflicted Avith tubercu- losis, a European priest. He came over to this country to go down to New Mexico under the belief — and probably the correct belief — that he could be cured, and he was barred. Well, that probably would not be so sad a case, or a case which would attract so much attention. And the two committees conferred, and they thought they conferred in a very limited way, about the Department of Labor, the Secretary of Labor, the authority in emergency cases, and only in emergency' cases, to exercise discretion about admitting an immigrant for a limited time. Well, now, what have they done? They admitted, all along the Mexican border, when Mexican labor was demanded, Mexicans by 242 EMERGENCY IMMIGRATION LEGISLATION. the wholesale. They waived the contract-labor law, they wai\ecl the physical requirements, they waived the head tax, they waived every- thin<;, the literacy test, and all. and they even went so far, at least so Coniniissi(Mier (leneral Caniinetti told nie — and I want to say in justice to him that this was not somethinian. Assuming that this period of unemployment is go- ing to last, would it be especially injurious to the lal)or problem if immigration should be suspended for six months? EMERGENCY IMMIGRATION LEGISLATION. 261 Gen, Marshall. Yes. If the flow of immiofration were stopped it would seem to me that it woukl produce the impression in the places where immigrants come from that it had stopped, and that it will not start again until we happen here to change our laws again. So far as the construction industries are concerned, although it is now a time of lull, yet we can not believe that the country is not going forward. We know, from past history, that a certain amount of con- struction per capita has taken place. We know that the per capita wealth of the country to-day is considerably greater than it was be- fore the war. and that means an increased demand for the facilities of life. 80 that it seems certain that those two and one-half years that we are behind in construction since the outbreak of the Euroj^ean war will be made up within a reasonable length of time, otherwise the country will not go forward with the progress with which we all confidently expect it to go forward. XoAY, that being the case, we have got to be forehanded in looking at the labor that will be necessary to handle this, and, based upon those general premises, I am strongly of the belief that no action should be taken that would prevent the productive labor from coming into this country. The Chairman. Well, you are dealing with the larger proposition. Now, I Avant to ask you this question : Would it tend to aggravate the present situation with regard to the nonemplovment of common labor if we should permit the present nimiber of immigrants to come in ? Gen. Marshall. Yes, sir. The CHAiR:NrAx. Well, from that specific point of view, those en- gaged in common labor would have some cause of complaint, would they not ? They would naturally f aA'or this bill, would they not ? Gen. ^Iarshall. Yes, sir. The Chairman. Well, shouldn't the committee take that phase of the case into consideration ? Gen. Marshall. I think so. Senator Dillingham. I am told that the price of building mate- rials has materially declined in the last two or three months. Is that so ? Gen. Marshall. In some lines ; yes, sir. I am inclined to think that the prices of the wholesale products are the real prices that have de- clined, and tliey have not yet reached the retail situation. Senator Dillingham. In the question of lumber, what do vou say about that? (ien. Marshaliv. Certain classes of lumber have very materially de- clined in price. Senator Dillingham. AYell. has there been any decline in the price of labor ? Gen. Marshai.i,. In tlie building trades I know of none. Although I understood in California — and I suppose that it is in effect noAV — that at the end of December on the road work there would be a re- duction. I think, of "25 cents a day. if my recollection serves me right. That is all. gentlemen. Senator Dillingha:m. I have no further questions. The Chairman. Very well, thank you. Gen. Marshall. Col. Wiggins has raised a point, gentlemen, upon which I might haA"e been ambiguous. I meant to say that the present 262 EMERGENCY IM.MK. RATION LEGISLATION. iimniirration was not great enough to cover the need for the un- skilled-labor class, and that the present situation as it exists is aggra- vating the case, and any lesser nutaber would still further aggravate it. That is the idea I had in mind. Col. Wiggins. The next gentleman is Judge L. C. Boyle, repre- sentative of the lumber interests of the United States, He is en- gaged at the present moment in the Supreme Court here, and has asked permission to file a brief which he will send later. The Chairman. The brief, when filed, will be received. Col. Wiggins. And I a^k that the Hon. William S. Bennet. of Chi- cago, be giAen the opportunity, which I understand has already been arranged for personally, to present the lumber interests' views. The Chairman. Very well. Col. WiGfiiNS. And now I want to introduce to you Mr. Walter F. Ballinger, of Philadelphia, and in introducing Mr. Ballinger I want to say that I don't know of any other architect's office in the United States that is covering quite as much construction work as his office is. I believe that they are covering more than S12.000.000 worth of building construction at the present time. And I also know that Mr. Ballinger's concern has had considerable experience in construc- tion as well as in designing. The Chairman. !Mr. Ballinger. STATEMENT OF ME. WAITER F. BALLINGER. ARCHITECT. PHIIADELPHIA. PA. Mr. BALLiNr;ER. Gentlemen, the building industry at the present time, as everybody knows, i? undergoing a great slump. The slump came on in the building industry ahead of the general business de- pression. I attribute as one of tlie causes of the great slump in the building industry, the shortage of labor of about a year ago. Xow. during the war the building industry, except for war pur- poses, was deliberately discouraged by the Government, and I sup- pose rightly so. because they needed the men for other work, but it had the effect of getting a good many mechanics and laborers out of the building industry and into other lines permanently so that there are not as many mechanics engaged now in the building industry to- day, or there were not before the slump occurred, as there were before the war. After the armistice we had a temporary slump, and people were waiting for prices to come down before investing in buildings. In the spring of 1919 the owners of buildings and people generally began to realize that prices were not going to come down. More and more of them rushed in with their orders for buildings, and as a consequence there were more buildings projected than there were men to do the work, and I think it was the rule that every building was from three to eight months longer in construction than the contract time, than the time solemnly contracted for between the contractor and the owner. They had to waive penalties, and often owners had to help contractors out because of this labor shortage and other diffi- culties, such as coal shortage, steel shortage, and shortage in railroad transportation. Xow, in view of the shortage, contractors were compelled to use men for jobs for which they were not fitted, and that was one of the EMEEGENCY IMMIGRATIOX LEGISLATIOX. 263 -causes for the high degree of inefficiency in the buikling trades. It has been said, I think, that workmen did from one-half to two-thirds that they did before the w' ar. AVell, it was not always the same work- men. AVe often had to substitute inferior workmen to do the work. That was one of the reasons for the inefficiency due to the labor shortage. We were especially short on common labor — that is, what we call the unskilled labor. They are really partially skilled — -that is, men like hod carriers and wdieelbarrow men, pick and shoA'el men — they are jDartly skilled because they are accustomed to that kind of work, but they are generally regarded as unskilled, as compared to mechan- ics who spend three or four years to learn their trade. We are short in our building program ; the housing experts have estimated around 2,000,000 houses. I don't knoAv how nearly correct that is, but we are certainly very short on houses in all the great cities, and the prices of houses — that is, the actual cost to the build- ers — are such that the selling value and the rental value of those houses make it almost prohibiti\'e for the Avorkingmen to occupy them. The very men who are emj^loyed on them can not occupy the houses, because thej^ cost too much : and that is largely due to the shortage of labor, the inefficiency of labor consequent on the shortage, the substitution of unskilled men, or partialh' skilled men, for the skilled mechanics. We need both the skilled mechanics and the un- skilled men. Now, as to the skilled mechanics, Ave are producing some in this country, but not half enough; not half enough apprentices. The w^ork is not attractiA^e enough to the American hoy. But of unskilled labor we are producing none, except the Negroes in this country, and so unskilled labor must be gotten from abroad, or we must do with- out it. And I attribute the slump that is going on noAv in the build- ing business as being largely due to the discouragement of the owners a year ago — that is, from one year and a half to six months ago — during that year Avhen it was so difficult to get a building constructed at any price or within any reasonable time. I therefore hope that the Johnson bill, which I understand ex- cludes immigration except in a fcAv instances for one year, will not pass. And t belicA^e, hoAvever, in reasonable restrictions upon immi- gration. I haA'e read oA-er the Sterling bill. I am not sure that I favor all of the provisions in the Sterling bill. I am not sure that I under- stand it all, but so much as I do understand looks good to me. It keeps out undesirables, so far as I can see, and permits the admission of worlanen who are sorely needed. I Avill just mention this one incident. There is a brick-mason contractor Avhom I knoAv Avho said he employed -15 men regularly in Philadelphia befoi-e the war. He had a good many others that he employed off and on, but these 45 men he had on his pay roll, and kept them regularly until the war broke up his business. After the Avar Avas oA^er and business resumed he sent some men around to find these 45 men. He only found 5 of them. And he had to get new men to supplant the others. I may say that these 5 Avere still working as bricklayers. He found a number of others of those Avho had formerh^ Avorked for him rejzularlv as bricklavers Avho were now 264 EMERGENCY IMMIGRATION LKGl.SLATION. ■working under a roof soinewheie. where tiiej' could work all the year round under more comfortable and favorable circumstances and conditions. Xow. people must get higher wages in the building trades than they get in the factory, because in tiie factory they can work in any kind of weather, whereas on the buildings they can not work in inclement weather, and tiierefore have a ])eriod when they are not earning any- thing. They are usually paid by the hour on the buildings, but their wages per week or per year are sometimes much less than the wages of those Avho work in factories, whose rate per hour is less. That is all I have, gentlemen. Senator DiLLiXGHA^r. You spoke about undesirables; the Sterling bill keeping out some undesirables: you mentioned that. What classes of undesirables do you want to have kept out that are not debarred by the present law ? Mr. BallinctER. AA'ell, it seems to me that the present law is very good on that. It keeps out imbeciles, those who are diseased, and those who are opposed to our American system of Government. In general. I think tlie present law is very good. Senator Dillingham. "We tried to make it as thorough as we could when it was made. Well, then. I understand that in the legislation that we adopt you are against the Johnson bill. Avhich would cut off all immigration? ^Ir. Ballinger. Yes. sir. Senator Dillingham. And of the other measures you would prefer the one that would let in the most? ^Ir. Ballingkr. I don't know all of the possible bills that may be before your body. I won't just say to let in the most. I do not know whether I would want to quite say that. I feel that one tiling ought to be done, and I don't think that the Sterling bill attempts to some extent to do it. or I don't know whether it attempts to do it ade- quately or not. and that is this : I think there ought to be some means to keep these immigrants from stoj^ping in the port of entry. They ought to £ro farther west, or on the farms. They ought not stop in Xew York City. The Chairman. You are dealing with distribution now. Mr. Ballinger. Yes. There ought to be a proper distribution. Senator Dillinghaim. To do that' wouldn't you think it would be possible to enrourage them to come from those countries that send immigrants that do not stop in Xew York ? Mr. Ballinger. I am not quite clear on that. Senator Dillingham. I say. don't you think it would be be.st then to encourage immigration from those countries whose people do not stop in Xew York but spread themselves out over the country? Mr. Ballinger. Yes. sir. Senator Dillingham. You would favor that ? Mr. Ballinger. Yes, sir. Xow. I have only spoken on the lines that I am familiar with. I am only remotely familiar with the farming business, but I understand that they were very short of labor last year. Senator DiLLiNGHA:\r. Yes. Mr. B.M.LTNGER. And that that had a good deal to do with the cost of farm products and the difficulties of the farmers. And unfor- tunatelv we have been drawing farm labor into the cities bv cfivinir EMERGENCY IMMIGRATIOX LEGISLATION. 265 them greater attractions there. >.()w, we need farm h^bor, and we can only get that farm hibor from abroad, I think. Senator Dillingham. Has it been called to your attention that of the recent immigration we liave been getting from eastern and south- ern Europe, although 80 per cent of those people perhaps have been either farm laborers or common laborers, eventually none of them will go on the farm when they come to this country, but all move in racial groups to the sites of manufacture in the cities ? Mr. Ballinger. Well, that is unfortunate. It seems there ought to be some inducement given to them to go to the farm, or there ought to be some means of trying to get them there, and trying to Ameri- canize them. Senator Dillingham. Can you suggest any means? Mr. Ballinger. I don't know, unless it would be that the farmers' organizations have representatives at Ellis Island. Senator Dillingham. They do have their representatives at Ellis Island. The law provides for that noAv. But yet these people do not go to the fai'ms. They move in racial groups almost wholly. I asked this question because I didn't know but that you had some suggestion to make upon that subject. Mr. Ballinger. Well, I am not sufficient!}'' expert on farming mat- ters to be able to answer for them. Senator Dillingham. But you will find, if you look over the sta- tistics of last year, that we have had a larger j^ercentage of Avhat we call the " old " immigration — that is, immigration coming from west- ern Europe, the Scandinavian countries, the British Isles, etc. — and they do not stop in New York. They go clear through to California. Now, I was asking you whether you would prefer a measure Avhich would stimulate that kind of immigration or whether you would have it remain as it has been. Mr. Ballinger. Well, I think anything that we can do. any legisla- tion that will induce these immigrants to go to the farm, or anything that we can do to bring immigrants from abroad that will go to the farm will be of benefit to all the ])eo]:)le of the United States. Senator Dillingham. I agree with you. The Chairman. You used the term *' undesirable."' I understood you to say that it would be well to exclude undesirablcH. Do you know of any way of strengthening the present immigration law upon that point? Does not the present law provide a moral test, a physi- cal test, a mental test, a literacy test, and a test whether an immigrant is in favor of revolutionary measures, the overthrowing of the Gov- ernment, etc.; whether he is an anarchist? Mr. Ballinger. I understand that it does : but I do not understand how effectively those tests can be put into ojieration if only applied here. I don't know whether tlie present law makes any provision for examining them abroad before they are given their passports to come over here. If it does not. then I think that that should be added to the present law. Now, gentlemen, that is all I have to say, unless there are any fur- ther questions. The Chairman. Thank you. Col. Wiggins. Mr. Frederick W. Koekwell. Avho represents the Wholesale Sash and Door Association of Chicajro, will now adrlr?ss 266 EMERGENCY IMMIGRATION LEGISLATION. you, g;entlemen. I want to say. in presentinjr Mr. Rockwell, that he- is presented to you to show that he, as well as the representatives of all these various classes of industries that helonjr to our national asso- ciation, are with us. STATEMENT OF MR. FREDERICK W. ROCKWELL. OF THE WHOLE- SALE SASH AND DOOR ASSOCIATION, CHICAGO, ILL. Mr. Rockwell. Mr. Chairman. Mr. Wifrjrins luis said all that I came to say. and that is that our Wholesale Sash and Door Associa- tion, with offices in Chicago, representing a]:)out 75 to 80 per cent of the Avholesale j^roduction of that line of material, are members of this National Federation of Construction Industries, and that that organization is empowered to represent us. We quite agree with the attitude of that organization in objecting to some of the features of the Johnson lull. We are wholly in accord with the attitude of this association. The manufacturing that the members of the AVholesale Sash and Door Association are engaged in, Avhich is millwork. is largely done in the Middle West, and we are quite largely dependent upon common labor, and have been affected liy the shortage of labor during the past few years. The people of our industry do not want to see the natural flow interrupted. Senator Dtllixgham. Has the closing of any of the mills of the country, the textile mills and other mills of that character, and the- throwing out of employment of men that had been in their employ,, helped you any ? Have any of the men come to your assistance ? Ml'- EocKWELL. Xot to my knowledge. To begin with, the labor employed in the textile mills would not be available for the mills in our particular line of business. Senator Dillixgham. That is just what I wanted to knoAv. Mr. EocKWELL. The flow would not be in that direction, and it would not be the same kind of labor. The Chairman. What percentage 'of the labor which you emplojr is alien labor? Mr, EocKWELL. Why, speaking from personal knowledge in the- Middle West it is a very large percentage. That is. alien, foreign born, and American born of alien parents. Quite a large per cent^ Mr. Chairman; I would not know just the exact figures, but I know that it is quite a larce per cent. The Chairman. Well, is it 50 per cent or 60 per cent, or what would you sav it is? Mr. Rockwell. I should say that it is more than that. The Chairman. That is all. Mr. Wiggins. Mr. Chairman. Mr. Eoger O'Donnell is here. He- has been connected with the Immigration Service of the United States for over 21 years. He is now with the National Federation of Construction Industries, and his time is more particularly turned to this particular service, the question of legislation, etc. The Chairman. What part of the Immigration Service was h& connected with, Mr. Wiggins? Mr. Wiggins. I will let Mr. O'Donnell answer that if he will. The Chairman. All right. EMERGENCY IMMiGEATluX LEGlSLATiOX, 267 STATEMENT OF MR. ROGER ODONNELL, OF THE NATIONAL FEDERATION OF CONSTRUCTIVE INDUSTRIES, WASHINGTON, D. C. Mr. O'DoNNELL. Mr. Chairman, I was connected with the Bureau of Immigration in Washington, and I was special inspector of the United States Immigration Service for about 21 years. Senator Dillingham. Hoav are 3'ou occupied at the present time, Mr. O'Donnell? Mr. O'Donnell. I am now practicing law in this city, sir; and represent the National Federation of Construction Industries, among others. The chairman of the immigration committee of the federation re- quested me to make an analysis of this Johnson bill, and to explain to the committee the view the federation takes of it. its standpoint representing a large number of employers of a great deal of common labor. Tho hguros shown in the immigration reports since the act of 1917 went into effect indicate to the minds of our i)eople that the hue and cry in reference to the menace of immigration is not borne out by the figures themselves. The literacy test went into effect May 1. 1917, and on the 30th of last June there had been three full fiscal years from which deductions might be made, and from wdiich comparisons might be drawn. And while there has been very much talk about the large numberof immigrants coming in there has been little or nothing said about the number of emigrants going out. The total emigration for the three years, as contrasted witli the total immigration for the three years, indicated that the net gain by immigration for the three years ending last June was 176,000 for the entire three 3^ears. NoAv, the figures from July tx) November have not been tabulated. They are not available in detail. And therefore we are compelled to resort to and use estimated figures from official sources. The total immigration for the first five months of the present fiscal year seems to have been 472,800. That includes nonimmigrants and immigrant aliens. The total number of immigrant aliens during that same period was 358.531. The total number of emigrant aliens leaving this country with the intention of remaining abroad, according to their own statements, was 121.000, leaving for the five months' period a net gain of 237.534 bv immigration. ' The Chairman. What period of five months is that? Mr. O'DoNNEix. From July to November of 1920, the first five months of the current fiscal year. NoAv. if that ratio were to'be maintained for the entire balance of the fiscal year it would indicate a net gain by immigration—that js, immigration coming in less the emigration going out— of 560,072, considerably less than one-half of the immigration that came to the United States in the last year before the war. That is, the fiscal year 1914. . Senator Dillingham. What Avas the net gam m that last year before the war ? , t • 1 • i Mr. O'Donnell. I haven't the figures with me. but I am inclined to think that the net gain was in the neighborhood of 800.000 or 268 EMERGENCY IMMIGRATION LEGISLATION. 900,000, if I recollect it correctly. I have not looked at tlie figures for some time. I think that the emijs:ration was something like 300.000 as against 1,200,000 immigration. Senator Dillingham. I have a faint recollection that it was 800,000. Mr. O'DoNNELL. It was between 800,000 and 900.000. I believe, Senator. The CiiAiRMAx. M3' recollection is that it was 800.000, and I think 3'ou underestimated the emigration in the 3^ear Ijefore the war. Mr. O'DoNNELL. I am speaking from recollection. The Chairman. The emigration in the vear before the war would run up to between 400.000 and 500.000. Mr. 0*DoxxELL. It would run up to between 400.000 and 500,000? The Chairman. Yes. Mr. O'DoxxELL. I have not the figures before me. as I have said. Mr. Chairman. Xow. turning to the unskilled labor situation, which is the situa- tion in which the National Federation of Construction Industries is most interested, there were S1.T32 unskilled laborers admitted to the United States in the last fiscal year, and there were 183.088 unskilled laborers that left the United States in the last fiscal year. In other words, a deficiency or loss of 102.088. Since the literacy test went into effect in 1017 there were 114.642 unskilled laborers who have been admitted a> immiirrants. and there were 292.524 unskilled laborers who left the Untied States. In other words, a deficit of about 178.000. And let me say that a great portion, a very great portion, in my observation, of the laborers who have left the United States can not return because of the literacy requirement. Consequently that represents a flat loss. Senator Phelan. They can not plead that they have already l)een in the United States ? Mr. O'DoNNELL. The law only allows them to come in under the act of 1917. if they have had a seven-year residence here, and the great majority of these had not been in this country that long. They came over in the bumper years of immigration just before the war, and they went back as soon as they could to settle matters with their relatives, and so forth. That is my experience. Senator Phelan. The man who had been here seven years can come back i Mr. O'DoNNELL. Yes; the man who had been here seven years can come back. Xow, the analysis of the Johnson bill seemed to indicate to the minds of the gentlemen of the National Federation of Construction Industries The CHAiR:\rAN (interposing). I might say that the last report from the Labor Department was to this effect, that for everv 100 im- migrants who came in from eastern and southern Europe 125 went back. Senator Dillingham. During what part of the period? The Chairman. During the fiscal vear ending on the 30th of June. 1920. Mr. O'DoNNELL. "Well, of course. I don't know whether that statement w-as based on an analysis of figures or not. If so, of EMERGENCY IMMIGRATION LEGISLATION. 269 course, I have not made such an analysis, and I am not therefore pre- pared to state whether it is correct or incorrect. I presume it is correct, or probably made from the official figures. The Chairman. That is, in the period from the 30th of June. 1919, to the 30th of June, 1920, for every 100 immigrants from eastern and southern Europe that came into this country 125 went home. That is based upon the tables that are inserted in the commissioner's report. Mr. O'DoNNELL. "Well, that would be borne out or not by a careful analj'sis of the tables, and I have not made such an anah'sis with that object in view. That is the first time that I had heard that. I would like to call the attention of the committee to the fact, however, that the Johnson bill pro]:)oses to exclude The Chairman (interposing). That statement might lead to a misunderstanding, because the increase came — and there was an in- crease, a net increase — the increase came from northern and western Europe, and particularly the increase came from Canada. ^Mexico, and Italy. ;Mr. O'DoNNELL. It appears to our people upon a review of this bill that it excludes the fit. shuts the door for a 3'ear to the man that is strong and able-bodied and able to take care of himself and pro- vides, under section 4, for the admission of the dependent class — the unfit. The philosophy back of that, of course, does not appear from the report of the House committee, which I have before me here. By a strange freak of legislation the Johnson bill, if pa^^sed. would not exclude the Japanese, against whom it was in part aimed, because, while a Japanese can not be naturalized in the United States, he can declare his intention to become a citizen : and if so. under the terms of the Johnson l)ill. he can send for the relatives mentioned in sec- tion 4 of the bill and bring them in. I know of no law that prohibits a Jai)anese from declaring his intention, or a Hindu either, for that matter, although neither of them can be finally naturalized. Senator Phelan. Well, I would like to have the opinion of the chairman on that subject. If he is not a])le, under the law. to become a citizen hj naturalization, his declaration of intention would be a perfectly vain act. The Chairman. I think your point is well taken. Senator Dillingham. What is the clause in the Johnson bill that you are referring to? Mr. O'DoNNELL. Section 4 of the Johnson bill. Senator Dillingham, Have you it before you? Mr. O'DoNNELL. Yes, sir. The Chairman. It does not do you any good to declare your inten- tion to do something which is absolutely illegal and which the law 'forbids. Senator Phelan. Mr. Chairman, how would it affect the judgment of the Immigration Department if they were told, for instance, that the Japanese have now a case in the Supreme Court, the briefs on both sides of which I have read, iu which they set up the claim that they are white persons, and therefore eligible under the naturaliza- tion law? AVould it do for the Immigration Department to deny that claim in the absence of a decision by the Supreme Court ? 26011— 21— PT o 4 270 EMERGENCY IMMIGRATION LEGISLATION. The CiiAiuMAN. I think wo, are in deep seas enoufrh now on the general proposition of the bill Avithout wanderinfr out furtlier. Mr. O'DoxxKiJ.. I quite a^ree Avith the eliairnian. hut I would like to say that this is the way that section reads : And fiiiy alien who has dpclared, in the manner provided by law. his intention to become a citizen ot the United States, and who is a resident of the L'nited States, may make like application in reference to an f)tlierwise admissible hus- band or wife, umiutrried son imder 21 year; of aire, or unmarried or widowed daughter, but no application may be made under this parajrraph in the case of any relative by adoption. Senator Phei^vn. Suppose he made declaration of intention to ac- quire real estate in the State of California, where the law prohibits it, what effect would that declaration have if the immifrration law required that he either acquire or seek to acquire real propertj'^? !NIr. O'DoNNELL. I hope the Senator won't press me as to a state- ment of the land laws of California. I will plead an encyclopedic ignorance on that subject, but I see no reason why a Japanese citizen residing in this country should not come into court and declare his intention to become a citizen. Senator Phelan. Do you think a court would receive his applica- tion ? Mr. O'DoxNELL. I don't think the courts all over the United States share the prejudice that the courts might entertain on the Pacific slope. Senator Phelax. Prejudice in favor of a strict construction of the law? Mr. Q-DoNNELL. "Well, of course, there is prejudice. Senator Phelax. But the law does bar all persons from naturaliza- tion except those who are either white persons or persons of African descent. A Japanese is not a white person or a person of African descent. How would a court receive an application of that kind? Mr. O'Doxx'ELL. I have personal knowledge of a great many Chi- nese in this country who have declared their intention of becoming citizens. Senator Phelax'. Does the Immigration Service recognize that as a bona fide application for citizenship or naturalization? Mr. O'DoxxELL. I don't know how they could do anything else. There is the order of the court receiving the declaration of inten- tion. How is it going to be disregarded by a mere executive officer? Senator Phelax. Because all the courts have held, so far as L know, that the Chinese and the Japanese are ineligible to citizenship. But I made the point that there is an appeal lying in the Supreme Court of the Ignited States. Mr. O'DoxxEEE. That is of the out-and-out naturalization. But this is merely a declaration of intention. If the committee wanted to make this effective, let them limit this proi^osition to people who are entitled to become citizens of the United States, and then you have done something. Senator Dhxingham. Your claim is that a person who is not eli- gible to become a citizen of the United States, may. if he files his declaration of intention, then ask to have his relatives brought in here ? Mr. O'DoNNELL. Yes, sir. Senator Dillingham. Under the Johnson Act, that is your point? EMERGENCY l.MAilGRATlUX LEGISLATIOX. 271 Mr. O'DoNNELL. Exactly : that is my point. Senator Piiklax. The chairman does not think it is a good point, as I understand it. Mr. 0'Doxnp:ll. Senator Phelan, I am sorry that the Senator does not agree with me, but I have made the point, and I insist that it is one of those points that indicates this — that hasty stop-watch legis- lation of that kind is apt to have that kind of jokers in it. l)ecause I say this bill is full of them, and that is merely one of them. The Chairman. I did not intend to pass any opinion upon the point that you raised. Mr. O'DoxxELL. Pardon me. ^Ir. CTiairman. The Chaikmax. He might file an application, and that question might not come up until the question came up for naturalization. ^ir. O'DoxNELL. Oh, I don't tlunk that would ever come up. Senator Phelax. Well, I am sure that if the committee did not desire this provision to apply to the Japanese under the circum- stances — that is to say, their inability under the law to acquire nat- uralization — they would strike that out. so far as the Japanese are concerned. ^Ir. O'DoNXEi.L. Well. T could ]ioint out a great nimiber of other features of the bill. l)ut in ceneral my opinion of th.e Johnson bill, and the opinion of the clients for whom I appear, is that it represents the last Avord in excluding from the United States the tit man who comes here with his capital in his strong right arm. and Avho is willing to go to work and do something for the country, and it will permit the admission of the persons who are unproductive, and who would lend nothinir to the constructive industry of the country. Senator Dillingham. Will you please jiroceed with the analysis of the bill that you just started to make, if it sustains the contentions that you just mentioned? Mr. O'DoNNELL. I am afraid I do not quite apprehend your ques- tion. Senator. Senator DILLINGHA^r. I say if the Johnson bill sustains the state- ment that you just made, will you point out in Avhat particulars it does so? Mr. O'DoNNELL. In the first place it excludes all iiumigration v,ith the exception, first, of those people who come here with passports — that is Government officials, travelers, etc.. a very limited class. The Chairman. You need not spend anv time on tliat point. Mr. 0"Donnell. Mr. O'DoNNELL. Yes: I understand that. I am getting down to my point. It excludes everybody else. It excludes the man who comes to cast his lot among us and do something for the country beside live with or ujDon us, and under section 4 of the bill the door is opened for the admission of the very classes denounced in the House committee's report on the Johnson bill. Senator Dilltngha.ai. What classes are those? Mr. O'DoNNELL. Tlie classes that are dependent. It says so re- peatedly in the report. For instance, on page 8 of the report, speakinir of Ellis Island, it said : " The bulk of the newer arrivals are of the dependent rather than the working cla.sses." In justifying the bill at all it says: *' It permits time for the con- struction, from the ground up. of new immigration laws to take the 272 EMEROEXCY IMMIORATIOX LEGISLATION. place of those now in existence wliich have been amended from time to time to meet conditions as they have arisen." Now, tliat is not correct, because the act of 1917, as Senator Dill- ingliam knows, as he was then chairman of tlie committee, repre- sented a codification of all of the imniiLn-ation laws up to that time, or substantially all of them, and therefore the act of 1917, under which you are now workin*;. is not a patchwork proposition, as this report hints. And repeatedly in this report here there is reference to the large number of persons cominof in of the dependent class. And yet, by the strange freak of circumstances, that is the ver}- class that would gain admission under section -4 of the Johnson bill. Senator Piielax. That is, of all nationalities? Mr. O'DoxNELL. Of all nationalities. I don't think there is any discrimination as to nationality. The door is pretty widely open under section -i for the people coming here who do not produce any- thing, who do not do anything for this country, but come here to take something out of it. That is our point, that we would like to have the admissible classes, the classes that produce, come in here and help in the recon- struction. Senator Phelax. Well, the object of that is to give the bread- winners who are here an opportunity to support their dependent relatives, who otherwise would have to be supported by them in the foreign country in which they live. ^Ir. O'Dox'XEiJ,. I don't know. Senator. That may have been the intention. Senator Phelax. To facilitate the humane purpose of doing that. Mr. O'DoxxELL. The way it has been expressed in the bill would open the door so widely that the humane purpose is swallowed up in the great mass of unfits that are brought in under it. The Chairmax. Will you please read section 4 of the Johnson bill, which you say refers to a dependent class? ]Mr. O'Dox^x'ELL. Yes, sir. Sf:c. 4. {(i) A citizen of tlie I'niterl St;ites 21 years of age or over, who is a resident of the United States, may, under tlie re^Tilntions prescrihed by the Secretary of Labor, apply to him for permission to brinjr into the United States or send for an otlierwise admissible wife, parent, grandparent, unmar- ried son under 21 years of age. unmarried or widowed daughter, or sister, under 16 years of age. whose father is dead, or unmarried or widowed granddaughter whose father is dead: and any alien who has declared, in the manner provided by law. his Intention to become a citizen of the United States, and who is a resident of the United States, may make application in reference to an other- wise admissible husl)and, or wife, unmarried son under 21 years of age. or unmarried or widowed sister : l)ut no applii-atiou may be made under this para- graph in the case of any relative by adoption. ( b ) If the Secretary of Labor is satisfied that the entry into the United States of such relative would not be \u violation of the immigration laws and that such relative is likely to prove a desirable resident of the United States, he may issue a permit to the applicant, under such regnlatioiis as he may prescribe, which shall authorize the immigration othcers at the port of entry to examine such relative up«.n arrival at such port. Thereafter the right to such relative to ad- mission shall be as provided by the immiirratlon laws, exrej)! that it shall not be subject to the act entitled "An act to prevent in time of war departure from and entry into the Unitetl States contrary to the public safety, approved May 22. 1918." or to the provisions of any proclamation, order, rule, or regulati«m made thereunder, and except that the literacy test may, in the discretion of the Secretary of Labor, be waived in the case of such relative. EMERGElSrCY IMMIGRATION LEGISLATION. 273 In other words, the passport requirement and the literacy test are set aside even in favor of the Japanese. I thank you, Mr. Chairman. The Chairman. Thank you. Col. Wiggins. Mr. Chairman, may I give these figures : The total immigration for the year that you asked for, 1914, was 769,276. The Chairman. Thank you. Col. Wiggins. I next introduce, Mr. Chairman, Mr. James A. Emery, general counsel of tlie National Association of Manufac- turers. STATEMENT OF MK. JAMES A. EMERY. GENERAL COUNSEL, NATIONAL ASSOCIATION OF MANUFACTURERS. Mr. Emery. Mr. Chairman, I am general counsel of the National Association of Manufacturers of the United States, composed of some 6,000 manufacturers engaged in general manufacture in som.e 38 States of the Union. At the last conference of the National Association of Manufac- turers, held in New York City in May, 1920, some 1.600 delegates, representing the membership of the association, and representine: some 28 State associations of manufacturers, which include in their membership in the neighborhood of 18,000 manufa^'turers other than those in the national association, expressed their views upon the immi- gration question, in the course of a platform which was adopted at that time, and as it was pertinent to the discussion before the com- mittee, I Avas asked to present that to your attention, and also to ex- press the opposition of the association and of the State associations through resolutions adopted by their respective governing bodies, to the fundamental principle of the Johnson bill, which was the com- plete prohibition of immigration for the period of one year. And to express, if I may, very briefly to you, their vicAv upon the pending legislation. Senator Phelan. In favor of the Johnson bill, you say? Mr. Emery. Against it. That is, against the complete prohibition of inmiigration for the period of one year. The general statement upon the subject of immigration, if I may give the statement, was to this effect, Mr. Chairman : A\'e believe it is in tlie interest of the Nation to replace our present xnisys- teinatic control of the aliens with a constructive pol'cy of selective innniirratlnn. The general prohibition of iminifrration is the counsel of bigotry or selfishness. Ourselves a Nation of innnigrants and dependents of innnigrants. we ousht, in the words of Madison, "to welcome every person of good name that really meant to incorporate himself into our society," hut repel all who will not be "a real addition to the wealth or strength of the T'nited States."' To this end, we should effectively exclude tlie diseased, the criminal, the defective, those likely to become a charge on the public, any who oppose all form of government oi who would overthrow this Reymblic or effect iiolitical change by force. Our policy should distinguish the reiiuirement for admission from those for naturalization, demanding a working knowledge of English and a practical imderstanding of our form of government as a prerequisite to citizenship, an preservation and elevation of those stand- ards is the first duty of our Government. The immigration policy of the United States should he such as to insure that the numher of foreigners in the country at any time shall not exceed that which can he assimilated with reasonable rapidity, and to favor immi- grants whose standards are similar to ours. It also stated : The existing policy of the United States for the practical exclusion of Asiatic immigrants is sound and should be maintained. Senator Dillingham. What did the Democratic platform say, Mr. Morrison? I don't recall. I am asking for information. Mr. Morrison. I did not look it up, because I don't know that there is any declaration of that. This declaration was so nearly in accord with the American Federation of Labor that it appealed tome. Senator Phelan. The Democratic platform is not silent on the subject of Asiatic immigration. Mr. Morrison. Oh no. And what I wanted to say here was that if there was any doubt in the minds of the committee, because the question has been raised that a Japanese or Chinaman who declares his intention to become a citizen of the United States would be in a position, legally, to send over for his relatives, as outlined in that bill, there should bo a clause inserted that anyone making a declara- tion, who had a right to do so, or rather, who is eligible to become a citizen, can do so. Senator Phelan. Yes. 278 EMERGENCY IMMIGRATIOX LEGISLATION. Mr. Morrison. So that it will not. when it comes to a court, be mis- construed. And unfortunately the courts do not always a<^ree with what the committees ma}- decide in their interpretation. Labor or- ganizations have suffered under the antitrust law and the Lever Act, because they were assured that neither of those law.s would cover members of organized labor, and the fact is that up to the present time about the only people that these laws have l)een applied to with any degree of efficiency are the representatives of organized labor. Senator Phelan. For your information. ^Ir. Morrison, in that con- nection, do you know that Judge Vaughn, of the Federal court of Hawaii, has construed the Army act to admit Orientals to citizenship wlio were enlisted in any branch of the service in the war? Mr. ^loRRisoN. Xo: I do not. Senator Phelan. "Well, that has actually been done, and it is a mis- construction of the law. according to his colleague in Hawaii. Judge Poindexter. and Federal Judge Bledsoe, of California. It was never the intention of Congress, and. as you say, it was clumsy legislation. Senator Chamberlain, who was chairman of the committee at that time, told me that it shocked him to hear that such construction had been put upon the act. because it was not intended. But it illustrates what you say. that there is much clumsy and obscure legislation. Mr. ^Morrison. Xow. in January. 1919. I appeared before the Im- migration Committee of the House. I urged Congi'ess at that time to pass a law stopping immigration for a period of not less than two years after the armistice was signed or peace was established. At that time, of course, like many others. I expected that immediately after the armistice peace would be arranged for between the nations of the earth, and we would hurry on to the bringing aboiu of recon- struction. So when we favored this legislation, and the House passed the Johnson bill, not the way we wanted, but stopping the immigration for a year, with certain reservations, and when it came up here be- fore this committee. I sent out a letter to 970 secretaries of our local central bodies, asking them to furnish me with an estimate of the number of unemployed at the present time. This letter was sent out ou January 4. I have received 141 replies from as many cities. And the estimates of those who give the number in round numbers of imemployed show that in the 1-41 cities there are 1.819.-27'2 workers unemployed, since January 4. when the letter went out. I would not dare to make a survey or an estimate of what the other TOO or more cities will show, because it may be that in some of the cities which are small the employment may not be as heavy as in those which I have heard from, so that any survey that I should make, trying to strike an average, will not be accurate, biu I will be glad to furnish any additional information that I will get within the next few days to this committee. I will file with the committee now a compilation of the reports re- ceived upon the number of unemployed. The Chairman. It will be received. (The compilation furnished by Mr. Morrison is herewith printed in the record in full, as follows:) EMERGENCY IMMIGRATIOX LEGISLATIOX. 279 Rcijoits received upon iniiuher of unciniilotjed. Baltimore. Md 19,000- I'O. 000 Chioajro, 111. (50 per cent of buikling trades idle. 40 per cent of metal trades idle. 35 per eeiit of ;iarnieut workers idle, prac- tically all leather and tannery \\()rkersi 200,000 Cleveland, Ohio ( 0;},817 employees of mamifacturin;: )«lants un- employed, !».0OU in huildinji^ trades* (ti^iure will be (ioul)led in next month), (5,000 ami^n^' laki" W(jrkeis including lon.irshore- nien, firemen, engineers) ]0S. S17 Detroit, Mich 150,000 Greater New York ^00, 000 rhiladelphia. I'a 2.S5. 000 St. Louis, Mo 35.000-40.000 Milwaukee. Wis. (in State otitside of Mil\v:inkee, 80.000) 40,000 Louisville, Ky 1.000- 1.200 Seattle. Wash 0. 000 Wheeling, W. Va. (mill workers., .-).000 : other crafts, 2,000 >—- 7. WO Minneapolis, Minn, (building trades. 3.0(X) : metal trades. 3,tK)0 : miscellaneous, 3,000; textile, 2.-100 i 11,500 Barre, Vt 2, COO Wilmington, Del 9, 870 Kansas City, Mo 7,500 Portland, Me 3. 000 Akron, Ohio - 20, 000 Atlanta, Ga 12. 000 Bii-mingham, Ala. (11.0130 miners on strike. 4,000 other workers idle) 15,000 Great Falls. Mont 1, 150- 1, 300 Little Rock, Ark 1, .5CKt Los Angeles, Calif, (all classes) 18,000 Memphis, Tenu 10, 000 Norfolk, \A 7,000 Pittsburgh, Pa 20, 000 San Francisco, Calif 10, 00(V15, 000 Boston. Mass 40. 000-50, 0(X) Chester, Pa 5,0(^0- 7.000 Chillicolhe. Ohio (400 railroad men. 20(3 other crafts) GOO Elizabeth, X. .T 2,0(X) Erie, Pa 6, 000 High Point, N. C 12,000 Holyoke, Mass. (7,000 textile workers, 2..500 paper-mill workers) 9.500 Jeannette, Pa 3,000 Lancaster, Pa 4. OTiO Pott.stown, Pa 3, 200 Portsville, Pa 5, OCXi Richmond, A'a 3, 500 Statesville, X. C 1, 00 G,llesp;e. Ill 200 Grand Rapids. Mich 7.000- S.OOO Indiana, Pa. (Indiana County. 6,000) 400 Kinkston. X. Y 1.500 M:lford, Mass _: 2.000- 3,000 Xiles. Ohio (950 textile workers, 340 other crafts, does not in- clude building trades) 1.290 Omaha. Xebr__"l S. 000 Peekskill. X. Y 2.000 Racine. Wis 10, 000 280 EMERGENCY IMMIGKATloX LEGISLATION. Kockford. Ill 7, WO". Siileiii. Mass, (incliuling Peabody, Beverly, Danvers, and Mar- bloln'jui, 30.000) 12,000 Scraiiton, Pa 10, 000-12, 000 TdltHlo, Ohio 27, 000' Toluca, 111 50^ Westerly. R. I 1,500- 2,000 WlK'i'lina:. W. Va. (5,000 mill workers, 2,000 other crafts) 7,000' Willliiiaiitif, Colin. (1,000 one day work-per week, 3,(XX) less than iluro (lays work per week) 300= Newark. N. J 30,000- AUenrown. Pa 7, (KK^- 8. OOO Amsterdam, N. Y., per cent 70 Ann Arbor, Mich 2,000 Anti.co, Wis. (railroad workers, 300; other crafts, 300) COO Bessemer, Ala 3. 000 Cambridge, Mass 15, 000 Cape Girardeau. Mo 500- 600^ Charlotte. X. C 4. 0(X)- 5. OOa Chippewa Falls, Wis OCK) Clinton. Mass 000 Coneaut, Oliio 1, 00- 50O Galesburg, 111 .500 Gulfport, Miss 250 Hartford, Conn 0, 500 Kansas City, Kans 5, 000 Kenosha, Wis 10. -12, 0(X> Kewauee, HI 1. 0 Mansfield, Ohio 4. 000 Mason City. Iowa .500- 600 Meriden, Miss 150 Middletowu, Ohio 2. 000 Mobile, Ala 2. 300 Montpelier, Vt 520 New Brighton, Pa 5,000- 6,000 Newton, Iowa 1, .5(X) New Philadelphia, Ohio per cent 25 New Rochelle, N. Y 200 Norwalk, Ohio 700 North Platte, Nebr 250 Oil City, Pa 1.50- 20O Ottumwa. Iowa 1, 500 Pawtucket, R. I. (8,000 work 3 days a week) 2,500 Petersburg, Va 2, 300 Pensacola, Fla 300- 50O Poughkeepsie, N. Y'^ i 2.875 Providence, R. I. (17,000 of this number textile workers) 23,000 Rhinelander, Wis 1.000- 1,200 Richmond, Ind 2,000 » Rochester, N. Y 35.000 Rumford. :Me 1, fKM) Sedalia. Mo. (prospects of considerable more in near future) .500 St. Albans, Vt 150 EMERGENCY IMMIGRATION LEGISLATION. 281 Shelbvville, Ind 1, 350 Sheboygan, Wis 4, 000 Spartanburg, S. C percent— 50 Taiiipa, Fla 20. 000 Titusville, Pa 1,200 Utica, N. Y 2,000 Vineland, N. J. : Glnss workers, 30 per cent : lanipworkers, 93 per cent ; painters, 10 per cent ; shoe workers. 59 per cent ; garment workers, 75 per cent; wa,i«t makers, 100 per cent (closed down since July) ; carjienters, 25 per cent; phunbers, 50 per cent; electricians, 50 per cent. Wabash, Ind 3, 000 Washington, Ind 1, 0(X) Washington, Pa 1. 100 WaukeuMn. Ill 5. 000 Wankeshii. Wis 1, 200 York, Pa 6, 000 Youngstown. Ohio 15. 000 Bridgeport, Conn 30. 000 Battle Creek, :\Iich 3, .500 Greensboro. N. C 1. 00(> Jackson, Ohio 500 El Paso, Tex 3,000 Camden. N. .T 25,000 Green Bay. Wis 700 Tomahawk, Wis 500 Total 1, 819. 272 Senator Dillingham. AVill you tell us what the number of the union laborers were in the cities which did report? You have given the number of unemployed. Mr. Morrison. I have never had that information at our head- ■quarters by cities — ^that is, as to the number of men who are union men in the cities. Senator Dillingham. So you are not able to tell us the proportion ? Mr. Morrison. I will say that this is not the estimate of the un- employed members of unions. That this is the nearest estimate that they could get of all the unemployed, union and nonunion. Senator Dillingha:h. And those figures were secured through whom, did you say? Mr. MoRRi.'^oN. Through the secretaries of our central bodies. These central l)odies are the same as the central body in Washington and in Xew York and in Chicago, and they are men who would have the best opportunity to give a fair estimate. I understand that Mr. Dinsmore is making a survey, and I Avill pi'.obably have that survev on the 15th of this month. ^ I have only heard of that and don't know whether that is true. The Chairman. ]Mr. ISIorrison, Avill you be kind enough to file any additional data which you may receive upon that point of unemploy- ment with the committee? Mr. Morrison. I would be glad to. There would be no advantage in reading the numbers that are sent out in this statement which I have filed, except to give the total. But perhaps I could give you Chicago. It is conservatively estimated that in Chicago over 200.000 men a"re idle. Fifty per cent of the building trades are idle. 40 per cent of the metal trades are idle, 35 per cent of the garment workers are idle, anout the 200 men wanted in Colimibus at $8.50 a clay. I will read this memorandiun furnished by ^Ir. G. W. Perkins^ international president. (The memorandimi by Mr. Perkins was read into the record hx Mr. Morrison, and is here printed in full, as follows:) MEMOBANDril BY G. W. PERKINS. INTEUNATION^VL PKKSIDEXT. The facts in the case are that a few da.vs ago Messrs. McKay and others, representing the Tampa Cigar ^lanufacturers' Association, macle statements^ before your committee which are at variance witli the facts in the case con- cerning the difficulty in Tampa. Mr. McKay Is reported to have said, "There are ]5.<>10 cigar makers in Tampa : 65 per cent come from Cuba, 15 per cent from Sjiain, and 20 per cent from Italy. No American cigar makers are in this industrj-. American workers could not make cigars by hand. Ameritan cigar makers generally follow the machine and mold process. It is uecessar5\ therefore, to keep the door open for Cubans to come in. Cuban cigar makers are the highest paid in the world. They average fiom ,$1(X> to .^125 a week. They were satisfied until 10 months ago, when a fight was made for the so-called closetl shop, which the cigar manufacturers of Tampa will never stand for. .More than lO.OdO of the former cigar makers went l)ack to Cuba, where they spent their money and are now stranded and want to come back. The manu- facturers are willing to pay their passage 'oack. I'nless these Cuban cigar EMERGEXCY I.MMIGKATION LEGISLATION. 283 makers come back the cijrar business of Florida will be ruined forever. There is really now no strike there, as there are less than 100 men who are taking an active part in the union. There never were 15,000 cigar makers in Tampa, The official figures taken from the official count of the cigar makers employed in Tampa about February 1, 1920, show that there were actually 8,125 cigar makers all told employed in the city of Tampa. Fully 30 per cent of these are American. Some, of course, were born of Cuban, Spanish, or Italian parentage. Another 30 per cent have lived here long enough to be American citizens, whether they are or not. There are quite a number of American-born cigar makers ; that is, boi-n of parents who have lived in this country for years. The average pay of the cigar makers, Cuban, Spanish, or American, in Tampa prior to the war averaged not more than $1G per week. Of course, a few made more than that, but the great mass, easily 85 or 90 per cent, did not average, week in and week out, more than that sum. At the time of the start of the strike and lockout 10 months ago the general average did not exceed !!=25 per \\e "k. we; k i ' ai.erniitted to secure employ- ment in any factory in Tampa. This brutal system of persecution continued until the union was forced in self-d(>fense to strike to jn-event the further dis- charge and victimization of its members. A strike was called in a few of the factories, and for this purpose only — that is, to protect their own members in their right to organize and collective bargaining. The maiiufacturers' associa- tion tlien immediately locked the doors of all factories and the men have been locked out ever since. At no time has the union demanded the strictly union shop (miscalled the closed shop by the manufacturers). The local unions in Tampa, with a repre- sentative of the Cigar Makers' International Union, have exhausted all honor- able means to secure even a conference with the manufacturers, which was absolutely denied them. The Federal Government, through the Labor Depart- ment, sent a conciliator to Tampa, and the manufacturers absolutely refused to discu.ss tb.e matter with him and politely re(iuested him to leave town, which he did. They finally drove the representative of the international union out of the city, who wa.s there for the sole and only purpose of trying to get the two sides together in conference. Ti(>peated efforts have been made to bring about a conference whereby this diftieulty can be honorably and amicably ad- justed, but all of our pleas have fallen upon unresponsive ears. 284 EMERGENCY IMMIGRATION LEGISLATION. The statiMiicnt tliat 10.000 Ciilcm cijiar niakns have j^one back to Cuba is ridiculous and absolutely at variiinco with the facts. There were not 10,000 clear makers in Taniita of all races at any time. No more than LOOO, if that many, went to Cuba wlu-n the .strike and lockout started. Many of these have returned either to Tampa, Key West, New York, or other places. The turning of the .strike does not hinjie upon Cuba or Cuban ciaav makers. The Tampa strikt' can be .settled any time the manufacturers are willing to open tlieir doors under fair, honorable, and decent conditions. W«^ stand willing and ready to arbitrate, and we can guarantee that we can furnish them more cigar makers of the very highest skill within 48 hours than they can use. and we sliall not have to draw on Cuba for a single one. Hundreds of Tampa cigar makers who have found employment in other places, but have lived their whole lives in Tampa, would be glad to go back and would be \\illing to do so under halfway favorable circumstances and conditions. The statement that only 100 men are now taking ;ictive i)art in the union is as false as their other statements. The official records at headcpiarters show that 4,008 members are officially drawing strike benefits in Tampa to-day. Every known means, fair or foul, has been used l»y the manufacturers against tlie defenseless cigarmakers, while the manufacturers have been ]iermittetl to and have violated every known law that it became necessary to violate in their efforts to crush the spirit of the cigarmakers of Tampa. They have operated in violation of tlie Federal trade laws, and quo warranto proceedings are now pending against tliem for tliis act. They have unlawfully and maliciously driven representatives of the international union out of Tampa for absolutely no cause. They have now secured a temporary Federal injunction militating harshly against the locked out cigarmakers, and they are now a.sking the Fed- eral Government, through the Department of Labor, to assist them in securing strike breakers. Mr. Morrison. I have felt that that statement shoiihl ])e inserted, and that the committee should know that the Tampa situation is simply the effort made by these men. after the war and when there is this tremendous number of people unemployed, to reduce wa^es. As stated, the struggle goin^' on now has on the one side the repre- sentatiA'es of great industries that refuse to permit their people to organize. They want unlimited immigration. That is the old story. On the other side there is the struggle of the unions to prevent the lengthening of the hours and to prevent the reduction of wages. Dr. Henry W. Berg, representing the Greater Xew York Taxpay- ers' Association, states that the housing shortage was due to the ex- tremely high wages: that it would be impossible to reduce the cost of labor in housing if immigration was restricted, and that unem- ployment was due to high wages. The question of high Avages has created a great deal of attention, and the committee should take that, probably, into consideration. And I don't want to refer always to the Eepublican campaign book, but they had a declaration that the chief cause of the so-called high wages was due to the de])reciation of the dollar, so that it would buy less than 50 cents worth now : that it woidd buy less than 50 per cent of wliat it did in 1913 and 191-1. and that Avas due to the inflation of the currency. Now, my contention is that even at the lowered figures a man must receive at least twice as much as he did in 1913 and 1914, in dollars, to have the same wage as he did ha^e in 1913 and 191-1:; if he does not. it means that he is getting a reduction under what he received in wages in 1913 and 1914. And we will only get the dollar back Avhen we have paid our de))ts, and Avhen Ave have enough gold back of our printed dollars so that the man knoAvs that he has got a dollar that Avill buy a dol- lar's Avorth of merchandise. EMERGENCY IMMIGRATION LEGISLATION. 285 Now, this statement is one that seems to catch the minds of some' men, that if a man to-day gets $8 where he used to get $4, if yoit could put him back to $4 it would reduce the cost of living. That is the thought in many people's minds. In Mexico they had this situation years ago : They paid the wdiite man a dollar and they paid the ^lexican a dollar, but the white man Avas paid a dollar in gold and the Mexican was paid in the Mexican dollar. They both had a dollar, but the white man had a dollar that would buy a dol- lar's worth of merchandise, whereas the Mexican had a dollar that would only buy 50 cents' worth of merchandise. And we are run- ning along now with our Mexican dollar with which to buy our product, and until you change that the wageworkers of this country must not only retain what they are getting now, but in some in- stances, if the cost of living does not materially come down, the wages of these wageworkers should be increased. Mr. H. L. Flam, president of the Association of Dress Manufac- turers of New York, held that American girls would not work in the industries, while they did work as stenographers, bookkeepers, etc., for $15 a week, but would not work in the factories at $40 or $50 a week. Now, in New York, up to within 10 years, that industry was a sweatee! industry, with very low^ wages, and, of course, it drove the American girls out, and only the girls that came in from the foreign countries that would work at these low wages would take their places. This situation was admirably brought to the attention of the cliairman and the tw^o Senators sitting here bj'- Andrew Furu- seth when he demonstrated that when the wages were increased for seamen, and conditions under which they could work were satis- factory, it resulted in the employment of American seamen, raising the number of American seamen employed from a small per cent — 6 per cent, about — up to over 50 per cent. And I think Admiral Gibson has thrown out a warning that this should not be departed from ; that the American seamen should be employed and retained for the benefit of the country, and that the mere amount of difference of salaries should not be considered ; that the saving that might be accomplished by lowering of wages would not be a benefit to the merchant marine. So I say there is nothing in the statement of Mr. Flam that would justify the consideration of the committee, because it was simply a matter of wages. There is nothing that Americans can not do if they receive satis- factory wages for doing it. They are capable of doing anything. The president of the Italian Chamber of Commerce of New York said that the present equipment of shipping makes it impossible to overcrowd this country with- immigrants : that 400,000 a year was the largest possible excess of those coming in over those returning to their native lands.. Now, he admits that 400,000 have come from Italy — that the ship- ping facilities wall permit of that number coming in. And I want to differ from the speakers wdio just addressed the committee. I find a statement here of the number of immigi'ants coming in, and this estimate w^as gotten from the Department of Labor. 26911— 21— PT 5 5 286 EMERGENCY IMMIGRATIOX LEGISLATIOX. Tn October lOl.OdO canio in. In X<)\ ember, 103,000.. I have jrot no estimate for December. Thirty-three tliousand went out in October: o4,000 in Xoveiiiber. That leaA-es a net gain of 67,000 a month. Multiplied by 12 makes 784,000. And Avith the information that the committee has I believe they will ajjree that there is a flood ready to come. The fact that more did not come is due to the fact that the State Department, as I understand it, refu-es to issue passports from many countries. Now. Avith milli(/ns of unemployed at the present time in the United States. I think it is a crime, a hisfh crime, for any man to advocate the briiiirinir in of n million other people, to be either unem[)loyed, or to take the places of those that are here, and at a lower wa^e, thus destroying the standards that it is necessary should be retained. Now, we come to the situation of the Mexicans. I submitted to the last committee teleiri'ams from all the cities in the Stares adjoining Mexico and some conti«ruous thereto, and they claimed that there was sufficient, and more than sufficient, labor in those States. I do know that the Department of Labor has had an investigation made, and the claim was made in the report that there v»-ere needed Mexicans for the cotton, which, when it opens, must, as I understand it. be picked immediately if the crop is to be saved. And this also applied to the beet industrj^ and other industries. But. notwith- standino- that fact. I did not ask any questions in regard to this at the time. But I have received this telegram from El Paso, which is right-on the border, and naturally would probably need more ^lexican labor than anv other place : El I'aso. Tcx., Decctr.hei 2S, in^O. Hon. I'^RAXK Morrison. Secrctan/ A. F. of L.. ^\ nfihi)if/toit. I). C: El I'aso Clianiher of Conimerce will have ivi>resentative bel'oiv Senate Ini- niiKfatioii Coiiunittee askinu that Mi xit-aii laborers be excluded from huinisira^- toil! bill. FA I'm^v Ceutral Labor Uniou asks that you meet this coumiittee and coiuliat tliis representative's jiotivities. Mexican labor is a niena* •.- to tiie Anier- ican labor of thi?' section. Et. I'ASO t'K.NTRAI. I.>.I5I-.R r!^lON. 1 want to urge upon this committee to carry out these thoughts contained in the declaration made by the Ivepullioan Party in con- venti(m. We have men who want protection of goods that come in hei-e. The highest -protected industiies usually had the lowest wages prior to the war. Xow, if you protect the industry, and if the pn>d- uct of the employer is to be protected so that he can sell it at a, greater price, the claim is made that if he can .sell it at a higher price than it can be sold in foreign countries he will be able to pay labor more. Now, that is true: he is in a position to do it. But the experience that we have had is that he does not. And therefore, if it is right to pixjtect products that are not alive^ how much more necessary is it for this Government to protect the individuals, and not bring in a flood of immigrants here who can not secure employment except they take it at a lower rate, to make it an advantage for the em])loyer to take the unskilled men in favor of the skilled men. I don't know what is going to happen in this country. I do know that these great industries have clo.sed down. I do not accuse them of EMERGENCY IMMIGRATION LEGISLATION. 287 •closing down for the purpose of hiring them back at lower wages, because if a man can not sell his goods there is no use of manu- facturing them. The claim has been made that the desire to close down was so that they could sell off the goods that they had already manufactured at the high price. But I do know that the cost of living since December, 1919, until the present time has decreased very slightly. The cost of living in Baltimore, Md., was 98.4 in December, 1919; it went up in June of this year to 114.3; then dropped back to 96.8. Really less than 2 per cent lower than it was in December, 1919. I want you to bear that in mind, that while we hear a great deal about the reduction in the cost of living, in fact it has not reached the workers to any perceptible extent. And I would urge the committee to take into consideration the advisability of stopping the tide of immigration for a period so that the workers here can secure sustaining employment, and then after that condition comes, then only take in a sufficient nmnber of people that can secure sustaining employment, that will enable them to live- in reasonable comfort. I think that is a fair proposition. Senator Dillingham. Did you have any particular reason for fixing the period of two years? Mr. Morrison. No. I 'just put it at two years because I felt that the reconstruction period would be difficult; that we had to reestab- lish our connections with all the nations that had been disconnected during the war. Senator Dillingham. You simply thought that would be a reason- able time? Mr.^ Morrison. A reasonable time, yes ; and I have not changed my mind. The Chairman. Thank you, Mr. Morrison. We will now adjourn until to-morrow morning at 10.30. (Thereupon, at 4.40 p. m., January 10, 1920, an adjournment was taken until 10.30 a. m., Tuesday, January 11, 1920.) X Emergency Immigration Legislation HEARINGS BEFORE COMMITTEE ON IMMIGRATION UNITED STATES SENATE SIXTY-SIXTH CONGRESS THIRD SESSION ON H. R. 14461 A2BILL5TOIPROVIDE FOR THE PROTECTION OF THE CITIZENS OF THE UNITED STATES BY THE TEMPORARY SUSPENSION OF IMMIGRATION, AND FOR OTHER PURPOSES TUESDAY, JANUARY 11, 1921 PART 6 Printed for the use of the Committee on Immigration ,t> WASHINGTON GOVERNMENT PRINTING OFFICE 2C911 1921 COMMITTEE OX IMMIGRATION. LeBARON B. colt, Rhode Island, Chairman. WILLIAM P. DILLINGHAM, Vermont. THOMAS P. GORE, Oklahoma. BOIES PENROSE, Pennsylvania. JOHN F. NUGENT, Idaho. THOMAS STERLING, South Dakota. WILLIAM H. KING, Utah. HIRAM W. JOHNSON, California. WILLIAM J. HARRIS, Georgia. HENRY W. KEYES, New Hampshire. PAT HARRISON, Mississippi. WALTER E. EDGE, New Jersey. JAMES D. PHELAN, California. Hexbt M. Baijey, Clerk. EMEKGEXCY IMMIGEATION LEGISLATION. TUESDAY, JANUARY 11, 1921. United States Senate, Committee on I:mmigration. Washington^ D. C. The committee met, pursuant to adjournment, at 10.30 o'clock a. m., in Room 235, Senate Office Building, Hon. LeBaron B. Colt pre- siding. Present: Senators Colt (chairman), Dillingham, Sterling, and Harrison. The Chairman. The committee will come to order. Mr. Johnson^ do you want to submit some data ? Representative Johnson. Yes, sir. STATEMENT OF HON. ALBERT JOHNSON, A REPRESENTATIVE IN CONGRESS FROM WASHINGTON. Representative Johnson. Mr. Chairman, the other day in address- ing the committee I made some brief statements in regard to the present passport laws. Some inquiries vrere made of me later re- garding the passport situation, and I have been requested by the chairman to present the laws on the subject. I desire to place in this record the act (Public No. 154, 65th Cong.) by which we estab- lished war-time passport regulations for people coming in and going out. The Chairman. It may be placed in the record. (The act presented by Representative Johnson is here printed in full, as follows : ) [Puur.ic — No. 154 — 65th Congress.] [H. R. 10264.] An Act To prevent in time of war departure from or entry into the United States contrary to the public safety. lie it enacted by the (Senate and House of Representatives of the United States of A)neriea in Conijvess assembled. That wlieu the United States is at war, if the President shall find that the public safety requires that restrictions and prohibitions in addition to thos? provided otherwise tlian by this act be imposed upon the departure of persons from and their entry into the United States, and shall make public proclamation thereof, it shall, until otherwise ordered by the President or Congress, bo unlawful — (;\) For any alien to depart from or enter or attempt to depart from or enter the I'nited States except under such reasonable r^les. recrulations, and order.*?, and subject to such linutations*:ui(l ex<'ei'tlons as the President shall ))rescribe; (b) For any person to transport or attempt to transport from or into tho" United States another person with knowledge or reasonable cause to believe that the departure or entry of such other person is forbidden by this act ; ' 2S9 290 eaii:k(.:k.\cv lm-vIiciiatioa jj^cislation. (c) For any person knowingly to make any false statement in an apiJlication for permission to depart from or enter the United States with intent to induce or secure the firanting ol" siich jH-rmission either for himself or for another; (d) For any person knov. ingly to furnisli or alt<'jnpt to furiush or assist in furnishinu: to another a itciniMt or evidence resentative Johxson. That act is still in force, owing to the fact that we have not yet come to peace. Later, in the Sixty-sixth Congress, an act was passed extending the war-time passport provisions until March 4 this year — that is to say, until the expiration of the Sixty-sixth Congress — and that act passed both Houses, on the assumption that we would come to peace and be found without any passport regulations. I will insert that act in the record. The Chairman. It may be inserted. (The act, " Ptiblic, No. 79, Sixty-sixth Congress," presented by Rep- resentative Johnson, is hereAvith printed in full, as follows:) [Public — No. 79 — 66th Congkess.] [H. R. 9782.] An Act To regulate further the entry of aliens into the United States. Be it enacted by the Sena-te and House of Representatives of the United States of America in Conyress assembled. That if the President .shall find that the public .safety rerpiires that restrictions and prohibitions in addition to those provided otherwi.se than by this Act be imposed upon the entry of aliens into the United States, and shall make jiublic i)roc]amation thereof, it shall, until otherwi.se ordered by the President or Congres.s, be unlawful — (a) For any alien to enter or attempt to enter the United States except under such rea.sonable ful(>s, regulations, and orders, and subject to such pa.s.sport. vi.sc, or other limitati()ns and excei)tions as the President shall iirescribe; EMEKGENCY IMMIGRATION LEGISLATION. 291 (b) For any person to transport or attempt to transport into the United States another person with knowledire or reasonable cause to believe that the entry of such other person is forbidden by this act ; (c) For any person knowingly to make any false statement in an application for a passport or other permission to enter the United States with intent to induce or secure tlie grantinji of sucli permission, either for himself or for another ; (d) For any person knowiuirly to furnish or attempt to fundsh or assist in furuishinK to auother a viseed ]>assj)ort or other permit or evidence of per- mission to enter, not issued and desiirned for such other person's use ; (e) For any person knowingly to use or attempt to use any viseed passport or other i>ermit or evidence of permission to enter not issued and desi.!rned for his use ; (f) For any person to forgo, counterfeit, mutilate, or alt?r, or cause or pro- cure to be forged, counterfeited, mutilated, or altered, any p;issport, vise, or other permit or evidence of pernussion to enter the United States ; (g) For any pcTson knowingly to use or attempt to use or furnish to another for use any false, forged, counterfeited, nuitilated, or altered passport, permit, or evidence of pe)-mission, or any passport, permit, or evidence of permission which, though origir.ally valid, has become or been made void or invalid. Sec. 2. That any person who shall willfully violato any of the provisions of this act. or of any order or proclamation of the President pronuilgated, or of any permit, rule, or ivgulaticm issued th-'reunder, shall, upon conviction, he tilled not more than ^.I.OOi), or. if a natiu'al jierson, imprisoned for not more than tive years, or both ; auil the officer, director, or agent of any corporaticn who knowingly participates in such violation shall be punished by like tine or imprisonment, or both ; and any vehicle or any vessel, together with it-; or her appurtenances, equipment, tackle, apparel, and furniture, concerned in any such violation, shall be forfeited to the United States. Sec. 3. That the term " United States " as used in this act includes the Canal Zone and all teriitory and waters, continental or insular, subject to th.e .luris- diction of the United States. The word " person " as used herein shall be deemed to mean any individual, partn<'rship, association, company, or other unincorporated body of individuals, or corporation, or body politic. Six;. 4. That in ordei- to carry out the purposes and provisions of this act the sum of $600,000 is hereby appropriated. Sec. ."). That this act shall take effect upon the date when the provisions of the act of Congress approved the i;2d day of May, 191S, entitled "An act to prevent in time of ^yar departure from and entry into the United States, con- trary to the public safety," shall cea.se to be operative, and shall continue in force and effect until and including the 4th day of March, 1921. Received by the President, October 29, 1919. [Note by the Department of State. — The foregoing act having lu'en pre- sented to the President of the United States for his approval, and not having been returned by him to the House of Congress in which it originated within the time presciMbed by the Constitution of the United States, has become a law wthout his approval.] Representative Johnson. Xow. 3^011 will note that the act to Avhich I have jn.st referred has never been operative, for the reason that we oi)erate under the old passport act. In the meantime, in the Diplomatic and Consular bill, Avhicli became a law June 4, 1920, we carried some le:. The result is, <^entlemen, that the extension of the war passport act dies on jNlarch 4 next, and tlie passport act itself dies on the day that we declare peace. We are then left with nothinf^ except the very thin literacy test, reqiiirinfr ability to read oO to 40 words in any lan<^iiaf!:e, and certain very moderate health recpiirements. a<^ainst those who mifrht want to come in from any part of the vrorld, from any country in the world, whether the number be large or small. That creates an emergency, I think. I am inclined to believe that when we reach peace a large number of people from the former (rerman Empire will desire to come to this country in order to join relatives, or to come into a free field; 1 believe the number of those who will come over from the former German Empire will be very large. The}' will pass the physical test, and they Avill j^ass the literacy requirements, and we will have on our hands more than we can take care of in the next three or four years. In the meantime soup kitchens have opened in Philadelphia and other cities. I don't care to take more of the committee's time, except that I wish to ask permission to insert in the record the mention, at least, of a great many petitions that have come to me from patriotic societies all over the I'nited States. I have not ihoughi that this committee could spare the time to hear individuals representing these A-arious societies interested in the restriction of immigration. I have a letter here from the secretary of the Allied Patriotic Societies of America, dated Philadelphia, in which he makes a re- quest for me to appear before the Senate committee and secure for some member of that organization a hearing. I think, if I may have the ]Dermission of the committee, that I would save time by inserting in the record the names of these other societies and organizations petitioning for the immediate suspension of immigration. The Cpiaik:.ian. With the permission of the committee, they may be inserted. (Here is presented the list of societies and organizations which have recently sent petitions to the House Committee on Immigration and Naturalization for immediate suspension of immigration, as follows:) State Cuuucil of liidepenclent Americans. PLiladelphia. / Groble Couiicll, No. 1.3, Order of Independent Americans, Pliiladelphia. Washinjrtou Camp. No. G24, Patriotic Order Sous of America, Drexel Hill, Pa. Spanish War Veterans. Major Brown Camp. Taconia, Wash. Washington Camp, No. 4, Patriotic Order Sons of America, Cincinnati, Ohio. Wliatcom Council, No. 1. Junior Order of United American Mechanics, Belling- hani. Wash. WinMeld Scott Council. No. 137. Junior Order of United American :Mechanics, Buffalo, N. T. Patriotic Order Sous of America, Altoona, Pa. Mount Vernon Council. No. 10, Junior Order of United American ^lechanics, Washintrton, D. C. Jnirneymen Bookl>inders' Union, Washincrton. D. C. J.imesA. Garfield Council, No. 41, Junior Order of United American Me- chanics, New York. Washington Camp, No. 101. Patriotic Ord'i^r Sons of America, Frankford, Philadelphia. Camp 31. I'atriotic Order Sons of America, Altoona. Pa. (second society). Naomi Council, No. 31, Sons and Daughters of Uihn-ty. Suffern, N. Y. Th^ Civic Club. Sumner, Wash. EMEKGEXCY IMZvIIGEATION LEGISLATIOX. 293 Allied Patriotic Societies of America (representing several millions of xVmeri- cans), Philadelphia, Pa. Blair Council, Xo. 15. Order of Independent Americans, Jmiiata, Pa. Sons and Daughters of Liberty, IMorris Plains, N. J. Pride of Mechanics Home Council, Xo. Gl, Sons and Daughters of Liberty, Jamesburg, X. J. Southwark Council, Xo. 144, Order of Independent Americans, Philadel- phia, Pa. International Reform Bureau (Inc. ). Washington, D. C. Frist Council. Xo. 60, Sons and r>au,a'hters of Libert.v. Xew York. Carpenter Council, Xo. 848, Order of Independent Americans, Ashland, Pa. Western Forestry and Conservation Association. Portland, Oreg. Pioneer Council, Xo. 380, Order of Independent Americans, Weisenburg, Pa. Xeversink Council. Xo. 371. Order of Independent Americans, Reading. Pa. Ohio Council, Xo. 9, Sons and Dauiiliters of Liberty. Monongahela Council, Xo. 122. Order of Indei^endent Americans, Braddock, Pa. George Vroman Post, Xo. 2, American Legion, Casper, W^yo. Pottsville Council. Xo. 263, Order of Independent Americans, Pottsville. Pa. Woman's Club of Owensburg, Ky, Woman's Club of Pineville, Ky. Mount Vernon Council, Xo. 333. Order of Independent Americans, Harris- burg, Pa. Shamokin Council, Xo. 630, Order of Independent Americans, Shamokin, Pa. South Fork Council, Xo. 74, South Fork, Pa. West Park Council. Xo. 408. Order of Independent Americans, West Phila- delphia, Pa. Sons of the American Revolution, Washington, D. C. Junior Order of Ignited American Mechanics, Trenton, X. J., State Council. General Custer Camp, Xo. 1, Sons of Veterans, Seattle. Wash. Xew Jersey Society of Sons of American Revolution. Elizabeth, X. J. Civic League for Immigrants. Boston. Mass. Emergency Association of Louisville, Ky. Hazle Council, Xo. 258, Order of Independent Americans, Hazleton, Pa. ^lelrose Council, Xo. 928, Order of Independent Americans, Harrisburg, Pa. Young America Council, Xo. 407, Order of Independent Americans, Philadel- phia. Pa. Black Creek Council. Xo. 51, Order of Independent Americans, Weatherly. Pa. Woman's Club (city not given) of Kentucky. ^Nlalta Council, Xo 905, Order of Independent Americans, Philadelphia, Pa. George Bancroft Council, Xo. 571, Order of Independent Americans, Tacony, Pa. United Spanish AVar Veterans, John R. Thompson Camp, No. 1, Tacoma, Wash. Southampton Council, Xo. 946, Order of Independent Americans, Holland, Pa. Buffalo City Federation of Women's Clubs. Buffalo, N. Y. William Penn Council, Xo. 64, Order of Independent Americans, Pittsburgh, Pa. John Grey Council, No. 249, Order of Independent Americans, Pittsburgh, Pa. Washington Heights Chapter, Daucrhters of American Revolution, Xew York City. Sons of American Revolution, South Dakota Society, Sioux Falls. District of Columbia, Daughters of American Revolution, Washington, D. C. Fort Thomas Woman's Club. Fort Thomas, Ky. Home Council, Xo. 27, Sons and Daughters of Liberty, Vienna, Md. United Spanish War Veterans, Fortson-Thygesen Camp, No. 2, Seattle, Wash. The Woman's Club of Falmouth, Ky. D. F. Laing Council, No. 995, Order of Independent Americans, Reading. Pa. Col. John Donelson Chapter, Daughters of the American Revolution, Wash- ington, D. C. Representative Johnsox. I ^vould like also at this time, in order to offset certain statements, to suggest that the record show the reports of the Attorney General on the number of seditious foreign- language newspapers in the United States. And if that is to be an 294 EMERGENCY IMMIGRATION LEGISLATION. issue — and frivat stress was laid upon it the other day by one of the ■witnesses — I think the committee might do well to call the Attorney General in order that he may ublished in the United States are as follows: English anarchist papers, 3: foreign-language anarchist papers, 14. Communist ]3apers published in the United States are as follows : English, 8 : foreign-language communist papers, 30. Syndicalist papers are as follows : English sj'ndicalist papers, 5 ; foreign-language syndicalist papers, 14. Ultraradical papers, 24, Anarchist papers that are published in Europe and sent to the United States, 15. Ultraradical papers from Europe, 44, I think. Senator, that it would take up too much of your time to go into that in an}^ more detail, but I hope that I have made that clear. Senator Sterling. A good many of the radicals would be shut out if the present law was enforced, V\'ould they not? Capt. TRE^'OR. "Well, that is one of the points that I discussed in my memorandum. Senator. I don't believe that there is a chance of getting more than 1 in 500 radicals, or people, at least, that are dan- gerous to this country, by the systems that are now in force or that will be in force after the passports go out of existence. The vise proposition could be developed in such a wav as to do it, but it would require recasting our whole inA'estigating service. And that is a big job. Senator Sterling, Well, that is a matter of administration, isn't it, more than a matter of positive law? Capt. Trevor. Not altogether. Senator. The trouble is that now there are so many agencies that are covering this by law that the radical drops in between and gets away. I have in my pocket a clipping from this morning's newspaper, which gives a very good illustration of that. The clipping is entitled " Holds Lord Mayor Faces Deportation." It a])pears that the Assist- ant Secretary of Labor, I believe, or possibly the Secretary of Labor, 300 EMERGENCY IMniGRATION LEGISLATION. coiitoiuls that the Department of Labor is only engaged in the en- forcement of the inmii oration act, and that if the State Department objects to the arrival of this individual as an improper person they have got to attend to tJiat separately. I think this is a very specihV* instance that while we have ample agencies torted out favorably. In view of the fact that I have already submitted a memorandum presenting^ in condensed form a study of the immigration problem and its relation to the general reorganization of the investigating services of our Government and urged that the comprehensive nature of the task demanded prolonged con- sideration of the remedies to be applied, I will confine myself in this discus- sion to the issue that an emergency exists which demands passage of the Johnson bill pending the preparation of adequate legislation. In my testimony of yesterday I called attention to the fact that in the report ' ■■ ':- res it is. nlleged tliat the investiga- tions made by the Department of .Justice in the past year " have clearly indi- cated that fully 90 per cent of the communist and anarchist agitation is trace- able to aliens." In view of this expression of opinion from an authoritative source, it is pertinent to examine the make-up of those centers of our popula- tion to which the incoming immigration tends automatically to flow. The figures of the census of 1920 not being available to me. I am compelled to resort to those of 1910, which form, together with other data, the basis of the ethnic map introduced in evidence. It is an incontestible fact, based on common knowledge as well as detailed researches during the war, that certain ele- ments in our population, both foreign-born and native-boi-n of the first genera- tion from foreign parentage, reacted partly by sentiment and partly through intensive propaganda originated and developed, directly or indirectly, to a great extent, by our enemies during the war. For example, it was a matter of com- ment among the staff that the rise and fall of cases reported to the Office of Military Intelligence. New York City, reflected to an extraordinary extent the ebb and flow of the fortunes of the armies engaged in the struggle in Europe. In saying this thi' wriier does not for a mouieiit (lursiion the loyalty of a very large piercentage of the foreign-born naturalized citizens or persons of native birth but foreign pan^itage. It nuist, howev(>r. lie obvious even to those who have not engaged in intensive investigation of enemy or radical activity that sentimental attachment for the land of origin is sufiiciently widespread to constitute a menace in the present critical condition of affairs in Europe. No one questions, for instance, the loyalty of the Irish-American population of the T'nited States, but it is incontrovertible that the d(>votion of this element of our population to tlie traditional conflict between their kinsfolk in Ireland and Great Britain has compromised to a considerable degree prominent per- EMERGEXCY IMMIGRATIOX LEGISLATION. 301 sons in that group in the community to-day. In the same way it will be cleai' after a little study of the .situation that the Jewish element derive to a great extent from regions which have sullered to an extraor«linary degree from the ravages of war, i-evolution, famine, and disease should react on behalf of their coreligionists uf central and southeastern Europe. It is a perfectly human re- action of an element unassimiliated as yet by our population as a whole. The Commissioner General of Immigration in his report of 1913, page 109 (see Appendix A, attached hereto), says: "There can be no question but that many of the evils that grow out of our present excessive immigration would be remedied, or at least alleviated, if tlie congestion of the aliens in our large centers of population could be broken up." These areas have not been broken up, and it is for th;it reason, as well as through the dissemination of insidious propaganda generally, that unrest is frequently attributed to racial tendencies. It is the VtTiter's opinion, as a result of his experience during the war, that given the same conditions, any racial agglomeration in the midst of a com- munity foreign to them will inevitably react in a similar way. At this time we are confronted with facts from which there is no escape ; Russia is in the chaos of a revolutionary movement. For perfectly comprehensible reasons the Russian- Jewish population, speaking of them as comprised within the boundaries of the old Russian Empire, detested the Government of the Czar. Their sympathies were with any movement, German or revolutionary, which would tend to break down that hated Government. Pursuing this thoug!\t to its logical conclusion the tendency is' not to be wondered at, nor are they altogether to be blamed in their ignorance and with their prejudices for a smypathetie regard for Soviet Russia. It is from the ele- ment composefl of Germans. Austrians. Polish, and Russian Jews and their kins- folk in Rumania, and the newly established republics of the Baltic Provinces, all of them disturbed by the revolutionary movement or with vague antagonisms aroused by the results of the war that the incoming tide of immigration is going to flow. In order that the committee may not consider this situation as outlined above to be purely local to New Yoi*k, permit me to point out that while the native-born population of native parentage in that city is less than 20 per cent, according to the figures of the census of 1910, it is also " less than one-quarter of the population of Chicago. Boston, Cleveland, Detroit, and ^Milwaukee, while la cities like Fall River, Mass., it constitutes little more than 10 per cent. In only 14 of the 50 largest cities of America does the native parentage population equal 50 per cent of the total." (See p. 6. America Police Sy.stems, by Ray- mond B. Fosdick.) In connection with this problem it is pertinent to add some significant statistics collected by Mr. Fosdick in regard to crime : " London, in 1916. with a population of seven millions and a quarter, had 9 premeditated murders. Chicago, one-third the size of London, in the same period had 105, nearly twelve times London's total. In the year 1916 Chicago with its 2,500.000 people had 20 more murders than the whole of England and Wales put together with their 38.000.000 people. * * * in 1917 Chicasro had 10 more murders than the v.hole of England and Wales, and 4 more murders than all England, Wales, and Scotland. In 1918 Chicago had 14 more murders than England and Wales. In 1919 the number of murders in Chicago was almost exactly six times the munl)Hr committed in London. * * * •' New York City in 1916 had exactly six times the number of homicides that London had for the same year, and only 10 less homicides than all of England and Wales. In 1917 New York had six times more homicides than London and exceedeeople, or during a social revolution, liberty-loving people will always arise within the ranks of the suppressed, who will make use of the bomb as well as of any other necessary weapon with which to bring abotit a society of free human beings. " No Government in the world is strong enough to kill forever the aspirations and struggle to become free in the minds and hearts of any people that ever lived or will live." In this connection the committee would do well to read in The Communist, No. 10, the official organ of the United Communist Party of America, Section of the Third (Comnumist) International, the report on the world congre.ss of the Communist International as a good exposition of the widespread revolutionary movement. Turning now to the contention that the country at the present moment is not in danger of an undue influx of inunigrants, permit me to call attention to a tal)le .showing the wave of immigration into the United States from all coun- tries during the past 100 years, facing page 276 of the Report of the Connnis- sioner General of Immigration for 1920. It should be noted in the studying of this table that the figures taliulated are for the period ending .June 30. 1920, and cover a period where it may be assumed that the war-time restrictions were acting at almost, if not quite, their maximum rigor. The figures of 430.001 immigrant aliens admittetl will be foinid again on the table printefl on page 88 of the Report of the Connuissioner General of Immigration for 1020. This table is well worthy of study, as it enmnerates not only the innnigrant aliens btit the nonimmigrant aliens coming into the United States, making an aggre- gate of 021 ,.576 entered against a total of both classes departe-iH work on the farm.s. If some detailed plan could be devi.sed whereby aliens could be directed to those places without disturbing labor conditions elsewhere, a great deal of good would be accomplished. Appendix B. Occupations of immigrant aliens, fiscal year ending June SO, 1920. [From the Report of the Commissioner General of Immigration, 1920, p. 41.] Occupations. Prof es'^ional Skilled Farm laborers Farmers Laborers Servants Other occupations No occupation (including women and children). Total Number in 1920. 12.442 69,967 15, 257 12, 192 81,732 37, 197 28,081 173, 133 Per cent of total. 2.9 10.3 13.5 12.8 19.0 8.7 6.4 40.3 1910-1914 1.2 14.5 2 24.3 2 1.1 18.4 11.7 2.7 26.2 430,001 100.0 100.0 1 Total of farm laborers and farmers, 6.3. - Total of farm laborers and farmers, 2c.i. Appendix C. Immigrant aliens admilicd, bii Slates of intended future residence, shoiring nationaHhf ha ring a majoritu. [Taiilc IX. From the annual reports of the Commissioner General of Immigration to the Secretary of Labor.] 1913 1919 ! 1920 Number. Nationality. Number. Nationality. 1 Number. Nationality. 1.170 3,945 353 32,277 5,673 ?5,138 1,81 > 1.717 .%.'?52 787 1,682 107. (:60 13,0,15 Italian Mexican 241 4p<5 '' 98 16,575 738 1,653 • 86 816 2,578 187 430 3,9.51 563 619 5,421 .1 178 .: 32,5i)2 • ; L4'*<'* J 13,212 .j .558 . 1.702 4,145 569 l,;'6i . 16.964 2,586 Arizona Mexican Mexican. Italian German Italian Polish Italiin Spanish Japanese Italian. District of Columl-ia African Idaho Polish Indiana Polish 303 i:mki;(;i::\('v i.m.m ic^atiox legislation. hiiininnint (ilirns atlmitfcd, hi/ States of iuteudcd future residence, shoiiing nuliouulitii huriiit/ a mujoiily — Conlinueil. 1913 1919 1920 Number. Nationality. Number. Nationality. 1 Number. Nationality. Iowa 8,660 3,6(13 761 1,774 6,62! Scandinavian . German 743 389 103 1,355 2,8 9 618 11.4.8 8,490 2,326 12) 690 951 350 137 1,668 2,860 782 28, 715 118 746 2,168 216 1,329 3,814 1,637 112 301 156 21,629 588 1,486 1,221 6,399 235 2,993 872 296 1 763 Dutch Kcnlnckv Louisiana Mexican French English do do Maiae French 6,o.=:.o French. 1 65i) ' Maryland Mas^chusetis l.)l.6.4 59, 192 18.693 415 11,5,14 Ita;ian 41,. 594 28 2>7 Engii.sh. Tin Midii'.'an Mi.inesjta Scandinavian . 5,63S Scandinavian. 30X ' Mississi \\ii 2,174 l,0;i5 1,397 7SS 3,712 16,666 953 106,630 373 1,342 15,377 497 3,645 27,637 7,341 248 1,086 384 39,115 1,387 3,089 2,670 11,462 2,023 3,827 544 Montana 5:796 6,266 Nebraska Neva ;a 1,000 8,230 61, 358 New HaiUiis:iirc Now Jericv ircnch Pnlish_ _ French French. New Mexico 758 330,531 Italian 429 New Yor^ iiug.ish North ia'xo.a 4,2.S5 63,007 1,018 4,994 182, 744 Ohio Polish Eng.ish Oloahoma Ore;;on Penn-;y! vaiiia Ir:ilian English Ita ian. Rho Je Is:aud 13,678 1 do 258 1,641 Portuguese. SoiUh Caro ina Mexican Soutii I.'akota Tennessee 818 11,214 2,932 3,608 1, 822 18,313 Texas... Mexican Utah Vermont French. Virginia AVashinETton Eng.ish English. A\'est Virginia 10,472 1 Itaiau 23,091 f-i^rman Wisconsin 817 153 W}-oiiiLni; 1,160 Total l,197,Si*2 141, 132 Mexican 430,001 Italian. Appendix I >. J'(j:in iJOiJuUition i)i 1910, by t>tatcs: alioir.ii^/ nallonality irJtich Itas majority in each t>tatc. [Table 36, "Annual statistical report for 1919," the Bureau of Census Kcporvs, 1910.] Alabama Arizona Arkan.sas California Colorado Coime'ticiit Delaware District of Columbia Florida Georgia Idaho Illinois Indiana Iowa Kansas Kentucky Loiiisian-i Maine Maryland Massachusetts Michi'.;an Minnes'ita Mississippi Missouri Montana Nebraska Number. Nationalitv. 19,286 4S, 765 17, 046 586, 432 129, 587 329, 574 17,492 24,902 4n,tj33 15,477 42, .578 1,20.5,314 159, 663 273, 765 13.3,450 43, 162 .52, 766 110,.5<:)2 104,944 1,059,245 597, 5.50 5>13, .595 9,770 229, 779 94,713 176,662 German. English. German. Do. Do. Irish. Do. Do. West Indian. Russian. German. Do. Do. Do. Do. Do. Italian. Insii. German. Do. • Do. Swedish. Italian, (ierman. Iri.sh. German. Nevada New Hampshire New Jersey New .Mexico New York- , North Carolina North Da!opulation desired to migrate: that is, that that class of immigrants would be above the average, perhaps, of the people tliat are there? Mr. Bennet. Unquestionably; undoubtedly. The Chairman. Because it is quite an undertaking, is it not, from the standpoint of the expense involved, and ever^^thing else? Mr. Bennet. Well, Senator. " quite " is a very mild word. It is a large undertaking for a person of even rather ample means to start from the interior of Kumania. The Chairman. The idea that the scum of the populations are those that desire to emigrate is quite contrary, is it not, to the fact? Mr. Bennet. Absolute^. And now take the Italian, who is abused a good deal. Xow, here is a thing that was of rather common occur- rence. I will just state the facts and let you draw the conclusions. Of course, you know Italians look on America as the land of promise. Thei'e is a custom over in that country as in most European coun- tries, that when a girl marries she is given by her pa'rents a dower: it may be a feather bed or what not, but she gets something from her family when she marries. It is a good custom, too. Xow. there are thousands of cases like this : When a young man and a young woman desire to come to this country, and being engaged to be married, they will, without saying a word to their families on either side, go ahead and get married, the Avife will get her dower, and the young man will have saved up some money, and then they will take every single piece of their small stock of furniture and her dower and the gold ring off the wife's finger and sell it all and come to this country. Xow, if that is not the regiilni'. geniii'ie. old-fashioned pioneer spirit, I don't know what is. And that sort of a man and Avonian. and their descendants, if their environment is right, when they get here, can not help but make good American citizens, in my judgment. 314 i:.Mi:i;uExc'Y immichation lixhslatiox. Xow. here are some more thinjrs tluit we found. First, as to the chihh-en of the immi^^rants. And I want to say ri^dit here that T have made a ^ood many mihl enemies in this country bj' sayinfr what I still believe, that no man born in a forei«rn country, cominir here after 40 years of aire, ever «rets to be as irood an American citi- zen as one born here. Sty friend Mr. Husband over there wanted to lick me at one time because his father was born over there, and lie said that he was as e," I think, where he brinsow, I want to say a word or two about the physical inspections at the ports. If you have not heard that criticized by some one in favor of this bill, you will, and if you went down to Ellis Island for a day and saw them examine the i^eople there, you would think that the ]:)hysical inspection was inadequate. Every man does think so the first time he goes down there. exce]it doctors. We had a very eneriretic commissioner over there from Xew York one day who thought that way. He had the power to ascertain wliether that was so, and he started in to ascertain, and he first issued an order saying : " The next 10.000 men that come through here must be stripped naked and be examined individually, naked.*" and that was done. And the result of the examination of those 10.000 men in that way did not differ materially from the result obtained in the examination of the 10.000 men who had preceded them, and who liad been examined mider the old system. Senator Dillingham. Just a minute, before you leave that sub- ject of the physical condition of these people, T think there is one thing that some of the committee do not know, and to which their attention ought to be called. You remember it was brought out before our commission that at the frontiers of the countries in which are located the i>orts of em- 316 EMERGENCY IMMIGRATION LEGISLATION. barkation, control stations were established to prevent the diseased of other countries coming to these ports to embark, because if such diseased persons -were rejected at the port of embarkation they became residents of tlie country in wliich that jinrt was situated, since most of them were too poor to go back. And I find by referring to the testimony taken before the commission at that time that in the 13 iDonths from December 31. 1907. there were rejected at those control stations on the frontiers 27,799 persons. At the port of em- barkation there were rejected 11.832. making 39.081 that were re- jected during that year, or during that period of 13 months. Xow, during the same ]5eriod there were rejected at the ports of the United States only 13.064. The total rejections for that year were r)2.74.""). l)ut the system was so perfect that 39.081 were rejected in Europe, and more than half of the whole numl)er rejected were turned back at the control stations organized by the countries in which were located the ports of embarkation, to keep the defective persons even out of the country. Mr. Bennet. That is true. And I want to say that I went throusrh the station at Eydtkunnen. which is located on the frontier between Germany and Russia, and I want to tell you that they did their work very effectively there. They had systems of baths and disinfection. And I went into one room and asked. " What is this room used for ? " and they said. " This is where we keep cases of smallpox and diph- theria and cases of that kind." and you may believe that I left that room in a hurry. I also went through the station at Trieste, which was constructed in a little different manner but with the same idea as this other place. There, before the immigrants would go down for a final examination by the steamship company doctors, the then government of Trieste took them all into two rooms, the men in one room and the women in another, stripped them naked, and then the men and the women are sent through baths, and their clothing was put through a fumigator. baked, and the people were then examined for the purpose of ascer- taining whether they had any diseases. And I want to say. inci- dentally, that that situation was very largely due to the energy of one American consul at Trieste, who just simply said that unless the health conditions were made to suit him he never would sijzn a health manifest for a ship. And the steamship company had to do this: the steamship company built this place, and it was run by the Govern- ment : and that was all done because this American consul com- pelled it. As I recall the figures, for every ])erson rejected for mental or physical defects at the port of arrival here there are four rejected abroad. And then, in addition to that, back in the towns where these people live the penalties of the steamship companies are so severe, and properly so severe, that they have their doctors examine the people before they l)uy a* ticket. And I stood at the port of Patras and saw the do tor do this: He had a rubber stamj): he would examine a man or a woman, and if that j^erson was acceptable he would stamp him or her on the wrist with the rul)])er stamj). the form of which was clianged every day, so that only the man or woman who had the stam]> on that dav on Jiis or her wrist ((.uld get oii tlie ship that dav. EMERGENCY IMMIGRATION LEGISLATION. 317 Xow, all that sort of thing is done abroad not from any motive of devotion to our country, don't believe that, but because every immi- grant that comes here and who has to be taken back means an ex- pense to the steamship company, a fine for the steamship company, and in Italy the expense of travel and pay for loss of time is in- cluded, as I have indicated. So that our laws have a very far- reaching effect; they are actually enforced through these penalties that are exacted, even in remote villages of Greece. Senator Dillingham. And thus they compel the foreign Govern- ments to adopt measures for their own protection? Mr. Bennet. Yes, sir. Senator Dillingham. Xow. I notice in referring to the tables that at the port of Bremen 3. 178 were rejected, while 8.110 who were bound for the port were stopped at these stations. Mr. Bennet. More than tAvice as many were stopped before they got to the port. Senator Dillingham. And that is done because they do not want diseased people to come into their country or section ? ^Ir. Bennet. These people were rejected and stopped from going on board because they knew they would eventually come back, even if they were allowed to go on board the ship. And then at these control stations they keep the people from coming into the country or coming to the port, because if they are rejected at the port they may not have the means of returning to their homes. Senator Dillingham. We compelled them to take that action for their own protection. Senator Sterling. The assertion has been made here, Mr. Bennet, that the steamship companies, because of the high transportation rates that are paid, can afford to take chances, and that they need not be particular at all about an inspection to begin with at the port of embarkation, for they can afford to take back the people who are rejected. r\lr. Bennet. There is a provision in the law which prohibits a steamship company from taking any security of any kind against people being sent back, and the provision is drastic, to this extent, that if a steamsliij) line is found to be taking securities against any hajipening of that sort, its ships will be refused clearance from ^Vmerican ports. Xow. of course, high fare works in two ways. I can naturally see where there is a high fare, we will say, of $:^}00. that the steamship companies will take a chance; but, on the other hand, if there is a high fare of ^?>()0 that is almost as much of an immigration barrier as the Johnson bill. So, as you raise the fare, the steamship com- pany can perhaps afford to tal^e more chances: but, on the other hand, the liigh fare itself bars people out. That is just my reasoning: that is all. But so far as taking securities against any happening is con- cerned — that is, against the steamship having to return a number of passengers free — if the steamship company did that, its ships could not clear from America. Xow. I have always advocated, but I have never been able to get Congress to adopt it, because of the expense, one thing, which I think ought to be done, and that is this : T think that on everv Ameri- 318 EAIERGENCV I.M .MIGRATION LEGISLATION. can ship comin out tlieio to l)rinuttin<2: colonies on cut-over lands in Texas. Later I want to have him tell you how it turned out. The bulk of the foreigners that come to this country now are not Vke the old settlers that we used to jret 20 and 25 years a^o. These people want to crowd into the cities. They are small hand farmers. What they call a farmer in Europe is a <2:ardener in this country. He is not a farmer. Xinety per cent of the people that come into this country now and claim that they are farmers do not know even how to harness up a horse, much less how to run a tractor, and our farms out there now are on a hifrhly developed basis. We have the finest kind of machinery, and we use horses instead of oxen, and we use tractors out there. Xow, in order for the West to have any benefit of any immiirra- tion law you have, you must first have your immigrant examined at his home toAvn. have him irive a clean police record, so you will know Avho he is and what he is: find out how much he has :entlemen. I will now introduce Mr. Sea^rave, of the Santa Fe Railwa}'. STATEMENT OF ME. C. L. SEAGRAVE, SUPERVISOR OF AGRICUL- TURE OF THE ATCHISON, TOPEKA & SANTA FE RAILWAY. Mr. Seagrave. Mr. Hunter has stated the case very clearly, gen- tlemen. Primarily we are only interested in the development of our western lands, and the point he made ver}' well was the getting of the right kind of information to the people of Europe so they would not come here under any misapprehension. The more we can en- lighten them over there the better class of people we can get. Now, there has been a good deal of talk in the last five or six j^ears about getting the people to keep out of the congested cities and moving them onto the land. We had several harrowing experiences along that line. The first experience was 20 years ago in locating some people for the Salvation Army on land. It was a scheme of Gen. Booth's, it was a very laudable idea, and it looked like it would solve the problem of taking care of the poor in the larger cities. Well, the upshot of it was that it proved to be a rank failure, and those people preferred to be in the larger cities, Chicago and New York, and live in the slums and hovels rather than out on the farms where they might live in their own homes, where their families could live under good conditions. That scheme proved an absolute failure. Some seA^'en or eight years ago I had a call from a delegation of Hungarians. They came to me with a representation that these peo- ple, whom they represented, were all farmers: that they had been farmers in Hungary; that it had not been possible for them to own any lands in Hungary on account of the conditions existing there, but that their one sole ambition was to have a home in this country — to have a farm. There were -±0 families, and they were located in eastern Texas. We bought some 5,000 acres of land, put in the roads — cleared the lands and built roads. We bought 100 head of mules, harnesses, and farm implements. We sold these lands to them at cost. Our aim was not to make any profit but to make the ex- periment, the demonstration, and get these people started in there. Well, it was but a short time, within possibly, I might say. less than a year when every one of those -tO families went away. We spent on that venture, in buying and imi)roving that land, upward of $85,000 or $90,000. It proved a pretty expensive experiment. Of course, we were, curious to know why these people did not remain. We should have found out sooner than we did. of course, as to their adaptability as farmers, but these people all spoke the Hun- garian language and we had to communicate with them through an 326 EMKRGEXCY IMMICRATION LEGISLATldX. interpreter, so we could only accept the statements as they were given to us by the interj^reter. But they were not farmers, and they would not work. And. as Mv. Hunter said, they did not even know how to harness their teams. And they all went away from these farms. The reason was that they wanted to go back to tlie city, to the bright lights, to the big excitement. Those were some experiences that we have had witli that class of people. We have had other experiences with other nationalities, experi- ences which were not quite as disastrous as those two proved to be. So we say. as Mr. Hunter stated, that if this information could be given to these people in Europe, as to what is expected here, and what they must do. why. then, we Avould not get so many of these misfits into our country. As was said by ]Mr. Hunter, of course the day of public lands is gone. The best lands are gone. And that is true of our grant lands. The people coming here must have some money, because they must make some payment, even if it is only a very small payment, on their lands: they need money to get their lands seeded, and make neces- sary improvements: and furthermore, they must have some capital so as to be able to live until such time as they make a crop, otherwise the venture for them will prove to be a failure. Xow. that is some of the information that I think we ought to give to these people. There is no use of going into the farming sections of Europe and inviting people who have no meatis to come here. We can not use such jDeople. We are only bringing disaster upon them by bringing them over here, as well as disaster upon this country. Senator Sterling. Unless it is a class. Mr. Seagrave. that will work on the farms as farm hands, for example. Mr. Seagrave. Oh. yes: surely so. Some desirable ones might pos- sibly be utilized on rented farms : I dare say we can place a nimiber of those, but I think that we should get away from farm tenancy as quickly as possible. Farm tenancy is a curse to this country. And that is a problem that we must try to solve now. the problem of farm tenancy : and in solving that question we will also be helping to solve the question of farm labor. If each man owns his own place, it will in a great measure help sohe the problem of lal)or on the farm. The more people you get out there Avho own their own farms, the less you will have to contend with the problem of farm labor. The Chairman. Mr. Witness, supposing you had a large farm; in that case don't you use a considerable percentage of unskilled labor or farm hands, so to speak, that are not skilled laborers, just the class that Senator Sterling was speaking of ? Hasn't there been quite a demand for unskilled farm labor on the farm? Mr. Seagrave. Yes: that has been during the harvest season. The Chairman. That doesn't demand any capital on the part of the farm laborer coming in. does it? Mr. Seagrave. No: that does not. And those i)eople who come in as farm laborers, if they are thrifty, will in time probably become permanent farmers. They will have their own farms. But many of them come here with the idea of going to the farm without any capital, and I think that they should be enlightened as to what the requirements are. EMERGENCY IMMIGEATIOX LEGISLATION. 327 Now, a certain class of those people could be used on the farms as farm laborers, who later on could become farm tenants, and then still later on they would be. perhaps, able to oaa'u their own places. But this information concerning our farms should be given to the people in Europe, so they will understand just what our conditions hero are. Senator Sterling. I might disagree with the idea thf\t there is not a demand for farm labor outside of harvest time. I think in South Dakota, especially, there has been a scarcity of farm labor, independ- ent of the harvest time. Mr. Seagrave. I had in mind the harvest period, as there is al- ways a demand for farm labor at that time, but there is ahvays some demand for farm labor at other seasons, but our greatest difficulty has been during the harvest season. Take it in 1918. the pressure then was very intense, and also in 1919. In 1920 it was not so bad, because there was more labor available. Thank you. STATEMENT OF MR. E. C. LEEDY, GENERAL AGRICULTURAL AND DEVELOPMENT AGENT OF THE GREAT NORTHERN RAILWAY. Mr. Leedy. Mr. -Chairman. I don't think I can add anything to what Mr. Hunter and Mr. Seagrave have already said on this sub- For several years past some of our northwest States have been interested in the distribution of arriving immigrants at Ellis Island, and this subject has come up at different times, as to how we might secui'e some of these immigrants for our northwest States. At one time it was thought we miglit establish an office at Ellis Island, and assist in the distribution of these immigrants, but I investigated this aljout eight years ago, and we decided against it, as being imprac- ticable. It came up again this fall, in Xovember. and I made a very thorough investigation of conditions at Ellis Island, of the class of immigrants arriving. I found that from 75 to 85 per cent of the people Avho are arriving have no money, and have no desire to go to the farms. A great majority of them are going to the cities, and are not the class of people that we can use in our northwest States. Senator Sterling. Was that the reason that you felt it impracti- cable in your first investigation? Mr. Leedy. Well, not entirely, but we found that it was not a practical proposition to try to divert, or to educate, immigrants at Ellis Island. The education must be done on the other side, because the immigrant must shoAV a destination before he leaves the port of embarkation, and it is almost impossible to reach them at' Ellis Island. They are hurried through the island, and it is not a practical place to reach them. Any distribution of literature, or educational work, or information concerninc: the opportunities or resources of this country, should be done in Europe. Senator Sterling. What did you find the intended destination of the immigrants to be for the most part, as you examined them? What citv or cities? 328 EMERGENCY IMMIGRATION LEGISLATION. Mr. Lkedy. "Well, they Avore iiu'n. nnd whcTi tlipv couk^ here with ?i'300. that $200 EMERGENCY IMMIGRATION LEGISLATION. 331 has been culvanoed by some i)rivate bank in Italy, or some other forei^-n nation, and tl\at money is collected over here by some other bank for this private bank in Italy, and the man who borrowed $200 may have to pay back $500, which will be deducted from his earnings. The Chairman. Well, are you criticising that ? Mr. Jackson. AVell, we are admittinir a lot of people who are perjuring themselves to get in here. Tiie C'HAiiniAN. Aren't you making i\ pretty broad accusation against tlie immigrants who come here? Mr. Jackson. I know several cases where it is a fact. The Chairman. Well, you might know several cases, but your proposition is here that the immigrants, the nationalities that come here from England, France, the Scandinavian countires, as well as southern, western, and eastern Europe, are doing that. You \\ould hardly want it to go in the record, would you. that they are? JSIr. Jackson. I am not referring to the Scandinavian people. The Chairman. That they are committing perjury f Mr. Jackson. I am referring more particuhirly to the i^eople from southern Europe. Senator Sterling. What class of people are interested in outfitting these immigrants and posting them on the kind of an examination they will have to pass here at Ellis Island, and furnishing th^^m with money. Mr. Jackson. Italians, principally. Senator Sterling. Italians? Mr. Jackson. Yes. Senator Sterling. Well, granting that they are Italians, what par- ticular class of Italians? What is the business or vocation of these Italians? Mr. Jackson. Well, it is a regular business to handle these people, to advise and instruct them as to how to get by. and the Ignited States (Tovernment knows it and has made several investigations on the subject. Senator Sterling. Well, it is not done by Government officials? Mr. Jackson. Oh, no; by private bankers, just the same as we have private bankers in Chicago. Senator Sterling. And are they men who are seeking to make money out of it? Are they in the business solely for the purpose of making money out of it? Mr. Jackson. Absolutely. We did not attempt to interview any of these people coming over foi- wages. We Avere not looking for wageworkers. We were sim))ly looking after these people who de- velop into ])roducers and iiood American citizens later on. Senator Sterling. Noav, what success attended vour eiforts. may Task? ]Mr. Jackson. Well, we had great siu-cess in Xorway, Sweden. Den- mark, part of (irermanv. part of Belgium, and part of Holland. Senator Sterling. Did you get many of these people? Did many of them come ? Mr. Jackson. Yes: a good many English people from the British Tsles — England. Ireland, Scotland, and Wale-. AVe were not in- structed to hunt for these ]:)eoi^le. but when they came to us for in- 332 EMERGENCY IMMIGRATION LEGISLATION. formation we absolutt'ly jrave them the ri«rlit information. For example, if a younfr Knjzlishman came to me at my oflice and asked me, " What do you think my chances are in America i I have .£r>()(»."" which is $2,500. Now. in spite of the fact that that man had that much money, if I felt that he would not make ^^ood in this country.. I would not advise him to come. The Chairman. You were engaged in inducing people to come here from abroad ? Mr. Jackson. Yes; who had money, and who had a.ssociates. I)ut we did not do anything which Avould come in ( ontlict with the con- tract laws. The Chairman. Well, you were on the l)order line, were you not. of the contract laAv? Mr. Jackson. Xo; because we took no action with these immi- grants at all. If any of these people said. " I am going as an immi- grant," we paid no attention to them. The Chairman. Now, I want to know what you found about the- Italians, because I have the highest resjject for the Italians. Mr. Jackson. I have, too. for many of them. The Chairman. You said that the Italian- were the ones who made these false representations? Mr, Jackson. That is the only place we found these societies work- ing for the financing of these people. In Italy was the only place Avhere we found that. Senator Sterling. In what part of Italy? In one part more than another ? Mr. Jackson. Xo : practically all over Italy. Senator Sterling. All over Italy ? Mr. Jackson. Yes. Senator Dillingham. You made no difference between north and south Italy ? Mr. Jackson. Northern Italians are a better class of people than the southern Italians, of course, as a rule, for immigration. The Chairman. The Italian GoA'ernnie»t. then, or the Italian bankers, rather, were encouraging immigration, were they? ^Ir. Jackson. They were at that time when I was over there : yes. The Chairman. When was that? Mr. Jackson. 1906 to 1916. They were encouraging it. and they were making the collections on this side. The Chairman. Well. now. can you not give us some ideas as ta what you think about the restriction on immigration, etc.? Mr. Jackson. AVell, I think the way things are to-day that the first thing we should do is to put our own house in order. We have a lot of unemployed here with us to-day. The Chairman. What do you mean by " putting our own house in order " ? Mr. Jackson. Until we get a satisfactory solution of the conditions that we have in this coimtrv to-day; conditions are very unsatisfac- tory, the labor conditions ; we should go very slow. Senator Sterling. Do you belieA'e there should be any exclusion for any length of time? Total exclusion of all immigrants? ^Ir. Jackson. Xot a total exclusion, but there should be an exclu- sion of certain people engaged in certain lines. EMERGENCY IMMIGRATION LEGISLATION. 333 The Chairman. Exclusion of certain people Avho are engaged in what lines ? « Mr. Jackson. Well, those that the official census to-day shows that we have an oversupply of at the present time. The Chairman. Well, that is indifinite. ()A-ersupply of what? What classes? Mr. Jackson. Principally unskilled labor. The Chairman. Have we an oversupply of unskilled labor to-day? Mr. Jackson. The last census of the United States Government showed a little over a million and a quarter. I think, on the 1st of December. The Chairman. We have had testimony showing that there was a scarcity of unskilled labor in the States bordering on Mexico, in Florida, and in certain agricultural sections, such as Colorado. Mr. Jackson. Xot at the present time, I think. I was out in Colo- rado two weeks ago, and there was no scarcity then. There is a scarcity at certain times of the year. Colorado would have a scarcity during the beet-harvesting season. The Chairman. Well, it is necessary to have labor if you are to have a beet crop, isn't it ? Mr. Jackson. But, Mr. Chairman, that is just for two or three months time. What are we going to do with these people after the beet crop and the Kansas Avheat crops are harvested. That is the great problem, what to do with the people after they come there, and the harvest season is over. The Chairman. The Mexicans go back? Mr. Jackson. The Mexicans go back, and that is a very wise pro- vision. But you can not send a foreigner back to Europe. * The Chairman. Do you want to send any people back? Mr. Jackson. Yes; I would like to send these lawbreakers that make trouble for us back to P^urope. The Chairman. Well, we are not speaking of the lawbreakers. Mr. Jackson. I do not think the same way as did my friend who testified this morning on foreign immigration. There is a great deal of difference in our views on the subject, and I think we have both made personal observations, and veiy careful observations on the subject. I am referring to Mr. Bennet. Senator Sterling. You would not exclude any of the classes that you interviewed when you were over in Europe in 1906 to 1916? You would not exclude any of these, would you ? Mr. Jackson. I would advise at least 60 per cent of the people I interviewed, even with capital, not to come to this country, because I feel that they would not make good. They would be liabilities rather than assets to this country. Senator Sterling. Don't you anticipate a revival and an early revival in business in this country, so that there will be more need for laborers, skilled and unskilled, than there is at the present time ? Mr. Jackson. AVell. we read very optimistic remarks made by these captains of industry, but I am not prepared to say. because I don't know. It seems to me we have an awful lot of people in this country here to-day without work. Senator Sterling. They predict a very early revival of industry and business in this country? 334 IL-MKRGEXCY IMMIGRATION LEGISLATION. ^Ir. Jackson. Yes: they are very optimistic on that score. But I don't know. Senator Sterling. In fact, they talk as thoujih it has already come. That the revival of business is already bejrinniufr. Mr. Jackson. Yes: l)ut there are more people unemployed to-day than there were a month ag^o. I have here an editorial. Mr. Chairman, from the Chicago Tribune, which covers the situation. I think very fully. The Chairman. Do you wish it introduced into the record? ^Ir. Jackson. If you please. The Chairman. Very well, it may be placed in the record. (The editorial from the Chicaoo Tribune of January 7. 1921, pre- sented by Mr. Jackson, is herewith printed in full, as follows:) (From Chicago Tribune. Jan. 7. lltJl.] IX DEFEX.sk of A5IERHA. Commissioner of IinmiCTation Wallis told tlie Senate committee considering the immijrration bill tluU Europe is •• literally moving to the United States." This is an emphatic statement by an official in touch with the situation, and it is corroborated, moreover, from other sources. Yet the di.spatch carrying ilr. Wallis's assertion goes on to note that It left members of the committee '"still doubtful" of act:on to l)e taken on the bill barring out the tide for one year. • Several Members exi»ressed doul>t that any measures of restriction would be enactetl at tliis session." We understand that. The liearings held by the connnittee have brought out significant currents of life in America. Race, religion, and industrial self- interest have been expressed, and their organized pressure is being brought to bear upon the responsive nerve of polidcs to defeat or emasculate the lueasure. Yet the is.sue is clear. It is the most important liefore Congress and one of the simplest. If Congress fails to give America protection it will sacrifice its highest duty, the defense of the Repuldic, to selfish expediency and political, cowardice. The forces contending are, on the one side, those which would defend Ameri- can standards, American institutions. American citizenship. They are con- cerned first and last with America and with protection of the integrity of Ameri- can life and progress. On the contrary side are those whose pocketbook is dominant over their patriotism and those who are more devoted to the ties of alien race and culture than to America and her punioses. If Congress has not forgotten Noven<.l»er 2, it will realize that the great ma- jority of tlie American people are Americans and do not propose to .surrende* their national integrity to the dividing currents of the outer world. This is '.he issue raised by the innnigration bill. Xo other consideration can conceal or should be allowed to confuse it. We do not need lalmr now. Our own people want work. When we do need labor it should be admitted only on terms c(un- palible with justice to our own American workers and with the preservation of the character of American life, American standards and customs. American institutions. Alienism has gr<»wn more insolent through organization and growing numbers. It is a threat to Americanism and to American national integrity. It should be challenged witht>ut further procra.stination and defeated in an issue clear as that of restriction. Mr. Jackson. I think. Senator Sterlin«99.790 inha])i- tants. In other words, we could continue at our present rate of growth over 700 years before there would be as many of us to the square mile as there are in Germany. EMERGENCY IMMIGRATION LEGISLATION. 345 The United Kinojdom occupies a unique place in contemporary histor}'. We are all the while reading of the people that r^o to the Scottish hills or the English country, and, up to the last year or two, to the Irish lakes for their vacations, and most of us have seen some- thing of the agriculture of England. Xow. if the United States were as thickly settled as the United Kingdom we would have a popula- tion of 1,112.234,800. In other words, we would have to continue at our present rate of growth nearly 900 years before we would have as many people, proportionately, in this country as has the United Kingdom. I took the unfair advantage of looking up a couple of the States represented on this committee ; very good States — New Jersej' and Rhode Island. There is a lot of room in Xew Jersey ; I know some- thing about that. I know the northern part of the State; not the southern. If the United States were populated on the same scale as Xew Jersey, we would have a total population of 1,249.023.800. In other words, this country could continue to grow at its present rate a thousand years before reaching the state of congestion in which the Xew Jersey man is contented and prosperous. Rhode Island is one of our progressive and independent States. It is not denuded from either a forestry or an agricultural standpoint. There is more white-pine acreage in Rhode Island to-day than there was when the Pilgrim Fathere landed, and it is significant to note that there is room in Rhode Island to cultivate white-pine trees, a slow but a profitable crop. Senator Sterling. They are great conservationists? ;Mr. Bennet. Yes, sir: they are. The timber conservation in the United States is being done in Xew Hampshire. Maine. Massachu- setts, eastern Xew York, and Rhode Island, and done profitably. If the rest of the country were as thickly populated as Rhode Island, we would have a total population in the United States of 1,747.021,740. Our country could continue to grow at its present rate for nearly 1,500 years before we vrould reach the point at which Rhode Island now is. What is the use of saying that we are a congested country in the face of facts like those ? I have got one or two figures here about the agricultural lands that remain, and then I will thank the chairman for his consideration. But first I just want to say one word about a feature of this Johnson bill that is simply humorous, and that is section 4. This provides for alleged absolute prohibition for one year, and then under section 4 it provides this : A citizen of the United States 21 .v«'iirs of ase or over who is a resident of the United States may, iinder re2:ul:itions prescribed by the Secretary of Labor, apjily to him for permission to brine into the United States or send for an otlierwise admissible wife, parent, irrandparent, unmarried .son under 21 years of ape. unmarried or widowed daujrliter, grandson under 16 years of age whose father is dead — And the House added: brother or sister or unmari^ied or widowed granddaughter whose father is dead, and any alien who has declared in the manner iirovided by law his inten- tion to become a citizen of the United States and who is a resident of the United Stat-es may make like application in reference to an otherwise ad- missible husband or wife, ininiarricd son under twenty-one years of age, or unmarried or widowed daughter : but no application uiay be made under this paragraph in the case of any relative by adoption. 346 KMEUOEXCV IM.MHiKATloX LKCISLATIOX. Tn otlier Avords. if yon pass tlie Johnson hill, every alion who is in this country, every person Avho can be -ome naturalized, and every alien who has not become naturalized who can file his declaration of intention — and that covers everybody except the Japanese and the Chinese — will commence immediately to send for his dependents, and' the result will be that in this year you will jret into this country about as many ])eople as you would otherwise. The only difference is that you would not iret any laborers f)f the ordinary kind : you would simply jjet dependents. Now. we did the same fool trick that these railroad men did up in our Virsrinia-Kainey Lake Co.. and about at the same time: that is^ we sent down two representatives to Ellis IsLand. I was not con- sulted. 1 am frank to say, but we sent down two good men to Ellis Island in October and tried to get labor. It was simply a vacation for two estimable and worthy gentlemen who were entitled to it for long service. You can not get anything down there, and they told us. I suppose, the same thing that they told these railroad people — that most of the people that were coming in at that time were de- pendents of people who were already here. Senator Sterling. When was that. Mr. Bennet? Mr. Bexxet. October. Senator Sterlix'G. This last year? Mr. Bex'Xet. Yes. sir. I gave them letters of introduction when they got to Chicago and told them that tliey would just have a useless trip : that I wanted them to see Xew York : tliat I was proud of the place. They went over to Ellis Island and presented my letters and the man in charge laughed at them. "Why."' he said. "I have got '25 places here in my own establishment that I have been trying to get filled now for three months, and I can not get anybody to fill them."" The CHAiR:krAX. Couldn't get anybody? ^fr. Bexx'^et. Couldn't iiet anybody. The immigrant knows where he is going, and everything of that sort. And your only solution of the pi-oblem. in the long run. is an intelligently^ carefully, conscien- tiously worked-out scheme of distribution, without racial or religious prejudice. Senator Dillix'gham. Isn't it true. ^Ir. Bennet. that substantially every immigrant that comes to this country knows just where he is going ? Mr. Bexxet. Why, yes ; practically every one. Senator Dillixgham. And you can not change his purpose at Ellis Island? Mr. Bennet. No, sir: you can not change his purpose after he starts. Senator Sterling, flight not his purpose be changed abroad, before he leaves for this country ? Mr. Bexxet. Well. now. let us see: You would need to do it by some form of propaganda, wouldn't you. Senator? Senator Sterlixg. Well. I don't know whether you would call it propaganda or not : by agents over there, anyhow. American agents representing the Government. I can not figure it out exactly, how it might be done to do it effectively. Mr. Bexxet. The}- would have to represent the General Gov- ernment, wouldn't thev? You would not want a system under Avhich-. E.MERGKXCY I.MMIGllATIOX LEGI.SLATIO^■ . 347 •each of the 48 States avouIcI send a competing agent over there, would you? Senator Sterling. No, sir: I would hardly want each of them to send an agent abroad. ^Ir. Bexnet. Xo, sir. Well, now. the State of South Carolina, curiously enough, tried out the only recent experiment of that kind of Avhich I have any knowledge, and tried it out rather well, don't you think, Senator? Senator DiLLiXGHA:\r. Yes. Mr. Bennet. They did that in 1905 or 1906. They sent an intelli- gent man, a very good man, ^Nlr. "Watson, over to Belgium and Ger- many, and around through there — the so-called desirable sections — and he got people together (lie* being a State agent), and he char- tered a ship and brought nearly 400 people to South Carolina, and they landed at Charleston, and they had a public holiday on account of this new departure. But in less than one year less than (»0 of tho.-^e people remained in South Carolina. Senator DiLLiXGHA:\r. Those were for the cotton mills, weren't the}^ ? Mr. Bennet. Yes: those people were brought over for the cotton mills. But in less than a year, as I say, there were fewer than 60 of those men and women remaining in South Carolina, because they found out that they could get higher wages in the Xorth, and nat- urally came there, where they could get higher wages. There is the trouble. You can not get away from the economic <|uestion. You never can get away from that. Xow. here is what you would have to do if you wanted to educate them abroad: First, you would have to get a series of treaties with the (iovernments where you wanted to go and do this, permitting you to do this. You might not now have so much difficulty: since the war conditions there may be more free and liberal on that subject. Be- fore the war we could not do in any country in Europe what Canada does in our country. Canada maintains at every railroad station on every Canadian railroad in the north and central west, and very possibly in your State, agents to depict to Americans the conditions in Canada, the advantages of the land there, and advantages of every sort that they can shoAv. and they are taking people out of here by the thousands, aren't they, Mr. Hunter? Mr. Hunter. Yes; they are. ]\rr. Bennet. Certainly. But that is because our la ays permit it. But you can not do that abroad, under the laAvs of European coun- tries. Before you could do that you Avould haA-e to change those laAAS. And here is what you Avould haA'e to do : You Avould have to advocate the United States generally; in other words, a GoA-ernment agent could not go abroad and say. what I don't doubt that you would say with conviction and honesty, that the best place for a man to go would be North Dakota. Senator Sterling. Well, you aaouKI haA-e the GoAernment repre- sentative, agent, or inspector, or AvhateA-er you might call him, abroad. Noav, there would need to be cooperation betAveen the sev- eral States and the GoA-ernment generally, so that the agent abroad would knoAA' the needs of the Aarious States of the T'nited States. Senator Dillingham. Xoav. on that point. ]\[r. Bennet. North Dakota wants bona fide immigrants aaIio Avill come there and pur- 348 EMERGEXCV I.M.MIGnATI():N' I.ij. ISi,All(K\. chase land and l)econie citizens. What is to prevent North Dakota malcinjr her wants known in the Scandinavian countries? Mr. Benxet. She lias the riirht. under the existinir statutes, to send a State a*rent over and make those wants known. That is tlie law — always has had that ri^rht. That is the one exception in the law. Senator DiLLiNGHA>r. That recofrnizes the sovereignty of the States. Senator STiatLiNG. Are you sure that under tlie present immigra- tion law that is true i Mr. Benxet, Yes. sir. Senator Steketxg. That the State may send its agent abroad? ]S[r. Bexxet. Yes. Senator Sterlixg. The State may send an agent to Ellis Island. yir. Bex'xet. Yes, sir. Mr. Husband says that Senator Dilling- ham and I are wrong: that that was repealed in 1917. Senator Steelix'g. Section 30 of the immigration law. Senator Dillixgham. But that was permitted under the old lav>'? Mr. Bex'xet. Yes; and it ought not to Iiave been repealed, but it was. But. Senator, supposing that you send a man to Scandinavia, a Government representative, and I was a Scandinavian, as hard- headed as most Scandinavians are reputed to be. do you tlnnk that vrithout inspection or anything I woidd buy from a Government agent in Scandinavia a farm in Xorth Dakota ? Senator Steklix'g. Oh. no ; my idea did not contemplate anything of that tvpe, or go so far as that, at all. But if there were a rep- resencative of the Government there, he would he able to say whether in South Dakota, for example, there are op]:»ortunities for men to purchase farms, or opportunities for farm laborers, etc. He would get that information from this country, and then he would be able to give it over there. Mr. Bexx'et. Oh, I am in sympathy with that absolutely. But, of course, in that case you would have to send abroad a pretty — what shall I say — a pretty broad-minded man. who would be able to disassociate himself from the needs of his particular locality, Xow, these railroad men are very high-class citizens, and yet it was not until the chairman called their attention to the fact that Bliode Island mio-ht need men in her factories that they saw the whole of the situation. They have got to recognize this fact, that our coimtry is a large country, and Avhat affects one part affects other parts of the countrj'. The Chairmax. ^Vlr. Bennet. the suspension of immigration called for by the Johnson bill receives considerable support, I think, from the statements that are found in the public press as to the numbers of immigrants that now propose to come to this country from va- rious countries. That condition arises by reason of the situation created by the war. Xow, I am aroing to ask you this question: Supposing I should accept those statements, and should say, "I am in favor of the suspension of immigration, because I understand that there are millions of European nationals who desire to come to this country, from Italy, from Rumania, from Jugo-Slavia, Czecho- slovakia, and from Poland: that there is evidence of men who have been there in those countries who come back with the report that k:»[eiigency immtgkatiox legislatiox. 349 there are millions preparino; to come to this country, and that when wo hnvQ a state of technical peace between Germany and the United States, and between Austria and Hungary and the United States, there will be added to the millions who are already desirous of com- ing more millions, so that the condition of the world is such that provided they can obtain transportation this country in a given year would be flooded with millions of immiofrants." Xow, have you any reply to make to those «reneral statements, which, to my mind, have caused a good deal of apprehension in the general public mind ? 'S\t. Bennet. Why. yes; there are a whole lot of answers. In the first place. I don't doubt at all that there are millions in those coun- tries that are very desirous of coming to America. But there are a irreat many considerations. The first and foremost consideration is that, desirous as they may be. they have not the price. That is almost an insuperable thing. The Chatrmax. They have not what? Mr. Bexxet. They haven't the money, so they could not come. In the second place, a great many of those millions that want to come Mould be ])hysically and mentally disqualified by an examination. In the third place, in 1910. T think it was. with the German lines running at full capacity, and with the French lines running at full capacity, with the English lines running at full capacity, with the Dutch lines running at full capacity, and with the American lines running at full capacity, the total amount of immigrants that they could bring to this country was 1.200,000. Xow. we all know — it is a matter of common knowledge — that I'-reat numbers of those pas-enger ships were sunk or disabled in one way or another, so that there is not the passenger carriage to bring them. And in the next place. Senator, and above all, you never can ilisassociate immigration from the economic question. Xow, an im- miorant may desire to come to the United States to-day: there may come to his little village to-morrow a letter from some former resi- dent of his country there, in which he is informed that industry in the Ignited States has closed down, and there are people out of em- ployment ; that stops the so-called floods. You called attention yourself yesterday. Senator, to the fact — and it is a fact — that every period of hard^ times in this country has been followed by cessation of immigration, and what has happened before will continue to happen. "We naver have been in danger of a flood. When those immigrants came, they were absorbed into in- dustry, and wentiout to farms. Xow, the latest available figures that we have in relation to the alien on the farm — or the latest figures that I have, at least — are 1900. and at that time 21 per cent of foreign born in the United States were either farmers or farm laborers, so that they go everywhere and they are needed. As I show from these figures, we are an undeveloped country. So, in the first place, the flood can not come. In the second ]->lace, the flood won't come. And in the third place, if the flood came it would come in response to an economic demand and go where it was desired. 350 EMEKGEXtJY IM.MU;UAT10.\ LEGlSLATiUX. The Chairman. Well, now, let me ask you : These war conditions have existed since the aimistiee — for more than two years? Mr. Bennet. Yes, sir. The CiiAiRMAX. If this supposed flood were a fact, wouldn't it have been reflected in a marked increase in immigration, especially during the last 3'ear? ^Ir. Bexxet. Why, certainly, Senator. The CiiAiioiAX. Now. that is the basic fact. Let me ask you this : Isn't it true, or a matter of demonstration, that as soon as there is a period of unemployment in this count i-y it is immediately reflected in the diminished number of immigrants? Mr. Bexxet. Yes. The Chairmax. The flood of immigrants follows our prosperity, and in time of business reaction the flood ceases. yiv. Bexxet. Xot only ceases, but it sets in the other way. The Chairmax'. Well, that is a cross current. Mr. Bex'xet. Yes, sir. The Chairmax. Let me ask 3'ou this: They have set up in Europe various new countries. Is there or is there not a disposition on the part of those countries, the suppressed nationalities having obtained freedom and independence, a tendency to check immigration? Isn't there a cross current tending to check immigration in the effort of those countries to retain their own nationals i Mr. Bexxet. In every one of those coimtries. The Chairmax. Is there not also a cross current to the actual increase in immigration, in the fact that the immigrants here and even those who liaAe been naturalized are returning to their Hative count ly ? Mr. Benxet. Certainly. The Chairmax^. I notice that in the month of August, I think it was — and I can not give the figures accurately, but I can give them substantially — that whereas 3.000 Poles came to the United States between 5,000 and 6.000 immigrants went home. Mr. Bex'xet. Polish immigrants. The Chairmax^ As another cross current, isn't it also true that Italv and Greece, especially, together with these new countries, are looking to the retention of their own nationals and discouraging emigration? Mr. Bexxet. Yes. sir: and especialh'^ the landed proprietors in Italy have for years attempted to prevent emigration, and if it were not for the provisions of the Italian constitution I think they would have succeeded in getting legislation through their chamber of depu- ties. But there is a provision in the Italian constitution preventing the passage of any such law. The Chairmax. Well, let me summarize by this: Would it be your opinion, then, that the current of immigration for the next year, with these cross current or retarding influences, will be at about its present ) amount — that is, that these retarding influences would tend to keep » the immigration to this country at its present amount or standard ? Mr. Bexxet. I think it would be less. I think it would be less. ^ The Chairmax. Don't those cross currents or checks upon immi- gration ]:)resent a strong argument to the etTect that there Avill not be, assuming they had sufficient transportation facilities, any marked increase in immigration during the next six or eiglit months? EMERGENCY IMMIGRATION KEGISLATION. 351 Mr. Benket. Certainly ; unless economic conditions here improved tremendously. There will not only not be an increase in the present rate but there will be a very marked decrease. It has started now, I read a newspaper clipping concerning that into the record at a former hearing. The Chairman. Looking at the present immigration and assiiming that it would take some months to prepare a constructive bill, do you see any danger in allowing the present law to stand until some con- structive improvement upon the present immigration bill could be framed ? Mr. Bennet. None whatever. The Chairman. That is all. Mr. Bennet. And I think, Mr. Chairman, if you will permit me, that there never was a committee that, on account of the conditions and the present situation in the country, had the opportunity l^efore it that the two committees of the two Houses have to take up this basic question on distribution. And may I tell you why ? The pre- ponderating i^olitical influence in this country is the farmer, and in my time, at least, the farmer has never been in as i)ad an economic condition as he is now, and never faced with so hard a situation. And with the backing of that public sentiment — and, after all, this Government ought to be representing public sentiment — you have got the time of times to work out a system of distribution that will be the one thing that will settle this immigration question. Senator Sterling. Just one question further, that was suggested by the questions asked by the chairman. Does not the (juestion of subsistence in densely populated countries enter into this question ? The question of the laboi* markets in those countries, and the question of subsistence, do they not enter into the question as an inducement to immigration to this country, and are they not also an inducement to the countries, the Governments themselves, to encourage emigra- tion? Take it, for example, in Japan. We have heard a great deal about Japan and how Japan's dense population is seeking an outlet. We have also heard of this in reference to (irermany: that Germany is seeking an outlet for its too dense a population. It is a question of subsistence and labor markets, is it not? Mr. Bennett. The answer to that is that the Imperial German Government, until it was overthrown, maintained laws making it a felony for any country to attempt to induce its nationals to leave- Germany. Senator Sterling. Tliat may be true in reference to anyone en- deavoring to induce the nationals of Germany to leave that country, if they have made it a criminal offense for anyone to try to induce them to leave, but still tliat German Government was very well satis- fied with its nationals in America. Mr. Bennet. Well, not with all of them. ^lost of them that I know Avell came over here as fugitives of 1845. or are the descendants of those fugitives. Senator Dillingham. Mr. Bennet, before you leave the stand, and to justify yourself and myself in the statement we made regarding the rights of States. I want to call attention to the fact tluit section 6 of the law of 1007, which makes it unlawful " to assist or encourage 26911— 21— PT 6 5 ^52 EMERGENCY IMMIGRATION LEGISLATION. the importation or migration of any alien by promise of employment throuo^h advertisements printed and published in any foreijrn coun- try," etc., contained this provision : P/-or/(7«<7. That this sortion shnll not apply to States or Territories, the Dis- trict of Cohinibia, or places siil).ioct to the jurisdiction of the United States ad- vertisiiiir the inducements they offer for inuuiKration thereto, respectively. That remained the law until 1917, and in some way or other, and without my knowledjre, that provision was dropped off and does not appear in the law of 1917. Mr. Bennet. Well, I was in Congress too at the time, and it got by me. And I- want to say this, in conclusion, I probably said one thing to-day which was rather unjust to the Department of Labor, in relation to the inspectors and matrons on the ships. It is a very excellent provision, but this present law did not become a law until the 1st of May, 1917, at which time we were in the war, and the State Department has really had no chance to work that thing out. But when the committee does take up the constructive legislation, I think it would be a good idea if they would send for representatives of that department, and take that into consideration. I thank the committee for their extremely generous attention. The Chairman. Mr. Morrison has handed me the following tele- gram: QuiNCY, Mass.. January 11, 1921. Frank Morrison, American Federation of Labor Building, Washington, D. C. From information received from various local unions we estimated that there were between 45,000 and 50,000 unemployed building laborers dtiring the month of December and the number of unemployed is rapidly increasing.. D. D'Alessandbo. The committee will stand adjourned until to-morrow morning at half past 10. (Thereupon, at 4.30 o'clock p. m., the committee adjourned until 10.30 o'clock a. m., Wednesday, January 12, 1921.) Emergency Immigration Legislation HEARINGS BRFORE COMMITTEE ON IMMIGRATION UNITED STATES SENATE SIXTY-SIXTH CONGRESS THIRD SESSION ON H. R. 14461 A BILL TO PROVIDE FOR THE PROTECTION OF THE CITIZENS OF THE UNITED STATES BY THE TEMPORARY SUSPENSION OF IMMIGRATION, AND FOR OTHER PURPOSES WEDNESDAY, JANUARY 12, 1921 PART 7 Printed for the use of the Committee on Immigration WASHINGTON' OOVERNMENT I'KINTINO Ol'FH.'I': 1021 COMMITTEE ON IMMIGRATION. LeBARON B. colt, Rhode Island, Chairman. WILLIAM P. DILLINGBLIM, Vermont. TH03>L\S P. GORE, Oklahoma. BOIES PENROSE. Pennsylvania. JOHN F. NUGENT, Idaho. THOMAS STERLING. South Dakota. WILLIAM H. KING, Utah. HIRAM W. JOHNSON, California. WILLIAJSI J. HARRIS, Georgia. HENRY W. KEYES, New Hampshire. " PAT HARRISON. Mississippi. WALTER E. EDGE, New Jersey. JAMES D. PHELAN, California. HEXBi- M. BabbXj Clerk. n EMEEGENCY IMMIGRATION LEGISLATION. WEDNESDAY, JANUARY 12, 1921. UxiTED State? Senate, Committee on Immigration. Washington,, D. C. The committee met, pursuant to adjournment, at 10.30 o'clock a. m., in room 235, Senate Office Buiklinof, Senator LeBaron B. Colt pre- siding. Present: Senators Colt (chairman). Dillinfrham, Sterling, Keyes, Harris, and Phelan. ' , The Chairman. The committee will come to order, please. Mr. Sandford will be heard first. The committee are desirojis of hearing with regard to the trans- portation feature in connection Avith immigration ; that is, the reasons for the congestion and delay: the question of how far transportation facilities are offered to immigration: the general subject of trans- portation in connection with immigration. You may proceed in your own way. Mr. Sandford. STATEMENT OF MR. LAWSON SANDFORD, OF NEW YORK CITY, OF THE FIRM OF PHELPS BROS. & CO. Mr. Sandford. Would it please you to begin, Mr. Chairman, with the question of the existing fleets of steamers of the established lines? The Chairman. It would. Will you please state your qualifica- tions ? Mr. Sandford. I have been in the steamship business all my life, sir: connected with all branches of the business. At present lam a partner in the firm of Phelps Bros. & Co., American steamship agents and operators, of New York. In the 'reorganization of transatlantic liner service the -armistice did not end the war service of practically every Atlantic passenger steamer. Some steamers were returned to passenger service on their accustomed routes as early as ^lay, 1919, and others not until the late autumn of 1919. The present fleet of passenger steamers in the transatlantic trades, which is estimated to comprise about 100 steamers of all types, has suffered the necessary delays due to repairs incident to war service and transport, many strikes, many difficulties of every nature in con- nection with operation, and the so-called efficiency to-day, even in 1921, is far below the owners* standards that had gradually been established in the recent years ended with 1914. 353 354 EMERGENCY IMMIGRATION LEGISLATION. Consequently, with the h)n^or time in port everywhere, with some- times prohlems ahout caration, maintenance, and up- keep. The repair bills are astonishing. In some trades to-day the ac- tual cost of loading cargo approaches one-third of the gross freight money. The increased cost of coal for bunker purposes, and fuel oil, which has shown tremendous advances likewise, is to be measured in hundreds of per cent. "\ATiereas in 1914 ininker coal at United States Atlantic ports cost about '^'2.75 to $3.25 a long ton, and to load it, even overside, and not availing of chutes, 35 to 40 cents a ton. it is the experience of practically every Atlantic operator that they have been obliged during 1920 to pay as high as $16 a ton for anything that was black. It was not asked whether it was good coal or not. And the cost of loading has increased certainly 250 per cent, from probably .35 to 40 cents a ton to $1.25 a ton, and with a great deal of overtime. Provisions, wages, every element which enteis into the cost of operation, have mounted by hundreds of per cent. An interesting article was published in the Xautical Gazette on January 1, 1921, in which it is shown from official figures of Great Britain that, as compared with 1914, the 1920 cost of bunker coal for foreign-going steamers had mounted 473 per cent, provisions 326 per cent, wages 233 per cent, port dues, 190 per cent insurance 321 per cent, and repairs 358 per cent. The Chairman. "We are dealing here specifically with the question of immigration. How many steamships does your line o])erate i Mr. Saxdp'ohi). At the moment we are operating, as agent-^, about 30 steamers, of which three at present are passenger steamers. The Chairman. How many immigrants have you brought to this country since the 1st of July? Mr. Sandfori). Mav I figure it? The Chairman. What we want to o^et at generally is the number, if we can. of steamships that are available for carrying immigrants and. assuming that there are a large number in Eui-ope who desire EMERGENCY IMMIGRATION LEGISLATION. 355 to come to this country, how many could be carried b}' the present number of steamships available for that purpose. Can you o;ive us some ireneral estimate? Mr. Sandford. A conservative estimate woould be 800,000 to 850,000 during 1921, even with additions to the present fleet, and provided there were no blocks in transportation, and provided the traffic were evenly divided so that all of the great gateways of Europe were used to full capacity. The Chairman. Are you dealing with all the steamships available of all the lines? Mr. SANoroRD. I am endeavoring to do so ; yes, sir ; in answer to your question. The Chairman. If you should take 800,000 as the maximum, and deduct the number of emigrants who went back home, you would in that way get the net, wouldn't you ? Mr, Sandford. Yes. The Chairman. Well, that would bring the net, judging from the present number who went home, at somewhere about 500,000, would it not ? Mr. Sandford. On the basis of 1920, which is possibly a good premise to start upon, the net of European immigration, if we use the term as so generally it is used to apply to European steerage passengers, is 197,000 for 1920. If the present rate should be main- tained 500,000 is a very generous estimate net for 1921. The Chairman. Well, you are aware that during the last two or thrpe months tliere has be,en a slight increase in the net ? Mr. Sandford. Yes. The Chairman. If that went on to increase up to the maximum that the steamships could carry, you come back to your general proposi- tion, that the most the steamships would carry in a vear would be 800,000. don't you ? Mr. Sandford. If all gateways and all steamers were used to full capacity. The Chairman. Yes. Mr. Sandford. It is interesting to note the average weekly num- ber of arrivals of European steerage for the period from the 1st of July to the end of the year. That is a fairly good indication. The Chairman. You mean to the 1st of January of this year? Mr. Sandford. To the 1st of January of this year; yes. Broad and wide, without actually computing it, the average arrivals per week — and sometimes the ships can not help arriving quite in a bunch, and at other times there Avill be lapses without many steamers arriving — a fair average weekly inward arrival, including citizens — because the figures do not differentiate, they simply refer to the broad and wide steerage movement — would be 1)5,000 a Aveek, all I"^nited States ports, from all of Europe. Multiply that by 26 and that gives us the re- sults, based upon present carryings, from July 1 to December 81. The Chairman. I wish you would prepare a table, if you can. and have it inserted in the record to that effect. Mr. Sandford. I have such a table here, sir. Senator Dillingham. During the same period, does your table show how many went out? Mr. Sandford. Yes. Without actually computing it. about 6,000 a week, on the average, from July 1 to December 31, 1920. S56 EMERGENCY IMMIGRATION LEGISLATION. The Chairman. Does that table include nonimirii Add $30 to $35 to the Naples rate. 358 EMERGENCY IMMIGRATION I^EGISLATION. Statement slioirinfj the totals per treek of arhralx front IJuropc and departures to Europe at all United States Atlanlie ports, Boston to Galveston, inclusive, during calendar year 1920. Week of- Jan. 3... Jan. 16. . Jan. 23.. Jan. 30.. Feb. 6... Feb. 13.. Feb. 20.. Feb. 27.. Mar. 5... Mar. 12.. Mar. 19.. Mar. 26.. Apr. 2... Apr. 9... Apr. 16.. Apr. 23.. Apr. 30.. Mav 7... Mavl4.. May 21.. May 2S. . June 4 . . June 11. June 18. June 25 . July 2... July 9. . . July 16. . July 23. . July 30. . Aug. 6. . Aug. 13. Aug. 20. Aug. 27. Sept. 3.. Sept. 10. Sept. 17. Sent. 24. Oct. 1... Oct. S... Oct. 15. . Oct. 22.. Oct. 29.. Noy. 5. . Nov. 12. Nov. 19. Nov. 26. Dec. 3... Dec. 10.. Dec. 17.. Dec. 24.. From Europe. First- class. To and including Dee. 31 . Preliminary total, 1920. Second- class. 317 390 750 697 016 61 1,197 718 i 945 I 849 818 416 626 909 543 1.313 465 689 1,123 1,547 927 W3 1,424 1,202 1,763 1.734 926 503 1,062 1,895 1,921 1.299 1,761 2,9.S6 2,6ll 1, 72S 3.293 2,142 2,231 3,500 1,820 1,704 2,a57 2,201 1,647 1,470 1,278 1,292 2,158 1,132 1, 3.52 638 third- class 1,,546 591 857 944 2, 2S1 457 2,648 1,158 2,380 1,697 1,825 2,154 1,559 1,622 2,a36 1,857 1,8.34 1.854 2; 506 3,5-30 2,343 2,125 2, 90S 1,677 3,538 3,893 2,709 1,400 ' 3.169 2,814 i 2,747 1,617 2,724 5,438 3,229 2,067 3,777 4,533 3,071 3,996 2,725 3,538 4,333 3,971 3,741 3,612 1.800 4,043 3. 883 2, 558 2,944 3,155 69,349 135, .537 To Europe. First- class. 4,117 2,017 1,S45 1,937 8,723 I 2.774 7,402 6,968 4,353 4,071 3,846 10,398 6,708 7,179 6,356 6,051 6,040 6,927 7,384 11,599 4, 8.52 7,412 8,192 9,236 12,026 12,120 11,845 7.200 9,757 7,760 10, 720 8, .527 11,064 13, 141 13,302 17,611 15, 529 16, 112 6,235 15,926 12,943 13,094 19, 139 15,523 11,219 17,265 7,938 15,740 11,375 13,820 13,342 14,694 Second- class. 778 563 681 723 739 924 182 1,263 990 997 1,178 919 816 911 I 1,287 I 1,244 I 1,703 249 1,242 ' 1,687 I 2,133 : 1.422 I 1,372 2,348 I 1,592 ' 2.974 j 3,274 ! 1,426 i 1,300 1,360 2,631 2,560 1,272 1,029 1,993 1,23s 629 1,503 I 361 1,044 • 1,398 779 , 1,084 ' 874 ' 1,218 815 807 754 7»S 1,401 4.50 870 1,058 1,170 367 906 8.56 1,234 514 1,824 S60 1,775 1,802 1,189 1,X21 1.781 1.994 2,385 1,875 1,374 i,sa3 2.275 4.1S1 1,898 1,918 3,489 1.323 2; 967 3,805 2,685 1,592 3,238 2,894 2,609 1,2.55 1.911 3,138 2,196 1,233 1,851 2,074 I 1.473 ( 2.093 I 1.148 i 1,534 I 1,617 I 1,435 1,011 I 1.427 , .577 ' 2,226 1.757 737 i 614 Third- class steerage. 4,. 396 3,982 2, .586 2,881 2,402 5, 287 3,496 .5,215 5,45') 3,771 5,862 2,696 7,509 6,133 7,909 5,161 6,618 2,621 8,629 7.637 13, 880 6,051 8,418 8.914 7■,.^30 9,237 10,804 7,912 6,588 9,706 9,266 6,619 5,254 4,683 6,667 4,290 6,668 4, ,538 3,343 2,195 6,520 4,849 2,651 7,814 5,036 4,322 6,241 2,980 10, 301 4,629 3,657 2,461 Con- sular passen- gers. 25 38 23 2 5 34 47 31 46 31 60 40 3 44 11 19 25 53 9 126 31 53 23 7 48 23 43 35 47 74 20 27 7 80 46 28 105 48 19 90 4 116 7 500, 527 I 63, 766 I 92, 764 303, 383 2, 106 De- ported. 28 34 19 45 4 27 33 48 31 23 33 14 91 38 32 42 27 59 25 24 39 24 39 57 40 53 66 4S 24 63 74 46 4» 52 32 70 107 47 21 35 53 67 56 106 71 52 70 16 89 35 55 65 2,389 The Chairman. Do you recall the number of steamships that are enf!:aitaL despite the fact that meanwhik' the husband had sent money to T^llis Ishmd and it had been returned to him. There is another question tliat Mr. AVallis is considerin5 Taormina 1, 941 F. Palasciano 1, 222 Norwegian-America : Stavangerfjord 900 Bergensfjord 860 Polish - .Ajnerican Navigation Corporation : Gdansk 750 Red Star: Lapland — 1. 211 Kroonland 814 Finland 797 Zeeland 962 Gothland 1.320 Scandinavian-American : Oscar II 700 Hellig Olav 700 United States 700 Frederik VIII 625 Sicula Americana : Gmrlielmo Pierce 927 Spanish : Antonio Lopez 754 Isla de Panay 230 Manuel Calvo 982 Leon XIII 916 P. de Satrustegui 952 Buenos Aires 402 Montevideo J<82 EMEKGEI^rCY IMMIGRATION LEGISLATIOlSr. 373 Spanish — Continued. Montserrat C. Lopez y Lopez Keina Ma. Cristina_ Alfonso XIII Swedish-American : Drottniniiholm Stockliohn Traiisathuiticu Italiana : Dante Ali^hieri ({iuseppe Verdi United American : Mount Clay Capacity. 600 342 518 997 G95 794 1, 5.30 1, SoO 1, 3.")0 United States IVIail : Susquelianna Princess Matoika. White Star: Olympic Adriatic Baltic Cedric Celtic Cretic Canopic Capa 1 1 city. 200 800 028 252 454 420 334 402 372 Grand total 105, 969 Statement of the' transatlantic lines givino steamers expected to come into service during 1921, capacity for third-class carryinys of each steamer. American Line: Capacity. Minnekahda 2, 150 Anchor Line: Cameronia 1, 082 Algeria. 100 Baltic Steamship Corporation : :Mercury 1, 700 Cosuiich: San Giusto 1,100 Cunard : Scythia 1. SOO Tyrhennia 1, 187 Red Star: Poland 1, 380 Samland 1, 380 Following are not being operated at present : American Line: Capacity. St. Paul 331 New York. I'hiladelphia 358 Witlidrawu from transatlantic service : National Greek Line : Capacity. Patris 990 Iloyal Mail Steam Packet Co. : Capacity. Orduna 500 Orhita 500 Oropesa 300 United American Lines : Mount Clinton 1, 200 Mount Carroll 1, 20P United States Mail : Amphiou 1, 256 White Star Line : A'edic 1, 200 Arabic 1, 870 Capacity. 430 Steamers of the German lines in the transatlantic sei'vice in lOl.'f. Steamer's old name. Present name if changed. Owner. Remarks. Arcadia • Atlantic & Adriatic Steam- ship Co. V. S. Fox Steamship Co. . . United States Shipping Armenia ' Sterling. Tied up at Newport News; disposi- tion undetermined. Amerika ' America Barcelona ' Ancona Board. ! reflttinp, date of commission 1 undetermined. Italian Government Not, in triins-AtlnTitir sprvifp- nn Barbarossa ^ Mercury Baltic Steamship Corpora- tion. French Government White Star Line data available. Batavia ' undetermined. Disposition undetermined. Refitting for Mediterranean trade; ready in spring. On sale to British nationals only. Berlins Arabic Bremen ^ B ritish G o vernment Bosnia ' Bulgaria ' Philippines United States Shipping B randenburg ^ Board. " undetermined. Breslau2 Bridgeport Cassel2 French Government 1 Disposition undetermined. British Government Placed on sale to British nat (uals Chemnitz - 1 only. 1 Formerly of the Hamburg American Line. 2 Formerly of the North German Lloyd. 374 EMERGENCY IMMIGRATION LEGISLATION. Steamers of the (JcniKin lines in the lidHs-Mlitiitic serrii-e in I'Jl'i — Coiitiiiiied. Steamer's old name. Cincinnati'.. Cleveland » s. Corcovado ' ' . Frankfurt - Friederich der Grosse.2 < Furst Bismark ^-... Present name if changed. Covington King Alexander. . Guglielmo Peirce. Huron San Giusto. Owner. Army Transport Service. M. — George Washington Grosser Kurfurst -^.\ Aeolus . Hamburg ' ' I New Rochelle. Hanover ' . . Imperator ». British Government United States Shipping Board. Italian Goverim:ient British Government United States Shipping Board. ....do Kaiserin Auguste Victoria.! Koenig Albert 2 3. . .[ F. Palasciano. Kroprinzessin Ce- I Princess cilie.i ■• j Kronprinzessin Ce- 1 Mount Vernon . cilie.2 Kaiser Wilhelm der 1 Grosse.2 ' Kronnrinz Wil- I Von Steuben. helm 2. Koeln 2 Amphion. Koenin^en Luise - Pallanza i Patricia 1 Pennsvlvania ' ! Nansemond. Pisa' Ascutney. President Grant ' Baltic Steamship Corp. British Government ....do do Italian Government. Ellerman's A- Bucknall Steamship Co. United States Shipping Board. United States Shipping Board. ....do British Government. President Lincoln i.| Pret oria ' Prinz Adalbert ' Prinz Oscar' Orion. Prinzess Irene 2 Pocahontas.. Rhaetia',3 Black Arrow. British Government United States Shipping Board. Atlantic & Adriatic Steamship Co. United States Shipping Board. Army Transport Service. British Government United States Shipping Board. .do. .do. Rhein 2, a Susquehanna. Rugia ', ■• Moltke 1, 3 Pesaro Main 2 Neckar2 i Antigone. British Government United States Shipping Board. 1 Formerly of the Hamburg American line. - Formerly of the North German Lloyd. 'Now opei'ated in trans;itlantic servict^. * Now operated, but in other than transatlantic trades. .do. British Government. Italian Government. Remarks. Torpedoed during the war. Now operated by National Greek Line in -N'ew York-Mediterra- nean trade. Now operated in New York-Medi- terraiican trade. On sale to British nationals. Munson Lit:e, to l,c turned over to United .'-tates Mail; now in South American trade. Operated by the Cosulich Line in the New York-.\driatic trade for one trip (in February, 1921). On sale to British nationals. United .^tates Mail; refitting; d^te of commission undetermined. Munson Line; now in South Amer- ican trade. Now in New York-Havre-ranzig trade. On sale to British nationals only. Cunard Line, now in trans-.\tlaritic trade to Cherbourg, Southamp- ton. Now operated by Cunard Line in New York-Liverpool trade. Now operated by Navigazione Generale Italiana in New York- Mediterranean trade. Operating in United Kingdom India Service. Refitting; to be operated by United State? Mail Steamship Co.; date of commission undetermined. Torpedoed during the war. Tied up at Hoboken; disposition midetermined. Refitting; to be operated by the United States Mail Steamship Co.; date of commission unde- termined. On sale to British nationals only. No data available; not in trans- Allantic trade. On sale to British nationals only. Tiedup; disposition undetermined. Tramp trade: in hands of receiver, G. W. Sterling, receiver. Refitting; to be operated by United States Mail Steamship Co.; date of commission unde- termined. Torpedoed during the war. On sale to British nationals only. No data available. Refitting: to be operated by United States Mail Steamship Co.; date of commission undetermined. Do. Now operated by the New York & Cuba Mail Steamship Co. in New York- .Spain trade. Now operated by the United States Mail Steamship Co. in New York-Bremen-Danzig trade. Now operated by Urion Castle Sieani.sliip Co. in South African trades. Now operated bv the Lloyd Sa- baudo Steamship Co. in New York-.Mediterranean trade. On sale to British rationals only. Refitting; to be operated by the United States Mail Steamship Co.; date of commission unde- termined. EMERGENCY IMMIGKATIOX LEGISLATION. 375 (Steamers of the Gcniiun lines in the transatlantic service in lOl.'i — Continued. Steamer's old name. Present name, if changed. Owner. Remarks. LaBordonnais To be operated in the New York- Seydlitz - . . Havre trade. Tied up at Bremen. WOlehads Wyandotte Leviathan United States Shipping Board. do Tird up at Newport News. Tied up at Hoboken. Hansa Hamburg American Line. To be operated by the Hamburg American Line in the New York- Hamburg trade in conjunction with the Uiiiled American Lines. 1 Formerly of the Hamburg American Line. 2 Formerly of the North German Lloyd. Steamers not operated in tJie trans-Atlantic service in Idl.). Steamer's old name. Present name, if changed. Owner. Remarks. Bluecherii' Leopoldina Mount Clay Princess Matoika.. Brazilian Government United American Lines.. United States Shipping Board. This steamer- was leased by the Priiiz Eitel Fried- rich. 2, 3 Prinzess Alice 2, 3... Brazilian Government to , the French Government, who turned it over to the French Line, now operating in the New York- Ha\Te trade. Now operating in the New York- Hamburg trade. ^ Refitting; to be operated by the United States MaU Steamship Co. in the New York-Mediter- ranean trade early this year. ^ Formerly of the Hamburg American line. - Formerly of the North German Lloyd. ^ Now operated in trans-Atlantic service. Transatlantic steamers arrived at United States Atlantic j)orts for the period Jan. 1 to Jan. IS, 1921, and passengers carried. steamer. Ryndam Lapland La Lorraine Vasari Pesaro King Alexander. Braga Manchuria Regina d'ltalia. Columbia K. A. Victoria., Pannonia Stockholm Adriatic LaTouraine... Belvedere Megali Hellas . . Zeeland Stavangerfjord . Imperator Total . Port of departure. Rotterdam Antwerp-Cherbourg Havre Liverpool Naples-Genoa Piraeus Lisbon Hamburg-Antwerp-Cher- bourg. Naples-Genoa Glasgow Liverpool Patras Gothenburg Southampton-Cherbourg . Havre Trieste Piraeus Antwerp-Cherbourg Bergen Southampton-Cherbourg . Date arrival. Jan. 3 ...do.... .Jan. 4 ...do.... ...do .Ian. 5 Jan. 6 ...do.... Jan. 7 Jan. 8 Jan. 9 Jan. 10 Jan. 12 Jan. 15 ...do.... Jan. 17 Jan. 18 ..do.... ...do.... ...do.... First class. 97 213 119 6 83 36 130 96 165 119 100 86 26 293 1,693 Second cl&ss. Steerage. 302 413 462 23 379 344 469 ' 10 j 208 ' 133 I 421 262 160 '. 497 358 ! 141 482 1.511 1,380 479 50 1,0.S5 1,846 1,331 1,446 1,568 486 998 1,385 340 1,110 479 1,400 1,175 907 266 632 5,135 19,964 Capacity of 4 steerage. 11,800 1,600 ■483 t200 1,090 2,176 1,250 1,37S 1,450 552 980 1,583 794 l,2.i2 550 1,411 1,570 962 900 1,281 23, 262 376 EMERGENCY IMMIGRATION LEGISLATION. Cable rcpcyrts of steamers en route to United States ports. steamer. NewRochelle... Frederik VIII... Rotterdam Megan tic Vedic Dante Alighieri. Saturnia Saxonia Mongolia Port of departure. Expected date of arrival. Havre-Danzig Jan. 19 Copenhagen do Rotterdam do Liverpool ■ . . .do Jan. 20 ...do.... ...do.... Jan. 21 ...do.... Haveford (Pliila.')'.! Argentina Britannia La Savoie Duca degli Abruzzi. Gdansk do. Naples-Genoa G lasso w-Cherbourg London-Cherbourg Hamburg-Antwerp-Cher- bourg. Naples-Genoa Liverpool Trieste Marseille Havre N aples-Genoa Danzig Total. ...do.... Jan. 22 ...do.... Jan. 23 ...do.... Jan. 24 Jan. 26 First class. 176 75 275 50 Second class. 43 "92"!. 100 323 550 345 239 153 401 244 100 150 52 210 100 Capacity Steerage. of steerage. L076 612 I 1,896 i 531 620 I 1,650 ! 759 i 996 1,222 1,805 I 429 925 552 487 1,358 6M 1,600 625 2,000 1,100 1,200 1,550 759 976 1,399 1,740 1,113 950 790 503 1,277 7.50 2, 870 ; 15, eo2 18,332 The Chairman. Xow, Mr. Wliatniougli, we Avill hear you. STATEMENT OF ME. PERCY W. WHATMOTJGH, GENERAL PASSEN- GER MANAGER OF THE CUNARD STEAMSHIP CO. (LTD.), AND ANCHOR-DONALDSON LINES, NEW YORK CITY. The Chairman. Mr. AYhatmough, what is your estimate of the number of steamships engaged in transatlantic service carrying im- migrants at the present time? Mr. Whatmough. ]Mr. Chairman and gentlemen of the committee, I took out some figures that might be interesting to you, and I think they pertinently answer your direct question. At the present time there are 20 lines running across the Atlantic in the passenger serv- ice. The number of steamers is, say. 95. The total capacity of these steamers for the immigrants — that is, the third class — is about 106,050. That would give you, say. 1,150 immigrants per steamer. That is maximum capacity, if every berth were occupied. I estimate that the average number of trips that these steamers can make in their various trades — the long voyages and the short voy- ages — would be, say. nine trips per year. Of course, some steamers on the fast lines, and on the short routes, would make considerably more voyages per year than steamers running down, say, to Adriatic or to Grecian or to Levant ports. The average, we will say, would be about 9. Working on that basis. I think that the maximum number of pas- sengers that could be carried by all the steamers that we can see as available, including the 95, and the possible ones that could come into service in 1921, would be, say, 954.000. That would be the absolute maximum. I can not see any more. Senator Sterling. Do you know how many vessels there were in the passenger service in 1907 ? Mr. Whatmough. I could very well make it up foryou and give it to you accurately ; but if you could take an approximate statement I should say that it would be about 150. Senator Sterling. One hundred and fifty at that time as against 95 now? EMERGEXCY IMMIGKATIOX LEGISLATIOX. 377 Mr. Whatmough. As aorainst 95 now, Mr. Senator; yes, sir; that is, approximately. I don't think that would be so very far away from the exact number. I would say 150. Senator Sterlixg. If you can give exact data in regard to that, I would be very much pleased. ^Ir. ^A'hatmough. Yes : we will be verj' glad to do that. The Chairman. Will you prepare it, please, and send it in to the committee ? Mr. Whatmough. Yes. Senator Sterlixg. The reason I asked that question was because one witness stated that the maximum was reached in 1907, when there was something over a million that came. The Chairmax. Yes. !Mr. Whatmough. The carryings of all the lines in 1920 on a similar basis might be interesting to you, Mr. Chairman, and to the committee. From January 1 to December 31 the arrivals were 500,500. The number of departures were 30.3.300. That made the excess of arrivals of immigrants in 1920 over de- partures 197.200. That is the net increase. The Cunard lines and Anchor lines, whom I represent, in 1920 brought in, westbound, 67,324. If the steamers had been loaded to their full capacity they could have brought 85,603. The Chairmax". AMiat time is that you are dealing with? Mr. Whatmough. In the year of 1920. January 1 to December 31. Eastbound we took out 47,655 ; roughly, about three-quarters of those that we brought in. Senator Sterlix'g. IMay I ask you this : How do the departures and arrivals in 1920 compare with the arrivals and departures of pre- vious years? Have you had occasion to go into that? Mr. "Whatmough. I think I could do it for all the lines very readily if you will permit me to get that information. The Chairmax"". There is a call for the Senate, and you can go on at a quarter past 2, can you, INIr. Whatmough ? Mr. Whatmough. Certainly, Mr. Chairman. The Chahimax. Very well; we will take a recess until a quarter past 2. (Thereupon, at 12.05 p. m., the committee took a recess until 2.15 o'clock p. m.) after recess. At 2.15 o'clock p. m. the committee reassembled pursuant to the taking of recess. The Chairman. The committee will come to order. Mr. What- mough, take the stand please. STATEMENT OF MR. PERCY W. WHATMOUGH. GENERAL PASSEN- GER MANAGER OF THE CUNARD STEAMSHIP CO. (LTD.) AND ANCHOR-DONALDSON LINES, NEW YORK CITY— Resumed. The Chairman. You may proceed, Mr. Whatmough, from where you left off at the time we took a recess. Mr. Whatmough. Mr. Chairman, I was asked specifically this morning by your good self, I believe, as to the total number of ships that were in the passenger service in 1907, and that I replied ap- 378 EMERGEXCY IMMIGRATION LEGISLATIOX. proximately, as near as I could perhaps make a guess, it would be 150. Since then Mr. Morse has been good enough to take out figures for me that show that there were 177 ships that actually ran in the passenger service in 1907. The Chairmax. Does that conflict in any way with the testimony that only 100 would be available ? Mr. WiiATMouGH. In 1921? The Chairman. Yes. Mr. "Whatmough. Xo. Mr. Chairman. Senator Dillingham also asked me about the proportion of the incoming to the outgoing passengers over a series of years. We have a table here, and I have taken the figures from 1893 up to 1920, that is 28 years. In those 28 years the arrivals were 14:.672..571. The total departures were 6,530,425. The difference between the two making an excess of arrivals over departures of 7,742,146. The Chairman. During how many years ? Mr. Whatmough. Twenty-eight years. Senator Sterling. From what period to what period ? Mr. Whatmough. 1893 to 1920, Senator. Therefore, the departing people approximately are 50 per cent of the arrivals. We carried that out a little bit further. The average arrivals per year for those years were 524.000. The average departures were 247.512. So that the average of the arrivals over the departures, or in other words the annual increase in the population, would really be about 276,508, people as against the 197,200 in 1920 previously mentioned. I think, this morning, Mr. Chairman, I got up to the point where I mentioned the Cunard and Anchor Lines' figures. Some carrying- capacity figures were given; that eastbound we had carried 47.655. I think that is the point where I left off in my statement. I have the capacity of every Cunard and Anchor Line steamer now running, in 1921. Eleven steamers. If these 11 steamers were filled to their utmost capacity we could not bring more than 65.000 people over in 1921. Supposing that we got three new ships in service in 1921 — I don't know that we will, but we may, possibly — wa shall have one or two, certainly, in a month or two — and, assuming that these three ships made six voyages each, and that is a liberal estimate, they might carry a maximum of 28,500 people. That would put our total ca- pacity for the year 1921 up to about 95,000 people at the utmost. It may be interesting, perhaps, to mention that the largest num- bers that the Cunard Line ever carried were in 1906 and 1907. In each of these years we carried- about 135.000 people. Our biggest years in carrying the eastbound. or departing passengers, were in 1908 and 1911. and in these yeai-s we carried about 62.500 each. The following is illustrative of the point that you made a little while ago as to whether the 177 steamers in 1907 could be compared with the 95 to 100 that are available at the present time. In 1914 the Cunard and Anchor Lines had 27 passenger ships in service. To-day we have only got 11. And the reason, of course, is perfectly well known. I can give you the names of the ships that we lost if you would like to hear them, such as the Lus't'Oiin. Fvmiconia. Laronia^ Iveimia^ EMERGENCV IM:*1IGKAT10X LEGISLATION. 379 €arpathm, Tuscania^ Andania, Alunia, Ascam'a, Ausonia, Aurania, Transylvania, TJltonia, Peniffia, Caledonia^ California^ Cameronki — all of them at the bottom of the sea. Senator Sterling. Were all of these vessels of the Cnnard Line? Mr. Whatmough. All vessels of the Cunard and the Anchor Lines. Senator Stekling. All vessels of the Cnnard and Anchor Lines? Mr. Whatmough. Yes; all passenjier carriers bnilt for a specific purpose, and, of course, steamers of that caliber are built for specific trades. The Maurctanias and Olympics and Aqiutaniax and Inti- jjerators can only live on one trade : for instance, between Xew York and the English Channel. Thoy Avould be of no use anywhere else. And that applies more or less to every trade, practically, in which a large company is engaged, because they build these passenger steam- ers for particular trades, they adapt them to those trades, and that is one of the reasons why joa can not at the present day replace those steamers that you have lost, readily. It takes quite some time to do so. Senator Sterling. Well, do these lines contemplate building steam- ers so as to have the number originally owned, do jow think? Mr. Whatmough. In course of time, if the trade warrants, we shall undoubtedly build steamers to provide for it. The Chairman. Are any of the Cunard steamships on their way over to New York at the present time ? Mr. Whatmoltgh. Yes, Mr. Chairman. The Chairman. Do you know whether they are loaded to their full capacity or not ? ]Mr. Whatmough. They are not, Mr. Chairman. Would you like me to instance them? The Chairman. Yes. Mr. Whatmough. The Saxonia at the present time is on her way across. She has a capacity of about 1.300, and she has 300 vacant third-class berths. The Imperator is on her way over. too. and she has a capacity of about 1,300, but she has 700 vacant third-class berths. The Chairman. From what ports did they sail ? Mr. Whatmough. The Saxonia is coming out from London, the Imperator from Southampton. The Chairman. Any others? Mr. Whatmough. Those are the only two that I know of our own lines and you would not. I dare say, ask me to speak for any others? The Chair:sian. In your opinion is there danger of the so-called flood of immigration from Europe? Mr. Whatmough. I don't think, Mr. Chairman, that there really does .seem to be any such real danger. The Chairman. In your opinion does such an emergency exist as to justify the temporary suspension of immigration called for by the Johnson bill ? Mr. WHAT>rouGH. Xo; I don't think there is such emergency. The Chairman. Does the present rate of immigration differ very much from the normal immigration? Mr. Whatmough. Might I ask whether you mean in volume or in character? The Chairman. Volume first. 380 EMERGENCY IMMIGRATION LEGISLATION. ^l^. WiiATMouGH. Xo; I think that the volume is more or less normal considering all circumstance. The Chairman. When you say "considering all circumstances" what do you mean by that ? Mr. ^^'IIATMouGII. That relatives, for instance, of the people that have been here for years and who have been separated from them for the period of the war naturally are coming across and are being brought across as quickly as possible. Senator Sterling. Well, that would swell the immigration above the normal, would it not i Mr. Whatmough. It would, Senator. The Chairman. What is the tjpe of the present European immi- gration — the character: better or worse? Mr. WiiATMorcH. I think it is rather above the usual class. The Chair^ian. Do you know whether there are more women among the immigrants now arriving than usual in proportion to men? Mr. Whatmough. I think that is quite a correct statement. Senator: quite correct. The Chairman. TMiat have you to say with regard to Ellis Island and the causes of congestion and detention there ? Mr. Whatmough. I think that the main cause of the congestion at Ellis Island is a shortage of competent staff: a shortage of ade- quate staff to deal with the numbers that are coming. The Chairman. Do you think the failure to obtain transportation by rail to the interior has an^'thing to do with the detention i Mr. Whatmough. It has. It has quite a little to do with it. Mr. Chairman. The Chairman. Have you anything further that you wish to state ? Have you any data that you wish to introduce ( Mr. Whatmough. Xo: ^Ir. Chairman, I think that I have given all the facts that I have at my disposal. Senator Sterling. I would like to ask you : Do your ships touch at southern and southeastern European ports? Mr. Whatjiough. Yes: we have three steamers which go up the Adriatic and call at Grecian ports. Senator Sterling. Are there many immigrants from northern and northwestern Europe coming out now by your lines? ^Ir. Whatmough. Yes : we bring quite considerable numbers from Great Britain and a fair proportion from Scandinavia. Senator Sterling. Any Hollanders? Mr. Whatmough. Hollanders would be in a very small proportion by our steamers. Senator Dillingham. Has your observation enabled you to observe what particular interests attract the Scandinavians to come over? Mr. Whatmough. Generally we have attributed to the Scandina- vians the following of agriculture and timber trades. Senator Dillingham. I didn't know but you had been among them enough so that you knew what their ambition was. Mr. Whatmough. Xo. Senator. Senator Dillin(;ham. All right. The Chairman. Thank you. Mr. Farley. Mr. Chairman, may I permitted to supplement my statement ? EMERGENCY IMMIGRATION LEGISLATION. 381 The Chairman. Certainly. Mr. Farley. The previous speaker mentioned that the steamers of the Cnnarcl Line were not comino- over filled tq capacity. I wish to say that the same applies to the American and White Star Lines. Oiii- steamer Megmitic^ now en route from Liverpool, is carrying approximately half her capacity; 530 passengers against a carrying capacity of about 1,100. The steamer Mongolia^ of the American Line, from Hamburg and Antwerp, is carrying about 200 less than her capacit}^, and we have been obliged to discontinue calling at Vigo, Spain, owing to the lack of immigration. We had from that port large numbers of very de- sirable immigrants that mostly went to West Virginia and Connecti- cut, but on account of the stories, we are told by our agents, of the lack of employment, and reports sent back by these passengers, the Spanish authorities have let it be known that immigration to the United States was not desirable. Senator Dillingham. How recently was that? Mr. Farley. Within the last few weeks. The Chair3ian. Are these steamers en route that you are speaking about ? Mr. Farley. These steamers that I just mentioned are en route from Europe, the Megantic from Liverpool. The Chairman. And what other? Mr. Farley. And the Mongolia. The steamer Megantic only picked up about 50 passengers at Queenstown, the Irish port; we usually get a couple of hundred there. The Chairman. Hasn't the immigration from Spain been quite heavy in the last five or six months? ]\Ir. Farley. Yes. It has been fairly heavy, commencing in about May, a very desirable class of immigrants. The Chairman. Do j^ou mean by what you testified to that the news of the state of unemployment here has reached Spain, and that it has had its effect? Mr. Farley. Exactly. The Chairman. That it has had its effect on the number coming over ? Mr. Farley. On the movement. Yes; in other words the law of supply and demand. The immigrants, as typified in 1908. won't come here if there are hard times in this country. And that is why the outgoing movement in those years was heavy and we are likely to see an increase in that movement right iioav. 1 think I might also say, Mr. Chairman, that as to the class of immigration we are bringing the best evidence of the fact that Ave are not bringing the decrepit or feeble class is the small percentage of deporta- tions that the lines are carrying. I believe that the figures of the Immigration Service wall show that we are carrying hardly 1 per cent of deports back, despite the fact of the rigid immigration law now in force and its application. This I think should be an evidence that the class of immigration that we are bringing to the country is not, as has been stated by some, poor and not able to comply with the law. The Chairman. Is it your opinion, then, that the adverse business condition here has a double effect upon immigration, or upon the immigration question ? 382 EMERGENCY IMMIGRATION LEGISLATION. Mr. Farley. It has, certainly. The Chairman. Xartielj', that it restricts the number coming in and increases the number poino: home? Mr. Farley. Yes, That is borne out, as I said, by the condition we had when we had the semipanic in 1907 and 1008. The fi^riu'es that were recited by the other o;entlemen, I think, show that very clearly. The Chairman. In j'our opinion is there danger of a so-called flood of immigration from Europe during the next few months? Mr. Farley. There is not, in my opinion. The Chairman. In your opinion does such an emergency exist as to justify the temporary suspension of immigration called for by the Johnson bill ? Mr. Farley. Not in my opinion ; no, sir. The Chairman. That is all. Thank you. STATEMENT OF MR. FRANCIS C. HARIEY. SECRETARY OF THE NATIONAL IMMIGRATION COUNCIL, ASTORIA, OREG. The Chairman. Mr. Haiiey, you are the secretary of the National Immigration Council, are you ? Mr. Harley. Yes. sir. I am from Astoria, Oreg. I am the na- tional secretary of the National Immigration Council, Mr. Chairman, I presume you want me to give you a resume of what the National Immigration Council consists and what it is doing i The Chairman. You may. Mr. Harley. The National Immigration Council consists of engi- neers throughout the United States who are as familiar with the unskilled labor situation as they are with any other class and who, in fact, are more familiar with the unskilled labor situation than any other class of professional men in America, because of the fact that they furnish more work for labor than does any other class, and they are themselves workmen. Our committee has been in existence for three years, and the study that we have been making has been a systematic study from one end of the United States to the other. The reason we made this exten- sive and systematic study of the labor situation was because of the waj' we were affected on the west coast by the question of unskilled labor. VCe never did have the source of supply of unskilled labor that the East has had. statistics showing that 75 per cent of the immigration entering the United States remained east of the Ohio River. 20 per cent of it coming to the territory l)etween the Ohio River and the Mississippi River, and less than 5 per cent of it coming west of the ^lississippi River or to the Pacific coast. Because of the conditions that existed in the West, the big under- takings that were going on, and, for example, the development of our water power, the reclaiming of hundreds of millions of acres of land in the ^Vest, we needed a great many laborers. AVe have been under- taking great irrigation and drainage projects, b\it these projects could not be carried on l)ecause we did not have the labor to carry them on with, and so naturally this was a question for the engineers to solve. Our committee planned to bring in Chinese labor for our Avork and our plans were going along well when the armistice came along. E-MEROEXrV IM.MIGilATION LEGISLATION. 383 Senator DiLLixcHA^r. And that stopped it i Mr. Harley. And that stopped it. And then it looked as though our work had been altogether unnecessary, because immediately the cry Tvas set up by our United States Employment Service Bureau that on account of the return of the millions of our soldiers there would be an enormous amount of unemployment, and it was said that within a few months we would have soup houses and bread lines extending from one end of the country to the other, because of the niiUions of our boys coming back and not being able to find employment, Xow. every one of our committee believed that such would be the case. We believed that when the soldiers did return there would be a tremendous amount of unemj^loyment. But when they did come back the}" were absorbed into our industrial life, and our industrial expansion was greater than ever before in our history, and the short- age of labor became more acute than it was during the war. And dur- ing the war the only reason why we were able to maintain our pro- duction in the agricultural section of the United States — and I am re- ferring particularly to the country west of the Mississippi River and in the far West — was because we sent our women and children into the fields to work. They patriotically responded to the need for help, and went out into the fields and worked during the war. The minute the armistice was signed, however, thev relaxed their efforts, and they refused to go any further, for which they are to be given credit, be- cause if we fought this war for democracy, we certainly are not going to peasantize our women and children by sending them into the fields like they do in Europe. We would not have gained anything by winning the war if as a result we would make peasants of them. Xow, there was a shortage of labor confronting us. Our work was laid aside for six months. In May the demand for labor again became ofreat. in fact it became greater than it had ever been before. The Chairman. May of what vear? Mr. Harlet. In May of 1919. Senator, because the armistice came in 1918. and we had then laid aside our work. In December of 1918 Ave laid aside our work and let it go. but in May of 1919 the demand for labor became as great again, or even greater than before, and many members of the committee thouglit that the work of the com- mittee should be pushed forward. But at that time our work was just sectional, we were only interested in our section, and working for that, but we realized that it would not be possible to get a pro- vision from Congress affecting us alone : that if we were to get relief it was necessary that we have an amendment to our law. because Congress could not give this help to one section alone, it had to be of national scope. Therefore we made it national, and started the movement to appeal to Congress for the modification of our pres- ent immigration laws as they existed, to make them more liberal, so that the illiterate immigrants could come in from Europe, for we believe that if there is any necessity for restriction, it would be lietter to restrict the intellectual from coming into the countrv. We don't need, as a matter of fact, any more merchants or peddlers, or junk dealers, but we do need pick-and-shovel men and farm laborers. Xow. we are supposed to have located out in our country the hot-bed of T. W. W.'s. I happen to be the mayor of a city in which is lorntpd 2nni 1 —21 — PT 7 ?, 384 lI.MKRfiEXCV IM.MICIIATIOX LKOTSI.ATIDX. a hotbed of I. W. A\'".s. and I have never found one of these jjeople in jail hut tliat was an eihicated fellow, and if yon had seen the books that some of them had with tiiem while the}' were in jail it would have surprised you. Many of them had verj' j^ood educations. Senator Sterling. ( )f what city are you mayor i Mr. Hakley. Astoria. Orep., at the mouth of the Columbia Kiver, Senator. Senator Sterlixo. You spoke about the ^reat demand in May, 1919, For Avhat class of workers was that demand i Mr. Harley. For farm labor and pick-and-shovel workers, because of the fact that there Avere no more pick-and-shovel workers nor farm laborers left. They iiad all been made skilled mechanics during the war. Senator Dillixgham. And how has it been since that time? Mr. FLarley. It has been absolutely the same. There are some points that I want to bring out here. I have had the opportunity of speaking all over the Ignited States before chambers of commerce, commercial l)odies. civic bodies, churches, and before all kinds of organizations on this question, and we have taken a ballot to ascer- tain as to how people feel on the immigration question. Senator Dillixgha^f. Xow. as the result of this, what amendment to the laAv are you recommending? Mr. Harley. The present laws are satisfactory, or we would like to have them even more liberal. Senator Dillixgham. In what respect? Mr. Harley. To allow the illiterate to come in : to allov,- the pick- and-shovel men. and the farm laborers, and the house servants to come in. and bar the others, the educated ones, because we find that the educated fellow is the agitator. Senator Dillixgham. Well, now, suppose the literacy test were repealed, what further would you recommend ( Mr. Harley. What further recommendation would I make ? Senator Dillixgham. Yes. Mr. Harley. In regard to handling the situation as to the labor conditions? Senator Dillixgham. For the modification of the present law. Mr. Harley. If there had to be any restriction, as some of our members have advocated, if that were necessary, and it was felt that something had to be d(me to safeguard the country as to the immi- grant coming in from other countries, why I would suggest that on^ immigrant be allowed to come in on an American bottom for every immigrant that is allow'ed to come in on a foreign bottom. Senator Dillixgham. Xo: but I understood you to say that you wanted the law so amended that a larger number of common laborers could come. Mr. Harley. I thought you asked me as to what suggestion I would make if there were to be restrictions? Senator Dillixgham. No. You first advocated the modification by repeal of the reading test. Now, if that was done, what further would vou lecommend ? Mr. ItlARLEY. Why, I would reconnuend that there be provision made, say, for the distribution of the-e i)eople into the sections of the country where they are needed. Neither the city of New York, noi- Chicago, nor any of the big cities needs more labor. But the EMERGENCY IMMIGRATION LEGISLATION. 385 aiivers. .S.j.W a day; sweepers. .'?.5.21 a day. Examined and appointed tlie day you make applinUiim. riomolion. < )i'p«>rruiiity for (piick advancenient to a responsible position. Vaea- ticm, medic-al and dental ;iitention. and pensions. Aiit\ I'l to 4.". For infor- mation apply here. And wherever yon pass one of these places where the cards are up you can go right in tliere and get tlie job. I could have gone in and gotten one <>t" tliese jobs ye.sterday. because I only got this poster yesterday. So you see it is recent. Senator Dillixcham. And how recently do you say that was issued i EMERGENCY IMMIGRATIOX LEGISLATION. 387 Mr. Harley. Well, j'oii can find those lithographed posters all over in the different parts of the city of Xew York. Senator Dillingham. AVell. I mean, when were they posted? Do you mean that these are bein4 in 1916; 46,088 in 1917; 12,926 in 1918, and 80,589 in 1919. Senator Sterling. Those are the arrivals? Mr. Sandford. The arrivals ; yes, sir. _ The immigration act of 1917 and the new provisions found in it. like the reading test, and the provisions for inspection of seamen, added to the scope and to the extent of the operations in the first World-War period— that is, the second half of 1914— in 1915. 1916, and part of 1917. 389 390 E.MtK<;EX( V l.MMlv.KATlD-X LlXilSl.ATIOX. Xow. with the extension of the scope of operations, the increase in the arrival of European steerage in 1920 was phiinh' more than the machinery found in 1920 could possibh* handle, despite the loyal and untiring effort of the veteran principal officers. The average of arrivals in steerage from Europe for the first half of 1920 works out roughly 6,500 persons weekly, and in the second half of the year the average is prohaltly 12.000 weekly. Naturally, the .-teamers do not come in on the schedule of a railway system and sometimes several steamers will arrive in one da}'. The number of seamen to be in- spected in 1919 and 1920 was probablv greater than it was in either 1917 or 1918. The remedy is in the hands of the Government, or in the hands of Congress, in respect to this very serious situation. Ellis Island to-day is what might probably be termed a barrier in the conduct of orderly transportation of a man who makes a journey which em- braces two continents, with the ocean between ^nd the effort to reach his destination in the interior of this continent. In fact, our excuse for making this presentation is that we consider it a vital spark in the present theory that there is an immigration menace. In analyzing Sir. Wallis's tables of the number of detained pas- sengers at Ellis Island — and he gave us a table over the period be- ginning with the arrivals of December 13 and ending with those that arrived on Deceml>er 28 — it is found that there are three prime causes of detention : First. Special inquiry. The practice appears to be that if the pri- mary inspector who receives the applying alien, after passing the medical examination upon arrival at the Ellis Island station, finds anything at all questionable in respect to the admissibility of the applicant, the applicant is immediately set aside and marked for special inquiry, which means that his case is thoroughly examined by a board of probably, on the average, three other immigrant in- spectors. The second category is known as "temporary detains." and on the average is double the special-inquiry detention list. They are detained for possibly one of five or more main reasons : Fir^t. Awaiting the appearance of some one at Ellis Island to claim the alien. Second. Awaiting some finishing proof of admissibility. Third. Arrivals without tickets to destination. As stated yester- day, this third cau^e of temporary detention is probably contributing more tlian any other cause to the total of the temporary detains to-day at Ellis Island. Fourth. The fourth cause is that a certain proportion of th? aliens, for reasons which can be elaborated if you please, have not sufl5cient cash money on arrival. Fifth. The fifth cause is that recently it became necessary, in the judgment of the commissioner, to limit the number of persons termed " callers '" at the Ellis Island station. This limitation is very serious. The aim was undoubtedly to reduce the number of people at any one time on the island in order that those who were there could better be handled. The third general heading of detentions comprises the proportions of persons admitted to Ellis Island Hospital upon the primary medi- cal inspection when the aliens arrive there. EMERGENCY TMAILGRATION LEGISLATIOX. 391 The total number of detentions in the period December 18 to De- cember 28, with respect to arriving vessels, for special inquirj', is reported to be 3,621. The total number of temporary detains, 5,592. The total number of hospital cases. 539. That is a statement of the number of those who were detained out of a total of 2T.06S arrivals. But the detentions overnight, which, after all. do cause the great problem for the commissioner, are very serious, indeed. On De- cember 13, according to this statement, there were 1.569 persons lodged at Ellis Island overnight. It varied throughout the ensuing days. Sometimes below, but usually above. On the night of De- cember 16 there Avere 2,011 people detained at Ellis Islan. SOI 91. 2>^ ■■5 1909 95,564 180,298 865,925 91.K;n 5:5,04; -7. ,45 1910 105,947 205,301 904, 183 KXi, i., JtU 28,776 191S 678 13,233 I.. :•- _..:.'_ 12.670 15,436 1919 43, i:a 49,902 8ection does apply to all. but in the sense of " immigration." the term " immigrant."' is it not customarily ap- plied to the European steerage type ? It is true that aliens come in all classes, but in that sense they are not all immigrants. Senator Sterling. It has no such lesral signification, probably, and the term " immigration " is too broad to limit it to those who take steerage passage. ^Ir. Sandford. In all the figures that we have filed we €:ive the carryings in the first cabin separate, and the second cabin separate, and in the third class separate. But apparently all our discussions have concerned the steerage type. Senator Sterling. You have no data, then, from which you could show how many passengers other than steerage passengers were really immigrants to this country? Mr. Sandford. The figures of the Immigration Service do not make that distinction. They simply deal with the alien, no matter how many times he may have been here. The Chair^ian. Are the ships arriving now carrying the limit of passenger service ? Mr. Sandford. Xot in all trades: from the north, no; from the south, yes. The Chairman. Are there some of your steamships now on the way? 5lr. Sandford. Yes: one. The Belvedere from Trieste, due here on the 16th. with about 1.400 steerage, which is her capacity. The Chairman. Are there any steamships from other ports? Mr. Sandford. Xo doubt. The Chairman. But you don't know the number ? Mr. Sandford. I don't know the number. EMERGENCY IMJVIIGRATIOX LEGISLATIOX. 397 Senator Sterling. Of what nationality will the immigrants on this vessel of which you spoke be ? Mr. Sandford. The Belvedere? Senator Sterling. Yes. Mr. Sandford. Southeast Europe and Italy. The type of the President Grant. You had the distribution of the President Grant yesterday. ^ There is still something else to be said about Ellis Island, in re- spect to the so-called money problem, and while apparently the sta- tistics show that considerable money is exhibited by arrivals, it is a very difficult thing for the alien, especially if he has a small amount of money, to keep it intact on a long journey, and by the Belvedere we will receive a list of those persons who have less than $25 or its equivalent in foreign money. Our inward-passenger department immediately communicates that lack to the person who is entered on the manifest as the alien's nearest relative or friend. But there is something else in the machinery at Ellis Island that should be given immediate attention. It was reported to you yester- day that a woman from the very same ship, the President Grant., had been detained in the hospital at Ellis Island, and that she had approximately $6 in cash, but on account of the lack of facilities for through booking had no rail ticket through to destination, which was probably Ohio. On arrival the information of the lack of funds had been given to the relative, and under the rule that seems to be universal, the necessary' money had been sent to the treasurer at Ellis Island, but on the discharge of the woman from the hospital there was no money. It had been sent back already by the treasurer's office to the sender. The CHAnniAX. Do the steamship lines encourage or incite immi- gration ? Mr. Sandford. Xo: and the law is definite that they shall not. Senator Sterling. Suppose an immigrant arrives at Ellis Island without money, but there is a friend or relative there to receive him; is there any need for the detention of that immigrant? Mr. Sandford. There should l)e none if it were possil)le to connect the two immediately: which leads to another very serious question at Ellis Island, a question which we listed as Xo. 5. It became necessary, in the ojiinion of the Commissioner of Immi- gration, about the 10th of Xovember, to issue a notice restricting the right of persons to go there to meet relatives and friends, and it is illuminating as showing another bar in this barrier, and as showing the need for the restoration of Ellis Island to its true function of a ■clearing house instead of continuing it as a detention camp. It became necessary to try to solve the problem which the issue of this notice brought upon us. And that ])roblem is not yet solved, especially in respect to the i)ersons who are to go to the interior, the very same ]->eople who are held at Ellis Island, because we can not through book them. Senator Edge. Xow, in such a case you notify their friends that they have not sufficient money to reach the place of destination ; that they have not enough money to purchase a ticket What do you do with such immigrants if the money is not forthcoming, or if the tickets are not forthcoming? 398 EMERGENCY IMMIGRATION LEGISLATION, Mr. Saxdford. In process they would likely be deported as likely to become a public charrds. we found that our law requirintr the steamship companies to inspect these immiirrants at the port of embarkation had gone clear beyond in its effect, bej'ond what we required, and that the (Tovernments of those countries where the ports are located, in order to protect themselves against other countries, had put in these control stations, so that in addition to the 13.000. in round numbers, that were rejected at our ports, there were rejected at the foreijin ports of embarkation and at these control stations 39,000. Senator Sterlixo. That was what year? Senator Dillingham. 1907. Senator Sterling. One year? Senator Dillingham. In the period of 13 months beginning with December. 1907. Senator Harrison. Do the steamship companies ever try to bring influence to bear, either directly or indirectly, on the officials at El- lis Island to take in certain immigrants that are brought over here wno should not be taken in ? Mr. Sandford. Xo. Senator Harrison. Of course, the law is against it. but I was won- dering whether thev would wink at it. Mr. Sandford. Xo. Senator Harrison. It is. of course, to the interests of the steam- ship companies not to take over those who would not be admitted iiere. Mr. Sandford. If it would interest you. let me sav that at times when there has been no disturbance like the "World War it was the practice of the steamship companies to exchange the names and ad- dresses of rejects at European ports, and. in fact, many of the lines sent a duplicate of that list to Ellis Island as of possible advantage to the Ellis Island officials in case any of those people who had been rejected miffht slip through by chance or by error. Senator Harrison. That was very commendable. Senator Dillingham. I want to inquire of the witness whether this practice is still kept up. that I have mentioned, of maintaining those control stations on the borders of the European countries? Tiie Chairman. By the Governments ? Senator Dillingham. By the Governments. Ml'. Sandford. I am not informed. But it is possible to testify as to one's own business, and I might say that before a steerage pas- senger is allowed to embark he is examined about six times. He is examined in the first instance by the local agent. The Chairman. What do you mean by the local agent ? Mr. Sandford. It is impossible to handle steerage business only from the port'^. It is necessary, as in all businesses, to have one's agents in local districts. The Chairman. The local agent of the steamship company? Mr. Sandford. Yes. If the local agent discovers that the appli- cant is plainly inadmissible he is Stopped at home and does not move any farther. Senator Sterling. You say the local agent in the district: just where is that local agent stationed ? You spoke of a district : does that mean a port or a city of embarkation ? EMERGENCY IMMIGRATION LEGISLATION. 403 Mr. Sandford. In the interior. Senator Sterling. In the interior ? Mr. Sandford. In the interior of Europe, Senator Sterling. Well, do you have these local agents scattered out through different portions of Europe ? Mr. Sandford, As necessarj\ and in the territory that is geo- graphically contributory to the ports at which the steamers call. In the same way we have local agents throughout the United States. Senator King. Does every individual steamship company have an agent, or does one agent act for the various steamship lines? Mr. Sandford. It has been the practice in the United States to centralize upon a reliable man in the locality. Senator Edge. Why do you have them in the United States? Doesn't all this examination take place before they arrive at Ellis Island? Mr. Sandford. Because we have our eastbound business, and also because from time immemorial we have sold tickets in America for transportation from Europe. Senator Sterling. Do these local agents know of all intending immigrants, or isn't it a fact that immigrants appear at the port and ask to be booked for passage, without ever having seen any local agent ? Mr, Sandford. Oh, yes. But there is an initial investigation; in certainly 75 per cent of the cases it begins close to the home of the person who wishes to emigrate. Then, if the intending emigrant passes that examination, he has to obtain the passport of his own country: and then, third, the vise of the United States consul. The Chairman. Do you know anything with regard to his ob- taining the passport from his own country? > Mr. Sandford. Xo. Nor of the regulations of the State Depart- ment concerning vise. They are confidential. Senator Edge. Can you tell me in round figures how many immi- grant passports were viseed in a year: that is, immigrants coming into this country from Italj'^? Mr. Sandford. No. •Senator Edge, Well, it was something around seventy or eighty thousand, wasn't it. in one year? I Avas just wondering, to go back to the same question again that I asked before, how the political activity of the immigrant would be investigated in 70.000 cases by three or four United States consuls. Mr. Sandford. There are six consuls at Naples alone. Senator Edge. You mean assistant consuls and men located in the consul's office? Mr. Sandford, No: specially accredited as vise vice consuls. Senator Edge. I should think it would be necessary to have all of them. In fact, I should think it would be necessary to have 600 to investigate properly. The Chairman. You were proceeding, Mr, Sandford. to state the number of examinations. Mr, Sandford. Yes. First, the initial examination, if the appli- cant applies near his home or to the steamship company direct; second, the passport of his own country: third, the United States vise. If all those formalities, those three, are passed satisfactorily 26911— 21— PT 8 2 404 EMERGENCY IMMKiRATIOX LEGISLATION. the person ojoes to the seaport -wliere he is examined twice medically by tlie company. And a third time medically by the ship's sur-one throuiih his f)wn (iovernment's examina- tion for passport. Senator Steri.ixg. I understand. He has a passport. Mr. Sax'dfoijd. Yes. Senator Sterlix'g. And my question assumes that he has his pass- port, and that he ajjpears at the seaport before the steamship com- pany's agent with his passport. Mr. Saxdford. Yes : and with his vise. Senator Sterlix(;. Xow. is there any examination as to the means that he has. his financial means, by the steamship company? Mr. Saxdford. Invariably. Senator Sterlixg. Then how is it that so many arrive at Ellis Island without any means at all i You must take them. then, know- ing that they could not have the means to su]:)port themselves for any length of time after they reach here. What assurances do you have that he Avill not become a public charge after he ari'ives in America i Mr. Sax'dford. Why, we get that by questioning him, and by de- termining what place he is going to, his occui)ati()n. the relative or friend he has there. Xow. whether the man has !2.000 lira at 3^ cents, or 500,000 crowns at 1| cents, is not the most important thing. And if one studies the deportations under the 5-year provisions, be- cause the carrier is responsible for five years after he has landed an alien, if one studies those warrant case statistics, one finds that the number who are returned is very small in proportion to th^ total who arrive. It is a small percentage. Here is Mr. AVallis's list from the December 13 arrival of the Aqulfanm to the December 28 arrival of the Objnipf'c. and while the totals of the primary detentions are large, the final analysis of the deportations shows an average of about 1 per cent deported out of the total landed. Senator Harrisox. Are there many cases where they are robbed coming over? Mr. Saxdford. I'ndoubtedh". Senator Harrisox'. Of course, those that do the robbing are not verv desirable citizens. EMERGEXCY IMMIGRATIOX LEGISLATIOX. 409 Mr. Saxdford. Oh. do you mean robbery amono; themselves or by the crew ? Senator Harrisox. Yes. Mr. Saxdford. I don't think there is much of that. We don't have many complaints. There has been one specific complaint only dur- ing the past year. Senator Harrisox. If you should take some of the citizens who live down my way and put, say, 100 of them on a steamship and start them off for Europe, by the time they would arrive there one fellow would have all their mone3% and he would get it by shooting craps. 1 wondered whether they gambled. Mr. Saxdford. Xow. there is a condition that Ave have to guard against carefully. If a man is robbed on board a ship, almost in- variably he would try to sue the steamship company. Senator Harrisox. I didn't hear the statements made by the repre- sentatives of the steamship companies yesterday, because I had to be on another committee. I have a question that I want to ask: Has there been placed in the record a statement of how manj^ steamships are available now for bringing passengers over here, and how many there were before the war, and whether or not there is an increase now? The Chairman. There was a statement put in the record. Senator Harrisox. Does it show that there is an increase in the number or a decrease ? Senator Ketes. A decrease now. The Chairmax. Due somewhat to the submarine. Senator Harrisox. Yes. Well, I thought perhaps that was so. But are the different countries now building a good many ships and getting ready so as to have more ships available ? Mr. Saxdford. The passenger program of all the established steam- ship lines does not disclose even a replacement of the losses from submarine sinking. The Chairman. We went into that yesterday and the prospective increase in the next year was given. Do you want to ask this witness any more questions, Senator Harri- son? Senator Harrisox. Xo, Mr. Chairman. Mr. Saxdford. Senator, would it be wrong to ask permission to round out the attempt at a narrative of the Ellis Island trouble The Chairmax. Well, do you mean to write it out and hand it in in the form of a statement ? Mr. Saxdford. Yes. The Chairman. And hand it in to the committee for the record, do you mean ? Mr. Saxdford. Yes. Would the committee give me permission to do so ? The Chairmax. Yes: you may hand it in in the form of a nar- rative to the committee. Mr. Saxdford. Thank a'OU, The Chairmax. We are very much obliged to j^ou, Mr. Sandford. We will now take a recess until 2.15. (Thereupon, at 12 o'clock noon a recess was taken until 2.15 p. m., Thursday, January 13, 1921.) 410 EMERGENCY IMMIGRATION LEGISLATION. AFTER RECESS. The committee resumed at 2.15 o'clock p. m., pursuant to recess. The Chairman. The committee will please come to order. I have in my hand a communication from the George Washinfrton Society, in ^vhich that society passed certain resolutions in regard to the Johnson bill. They may go into the record. (The communication from the George AVashington Societ}^ is here- with printed in full, as follows:) The (Jkorck AVashingtox Socikty, Baltiniorr, Mil., January 12, 1921. Hon. LeBaron B. Colt, Chairman Committee on Immigration. United States Senate, Washington. D. C. Dear Sir: The passage of the Johnson bill is favored by the George Wash- ington Society of America as per resolution unanimously adopted at the last meeting to tlie following effect.: "Be it resolved by the George \Vashiugton Society of America that this society, upon full consideration of the report and recommendation of its special committee on immigration, request the Senate of the United States to promptly pass the Johnson bill now pending before it. and under no circumstances permit any amendment that will shorten the period of the suspension of immigration; and that a copy of the resolution and report of the committee be forwarded to the Senate of tlie United States." I am, therefore, presenting a copy of the report through you to your com- mittee and to the Senate, and respectfully urge that favorable action be taken in accordance with sucli recommendations. Very truly, yours, Albert Phexis, President. To the George 'Washington Society: This committee was appointed to report to this society at its meeting held this 17th day of December. 1920, its view as to the stand the society sliould take upon tlie matter of immigration, and its view as to the way in wliich the stand taken could be most effectively expressed. We report as follows: 1. That this country belongs to the present citizens of the United States, and all laws, passed by Congress should have in view the preservation of our Ameri- can Government, with all the ideals that from the birth of the Nation have been understood to be characteristic and fundamental. 2. That the population of this country when it achieved its independence and established its form of government was something over three millions. Condi- tions then existing attracted, and the country needed, those hardy and desirable people who then came to its shores, and who together with our own pioneers pushed forward its frontiers. They promptly qualified themselves to become, and did become joint possessors, with ©ur Revolutionary stock of the richest and most favored land the world has ever known. It has ever been the pi-oud boast of our people that we welcomed to our shores, as joint possessors with us, those who left less favored lands, and less desirable forms of government to cast their lot with us, and promptly renounced allegiance to the lands from which they came and gave allegiance to our country and its laws. So lar.ge is our territory, and so seemingly inexhaustible our resources, that the num- ber of immigrants who came here prior to 1820 is a matter of conjecture be- cause they came apparently unnoticed. In 1820. however, our population was over 9,500,000. From 1820 to June 30, 1919, the number of immigrants com- ing to this country was over 33,000.000. Our present population is 105,(X)0,000, of which 15,000,000 to-day are aliens. America, as we understand it. liolongs to this 90,000,000 of American citizens, the great majority of whom must be imbued with the spirit of true Americanism, and therefore firmly patriotic, unalterable in the belief that for us there is but one form of government, but one flag, and they should be determined to preserve the blessings we now enjoy to us and to our posterity. EMERGEXCY IMMIGEATION LEGISLATION. 411 That 1 person in every 7 now rosidiuii in tliis country is not ;i citizen of America sliows beyond doul)t the existence of a condition, at lionie, that awakens appreliension, and calls for most .serioiis consideration, and this situa- tion so impresses your conmnttee that it feels constrained here to announce as a self-evident corollary to the fact stated at the outset of this report, that a foreigner has no inherent riiiht either to live here or to become a citizen of this country, and he can do neither except as a matter of privilege from us, and that we. the people of the United States, have the right say whether or not he shall enter our country at all, and from time to time to make such regula- tions regarding his entry, his residence, and his adoption as a citizen, as in our opinion, as expressed tlu-ough Federal legislation, seem to us to be consistent with the general welfare of our people. The present immigration laws, in normal times, with the nations of the world in normal conditions, if properly enforced, we submit, would keep from our shores moi^t of those who possess characteristics or qualities or intirnnties, or views that prohibit their entrance, because these law^s prohibit the lanropriate resolutions exitress to the Senate of the United States its ai)proval of this measure, and retiuest the Senate to promptly cousider and pass the same, and uniler no circumstances i>ermit a shortening of the period of the suspension of inunigration. Respectfully submitted. By the Committee. The Chairman. :Mr. H. A. McBride. STATEMENT OF MR. H. A. McBRIDE, VISE SECTION, PASSPORT CONTROL DIVISION, DEPARTMENT OF STATE, WASHINGTON, D. C. The Chairman. Mr. ^IcBride, 5^011 are connected with the vise officer, in the Department of State, are you not? jNIr. McBride. Yes, sir. The Chairman. How loner have yon been in the Consuhir Service, or connected with the department? !Mr. McBride. Thirteen years. The Chairman. Will you state Avliat the law is Avith regard to visees? Mr. McBride. Under the present regulation every foreigner de- sirous of coming to the United States must obtain a vise from the American consul in the district where he resides abroad. Senator Dillingham. And upon what subjects is he examined ? Upon what conditions is the vise granted ? Mr. McBride. Well, he must have a birth certificate, and. if he is married, a marriage certificate. Of course, he must have a passport from the Government to which he owes allegiance. Those are all of the substantiating documents that he presents. Senator Dillingham. Well, that was under the act passed during the war? Mr. McBride. Under regulations based upon that act: yes. sir. Senator Dillingha:m. Well, does that inquiry go beyond the points that you have mentioned? Mr. McBride. Yes: we endeavor to ascertain whether or not the person is eligible under the immigration law. Senator E>illingham. In what respect ? Mr. McBride. Well, whether or not he is a contract laborer: whether he is illiterate. And we try to ascertain whether or not the person is mentally deficient. I think there are 23 categories of persons not allowed entry under the immigration law. We have not the authority, however, to refuse a vise to a person because ho is not eligible to enter the United States under the immigration law. Senator Dillingham. Will you repeat that? Mr. ^IcBride. A consul does have the authority to refuse a vise to a person Avho is not eligible for admission into the United States under the immigration law. Senator Dillingham. How far does his authority go? That is just what I want to know. Mr. McBride. Well. Ave grant him a vise unless he is an anarchist or some one connected with societies whose tendencies are against orderly government. EMERGENCY IMMIGRATIOX LEGISLATION. 413 Senator Dillingham. So the examination does not amount to much of anything; is that what you mean to be understood as raying ? Mr. McBride. I beg your pardon, Senator? Senator Dillingham. I thouglit from the way you spoke that the examination Avas not very comprehensive and would not amount to very much in determining the character and fitness of the man, generally speaking. Mr. jNIcBride. The examination is thorough. l)ut under the present laws we haven't the authority to refuse a vise if he is an illiterate. That is a function Avhich must be carried out upon arrival at an American port by officials of the Immigration Service. The Chairman. Supposing he is an anarchist i Mr. McBride. We refuse a vise if he is an anarchist. That is by a special proclamation of the President, I think. Senator Dillingham. Supposing he says he is not an anarchist; to Avhat extent does the consul go in making inquiries regarding that subject? Mr. McBride. Why, we inquire, when we can. as to the character of the man. Sometimes it is very difficult to ascertain. Sometimes we have not the staff to go very throughly into the details of each case. But they are doing all that the}' can abroad. Senator Dillingham. Is there any organized system of investiga- tion preceding the granting of a vise? Mr. McBride. There is at some posts ; yes, sir. Senator Dillingham. There is at some posts; Avhat does that mean ? Mr. McBride. That means at the posts where the largest number of vises are being granted, and where Ave have a force large enough to do that sort of thing, such as Naples, Paris, and several other ports abroad. Senator Dillingha3i. Hoav long a time is required for that? Mr. McBride, It depends upon the nature of the case. Sometimes tAvo or three days, and sometimes tAvo or three Aveeks. Senator Dillingham. After the applicant has applied!' Mr. ^IcBride. Yes, sir. Senator Sterling. SupjDosing he is a criminal. HaA-en"t you. then, any authority even, to refuse him a vise because of that ? Mr. McBride. No. sir. The immigration laAV. as I understand it, gives every alien the right of appeal upon his arriA^al at an American port. Senator Dillingha:m. Can you refer us to the laAv under Avhich these examinations are made: the date of it. when it was passed? Mr. McBride. The immigration hiAV, do you mean? Senator Dillingham. Xo: the hiAv under Avhich this Avork is done by the consuls? Mr. McBride. Why, there are two or three laws and tAvo or tliree proclamations. I can furnish them if you Avish. Senator Dillingham. I Avill be glad to haA-e you do so, if you please. Mr. McBride. I Avill furnish that information, sir. The Chairman. Your discretion, then, as to rejection extends solely to the rejection of a person Avho is an anarchist? 414 EMERGENCY IMMIGRATION LEGISLATION. Mr. McBride. Well, because of the present state of war with Ger- many the authority extends also to enemy aliens. The Chairman. Have you prepared a table as to the number of rises gi'anted at different consular points in Europe ? Mr. McBriue. Yes. sir; a table has been prepared based upon a questionnaire Avhich was sent to every consular office in Europe, and I have these figrures here. They are for each quarter. be 58 3W 21 144 191 387 379 74 61 2,756 325 90 100 5 310 10 115 150 600 300 60 50 3,500 450 SO 100 5 320 10 115 200 600 200 liO 50 3.000 500 90 ICO Brest Calais Dunkirk Havie 304 12 350 LaRochelle '.... 10 Lille 190 Lvnn 142 140 71 67 40 1,704 250 Marseille Nancv '290 Nante.s 60 Nice 50 Paris 3,500 26«J11— 21— PT ^- 420 KMERGEXCV IMMIGRATION LEGISLATION. EVROPE — continued. France— Continued • Rouen St. Etienne Limoges Finland: Helsingfors Germany: Berlin... Great Britain and Ireland: Belfast Birmincham Bradford Bristol Cardiff Dublin Dimdee Dmif ennline Edinburgh Glasgow Hull Leeds Liverpool London Manchester Newcastle-on-Tyne — Nottingham Plymouth Qiieen.'Jtovm Sheffield Southampton Stoke-on-Trent Swansea Alien \-is^s granted. Estimate of \ts^ applications Quarter ended Mar. 31, 1920. 2,981 177 10 Quarter ended June 30, 1020. Quarter ended Sept. 30, 1920. Quarter ended Dec. 31, 1920. 30 30 Quarter ended Mar. 31, 1921. 4,036 4,898 5,250 305 518 671 1,130 1.000 4,-500 1.500 5,000 Quarter ended June 30, 1921. 854 444 354 248 285 ,024 586 96 ■225 , 5.35 94 202 ,197 ,229 ,128 366 278 456 ,666 115 331 52 74 1,749 ; 656 I 465 249 411 3,149 993 > 179 730 ! 2,543 , 107 j 203 I 1,589 1 5,131 ! 1.617 I 615 314 ! 989 I 2,110 ' 281 , 569 j 97 I 161 2,347 670 594 280 422 3,349 830 148 516 2,382 95 3S7 1,912 6,447 1,88.5 593 402 955 2,054 224 466 104 166 3,000 700 ; 400 : 250 : 400 I 3,000 1 660 : 200 i 400 2, .300 I 100 ' 252 1,800 6,500 1,625 \ 556 300 1 900 : 1,500 I 250 325 : 150 200 3,000 750 500 300 400 3,000 1,000 200 350 2,500 100 405 1,800 7,000 1,625 .500 325 750 2,000 250 350 200 200 16, s39 24,907 Athens 3,957 5,198 [ 5,489 Patras 903 2,625 I 1,585 Saloniki 323 560 ' 591 5,000 2,000 1,200 6,000 2,100 1,400 5,1S5 8,323 7,665 S,200 9.500 Italv: 'Catania 5,616 11.374 i 4,580 Florence 383 940 722 Genoa 558 1,2W 1,295 Leghorn ' 1,199 2,069 1,517 Naples 28,114 25,019 26,521 PJLfermo 7,714 17,311 9,538 Rome 9,007 13,619 10,182 Trieste 112 376 1,159 Tunis 14 29 34 Turin 907 1,289 2,592 Verice 1, 524 3, 173 , 2, 920 Milan 946 2, 110 | 1,S19 Jugo=lavia: Zagreb Malta Netherlands: i Amsterdam 740 1,312 1,421 Rotterdam 1,803 1,865 2,091 4,000 750 1,600 1,800 15,000 9,500 10,700 3,600 50 3,500 3,500 2,200 4.000 .3,000 2,500 900 2,400 1,500 2,700 Norway: Bcfg?n Chnstiania.. Stavanger — Trondhjem.. Poland: Warsaw 60 '46 2.550 6,000 3,000 850 700 350 400 4,500 900 200 900 3,500 100 537 1,800 7,500 2,000 400 350 1,000 2,500 250 575 250 200 27,226 25,768 27,503 32,762 7,500 3,000 1,800 12,300 10,000 9,000 600 1,000 2,000 2,000 2,000 2,000 3.5,000 30,000 12,000 15,000 4,500 5,500 50 50 4,000 3,000 3,000 56,154 78,603 62, 879 56,200 75,650 74,550 . 1,638 814 4,500 300 1 4,800 300 1 7,00 500 1,230 1,620 1 2,200 3,000 2,6a3 3,177 3,512 3,300 4,200 5,200 140 ^79 332 l.V) 228 1,048 466 274 302 1,323 48S 323 200 1,500 360 350 200 1.700 600 250 250 2,000 700 350 1,501 2,016 2.436 2,410 2,7.50 3,300 995 8,252 14,860 : .= 30,000 50,000 60,000 EMERGENCY IMMIGRATION LEGISLATION. 421 Alien vis6s granted. Estimate of vis6 applications . Quarter ended Mar. 31, 1920. Quarter ended June 30, 1920. Quarter ended Sept. 30, 1920. Quarter ended Dec. 31, 1920. Quarter ended Mar. 31, 19S1. I Quarter ended June 30, 1 1921. E UROPE— continued. Portugal: Lishon . . 1,260 2,307 980 2,952 1.359 2, 734 1,.300 2,500 1,500 3,000 1 1,600 Oporto 3,000 3.567 3,932 4 093 3,800 4,500 1 4,600 Rumania: Bucharest 355 5 1,181 1.717 87 2.500 4,099 351 3,344 5,000 1.600 3,000 7,000 1,600 3,000 1 10, 000 Russi'a: Rica . 2,296 Serbia : Belgrade 5.000 Spain: Barcelona 295 846 229 902 44 322 443 762 80 1,567 297 408 555 430 1,222 36 283 1,134 1,048 306 3,. 391 1,376 472 467 349 l,a36 196 673 725 1.094 737 2,408 1,798 .5.50 900 100 900 600 1,600 1,50 1,200 i 600 Bilbao ' 1.200 Cadiz. . 1 200 rorunna '• 1,500 Gibraltar . Madrid 1,000 800 1,200 450 2,000 4,000 1,000 1,.500 1.400 300 3,000 3,000 i,66 .Malaga 1,200 .*^antander... . . . 1.600 Seville 600 \'alencia 3,000 Vigo 1 4,000 5, 787 10, 189 9,9.55 11,900 13,750 1 14,900 Sweden: (loteborg . . 642 303 658 1,137 497 874 1.877 512 1,001 2,800 500 1,200 1.100 500 1,200 2,000 Malmo 600 Stockholm 1 350 1.603 2. .508 3,420 206 .505 268 149 371 890 4,500 2,800 3,950 Switzerland: Basel 94 444 117 101 244 436 173 429 166 109 234 718 150 450 275 125 400 1,200 200 550 300 1.50 450 1,000 250 500 400 Lucerne 200 St . Gallen .500 Zurich 1 500 1,436 1,829 2,389 2,600 2,650 :5,350 Turkey: Constantinople 796 12 2,581 24 t 2,745 13 2,500 20 2,500 25 2, .500 AFKVA. 25 SUMMARY OF FOREGOING BY COUNTRIES. -Vn^i ria 39 Belgium 1, 637 Bulgaria i 8 Czechoslovakia i 902 Panzig i Ueuniark 1, 334 Fin land , 177 France I 2, 981 Germany ' 10 ( ircat Britain and IreUuid i 10, .839 Greece 5, 183 Italy .56, 1.54 Jugb-Slavia 1, 181 Malta 1 , 2.30 Netherlands 2, 6a3 Norway 1, .)01 Poland 995 Portugal j 3, 567 Rumania I .3.55 Russia 5 Spain 5, 787 Sweden 1 , 603 Switzf rlaJid 1 436 Turkey 796 .\lgeria 12 Total 106, .335 286 1,972 22 3,161 10 1,3:?0 .305 4,ft36 .518 24,907 8,323 78. 603 2,500 1,620 3,177 2,016 8,2.52 3,932 1,717 87 1 ), 189 •>,.508 1,829 2, .581 24 490 2,101 24 9, 689 1,812 2, 1.38 671 4, .808 1,1.30 27,228 7, 665 62.879 4,982 814 3, .512 2, 436 14,860 4,093 4,099 351 9,955 3,420 2, .389 2, 745 13 5,000 2,425 .300 1.5,000 600 2,400 1,000 5, 670 4.. 500 25. 768 8,200 .56,200 7, .500 300 3,300 2,410 .30,000 3,800 .5,000 1,600 11,900 4,500 2jm 2, .500 20 7,000 2,700 300 20,000 400 2, ,500 1,.500 5,250 5,000 27,503 9, .500 75, 650 7,800 300 4,200 ?, 7.50 51,000 4,. 500 7,000 1,600 13,750 2,800 2, 650 2, 500 8, OfK) 2, 0.50 i;ooo 2.5.000 400 2,900 2, .500 6, 495 6.000 32, 762 12,300 74,.55K 12,000 .500 5,iOO 3,30a •:0,(i00 4,taa 10, 003 2,296 11,900 3,950 3,3.50 2. .500 25 163,905 174,394 I 202,493 257,178 I 217,484 422 HMKIKiKXlY LMMIGRATIOX LKCISLATIOX. Tlio Ciiair:man. Miss Kellor. Miss Kellor. will you state your (|ualiH<-ations. A\'e kiunv them, but so that they may l>e in the lecord. How lon^^ lia\e you heeii en«ra1() I was Chief of the Bureau of Industries and Immigration of the State of Xew York. havin<^ practical sui)ervisi()n of all the immiirration work of th.e State. In 1916 I was appointed by President Wilson to make an examina- tion of the operations of the diiferent Federal departments for the purpose of brinoinof about a coordination. I was ofiven a letter l^y him to the different Cabinet officers in order to secure that infor- mation. Durinir the war I Avas in char0.(»(»0 immiurants durinir tlie EMERGEXCY IMMIGEATIOX LEGISLATION. 423 3'ear. That meant a loss, if that average had continued, of practi- cally three and one-half million people who would have come to this country if they had had a chance. And many of those people who were lield up b}' the war were now waiting in line to come over here. Senator Sterling. What ports did you visit while you were over tliere. Miss Kellor? What ports of embarkation^ Miss Kellor. One representative Avas at Danzig, another was at Rotterdam, and I was at Southampton and Cherl)ourg. Third. The line was also made up of people whose economic posi- tion and resources were changed by personal losses during the war, as for example, the loss of male or supporting relatives. Fourth. It was also made up of people who did not or could not receive their supplies or remittances from America. There were great difficulties in connection with the transmission of moneys and the transmission of supplies, and a good many of the immigrants found it was better to try and bring over their families and support tliem here than to try to get supplies sent them over there. Fifth. AVe also analyzed those waiting lines from the point of view of time, and we found that they did not represent a daj^ or a Aveek's aggi'egation ; that hardly any one of them got away in less than a week; that the average time was from a month to six weeks. We found one family that had been in line for 102 days. Those people would come back day after day and stand in line Avaiting for their turn : so that in estimating the numbers, it must be l)orne in mind that any one who saAv those lines did not see a fresh line cA-ery day. but saw an accumulation of Aveeks in one line. Sixth. The lines of people represented a Avide area. AVe analyzed tlie Danzig camp for the purpose of finding out Avhat percentage that Avas of the population. There were 10,000 people in that camp. AA"e found that that camp represented a territorA" of 750,000 square miles, Avith a population of 87,000,000; in other Avords. that the 10,000 people at Danzig, in that one camp, represented a population of 87,000,000. That was the proportion of tliose assembled there to the popula/tion of the countries from Avhich they came. Seventh. AA"e also found certain members of minority races who were discouraged by racial differences and the sIoav adjustments, Avho Avere trying to get aAvay from each other ; for instance, the differences between tlie Slovaks and the Czechs. There were some differences be- tAveen the Poles and the Jews. AA^e found that that Avas a reason for some of them trying to emigrate. In other Avords, Senator Colt, my conclusion from the first part of my investigations is that these Avere normal lines of immigration, and not abnormal lines; that they Averc due to normal causes, and that they Avere not due to abnormal causes. The second part of our investigation Avas Avhy those lines of Avait- ing people are misleading. That is, Avhy our judgment of tliem might be misleading unless Ave make a careful investigatioiL The first thing Ave found Avas that these concentration jioints are ncAV. The reason there Avero no lines of Avaiting people before tlie war Avas because there Avere no concentration points. And also that now A'ises are required, whereas they Avere not before the Avar; that affidavits are noAv rccpiired for dependents, and they Avere not refjuired before the war; that monev is-A-erv often lost or stolen. Avhich lias delaved 424 EMERGENCY IM.N[1(;1;AT(()X r.KdISLATIOX. the people at these points ; that is. for instance, if their money is lost or stolen, they may have to wait until they again get money from America, another remittance. Therefore these people added to the lines. We found that some people -who could not obtain passports in their own Provinces had come to a place like Warsaw and had encountered all sorts of difficulties in their home Provinces before they could get to Warsaw. Communication was difficult. In other words, my second conclusion is that these lines are abnor- mal, because noinial methods of traffic have been disturbed or sus- pended. I have taken some of these questions which you have been asking and have tried to supplement the answers that have been given to you from the evidence that I have. The third question was Avhy so many of these people have so little money on arrival. I found from examination of a number of the people that practically all of them started with from three to six times as much money as they did before the war. In other words, they tried to take care of the contingencies. But what happened was this: In going through the dili'erent countries money now has to be exchanged. Ordinarily a man could go through without exchanging his money. Every time the money is exchanged the man loses a cer- tain percentage of it. and there was a considerable loss due to that fact. For instance, if an immigrant traveled through four countries and had to exchange his money four times, he had considerably less money when he arrived at the port of embarkation than he had when he started out : he would have lost a considerable part of his money. Senator Dillixgham. You mean that there was dishonesty in the exchange of his money? Miss Kellor. Yes ; there was dishonesty in exchanging the money. The second point is that there were delays in leaving, and there- fore the cost of board and lodging which these people have not counted on. which would necessarily reduce the amount of monej' they had. A good many of them who were delayed, in the hope of getting away were paying large fees for getting vises. They thought that by giving this official some money and by giving some other official some money they would get through in quicker time. Some of them did. but that reduced their supply of money. The Chairman. Was that done by speculators or dishonest officials '. ^li-s Keli.or. Di.-honest officials. They would sometimes pay over money to officials, or otfer them money, in order to put them through quickly. Then there was lack of protection while waiting. In these concen- tration camps it is impossilde to give these people sufficient protec- tion, and people make all kinds of promises to these immigrants in order to get their money. We found, for instance, that at Danzig the lodging house was under the administration of German (jovern- ment officials, and their net profit on the lodging house is from 70,000 to 80.000 marks a day, and it was to their interest to detain the immigrants, keeping them there as long as possible. These are some of the elements that explain why an immigrant comintr to this countrv has so little monev when he gets here. He EMERGENCY IMMIGRATION LEGISLATION. 425 starts with enough, but when he arrives there have been so many unusual expenses that his money has been considerably reduced. He is getting none from his friends at home, and he is not in touch with his friends at the other end of the line, and therefore he arrives with so little money. Now, in regard to the question as to whether any of this immigra- tion that we saw waiting in these lines was stimulated, my answer is that it is stimulated through the usual, normal lines by which it has ahvays been stimulated, and these, generally speaking, for the United States, are by the report of prosperity in America, by the number of prepaid tickets that are sent over — practically 80 per cent of the people in line had prepaid tickets. In other words, American money was paying for about 80 per cent of the tickets of the immi- grants coming over here. Senator Sterling. Those tickets would be through tickets to the destination ? Miss Kellor Steampship tickets only, to Ellis Island, with the understanding that their friends or relatives would call for them or be connected with them upon arrival. Senator Dillingham. Well, did you ascertain from what sources those tickets came? Miss Kellor. Usually from their families, or some relatives. In some cases we found that they came through relief societies, like the Hoover relief organizations. Another point : This immigration is stimulated b}' the desire of the dilferent nationals in this country to take care of their own people here, and by the failure of supplies to reach them. Then, we discovered also that a number of corporations had been formed in the United States for the purpose of bringing over people to this country. I have prepared for you a list of the names of a half a dozen or a dozen of those corporations that have been organized for the purpose of bringing over immigrants. If you want any further information on that I Avill be glad to give it to you. We found that the stimulus in Europe was generally under these different heads : Due to the race feuds and bitterness which had de- veloped since the war, although a great deal of it had existed before the war: unemployment; shortage of food: high prices; lack of raw material ; the failure of some of the popular loans for which they had need; not getting money they expected for reconstruction: fail- ure of the government to give the people what they had expected, as, for instance, the distribution of land, and better working conditions. These diifered in degree in different countries. Of course, in order to make an accurate analysis we have to take each country by itself. But the point was we found no unusual economic conditions, other than those that would fall under these different categories, which were stimulating emigration. The next question which I ha\e taken up is: Are the people free to leave in numliers to constitute an emergency in the United States? Here is a very interesting situation abroad, which is not new, but Avhich is very much accentuated l)y the war: The peoj^le and the Governments are not necessarily in harmony on this subject. I have shown here the movement of the peoj^le: that is, the things that influenced the people in their movement. 426 emergi:n'(V im-michatiox i.kcislation. Xow, I want to take iij). on the other hand, the checks that are phiced by the Government upon immi<^ration, because the Govern- ment has one idea and one method and one purpose in that regard^ and the people have another. And when we jjet to constructive legjis- lation this is imi)ortant. because I believe in the future that the United States Government must deal with the Governments of Europe and not with the immif^rants of Euroi)e. 1 think that is one of the revelations of the war, and that is the I'eason 1 am sub- mittinof it to you at this time. We found in the individual (iovernments that these were the five conditions existin*^ : First. That in such countries there was definite Government regu- lation for the purpose of checkin": immiofration. Second. In such countries there was a definite tendency, and in. some places ffoinfr to the extent of action, to divert immigration: in other words, for the Government to send it to the countries or to the places where it would be economically j^rofitable. And rio^ht there I wish to raise the second point whi'-h should be considered in constructive leirislation : That I did not find that America was re- •larded any lonfrer as an asylum for people seeking political freedom, for ]3eople seekinfj: political ri^rhts and opportunities, but that the immiofration of the future is an economic proposition to be carried out alon'nin (hroujrli the French funds or the post otHce de]tartnient of the iiensions (hie from Italian insurance carriers, and vice versa, shall he (h^erniined hy the ajireements provided for in article 24. Ar.T. S. The iiiinciples of recii)rocity ali'eady realized in the matter of com- pensation for industrial acci(U'nts is confirmed hy the present treaty and sliall be applicahle to any possible development of the respective legislation. The same principles shall, under conditions to be laid down in special agree- ments, be extendecl to all social insurance laws, covering various risks, such as sickness, invalidity, and unemployment, which may be enacted in the future. ACQUISITION OF LAND. Art. 9. In all matters i-elating to the acquisition, possession, and transfer of small rural and urban holdings the citizens of each of the two States shall in the territory of the other State enjoy the same rights and privileges granted to nationals, with the exception, however, of privileges granted for war service and with reservation of provisions which iti the interest of national security were enacted for specified zones or localities in the laws on the right of resi- dence and settlement of aliens. CHAIJITABLE AID. Art. 10. Italian workers and entrepreneurs who have become memliers of a French mutual aid society may become members of the administrative board with the reservation that the number of alien members of the board shall not exceey were admitted to the benetirs of a pension, aid. or free admission to a home for the aged. This jx'riod shall be reduced ])y five years in cases of invalidity caused by one of the industrial diseases enumerare'l in a list ccjutained in one of the agreements jirovided for in article 24. 2. In the case of all sick, insane, and all other jtersons aided who have i-ontinn- ou.sly resided in the said country for five years. In case of curative treatment for a disease, a worker who during said jteriod has resided in the counti-y at EMERGEXCY IMMIGRATIOX LEGISLATION. 435 least five consecutive months during each year shall be considered as having resided there continuously. With respect to children under IG years of age, it shall be sufficient if their father, mother, guardian, or the person in whose custody tlie-y are fulfill the above conditions. Art. 15. After tlie lapse of 4o days, persons who have received relief and do not fulfill the requirements as to residence laid down in the preceding article shall, accoFding to the choice of tlie State in which they claim citizenship and after notification by the State in wliich they reside, be either repatriated if they are in a condition to be transported or the costs of their medical care must be refunded by their State to the State in wliich they are residing. Repatriation shall not be enforced in the case of special relief of families with numerous children or of women in confinement. Ai!T. 10. The two Governments shall by means of agreements provided for in article 24 jointly regulate the details of the administrative measures relating (1) to the procedure, conditions, and form of tlie repatriation, and (2) the method of establishing and computing the duration of continuous residence. The notices by the State of residence provided for in article 15 must reach the authorities of the State of domicile designated in the said agreement during the first 10 days of the period of 45 days ; otherwise this period shall be extended by the entire duration of the deL-.y. The two Governments obligate themselves to see to it that in localities where large numbers of workers of the other nationality are gathered accommodations for hospital treatment for sick or injured workers and their families shall not be (lacking. Contributions which for this purpose may be inipo.sed upciety does not exist, a citizen of the other country residing in the di.strict : (Ot one rei»resentative each of the emjiloyers" and workers' organizations of the tlistricl : (7) one worker of each of the two nationalities. TAXKS. Art. 21. Neither of the two signatory States shall imiwse special taxe.s on citi- zens of the other State hy reason of their working in its territory. This provision shall not i>reju(lice the provisions ignatf»ry States who reside in the territory of the other State frou) any other tax. present and future, applicable to nationals of the country of residence. Art. 22. The principle of equality of treatment of citizens of the two coun- tries, with re.spect to admission to the public priman- schools and to the estab- lishment of private schools, liaviug been sufficiently established in principle in each of the two countries by the respective school laws, the two Governments reserve to tliemselves tlie negotiation of a general convention relating to educa- tion and to include therein the measures required for tlie facilitation of ele- mentary and vocational education ^if immigrant workers and their families. .SEAMEN AND FISHERMEN. Art. 23. One or more special conventions shall regulate in the .spirit of the present treaty the situation of seamen, fishermen, and. in general, of the wage- working personnel of the fishing industry and of the merchant marine. Nego- tiations with this end in view shall begin, at the latest, during the year follow- ing the ratification of the present treaty. It shall, however, be considered as agreed upon for the present that a system of pension:*, in the spirit of the conditions laid do^^"n in article 7. shall form the subject of one of the agreements to be concluded in pursuance of the provisions of article 24. Art. 24. The proper administrative authorities of the two countries shall jointly determine measures concerning the details and the sersices required for the carrying out of those provisions contained in the present treaty which require the cooperation of the respective administrative authorities. They shall also determine the instances and conditions under which they shall carrj- on direct correspondence between themselves. Art. 2.5. As the present treaty is not fully applicable to colonies, po.ssessions, and protectorates, the two Governments obligate themselves to enter into nego- tiations, possibly during the year following the ratification of the present treaty, for the purpo.se of concluding one or more special conventions relating to their respective coUmies, pos.sessions, and protec-torates which Avill regulate the matters dealt with by the present treaty in conformity with the principle.s and spirit of the latter. Art. 26. The present treaty shall be ratified and ratifications .shall he ex- changed at Paris at the earliest possible time. It shall become effective on the exchange of ratifications. It shall be in force for one year and its renewal from year to year shall be implied unless notice denouncing it is given. All disputes relating to the application of the present treaty shall be settled through diplomatic channels. If a settlement can not be arrived at in this way the said disputes .shall, on demand of only one of the parties, be submitted to the decision of one or more arbitrators whose duty it shall be to settle the dispute in conformity with the fundamental principles and the spirit of the ])resent treaty. A si)ecial agreement shall regidate the constitution and the functions of the arbitration board. Each of the two j>arties may, in the way of testimony, sub- EMERGENCY IMMIGRATION LEGISLATION. 437 mil ;iii opinion rendered by international offices or organs couipettMit in tlif matter. Siicli an opinion may, for the same purpose, be jointly requested by the arbi- trators. ^liss KELLt)R. Then I should like to submit for the record a state- ment of the conditions in Europe which either favor or retard emi- ofration to the United States. This statement is made by countries. This, of course, is simph' a sunnnarv. and is as accurate as it is pos- sible to ^et information at the present time. The Chairman. It may be received. (The statement of '" Conditions in P^urope Avhich either favor or retard emigration to the United States," presented by Miss Kellor, is printed hereAvith in full, as follows:) CoNDiTioN.s i.\ Europe Which Either Favor qr Retai;i) Km KiKAiioN to the United States. Under the name of each country from which the I'nited States lias l)eeu receiving immigrants are noted the factors which stimulate or retard innnigra- tion to-day, s^s these have been reported in the press of both Europe and America or have been communicated by otficials and other representatives of the various racial groups. It is implied that influences which retard emigra- tion to America mav also act to attract nationals in the United States to return. SfuiniJft ti II fi.— The budget for 1920-21 shows an increase of 16,281.000,000 kronen in expenditure and an increase in revenue of 14. 3H1. 000,000 kronen, which \Vill make a definite increase for last year to be 1,960,000,000 ki-onen. Rctordinff. — The workmen's production department of Vienna shows a de- crease in unemployment. In the spring of 1919 there were 133.921 unem- ployed; in January. 1920, the unemployed was reduced to .")6.."i.")6 : in October, 1920, it was only i4,4S3. BELGIUM. Rciardinri. — The minister of economic affairs has expressed the wish that ail emigrated Belgians would now return to build up the country. The Belgian Chamber of Commerce Bulletin says that the all-important over- riding fact in Belgium is that Belgium is working. There is no evidence of public lassitude or indifference. The doctrine of work as the solvent ol all trouble is expected not only on the land but in the factories and workshops. BULGARIA. SHmitlating.— The Government has introduced a budget for the ttrst time since the Balkan War. The estimated deficit for the current year is 500.000.000 leva which the finance minister he hopetl to cover. A bill will surely be in- troduced to create salt and sugar monopolies. Retarding.— The minister of finance says that the harvest of this year is one of the best since the independence of the country. Not only will the country be able to supply its own needs but will have a surplus of rye, barley, maize, oats, etc., for export. C7,ECHOSI.O\AK1A. St i III iiUiti int.— The Bohemian beet-sugar harvest is a disappointment this year. The vield will be 20 to 25 i)er cent less than anticipated. AN ^n7///K/.— According to the Czechoslovakia consulate of New ^ ork Cily. uiiemplovment conditions are improving in the country and the (Jovernment does not" look with favor on the dei)arture of nationals for America, because it wishes to have all men rehabilitate the industries of the country. It now costs about 40 cents a day in American currency merely to provide employment m Czechoslovakia. 438 i:.Mi:i;(;i;xcv immkiratiox li:(;islatu)X. r)eputy Ilruskovsky and otliers have inlroduced an urgent interpolation to the niinistei-iuni of Interna! affairs to nialce impossible the activities of agents who seek fo cause a mass of emiffration. A law has just been enacted prohibiting the passage of men 22 years of age over the botmdaries. No passports will be issued to those born 1898-1900. The minister of finance has announced that Czechoslovaks resident in America have signified their willingness to lend their mother country ii;200,000,(XKj at G l)er cent. Tlie budget for 1021 provides for 14,104 ndllion kronen expenditure and 14.108 million kronen revenue. FINLAND. l^timiihitiiif/. — According to the Svensk-Handels-Tidning. the financial situa- tion in Finland is extremely critical. The position of the Bank of Finland grows steadily worse. All banks are being warned against granting super- fluous credits. Retarding. — In order to hold would-be emigrants at home the Government is to establish settlement areas in State forests along the highways and rivers. Oc- cupation and reduction of the land to constitute ownership. The Government will bear the expense of drainage and bear the cost of tools. (,i;i;.MANV. , SfiniuUitiii!/. — I'nen!ploynie:it is still increasing in the industrial centers. In Plauen. the center of the lace industry, 120 per thousand inhabitants are unem- ployetl : in P^irter (glass indujstry), G'2, l/er thousand: Pirmasens (boots and shoes), 41 per th(m.'< were paid per thousand inhabitants. The German ministry of l;il)or has issued an order regulating unemployu)ent relief from XovenilH'r 1. The counnunes are empowered to increase relief until ]\[arch, 1021, above rhe order of May. 1920. i Rctftiflhifi. — The government of Hanover ha^ been authorized to sell at extremely nvoderate price workmen's colonies. Large areas will be placed at the disposal of towns and communes for the supply of peat to the poorer classes. Negotiations are going on to settle and colonize the Fcht moorlands. It was repotted early in 1021 tliat business men leaving Germany are now required to agree lo return within a specffied time. Reffiitlhif/. — (ireece has closed the doors on its nationals of military age. No man between 21 i.nd •"><) is allowed to leave the country without paying a cer- tain sum as a guaranty that he will return for his military service. The (Jreek Chanvber has passeil the agricMltii!':il act maki'\g many economic reforms on the land possible. jioi.r..\Nn. Itctaidiiif,: — According to the general consulate in New York City Dutch labor is needed in tlie home country, and workers from Holland are not com- ing to any great extent to this country. The Dutch Association of I^mployers recently passed a resolution ;;i!ning on the u'radual redm-tion of working hours under the labor act. During the lirst two vicars woi-k shall consist o( ."il hours a week, 4S hours during the third and fourth vears. HINOAKY. Sfhimhiiinf/. — The cost of living in Hungary is still abnormally high, as the followinir prices indicate: Sugar, per kg., kr. 108: tish. kr. 160: meat. 130 kr. ; milk, kr. 14 per lit. A dress costs kr. lO.CMlO: a child's dress, kr. 12,000. Sal- aries are not in proportion, as a Government official of 20 years' standing only receives 20,000 kronen a month. Hungary to-day possesses 113 factories, capable of employing 70.(X>0, but no work is foiuul. owing to lack of raw* material, the districts having supplied them, having passed into the possession of other States. A recent editorial in a leading Htmgarian newspaper in this country says that every other citizen in Hmigary is trying to emigrate and that they have good reasons for doing so. EMERGENCY IMMIGRATION LEGISLATION. 439 ITAT.Y. Stiiiiiilatiitg. — rneinploynieiit dnriii;;- 1921 is expected t»> Vie nnicli more seritm.s than it was during tlie last winter. The central hoard of inieniploynient in- surance has passed a resolution retiuesting the Government to continue its subsidies to those unemployed, even though unemployment insurance goes into effect January 21. TlJe supply and consumption department has issued an edict prohibiting t'l-oni the 1st of November the sale of meat for )tnl)lic ronsumi'tion from 3 o'clock on Monday to Saturday of each week. The food minister has submitted to the chamber a bill increasing the price of bread to L. 1.40. The price 'of macaroni is to be increased to over L. 2 per kg. The Government intends to double the tax on the sale of jewelry, per- fumes, and bottled wines. The tax on capital is to remaiti. A report reached New York two months ago that a syndicate, with a capital of 3.500,000 lire, had been organized to promote emigration and a.ssist Italian emigrants in their enterprises in which they may engage in other countries. A recent decree rai.ses the rates on State railroads for the hrst 50 km. of the journey on a single or return weekly or daily excursion ticket 100 to 2.50 per cent increase. There has also been from 180 to .300 per cent increase on baggage duties fixed by the tariffs, and transport regulations have been doubled. Stunuhitiiij/. — A new organization, known as the " ^lussulman-Christiau Union of Palestine," has been formed at Jerusalem. Among its principal ob- jects is a demand for the innnediate creation of a parliament in Palestine and suppression of further Jewish innnigration. Nearly all countries in Europe to-day are experiencing extensive anti-Semitic movements. The Jews have been expelled from Adabasar, in Asia Minor. The German labor organizations have agreed not to admit any more east Euro- l>ean Jew.s' into AVestphalia. The Hungarian minister of education states that the new policy of the Hungarian Government will be aggressivelj- anti-Semitic. Polish deputies are expressing the strongest opposition to granting Jewish minority rights. The anti-Semitic party in Austria has asked for the expul- sion of all eastern .Jews. Hundreds of Jewish refugees from Ukrainia to Kumania are either shot or drowned liy the frontier guards. The American consul at Prague recently permitted the American flag to be raised over the building of the Jewish connnunity to protect them from Bohemian anti-Semitic crowds. An American passport is not worth the paper it is written on in Kumania if the American citizen happens to be a Jew. h'ctarfJinr/. — Foreign Governments are not making it easier for unwelcome minority races to leave the country. It is said that Poland even is placing a great obstacle in the way of the Jews desirous of migrating. The same is true in Hungary- .JUGOSLAVIA. RctunliiKj. — During 191!)-2() the Government divided 329,000 acres of land between farmers and laborers, and, according to a recent report, the Government is now discussing a bill providing for the compulsory partition of land. Large estates exceeding a certain area are to l»e expropriated, the owner being allowed the right of free selection of halt the property still left for him. A group of Belgian and French capitalists is organizing a large su&ir mill at Dubrarica, with a capital of 30,000,00t» dina. Italian capital is greatly interested in Jugoslav industries and large sums have been invested in railroads, wat«u- [lower, iron W(U-ks, and carbid works, according to a recent report. The AmoMican c(-nsulate at Belgrade reports that three French engineers reiiresenting important Frencli industrial ct»ncerns have submitted to the Jugo- slav Government a scheme for erecting railway worksiiojjs and to produce loco- motives, freight trucks, and otliei- rolling stock. The output will be used not only for Jugoslavia but for French railways in the Near East. Asia Minor, and Syria. No men between 21 and 28, if flt for military service, are allowed to leave the country. A new law lu-ovides that anyone wh< work or who is trying to stop w:iiuili('-Av7iHr/.— Provision has b.M-n made by the Polish Parliament for a general distribution of the nation's farm lands anion- the i.easants. so that practically everv farmer may becouic a proprietoi-. EMERGEXCY IMiyGRATlOX LEGTSLATIOX, 441 Tlie rolish piiiiie minister stat^-s tiiat rlie economic conditions of the country liave ^rreafly improved. Tlie Polis^li market has risen steadily. Accordiufr to tlie I'olish consuhite in New York City, political condition.s are improving.' every day. The relationship between Jews and Poles i.s also much better. It is reported that Jews are leavinj: America for Poland. The Polish (Jovernment, p('nse who run the trains. The cost of living shows no improvement. Firewood, even in fore.st areas, is said to be entirely missing. Private linns offering it at unheard-of prices. Vegetables are way beyond the reach of ordinary men and women. Only black bread can be obtained. The official distribution centers of sugar have been short for some time. Kerosene is now 3..'i0 lei per liter: its old price used to be 0.06. There is no gasoline or tobacco, though speculators are offering the latter at staggering prices. Salt can only be .secured with a special permit. The people are living huddled together because (tf lack of housing; schools have been closed for lack of fuel. Wohes are prowling in the suburbs. Rrtanliiiff. — The minister of interior has issued a circular to all local au- thorities regarding emigraricm. The circular emphasizes that nationals may enugrate, but in so doing they renounce their citizenship and may not return to their native land. At the consulate in New York f'ity it was state that social attaches be attached to the dif- ferent consular offices for the ]iurpose of furnishing employment and labor information about the different countries. KMER(iENC"Y I.MMIfiRATION LEGISLATION. 443 Of course, my point in submitting this informiition is that this ^lionld he a matter of official information between Governments, and not broutrht toriGKATI()N COXTNTRIES THAT rO>)PKTK WITH THK T-.\ITKD STATES FOR IMMIGRANTS. Aiixtralid. — According to an oftk-ial statement, there is opportunity in Australia and New Zealand for farmers, farm laborers, mecluinics, general laborers, and domestic servants. British Army pensioners- receive a six and nine months' advance of pension to enable them to emigrate to Australia or New Zealand '" if tliey have a fair prospect of bettering themselves and their families'' on arrival. Free grants of land of IGO acres ai'e to be had in Western Australia, and it sells from .">0 cents to .$1 an acre in other parts. Conti'acr laborers are admitted to Australia if the contract is in writing and its terms approved by the minister of external aftairs. Approval is not given if "(1) the contract affects an industrial dispute, or (2) if the remuneration and othei- terms and conditions of emjiloyment are not as advantageous to the contract inunigrant as those current for workers of the same class at the place where the contract has to be performed." C(mtracts with other than British subjects are not approved unless the employer can " prove that there is difli- culty in obtaining within the Connnonwealth a worker of at least equal skill and ability." New South Wales, Victoria, and <»ther States permit assisted and nominated passages whereby friends and relatives in the State nominate relatives abroad for an assi.sted passage, and the director of the immigrant and toiirist bureau takes charge of theii- migration. When innuigrants land a (Government labor bureau assists them in directing to employment, a register being kept of hII persons needing labor and of all seeking work. Queensland gives free passage t«t domestic .servants and to contract agiicultural laborers. Nominated immi- grants are forwardeil to their destination by railway frt»e. All persons plan- ning to go to New Zealand can write to one or two bundi'ed (Government labor bureaus on the islands and .secure eniiiloymenl befni-(> arrival. The ftralia. and on arrival in Au.«tralia the innni^ration otlicers of each of the State {rovernnients meet the ininiisrrants on arrival. arran;:e for their requirements, and see that they are either placed in positions or on the laud." An/cntinn. — iMn-iuL' the last (Mi years Argentina has received about 5,000,000 imnii^Tants hy sea: of these two and a half millions were Italians, one and a half millions were Spaniards, a quarter of a milliou French, about a hundreil aud fifty thitusjuul Itussians. and the same number of Turks and Syrians; (Germans. British. Swiss, (ireeks. Portuguese. Danes, and Imtch, all have large colonies in the Uepublic. All children of foreign parents are considered as Argentines. Argentina has 244,632,09(1 acres open for homestead purposes, and free grants of from nO t<» 4r>4 acres are made to foreigners who will become Argentine citi- zens. The land of homestea tiers can not be mortgaged in payment of debts and crops can only be attacher a new homestead in fiscal territf)ries of that or another district. Failure to compl.v with the j»romise of becoming naturalized shall effec-t forfeiture of the homestead. "Akt. 4. So long as there are in the famil.v minors or single women, they shall have the right to the homestead. When all arrive at full age, the home- stead shall be divided conformably to the cimimon law. "Art. 8. Each <-olon.v shall lie providetl with a .school and with all the necessjtry public services." Single individuals with small capitals would in all probability make a 'ois- take in undertaking to settle in such out-of-the-way places as those in which the public lands are located. The Goverinnent makes special grants to colonies, and this is the usual way in which these lands are taken up. As a practical proposition, however, the way to start farming in Argentina is to go to a .settled part of the country and there l)uy land from private individual.s. just as one would in the United States of America. The Government maintains an immigra- tion office in Buenos Aires, and prospective .settlers on landing are tnken care of and advi.seccuiiati<»iis : to own. hold, and se'l real estate: to n-ivigate the rivers and to travel along the cse of their projiertj- by will : and to cvmtract marriage according to the EMEEGEXCY IMMIGRATIOX LEGISLATIOX. 445 l:i\vs. Tlun- ;uv not Ixmnd to beconif citizens or to pay forf-ed extraoi-earing innnigrants in the name of the (Government free board and lodging in the inunigrant home for from three to eight days. The bui-eau of inmiigration gives free passages to innnigrants and their families by rail to their land. Inniugrants who can not support themselves are given i*oad-construction work for the first six months and t<)ols. Innnigrants that arrive without families nuist pay cash for land ; others on a seven-year installment system. The Germans, Russian Poles, and the Italians have large prosperous colonies in the southern States, and the Japanese have a large and growing colony in the coffee lands of the State of Sao Paulo. ()n the coffee jilantations the immigrant has a detinite contract with his employer, and his wages or share of profit is the first chai'ge on the estate. He finds a house built and a lot for his own use already cleared. Many of the Italians earn enough to be able to return home for three or fcnir months (tf every year. The coloniza- tion department furnishes the laborers under a stamped contract to approved planters. A recent press announcement stated That a credit of .$.")00,t)00 has been openeil In P>razil to transport and care for immigrants who wish to settle there. A great shortage of lalior exists on the coffee plantations and the special eff'orts are largely on account of this. It has offered to pay the passage of BOCK) German farm hands, the payment to be reimbursed to the Government later. Early in Au,gust. 1920, the first group left Hamburg, 428. other leaving in September and October, traveling with experts who have them instruction in colonization methods. Special propaganda bureaus have been* established in Italy, Belgium, and France to stinuilate emigration to Brazil, and considerable funds are at the disposal of the agents. Reports from Italy indicate some re- sentment at the propaganda and "a free passage" is criticized as an unworthy offer to make Italians. Mention is also made by the Italians of the necessity of some treaty understanding with Brazil securing " inviolability of domicile, es- tablishment of schools, and assurance of legal protectit»n." Canada. — Canada is a land of immigration which has received proportionatel.v a larger percentage of innnigrants than has the I'nited State.s. more than one- fourth of its population being foreign born ; at the end of the fiscal year ending INIarch 31, 1919, the following races were the chief in Canada: British, about 850,000: rnited States, 500.000: Austria-Hungary, 125,W0 : Jews, 100.(M)O: Ger- mans, 40.000: French, 20.000: Italians, .35.000; Scandinavians. .50.(X)0 ; Russians, about 100.000. Numerous other races have large colonies there, as for example, Bulgarians, Bukcnvinians, Ruthenians. Hungarians, and Greeks. Can:ula is even an immigration country to the United States as the above figures indicate, the number of Americans going to Canada being second only to the British. The following figures show the extent of this migratiou from the I'nited States for recent years. 1914 107, 530 1915 59. 779 1916 36, 937 1917 61. 389 1918 71, 314 1919 40, 715 1908 58, 313 1009 59, 832 1910 103, 798 1911 121, 451 1912 133, 710 1913 139. 009 44G K.MKlKiEXCV I.M.M1(;J!AT1()N LE(;iSLATl()X. Wliat will prohaltly lie tlic iinrnial fiiniiv airaiii soon i-an I)t^ .in»ly;«'(l finin ihc t«.tals of lin(^-llil4. The Canatlian (lovfriiment MpiiropriaU's :!iiii'iall.v a siiui to '-over the i'Xi>ciis(«< of Itureaiis and afinits who sriimilate oniij-'nitioji to <'aiia(bi. TlK-st" luiivaus exist in the rnited States as well as in the jirincipal eoimtries of northwestern Europe. A bonus is also paiil to ticket a.iients in Euiope on all tickets they sell for jtassafie to Canada. Tlie Canadian Pacific Kailway advertises widely iPi the American Kn).'lish-lan,iruujre and liueiim-lani'ua^v press, offerinir prairie land from )?.iO an acre and up. and hirjie pictorial pamphlets are circulated re;fardin,ir the opportunities. Durinj: tlie warm months f>f 1920 an invasion of ]0,<»uo Americans monthly t0.(MX> are now in Eufrbind waiting: for arrangements to colonize there. Canada has a very comjilete supervision system, which cares for all immigrant.s on arrival. Western Canada is about lo launch an intensive campaign to get settlers for L'l >,0( M >,0( HI acres of jirnirie bind. Canada's war effort left her fa<-ing a war debt of alHiut .$"J.()iin.(MM».ert Holt, president of seven big < 'anadiau enterprises, including the Royal Bank of Canada and the Montreal Trust Co. : James A. Cai'ruthers; Charles R. Hosmer, president of the Ogilvie Flour Mills ("o. ; Sir Charles Gordon, president of the Dominion Textile Co. ; Huntley R. Drunnnon, president of the Canada Sugar Refininsr Co. : Richard B. Angus, director of the Canadian Pacific and many other corpora- tions; Patrick Burns, president of P. Burns & Co.; James Ramsey, of .lames^ Ramsey (Ltd.) ; James H. Ashdown. president of the Canadian Fire Insura.nce Co. ; sir Augustus Xaiiton. chairman of the Canadian committee of the Hudson Bay Co.; George Lane, Alberta cattleman and randier; and James F. Cairns, merchant and capitalist, of Saskatoon. Each of these men has contributed from $.5,000 to $25,000 to the project. Canada make!* a free grant of 100 to 200 acres of forest land to any settler over 18 years of age in some Provinces, and of 160 acres in the western Prov- inces. Manuals of information for intending imnngrants are is.sued free by the British Government, covering for Canada such information hints and cautions to emigrants, climate, religion, education, societies, money, passages, food, lug- gage, voyage, regulations of emigrant ships, railway tickets and costs, arrange- ments on landing, hostels anil homes, best time to arrive, prohibited immigrants, demand for labor (details' of kinds of labor wanted), women and girls, houses of labor, cost of living, free land grants, etc. Similar handbooks are issued for South Africa. New Zealand, United States, and Australia. The immigration act has recently been amended to meet the unemployment situation as follows : Whereas information has been received showing that in various parts of Canada a considerable amount of unemployment now exi.sts. and that certain classes of workers, jiarticularly mechanics, artisans, and laborers, find difficulty in obtaining steady employment; and EMERGENCY IMMIGRATIOX LECilSLATIOX, 447 Wliei'oas the pmspects for euiployin.-nr are nut likely to improve diirinfr the next few months ; Therefore his excellency the governor jreneral in council, on the reconimen0 for each child of the age of 5 years and under tlie age of 18 years. 3. The provisions of the two preceding paragraphs shall be applicable as Troni tlie 15th day of December. 1920. to innuigrants of the classes herein spefitied, who land in Canada from foreign contiguous territory, and to other immigrants of the classes specified v.iio land in Canada from other countries on or after the 1st day of .January, 1921. Unless otlierwise ordered, these regulations shall remain in effect until tlie 31st day of March, 1921. and on the expiration of these regulations the pro- visions and requirements of paragraphs 1 to 3, inclusive, of the order in council of :May 9. 1910 (P. C. 924), shall again become operative to immigrants of the mechanic, arti.san, and laborer classes. r7///r.— The sreat inajorit.v of tlie poimlation of Chile is of European origin, though the actual number of foreign born there to-day is small. In 1917 a census showed 10.734 Germans, for example, but in 1^.50 a Gei-nian colony was established at Valdivia, which sti'l i-etains the German language and customs, and 04 : .lews. lo.oOO: British, .5.264: Cubans, ,3,478; Germans. 3.827: Italians, 2,595: Chinese, 13.203: Japanese, 2.270: Aral)S. 1.5-K5. Altogether about 1 jier cent of the population is foreign born. A recent announcement (Nov. 24, 1920) says that arrangeuients have been completed for the settlement of 10,0(K) llussian IMennonites in Mexico before 1921. The colonies are to have their own schools and teach their own language. A movement to settle I-'rench peasants in ^Mexico has been st:'.i-ted in France this year. The Department of the Interior has recently established an emigration service at the various ports of entry and the (Jovernmenr is now taking ste])s to protect Jlexican emigrants who leave Mexico under labor contracts. During the year 1917, 122.405 immigrants were admitted into Mexico and the number of emi- grants for the same i)eriod was 31.7(K>. Agencies to protect the rights of Mexi- can laborers temporarily in the United States will be organized this year in every large town on the border of the United States and Mexico. Plans for the establishment of such agencies have been forwarded to the El Paso Chamber of Commerce and lo similar organi:ects to see to it that contracts between Afexican laborers and American em- ployers are fulHUeil, and to obtain the return of the laborers to Mexico with exjiediency after the contracts have been lived up to. Pdiafiuaif. — Paraguay is an immigration country for several races. Tn 1910 there were 30,00<1 Argentines, 15.000 Italians, 1,400 Brazilians. 7.000 Spanish. o,(,XK) Germans, 1.000 French, 1,(XX» Uruguayians, and 4(X> English: there is a 448 EMERGENCY IMMIGRATION LEGISLATION. Ttiml of alinur Ktii.iMM) foreign luini in tlu' country. Tlie Iturt^an oT l;imls a:iil colonies reiinii'es conmiissioner of ininiiirration will supply to the iier.son or families desirous of inuniiiratiuir into I'ei-u ihe forms of the appli<-ati<»n to be tilled out by the immijn'ant. The details of the infoi-mation retpiired in these apiilications are as follows : "Full name of the applicant, date of liirlli. idace of birth. occui)ation, nationality, number and date of passport, by whom issued, latest addre.ss, destination in Peru (Callao is the only port of debarkation), what occu]iation it is intended to follow in Peru, len.sth of time to remain in Peru, relijrion, formal promise to respect and obey the laws of Peru, it Iteins imderstood that the Peruvian Government will immediately proceed to the deportation uf the immisrrant in case of lack of loyalty to this jiromise. solenni oath that the above declaration is honest and true and that every intention of the applicant, in seeking the opportunity of goinii to Pern as an immigrant, is to work con- scientiously as a peaceful laborer. This application nnist be filled out in triplicate. " Immigrati«m to Peru is prohibited to: Idiots, epileptics, ahoholics, indigents,, loiterers or vagabonds, consumptives, syphilitics. anarchists, nnupiereaux, exiled, illiterates, children under 12 years of age or adults over ."> years of age, nnless they prove that they are accomitanied by their parents or relatives. •• Immigrants having the following occupations are accepted, and it is these who would have liest opportunities there: Farmers in general, artisans, mascms, electricians, mechanics, stonecutters, painters, carvers in wood, shoemakers^ .servants in general, families in general, labgrers conversant with the construc- tion of roads, railroads, irrigation works, etc. It is the de.sir? of the Peruvian Government to encourage and foster the introduction of small industries, (»f which there are a scarcity but for which there is an exceedingly great demantl. •• Salaries at present paid in Peru are an inducement to the immigrant? from European countries, where the conditions of living have grown more and more diflicult every day as an aftermath of the war. •• Persons desiring to innnigrate into Peru, who have .some capital of their own are especially desired, as the Government offers them a great number of advantages. They can obtain concessions of land at the very low rate of .iO cents (United States gold) per hectare. The Government will give them the opportunity and choice of bjiying lands very well located, or to undertake tlie ex-ploration of mines or any kind of industry whatsoever. " Employees, draftsmen, telegraph operators, clerks, and persons desirous of obtaining similar positions are advised not to innnigrate into Peru unless they have a formal engagement. Professionals are also not advised to im- migrate. There ai^e always many opportunities for higlily trained men, but at the present time thei-e are plenty of these professionals in Peru. " Immigrants are permitted to bring with them their tools and instruments of work, but attention is called to the weight, volume, and the distances of transportation. Immigrants are not advised to bring with them their furniture or other articles of heavy weight. It is sugge.sted that they sell their furniture, nnle.ss by some special reason the articles deserve to be kept. Beds and clothes are the most necessary things for the innnigrants." Pern pays fre<^ third-cla.ss transportation to people desirous of immigrating, j.rovided they can supply requisites stated by the law. Also pays expenses— lodLMUL's — for six lirst utch and English are the official languages. rvufiuay. — According to the census of 1917. there were nearly 200,000 foreign boin in this Republic, of whom 62..S57 were Italians. .54,885 were Spanish. 27,780 were Brazilians, 18,600 were Argentineans. 8.341 were French, 1,324 were Eng- lish. 1,112 were Germans, l.KXi were Austro-Hungarians. In a given year (1918) the following immigrants arrivetl : 8,779 Spanish, 5.4.56 Italians, 5,023 Brazilians, 1.411 French, 1.143 Germans, and 3,421 English. Miss Kellor. Just a word about the outtroinfr emioration from the United States. In a period of 2s years, accordino' to the steamship figures of the tliird-cdass traffic. 49 per cent returned. In other words, out of somethincr like 14.000.000, 6.900.000 went back. That is important for tAvo or three reascms. And incidentally, this did not include the emigrants that went out by way of Canada to escape paying income tax. or for otlier reasons, nor did it include the number of immigrants who come back as nonimmigrants. We have a good many immigrants who come into this countiy third class, who go back first class, and they do not come l:)ack as immigrants. They are not included. The indications are that the outgoing emigration will be heavier in the future than the one-half that has prevailed in the past, for these, among other, reasons : For instance. Canada conducted a veiy aggressive campaign in the Northwest last year, which netted them 49.000 immigrants, and they took about $16,500,000 into Canada. Incidentally, the Canadian cam- paign which is now being operated through the XorthAvest is very well worth lookinor .^t; because it is a very, very Avell conducted and considered campaign. It is carried on by means of personal con- tact, and is a very effective campaign. Senator Dillixgiiam. From what source did they get that immi- gration ? !Miss Kellor. From the Xorthwe.st ; almost entirely farmers from our country, from the Xorthwest. Furthermore, a very aggressive advertising campaign is being car- ried on in the foreign language press in order to get the immigrants to return to the other side. I can submit, if you like, later, a sum- mary or li.st of those advertisements, but I l)rought one with me just as a matter of interest, as an illustration. Here is one of them. Any one who has not got land in .Tugo-Slavia, can get it, if he is willing to Work. ^larried man gets four acres ol land ; single man between 1(>-21 years gets two acres : and single man over 21 years three acres of land. They get free of charge railroad or steamboat transportation to the place where they are 450 K.MKncKXCV I.MMIGKATIOX LKGISLATION, going to li!«v«' tlit'ir lionit'. Tlioy jire exciiipt for tliriH' years ivmu (JctvpniinHut taxes. Only the citizens of .Iiitro-Sla\ la are enlirled t<» Jiave free land. They are not allowed to sell the land in any way, otiierwise it will he taken away by the Government. This advertisement iil)pearcd in tlie Xuiodni List Cioatian of Xew York C^ity. on ()ctol)er ii8. 1020. The Chairman. Yon nniy snpplement that by any other (hita that 3'^oii have. (The li.st of organizations, fnrnished l)y ^Sliss KeHor. is here printed in full, as follows:) ORGANIZ.\'IIONS THAT .\I)\ KIJTlSi; THAT THKV (AN HUrXG TMMKiUANTS" FAMILIES TO AXtKRICA. The following organizations and individnals are active in bringing relatives of immigrants to this conntry. and prar-tically all advertise widely in the Amerir-an foreign-language press : The r)verseas Dispatch, 191 Greenwich Street, New Yorlc City. Immigrant Transportation Bureau (Inc.), 910 Tribune Building. New York City. All Nations Exchange Corporation. 67 First Avenue and 30.j Broadwav, New York City. Kilgikian Co. (Inc.), 131 East Twenty-seventh Street. New York City. Emil Kiss. 1H3 Second Avenue. New York City. Anton Zbosnik. 102 Bakewell Building. Pittsl^urgh. Pa. The Stern Big Store, 903 North Chicago Street, Joliet, 111. Matija Skender. 5227 Brittle Street, Pittsburgh, Pa. Henry C. Zaro, 39 Cooper Square. New York Citv. F. A. Bogadek, 103 Bakewell Building, Pittsburgh, Pa. Leo Zakrajsek. 70 Ninth Avenue, New York City. Henry .T. Schnitzer, 141 Washington Street, New York City. Mato Kucer. 193 Tenth Avenue, New York City. .John Nemeth, jr., 431 West Girard Avenue. Philadelphia. Pa. Rista Prokich, 408 Bakewell Building, Pittsburgh, Pa. The Passengers' Voivodina Agency, 466 West Twenty-third Street, New Yorlc City. Kosto Unkovich. 116 Bakewell Building, Pittsburgh, Pa. Jadran Agency, 66 Cortlandt Street, New York City CM. ^Marosovic). Milan Markovich, ,3-5 South Fifth Avenue, West Duluth. Minn. John A. La.ievich & Co., 1137 West Eighteenth Street, Chicago, 111. Gawansky Lepsa Co.. 315 South La Salle Street, Chicago, 111. Malesh & Aranza, 2941 Wentworth Avenue, Chicago, 111. G. v. Hamory, 19 South Phelps Street, Youngstown, Ohio. Agency Espanola. 203 North Spring Street, Los Angeles, Calif. Miss Kki.lok. If yon viould want to have it. I woidd be orhtd to send you a copy of the different advertisements that are appearing. The reeallino: of nationals to their own countries, wliich are in need of men and money, is a third jrreat cause of remio:ration. It is not so much for the purpose of havinir nationals return to remain permanently as it is to have them cr;me ])ack and see what is hap- ])eninr uncle in the United States. Latei- on, when this was made difficult by the immigration inspectors' exaniiua- nations. children under 16, and sometimes over 16. years of age were furnished with parents selected from Greeks traveling on the same steamer. I have often held in my hands certificates of birth issued to children under 16 years of age whose ages, according to tlieii- certificates, were 18 and over. As an illustration, the frauds committed in presenting documentary evidence in the" form of affidavits r.nd certificates in securnig working jiapers are well known. In former years (before the war) it was the general impression in (ireece that any person coming to the United States must have an addres.s. As a result of this addresses were sold to Greek immigrants, and these were usually coffee houses and restaurants in this country. If the Johnson bill becomes law certain firms and t for such an ailidavil ranjies Ironi $] to !f2.i, accordini; to the condit.(!iis and ignorance of the applicimt. The affdavit is simple (as per copy attached). In many instances people are told to sentl the affidavit to the resiH'ctive fon-igu consul in the I'uited States for the legalization of the county clerk's signature. In my estimation this is not necessary, as the document or alHdavit of de- pendency is to be used in a United States Government office alu-oad. Foreign consul:^ charge from $1 to $5 to put a stamp on an American document to be used in an American office in the foreign country. After this atlidavit is sent abroad and the party in Europe, after securing a passport from the local government there, he nmst apply to the American and other consulai- officers for vises. The following case of a Polish immigrant girl who arrived to-day from (Jalicia, wiil illustrate the time consumed and the trouble an immigrant has to undergo before he or siie can come to America : Mary Brill, aged IS, received funds from her sister in this country, together with the necessary affidavits of dependency. Her home town was Taruoff, Galicia, Poland. She applied to her town government for a passport, which was granted her aftei- seven weeks had jiassed and 24 marks paid. She had an order for a steamship ticket on tlie Holland-American Line, and in order to go aboard the vessel had to travel to Rotterdam, the port of embarkation. To secure the vises of her passiiort she was compelled to travel to Warsaw. It takes 14 hours to travel by i-ailroad fi-om Tarnofl: to Warsaw and the cost of a one-way ticket 400 marks. In Warsaw she learned that she must have her passport viseed by the American, French, German, and Dutch ct)nsulates and l)y the Polish departn)eut of interi(»r. American vise was necessary to be per- mitted to enter the United States and the other consuls had to place their f;enls so she could travel through tlieir respective countries in order to reach the poit of embarkation. The girl had to remain 10 days in Warsaw, standing in line from early morning to late at night before each of the cousuhites imril she had what she was after. It cost her GOO marks for 10 day.s' lodgiiig. o.OliO marks for the American consular vise fee, 800 marks to the German, 3."iO marks to the Dutch, and 2."i0 marks to the French consulates. The Polish Government received 20 marks. Some people who stopped at the same boiu-ding house liad it easier, while others had it more difficult, according to tlie amouiit of money they were able to pay to certain individuals who called at the boardinsr house to '•• fix " mattei-s. Some people paid as high as 10,0tH) marks. People who paid large sums had to wait only a few days, while those who could not afford such luxuries had to wait for weeks. After her luissport and vises were in onler she returned to her "native town, Tarnoff. The same day she took the train for Rotterdam. It was necessary to travel 7 days and 7 nights to reach the port of embarkation. There were no sleeping accommodations and she had to sit up all this time. The fare was 8,000 marks. In Rotterdam the steamer was not there, and she had to wait 12 days more, paying $1 for her lodging. She and the other passengers were required to bathe once ; $2 was charged for this by the employee of the steam- ship company. The girl had a prepaid ticket, purchased in New York by her sister. It took the gii-1 13 weeks to secure a passport, have it viseed by the various ccmsuls. and travel to New York. The cost in addition to the price of the steamship ticket, .$140, was lo.OOO m.n-ks. She landed in New Yoi'k with less than $1. She says that tliere are many people who want to emigrate from Pol.md to the United States, but they can not secure passports nor have they the neces- sary funds to p:iy for their passage. .\t Warsaw there are thousands of people waiting for their vises, and niany of them have been there for weeks. The same is true at the port of embarkation. Miss Keixor. I^krania and Greece thought it wonkl make a this year, but it was a question of what the effect would be eventually upon the source of supjdy. I am sjjeaking now of the way Europe looks at the matter of handling immigration. They look at it very much in some of the countries the wav vou look at a reserve: for instance, you get an option on EMERGENCY IMMIGRATION LEGISLATION. 455 -an oil supply; you take care to see that you can peaking of citizens — that we have in this country, in the passage of any law which affects their international relations — and they can not heij) but have them when their families are divided — before the en- actment of any such law the leaders ought to be called in for the purpose of finding out how that law is going to operate and what the hardships would be. Senator Johnson. You speak of the naturalized citizens only. The question of Senator Colt, as I understand, embraced all aliens who were in this country, and the descendants of aliens, the propor- tion of whom was stated to be about a third of the population. EMERGENCY IM.MIGRATtOX LEGISLATIOX. 457 Miss Kellor. Of that number I believe 15.000,000 are foreign born and about 18.000.000 are descendants of foreign born. Senator Johxson'. I am willing to go with you on many of your statements, but I am not willing to concede that we can not pass an immigration law without consulting the aliens who are in our coun- try, or their descendants. Of course, those who are citizens, of neces- sity are consulted when action is taken, by their chosen representa- tives : that goes without saying. But to say that we are dependent for affirmative action that we might take of any sort upon their con- sent, or upon their permission, puts us somewhat at a disadvantage, don't you think, in legislating on a subject within our rights? Miss Kellor. I don't think I have, perhaps, made clear what I have in mind. The United States can take final action without con- sulting anybody : I agree with that. Senator Johxsox. I am not speaking of the c^uestion of power: I am speaking of the question of propriety. Miss Kellor. Yes. I think it is very doubtful if we could frame an immigration law which would be just and fair without consulting the foreign-born residents, because the subject is international. Senator Johxsox. Well, suppose you consulted them and they did not agree with you ? Miss Kellor. "Well, you would have to go ahead and do it your own way. no question about that. But what you want is the benefit of their advice, etc. Senator Johxsox. I will agree with you that everybody's advice should be heard. Miss Kellor. But particularly that of foreign-born people on ac- count of their international experience and connections. The Chair:max. I would say. Senator Johnson, that I merely asked the question in view of the fact that possibly they might have some little bearing on the subject that Ave have to deal Avith. AA"e are try- ing to weight the objections to the bill, and also to weigh the things that are in faA'or of the bill. Miss Kellor. Did I answer your question. Senator? Did I make myself clear? Senator Johxsox. Yes: you did. It is a very interesting proposi- tion you suggest. ]\Iiss Kellor. I may say, Senator Johnson, that we tried, during the war, and I think for the first time in the country in dealing with the war problems, the proposition of having a conference committee made up not only of native Americans, but Avith one or tAvo repre- sentatives froip each one of the racial groups, and we aA'oided a good many serious mistakes by havdng them in conference. Senator Johxsox. Do you believe that you can ever get too many racial groups in the coimtry ? Miss Kellor. I think we haA-e got too many noAv. I mean solidari- ties. I should like, if I may have the opportunity, to go into that question of racial solidarities. That is our real problem. Senator Johxsox. That is a big i)i-oblem. Miss Kellor. That is the real prol)lem to-day. Senator Colt, in respect to the question of the law, I only Avant to point out one thing with regard to the Johnson bill, and that is the way in which it mixes up the relations and duties of the two depart- 458 EMERGENCY IMMIGRATION LE:GISLATI0N. ments of Labor and of State, and I am simply filing this memo- randum as an illustration showinfr how impossible it is to operate as it is drawn at the present time. The Chairman. The statement may be tiled, and placed in the record. (The memorandum on administrative difficulties under the John- son bill, presented by Miss Kellor, is printed herewith in full, as fol- lows:) MKMORANDUM ON ADMINISTRATIVE DIFFICULTIES LENDER THE JOHNSON BILL ( H. B. 144G1). Althou.sh the Secretary of Lab«)r under the .Tolinson l>ill retains final juris- diction over the admissibility of the classes of aliens which will still be per- mittHl to enter. oriiL'inal permission to sail for the United States is divided be- tween the Secretary of Labor and the Secretary of State. Citizens and de- clarants in the United States must first secure a permit from the Secrete changed quite readily. The Chatrmax. Well, isn't your fimdamental idea that we have let the immigrants alone, and that the business men have let them alone, and that the time has come now for cooperation? Isn't that the fimdamental idea ? 3Iiss Kellor. Decidedly. The Chairmax. And that will tend to break down these differ- ences. Of course you could not expect that they could be broken down at once. It must be veiy gradual. Miss KzLLCtR. It is a long process. Senator Harkiscix. Of course the more you have in here the harder the breaking down task will l^e. ^liss KzLLCtR. I have not found. Senator, it is so much a question of quantity as a question of quality. For instance. I have in mind at the present time now. one organization with a very able leader, whose nationality I would prefer not to mention, ^ho is now con- ducting a campaign for changing the consular representatives to foreign Governments, to people of that nationality, of American citizenship, which is a very fundamental change, and it is done for the purpose of throwing business into the hands of that parti- cular faction of that particular national group. Xow there quantity does not count, it is the quality of the leadership. And I think that, for instance, it is not the fact that there are 1.124 foreign-language newspapers that makes the difference. It is the fact that in that group of 1.124 foreign-language new5pap)ers there are about 1<» of very capable leadership, and they dominate the rest. I shouldn't think that quantity had a sreat deal to do with it. I should think that an intelligent handling of the situation would be quite independent, perhaps, of T^^hether it was 100 or 500 or 1.000. The Chairmax. Is the foreign press connected with the Ameri- can news agencies ? Miss KFTjrtR. There are a few of the large daily papers that have the Associated Press service, but only a few of them : there are not more than perhaps a half a dozen or a dozen. Otherwise, they have no American news service. The Chairmax. Well, perhaps the American press, the American news agencies, could be helpful in that matter. Miss Kjxlor. That is one of the things I am doing now. trying to get the Associated Press and the American Newspaper Publishers Association to bring the foreign-language papers into their associ- ations and Americanize them. That is the only way it can be done. And the same thing is true with respect to the banking system: the need to get them to come into the American Bankers* Associa- tion. EMERGENCY IMMIGRATION LEGISLATION. 465 The Chairman. You are dealing this morning rather with tiie larger problem of Americanization, are you not ? Miss Kellor. Well, I am trying not to. The Chairman. How does that bear upon the question of suspen- sion of immigration at the present time ? Miss Kellor. In this way. The tendency of the American public is to deal with this question through emergencies, and the moment that the emergency is dealt with they usually go off and do some- thing else, and pay no more attention to that particular prol^lem until we get another emergency. Now if this bill were passed and no provision is made for the land of an inquiry which I believe should be made at this time, then I am afraid it will mean that this situation will go on mount- ing up, and that we will not deal with it until we have another angle of the emer^ncy. For instance, with the passage of the liter- acy test, Senator Dillingham, a great many people said, " Well, the literacy problem is already taken care of, and we don't have to do anything more in the way of education and Americanization." And I think that is due to not having a constructive program. Senator Dillingham. That was very much misunderstood in the country. The great majority of the people, I think, looked upon that as a quality test rather than a purely restrictive measure, as it was intended to be by those who proposed it. Miss Kellor. It is also true, Senator Dillingham, though, in re- gard to the contract-labor clause, when that was passed, that Ameri- can labor immediately said, " AVell, now, we are protected, and we need not pay any more attention to the labor problem." Of course the result was that the contract-labor clause did not protect. It was not enforced. The Chairman. What effect, if any, would the passage of an ab- solute suspension bill have upon this movement toward Americani- zation, or what effect, if any, would it have upon further solidifying these solidarities, as you say, of alien groups? Miss Kellor. The immediate effect of the passage of that bill would be further to increase the different racial divisions and an- tagonisms and bitternesses. The feeling of the injustice of it, and the hardships that would result to some of the families, the feeling that the foreign-born people have toward repression when they have come to America as a country of expression, as a country of develop- ment, as a country of opportunity — anything that tends to conflict with that ideal, which has brought many of them to America, in- creases their resentment. What was the latter half of your question? The Chairman. If any. what effect would it have upon further solidifs'ing these solidarities? Miss Kellor. I think it would have a tendency to increase the cohesion among them, not to decrease it. They would feel that they might have to get together, more or less, to protect themselves, even more than they do now. The Chairman. Does the immigrant, when he arrives here, hope to be treated like a man? Miss Kellor. That is one of the chief reasons why he comes here. He believes that that is the thing that he will have in America. 466 EMERGENCY IMMIGRATION LEGISLATION. The Chairman. Wouldn't you say that absolute equality of treat- ment tended very stronfjly to Americanize? Miss Kellok. I should say unhesitatingly that it is the greatest Americanization factor there is. The Chairman. And that inequality of treatment tends to solidify?^ Miss Kellok. Correct. The Chaiilman. Isn't that true historically, so far as one nation taking in a group of aliens is concerned, that these aliens have be- come the nationals of the adopted country through the principle of equality rather tlian through the exercise of force or inequality^ Miss Kellok. Yes, and history has also shown. Senator, that where suppression and inequality have prevailed, there have inevitably developed in the countries themselves very powerful minorities trying to act independently of the General Government. The Chairman. We find in the Balkans intense racial antagonisms. We will take Hungary, for instance — the ^Magyars and the Slavs. Isn't it true that that principle of inequality, or holding the race in some form of servitude, has intensified racial antagonism ? Miss Kellok. Very much, and especially the suppression of the use of language, and the discriminations in regard to property. The Chairman. And isn't it true that so far as the United States is concerned, the principle of liberty and general equality and oppor- tunity which has prevailed here, has produced this remarkable result that when we reached a crisis during the war, generally speaking, all the alien races rose in defense of America ? Miss Kellor. That was one element in it ; yes. Senator Harrison. Do you think that any of these groups in the United States, who have been permitted by the laws of the United States to come in. in case there should be a controversy between the United States and their mother country, should ever be allowed, by virtue of having come from that mother country, to 'be influenced against their adopted country and in favor of the mother country ? Miss Kellok. We have a very interesting angle developed along that line. We find, for instance, that the nationals in America have become such powerful organized groups, economically and socially, that the tendency now is not to influence the nationals here so much in favor of their old country, as to use the influence of the nationals here to settle the affairs of the old country. That is the new de- velopment since the war. For instance, when I was in Germany I found in one of the publi- cations there a proposal which will interest you — it is typical of the tendency, though by no means general, for this movement is just beginning. It is proposed that citizens of Germany residing in for- eign lands have a vote in the affairs of the fatherland. The Society of German Emigrants (Das Deutsche Ausland Institute, Neues Schloss, Stuttgart, Germany) has opened a prize contest for sugges- tions as to how to achieve this vote. Then follow the names of the judges. There is a similar discussion going on in regard to Rumanian citi- zens who live in other countries; as to whether the Rumanians in this country, for example, shall not have a vote, or at least send dele- gates to their mother country to discuss some of the affairs of Ru- mania. EMERGENCY IMMIGRATION LEGISLATION. 467 Senator Harrison. In other words, when they come here they are trying to reform two countries. Miss Kellor. And being a very powerful factor in the situation, of course that influence is sought by the home country. But here is another very interesting angle to that. The foreign- born people are denied — without any real intention on our part, and it is only through our neglect — participation in our principles. There are three elements in the situation which are vital : First. Recognition. Second. Eecij^rocity. Third. Participation. Those are the fundamental principles. Now. if any one of those is denied to any group, they immediately seek it somewhere else, and if we could find a way by which the full expression of these nationals could be brought into American affairs, it would automatically keep them from participation anywhere else, because they would be satis- fied. Does that answer vour question? Senator Harrison, les; I think you and I agree on the propo- sition. The Chairman. Pursuing Senator Harrison's inquiry for a mo- ment — we declared war against Austria-Hungary. From the report of the Immigration Commission, of which Senator Dillingham was chairman, I read that there were 12 different nationalities in Austria- Hungary. Now, you know the number of different nationalities that lived in Austria-Hungary, and you know that we received immigrants in this country representing all those different nationali- ties. I would like to test this proposition. I would like to take the members of those different nationalities who were in the United States at the time we declared war against Austria-Hungary, and see what their conduct was with regard to our declaration of war. There were in this country 414,000 aliens who waived their exemp- tion from the draft and voluntarily enlisted in the defense of the United States. I don't know how many people there are of German descent here, but I know thei-e are a million. Was there on the whole a hostile attitude shown by the people representing these different nationalities of Austria-Hungary in this country and by the Germans in this country? Miss Kellor. I should say. Senator Colt, that there was no hostility shown by the great mass of Germans, but of course, the Attorney General, in his activities, has shown that there was a good deal of anti-American activity by certain parts, but not by the general mass. I should say, as to the general mass of them, no. The Chairman. Yes; I was speaking of masses, and not particu- lar groups. Miss Kellor. Of course, there is one thing that we should remem- ber in connection with the nationals in this country, in connection with that war, in fairness to them, and in fairness to ourselves, with- out attempting to disparage the part they played in it, and that is that the war of the Allies was also the war of the countries of the majority of the people in this country, as well as our own. Senator Harrison. Do you think — pursuing the question of Sena- tor Colt — that when the controversy arose between Germany and 468 EMERGENCY IMMIGLATIOX LEGISLATION. the United States, there was an appreciable part of the German population in the I'nited States that sympathized more with the contention of the German Government than with that of the Gov- ernment of the United States? Miss Kellor. Do you mean at the time that America went into the war, or before ? Senator Harrison. Before. When the ccmtroversy first arose. Miss Kellor. I should say yes. Senator Harrison. There was? Miss Kellor. Yes. Senator Harrison. Do you think that it is a healthy condition in the United States that there is an appreciable part of the aliens here who show more sympathy for the country from which they came than they do for their adopted country, in a controversy^ between the old country and the new country ? Miss Kellor. Xo; I should think it were a very serious condi- tion, especially if we were at war with all of Europe. Senator Dillingham. I thounrht you confined your query to the period previous to our entry into the war. Miss Kellor. I asked Senator Harrison if that was what he meant. Senator Harrison. In the controversy that led up to the war. Miss Kellor. In the controversy that led up to the war i Senator Harrison, lies. I was not askincr about the period after we got into the war. Miss Kellor. That is quite a different proposition. Senator. I don't know that you want me to take up any more time on this. Senator Dillingham. I should like to hear you on the subject you started in on before you were interrupted. Miss Kellor. If I may just run throu; his preseut attitude differ from those of the prewar period? EMERGENCY IMMIGRATION LEGISLATION. 469 Now, on the other side, we have to ask this question, which is a vital question : 2. Are foreign Governments which have undergone vast changes, like Russia and Hungary and the new States, not changing the point of view and ambitions of their immigi-ants in so far as tiiey relate to the United States? And the third question is : Is the temporary suspension of immigration the logical solution of post- war problems, and does it embody a comprehensive safeguard for American in- terests which will not liave unforeseen commercial reactions? "We have to follow that trail into Europe and ask this question : 3. Will competitlve-immigi-ation nations profit unduly by suspension of immi- gration to the United States by securing man power and markets, and by mak- ing profitable commercial negotiations, and will emigration nations not retaliate by diverting immigration to other countries? And the fourth question : 4. Is the United States a necessary asylum for oppressed people, and if not, why are immigrants coming? We can only find out whether we are considered as an asA'lum for oppressed peoples by getting^ the answer in Europe to this question: 4. What are the conditions in Europe since the war as to political and re- ligious freedom, and what are the causes of emigration? Now, the fifth question is : 5. What classes of immigrants can best be assimilated, and do our present laws insure their assimilation? And running right parallel with that is the European question: 5. Is Europe planning to send to the United States radicals and criminals, or is it placing its emigrants as economic assets to earn money, sell goods, locate capital, and obtain credits for its best interests? And may I say on that point that not one of the officials that I talked with abroad had any s^'mpathy whatever with the idea that we thought tliey were sending us criminals and radicals purely on economic grounds. They said, "It is the poorest possible investment we can make, to send you people who would not make good in your country, who would not be a credit to us, who would not be a success, and therefore the thing we do not want to do is to send you that kind of people." Senator Harrison. "When were jou. abroad? !Miss Kellor. In June, July, and August, Senator Harrison. May I ask you in that connection a question that was asked of some witness yesterday: Do you think that those who leave Italy, say, or any of those countries, are as desirable as those who remain in those countries? Miss Kellor, Oh, I shouldn't think that was a question that could be answered, because there is no selective process. Senator Harrison. Just a matter of opinion? Miss Kellor. I should say that they were exactly the same class. Senator Harrison, About the same? Miss Kellor. Exactly the same. Senator Harrison, They may be poorer? Miss Kellor. They could not be any poorer than some of those who stay. 470 EMERGENC"Y IMMIGRATION LEGISLATION. Senator IIarrisdx. They could not be any poorer tlian some who do stay ( Miss Kellok. No. I should say that tho.-e who come are the same as those who stay; that there was no discrimination and no selec- tion — that is, at the present time. I can not speak, of course, of be- fore the war. Senator Dillingham. Isn't it true that the most enterprising of each class are those that seek to get away to try new conditions? Miss Kellor. Xot necessarily. It may be that those Avho come over here are such as have friends and relatives over here, and that must be so, seeing that 80 per cent of those who come have received their steamship tickets from this side. Senator Dillingham. Isn't it the rule that it is the most enter- prising class that saves in order to emigrate to a new country where there are greater possibilities? Doesn't it take a considerable amount of initiative to undertake such a trip, and wouldn't you say that such people Avould be the most enterprising? Miss Kellor. I shouldn't say that that is necessarily so. Senator. It is purely economic. I should think that if a man is told that his friends will help him to get work over here, and that they will take care of him and see that he does not have such a hard time as he has at home, and send him money for the passage and so on, that it does not require so much initiative to start. Senator Dhjjngham. All right, say that that is true. Xow we will say that there are six men over there : Three of them come and three stay. Aren't the three that come the most enterprising? That is the point I want to get at. Miss Kelix>r. I would not want to say that that is true without knowing some of those people, and following it down. Senator Dillingha^i. AYell. I am assuming that those six men have all received the same information from their friends over here as to their ability to secure work and as to the conditions and so on, and three of them buckle up their loins and come, and the other three stav at home. Miss Kellor. But somebody in Italy might say. "We will give you a piece of land if you stav. Don't go to America. We will give you opportunities here." Now there are so many elements. Senator. The Chairman. Well, wouldn't you say that the Italian who con- templated coming 3.000 miles across the sea to a new land, with the difficulties that surrounded him of getting a passport, etc.. is of a more enterprising and energetic class than the fellow who does not want to go to all the trouble that is involved ? Miss Kellor. Why, yes. sir. Senator; if you divide them into those two categories. I should say so ; yes. but I don't think they are divisi- ble into those categories. The Chairman. The commission headed by Senator Dillingham, that spent years in the investigation and study of this probelm, reached that conclusion. Miss Kellor. Yes. Senator ; but the conditions have changed since 1910. I mean the immigration has now become an economic matter. It is not now so much a matter of men starting out for themselves, seeking opportunities and making their own way. The Chairman. Well, let us deal with individual units. I will take two Italians. One is lazy and rather good-for-nothing, and EMERGENCY IMMIGRATION LEGISLATION. 471 another is ambitious and enterprising. Now, wouldn't you say that it was the ambitious and enterprising chiss of person who would undertake this voyage of 3,000 miles to a new country, rather than the lazy and good-for-nothing person? Miss Keixor. Yes, sir; I should say yes, between those two classi- fications, without any doubt. The Chair:man. AVe are not dealing with the question of what other influences were at work, but we are just simply dealing with it from that single aspect. Now please continue 3^our statement, Miss Kellor. Miss Kellor. The sixth question is: 6. Is America in favor of the assimilation of all immigi*ants, or does it favor the admission of immigrant workmen as transients? And the corresponding question in Europe is : 6. Is Europe following a plan of race separation and of not only holding the interests of its nationals abroad, but of calling them home, at least tempo- rarily? The seventh question : 7. Is the present plan of imiform admission from all countries the best, or is an immigration treaty with individual countries feasible? And the answer to that : 7. Are not some European countres already negotiating labor treaties and directing immigration according to specific agreement? And the next question is : 8. Is there adequate Federal Gvernment provision for the reception and distribution of immigrants on arrival? And a very important question over on the other side : 8. To what extent is the protection and distribution of immigrants under- taken by racial societies with the support of foreign Governments? At the present time our system of distribution is practically in the hands of the racial organizations. It is a racial distribution. The next question is : 9. Is the immigrant fully protected from exploitation by American laws and institutions? And on the other hand : 9. What agencies are foreign (Tovei nnl"nt^; e ;ti;b'i:-.lii:i,: 'i /: to protect and distribute their emigrants? I might say there that generally speaking, in a large generaliza- tion, in the last analysis the protection of the immigrants is still in the hands of the racial organization rather than in the hands of the American Government. I mean, if a complaint is made, for instance, of exploitation it is usually made to racial headquarters. The next question is : 10. Is American citizenship being offered in the best way to the immigrant, and what is his reaction toward it? And on the other side: 10. What is the attitude of foreign countries toward American citizenship, and what standing has the naturalized American in his native country? 472 EMERGENCY IMMIGKATION LEGISLATION. The next question is : 11. Are tho adoption of compulsory legal methods and of economic dis- crimination to induce the immigrant to learn the English language and be- come a citizen for the best interests of the United States? And on the other side is : 11. Is a reaction against America taking place in European countries in favor of other countries and their institutions as destinations for future im- migration? The next is : 12. Is the tendency to resort to deportation rather than to establish laws and courts to deal with violations of laws by aliens a wise principle to adopt? And then over on the other side is the question : 12. Are foreign countries planning to take up deportations in international conference with a view of reaching agreement on deportable offenses?" I think. Senator Colt, that these questions are pretty clear and I can simply submit them as part of the record, without going through them all. unless there is some question on any one of them. The Chairman. If it is the sense of the committee, I think it would be well to have this memorandum go into the record. Senator Harrison. Yes; I think it ought to go into the record, Mr. Chairman. The Chairman. Very well, it may go into the record. (The •' Memorandum for Inquiry on Immigration Subjects." presented by Miss Kellor, is herewith printed in full, as follows:) Memorandum for inquiry on immigration subjects. DOMESTIC ATFAIBS. 1. How many immigrants are plan- ning to come to America, and what is tlie capacity of this country for their assimilation : (a) on farms; (b) in industry; (c) in commerce; (d) miscellan- eous? 2. What is the attitude of the new immigrant toward work, civic obligations, education, govern- ment, and social institutions in America, and wherein does his present attitude differ from those of the prewar price? 3. Is the temporary suspension of im- migration the logical solution of postwar problems, and does it embody a comprehensive safe- guard for American interests which will not have unforeseen commercial reactions? 4. Is the United States a necessary asylum for oppressed people, and if not, why are immigrants com- ing? 5. What classes of immigrants can best be assimilated, and do our FOMUGX BELATIOXS. Will not immigration to the United States decrease with economic stabilization in Europe, and will any estimate hold good beyond the immediate present? Are foreign governments, which have undergone vast changes, like Russia and Hungary, and the new .*!tates. not changing the point of view and ambitions of their immigrants in so far as they relate to the United States? Will competitive immigration na- tions profit unduly by suspen- sion of immigration to the United States by securing manpower and markets, and by making profitable commercial negotia- tions, and will emigration na- tions not retaliate by diverting immigration to other countries? What are the conditions in Europe since the war as to political and religious freedom, and what are the causes of emigration? Is Europe planning to send to the United States^ radicals and crim- EMERGElsrCY IMMIGRATION LEGISLATION. 473 DOMESTIC AFFAIRS — contiuued. present laws insure their assimi- lation ? 6. Is America in favor of tlie as- similation of all immigrants, or does it favor the admission of immigrant workmen as tran- sients? 7. Is the present plan of uniform ad- mission from all countries the best, or is an immigration treaty with individual countries feas- ible? 8. Is there adequate Federal Govern- ment provision for the reception and distribution of immigrants on arrival? 9. Is the immigrant fully protected from exploitation by American laws and institutions? 10. Is American citizenship being of- fered in the best way to the im- migrant, and what is his reaction toward it? 11. Are the adoption of compulsory legal methods and of economic discrimination to induce the im- jnigrant to learn the English language and become a citizen, for the best interests of the United States? 12. Is the tendency to resort to deport- ation rather than to establish laws and courts to deal with violations of laws by aliens a wise principle to adopt? 13. Is the movement in favor of the registration and surveillance of immigrants operable in the ab- sence of a Federal police system . and, if it results in a travesty of the law, will it do more harm than good? 14. Are racial solidarities maintained • by immigrants after arrival? 15. To what extent, and in what ways, do immigrants depend upon their home countries for assistance, protection, and guidance? 16. Is there a distinct racial economic system in America made up of employment agencies, banks, in- surance .societies, press, and trade bodies? 26911— 21— PT 9 2 FOREIGN RELATIONS — Continued. inals, or is it placing its emi- grants as economic assets to earn money, sell goods, locate capital and obtain credits for its interests? 6. Is Europe following a plan of race separation and of not only hold- ing the interests ol its nationals abroad, but of calling them h«me, at least temporarily? 7. Are not some European countries already negotiating labor treaties and directing immigration ac- cording to specific agi'eement? 8. To what extent is the protection and distribution of immigrants undertaken by racial societies with the support of foreign gov- ernments? 9. What agencies are foreign govern- ments establishing in the United States to protect and distribute their emigrants? 10. What is the attitude of foreign countries toward American citi- zenship, and what standing has the naturalized American in his native country? 11. Is a reaction against America tak- ing place in European countries in favor of other countries and their institutions as destina- tions for future immigration? 12. Are foreign countries planning to take up depqrtation in interna- tional conference with a view to reaching agreement on deportable offenses ? 13. Will adoption of registration in the United States strengthen the influence of foreign govern- ments over their own emigrants, if such a law is passed and fails of enforcement? 14. Are immigrant colonies, and for- eign languages and usages in the United States encouraged or perpetuated by foreign govern- ments? 15. For what purpose, and in what ways, do foreign governments hold the interest and support of their nationals in inmiigration countries? 16. How far are foreign finance, trade, and production dependent upon the success of the foreign coun- try's emigrants abroad? 474 EMERGENCY IMMIGRATION LEGISLATION. DOMESTIC AFFAIRS — coiitinued. It. Is there a distiuct racial, social, aud fraternal life among races in America in wbicli racial cus- toms, habits, traditions, etc., are perpetuated and the native lan- guages fostered? IS. Are racial political activities, de- veloping in the United States since the war, concerned with adjusting political disputes and winning elections in the native counti'ies? 19. Does the foreign language press in this country maintain a separate racial opinion on American af- fairs, and does it influence opin- ion here on foreign affairs? Are immigrant workingmen inter- ested primarily in maintaining the American standard of liv- ing? 21. Do immigrant dealers and consum- ers fully promote tlie use of American products? 22. Are immigrant savings spent as fully in the United States as this country's best interests require? FOREIGN RELATIONS — Continued. 17. How are racial societies in immi- gration countries encouraged and supported by foreign aud semi-governmental agencies? 20, 18. Are racial groups in the United States being encouraged to help adjust native country affairs, and is their influence being sought for this purpose? 19. What is the influence of the Ameri- can foreign language press abroad, and what are its foreign connections? 20. To what extent do foreign born workmen intend to return to their native countries? 21. What are the activities of foreign trade bodies in America, and what use is made of foreign lan- guage groups to sell exports? 22. For what purpose, and in what ways, are immigrants to the United States encouraged to send money to their native coun- tries ? 23. How do foreign governments re- gard Americanization in so far as it relates to the opinion and action of their representatives abroad ? The Chairman. Miss Kellor, there were some statements that you were to furnish for the record. Have you filed them? Miss Kellor. I have placed a number of statements in the record, but there are two that I would like to file with the committee. The Chairman. If you have them with you now. you may do so. Miss Kellor. I referred in my former testimony to the question of social attaches at the consuls' offices. I have here a statement on that subject which I will hand to the committee. I have also a statement on European migrations to other coufi- tries in Europe and to immi^ation countries other than the United States, which I will leave with the committee. The Chairman. They may be placed in the record. (The two statements furnished by Miss Kellor, one on " Social attaches at the consuls' offices " and the other •' European migrations to other countries in Kurope and to immigration countries other than the United States," are herewith printed in full, as follows:) 23. What progress is Americanization making, and what is the attitude toward it of the immigi-ant, his press, and his leaders? SOCIAL ATTACHICS AT THE CONsri.>< OFFICE.*;. The International Trades-Union Congress, which met last year in Amster- dam, adojjted a resolution according to the terms of which (.iovernmcnts are called upon to appoint " social attaches " t<) their I'lnbassies in the countries mainly concerned. In the appointment of social attaches the ti*ades-unions are to have the right to make suggestions. The Governments of Germany, Norway, aud Sweden have in certain instances already acted upon the Amsterdam reso- EMERGENCY IMMIGRATIOlSr LEGISLATIOX. 475 lution: it must, however, be pointed out tliat Italy adopted a similar arrange- ment some years afro. The " adetti a! eniisi'azione," who are active in several countries, are, broadly speakin.u-. called upon to exercise the functions of social attaches. Foi- "the time beini;, the duties of a social attach^ can be indicate.1ect. The (Jovernment nuist always keep him informed with rejrard to all its social-political plans. On the other hand, he mu.st study and watch the conditions of lal)or and of social legislation of the counti-y in which he is employed, in order to l)e in a position to •^\xe information at any time to the authorities, the members of parliament, the press, and the organi- zations of his own country, apart from the regular reports which he has to furnish to his Government. The social attache must carefully watch the labor market in both countries, in order that he may be al)le to give expert advice on questions relating to immigrati United Siate.s. England. — England's loreign-born population is one of the largest in the world in the matter of variety of wice, but is small in the size of its racial representations and colonies. Before the war the emigration of aliens was over KMi.OXi a year. England has for a long time been on the route of many European innnigrants planning to go to the Unite*l States, and sometimes they make the island their destination after arrival. This is true especially of Jewish i>eople from Russia. Roumania. and other countries. There are 2."><1,000 Jews in England. Italians. Lithuanians, Scandinavians, and other North Sea people come over frequently to work in the mines and industries of eastern England. AH seeking employment in England have to secure a permit from the ministry of labor. The British Government has recently established a migration department with highly traiuetl officials to comprehensively survey the problem of imperial migrarions. It is expec-ted that this will do much to determine the migrations of the British for many years to come. Emigration from England has been chiefly to the United States, Canada. Australia. South Africa, and India, and before the war reached more than half a million annu- ally. The English are found in all countries; France has over 40,000: Germany, South America. Egypt, the Orient, and the Indies have large groups. There are 3,000 in Japan. France. — In 1911. the nationalties most numerous in France were as follows: English. 40.37S: Belgians. 287,126: Germans, 102,271: Austrians. 14,681: Swiss, 73,422: Italians. 419.234: Spaniards, 10-5.760: Rus.sians, 35.016: nearly 3 per cent of the population is foreign bom. It is stated that only a few naturalize and that France insists on no standard of living for alien workers, making simply an economic contract with them. When 350 Italians recently went on strike at Hussigny, two-thirds of them were promptly dep<:)rted and their places filled by newly imported workers. Spanish skilleil workers have recently migrated to France in large numbers. In 1918 nearly -KW.OOO Spanish work- men were in France. In 1915 they came in at the rate of 28,000 a yearl to-day it is at the rate of 107,000 per annum. Italian miners have also gone there during the last year in large numbers, to work coal and phosphates, and b.v arrangement with Italy so many tons of coal have been supplied to Italy for every laborer sent. An Italian officer of emigration recently stateil that Italians would be urged to go to France rather than to the United States, as there '* work and wages were much higher." The French population of the world is well scattered, and the largest groups are in Belgium (3.000.000), Argentina (2.50.0CHJ), Brazil (12,(KXH. Germany (200,(n10), Switzerland ( 730.000 >. and in western Italy (80,000). More than 4.r>00.000 in French Canada are of French descent, with 20,000 French of French birth, and a movement has just been staiteers and magazines, 108 are in Swedish. 11 Swedish and Fin- nish, 2 in Russian, 1 in English and 1 in French, it appears that a few foreign countries have colonized there. The Finns who do not go ta the United States go to Russia, Sweithuanians, and Wends- have about 100,000 each in the country, the Poles have nearly 4,00f»,000 there. The point of view from which Germany has regarded ^her inunigraiUs is illustrated by the sys^tem of legitimation cards (Legitima- tions-Karten) which a number of States introduced .some years before the war. In the immediate interest of employei's this service e.^'tablishe*! a sort of conttrol over immigrants which could not be exercised over national workers. Its assumption, correct for practical purposes, was that the immigrant has only a pecuniary interest in coming and nnist accept his employers' terms or stay away. In the agricultural East, immigrants had often broken their con- tracts to work, and sought hire elsewhere. The employers, deeming this pro- cedure abusive, organized privately a Fehlarbeiterzentralstelle, which Prussia, late in 1907, made the agent of a public policy. All agricidtural immigrants were temporarily to yield \m their passports (written in various languages) and to receive cards in return bearing their own and their employers' names. Any discovered .seeking work without a due discharge inscribed on their cards were to be expelled from the country. After the system had I)een in operation for one year, it was extended (December. 1908) to cover all industry and all immigrant workers, and its name made simply Deut.sche Arbeiterzentrale. Each nationality had a card of a special color, the Italian being green. Gradually sevei-al States followed the lead of Prussia. Since the Sonthern States continue to hold aloof, it remained possible for contract breakers to move into them. German writers, except the lal>or press, appear to have approved the institution, while Italian ofRcals and writers have vigorously condemned it. Italian workmen, of whom 47,000 came under it in the year 1910-11, have generally resented paying the fee of 2 maarks for the useless green card, but otherwise have not been bothered by the system, which was not, as we have seen, directed primarily against them. German immigration to the United States was heaviest between 1854 and 1882. It has sunk from •250,000 a year, to about 20,000 in the years before the war. Other countries that receive Germans outside of Europe and Brazil (about 2.50 a .vear) where there are .50,000 to-day; Australia (about 300 a year), Canada (about 5,000 a year), where there are now (IMar. 31, 1919, 40,000). Before the war there were over 100,000 Germans in France. A new movement to South America has started this year, and it is expected to exceed 1.000 families a year. There is a large German colony in Chile. Many of the Germans entering of recent years are from Austria and Russia, and the number from these countries has often ex- cee<1ed the nmber from Germany itself. There are many domiciled Germans in Austria, Bulgaaria. Russia, and other countries, Czechoslovakia and Switzer- land, where 200 and 500 reside. f!rrcrc. — There are stated to be twice as many Greeks outside of Greece as within the country, 4,000,000 of them being in Asia Minor. Most of the Greeks that have come to the United States have come from countries outside of Greece. Apart from the Unittxl States the Greeks have emigrated in large numbers to Canada. South America, Roumania, Bulgaria, Russia, England, and Italy. It is difficult to determine for how many races Greece provides a nucleus and is thereby a potential immigration country. Several Slavic groups have large colonies there, as also have the Roumanians, Bulgarians, and Al- banians. Hunganj. — Hungarians go to Canada at the rate of nearly 1,000 a year, other- wise except for individuals in all the large European cities, and 665,000 In 478 EMERGENCY IMMIGRATION LEGISLATION. Czechoslovakia and a colony in Roumania and Switzerland, the race is confined to Hungary. There are ahout 400,000 in the United States, an Armenian col- ony of 15,000, and Kroui>s of near-hy races. In Hunjjary there are about 000,000 Jews. It (till. — The geographical boundaries of the Italian race are wider than those of Italy. They are in France, Germany, Jugoslavia, Switzerland. Canada, where there are 35,000, South America, espe<;ially Argentina, Chile, Paraguay, and Brazil, and in most of these lands by the hundreds of thousands, and the United States. There are 2.500,000 in Argentina, 1,125,000 in Brazil. The annual average of emigrants from Itlay to all countries is nearly 700,000, nearly a quarter of a million of them going to European countries. For 31 years previous to and including 1914, about 14,000,0000 thus left the country. The principal countries of Europe receiving them have been Austria-Hungary, (over 40,000 per annum), France (70,000 per annum), where there are nearly 500,000; Switzerland (over 85,000 per annum), Germany (75,000 per annum). By hundreds and sometimes by thousands they have also gone to Belgium, Russia, Spain, Portugal, Holland and the Scandinavian countires. For many years 3,000 to 4,000 have gone to England and some hundreds to Ireland. Italy itself is nearly all Italian ; there are some 80,000 French in the northwestern districts, about 30,(XK) Slavs in the northwestern districts and in the south 30,000 Greeks, 90,000 Albanians, 10,000 Germans and about 10,000 Spanish Cat- alonians. Italy keeps a close contact with all its nationals abroad, and re- cently an international syndicate has been formed to supply such labor to any country. Ireland. — The Irish emigrated to the United States in largest numbers be- tween 1840 and 1880, but large numbers also go to Canada where it is estimatetl that 22 per cent of the population is Irish. Before the war 9 Irish arrived in Canada to every 5,000 of the Canadian population, where less than 2 came to the United States under the same proportion. There are about 2,000,000 Iiish in England and Scotland. Jeics. — The Jews of the world have emigrated to many countries as well as possessing domicile in most European countries. Outside of the United States they are found as follows : Argentina 45, 000 Mexico 10, 000 Cuba 4, 000 Egvpt 70,000 Abyssinia 6, 500 Algiers 127,500 Morocco 110,000 Asia 514, 000 Australia 18, 000 British Isles 2.50,000 Canada 100,000 South Africa 50, 000 And in the various countries of Europe, 9,500,000. Lithuaniu. — When Lithuanians emigrate they go to the following countries as well as to the United States: Germany, England, Canada, and Russia. In Lithuania itself can be found large colonies of Jews, Poles, White Russians, Russians, Letts, and Germans. Morocco. — Morocco is a small immigration country, and the following races are chiefly represented there : French, 40,190 ; Spanish, 13.517 ; Italian, 8,940 ; Polish, 1,005. There are also large domiciled colonies of Jews, of whom there are 110,0(X). Arabs and Negroes. The total number of Europeans in Morocco exclusive of French and Spanish is probably about 87,000. . Netherlands. — The emigration of the Dutch has been i)rincipally to Canada and part from the United States, and about 1,500 annually have arrived there. Their largest emigration to the United States was in 1SS2, to-day it is only aliout 10 per cent of what it was then. There are about 75.000 Dutch in the East and West Indies and about 400,000 Dutch Boers in South Africa. Except for about 14,000 .Tews who have long resided there, the people of Holland are 71 per cent Dutch, 14 per cent Friesians, 13 per cent Flemish, and 2 per cent other Low Germans. Italian laborers go there in hundreds every year. Norway. — Of the population of Norway in 1910. 36,647 were born in Sweden, 1,832 in Finland, and 2,986 in Germany. Norwegian emigration is chiefly to Canada. Germany, England, from the United States and other Scandinavian countries. Rumania. — In Rumania there are large colonies of HungaVians and German Saxons, also a few Serbs, Bulgarians. Ruthenians, Russians, and Turks. There is an Armenian colony of about 15,000. The Rumanians themselves re- sided outside of Rumania in the following numbers in 1900 : Hungary. 2.800.000 (this figure is less to-day due to new boundaries) : Austria. 230.0()0; Russia. 1,180,000; Serbia, 90.000 ;' Turkey and Greece. 125.000. All of these places, in- cluding Bulgaria, are centers to which Rumanians may emigrate. EMERGENCY IMMIGRATION LEGISLATION. 479 Russia. — No data is on file as to foreign born in Soviet Russia, tliougli numerous dispatclies of recent date state that Swedes. Germans, and a few other adjacent peoples, as Armenians, have emigrated to Russia in small groups, or have long been domiciled there. The Russians themselves are represented by emigrant groups in Canada, Argentina, France, where there are nearly 50,000 ; Finland, Switzerland. Bulgaria. Germany, and Lithuania. As many as 25,000 a year have gone to Canada, where there are now over 100,000. Spain. — The Spanish have long bt-en an emigrating people. Of recent years, until 1920, less than 100,000 left the country annually, but this year the exodus to France, where there are over 100,000; Germany, Argentine, Belgium, Cuba, Brazil, Uruguay, and Mexico, as well as to the United States, has been un- usually large. There are 1,500,000 Spaniards in Argentine, 500,000 in Brazil, and to Portugal and Morocco there is always a movement. Stceden. — In 1910, there were 21,708 foreigners in Sweden, including subjects of Finland (5,538), Noi-way (4,537), Germany (3,400), Denmark (2,900), Russia (2,900), United States (866), Great Britain (288). Domiciled in the country are 25,290 Finns and 7,138 Lapps. The Swedes have emigrated to Canada, other Scandinavian countries, including Finland and Iceland, about 100,000 are scattered in other countries. Swedish emigration to the United States has dwindled since 1S82. PoUnd. — Polish emigration has been chiefly to Germany, where there were 4,000,000 before the war; Canada, France, and other mid-European countries, apart from the large immigi-ation to this country and 100,000 to Brazil. Portugal.— AitSiVt from the United States, Portuguese emigration has been chiefly to Brazil, to which place during the last 50 years over .500,000 have gone, three times as many as have come to the United States. Many of the United States arrivals are Bravas from the Cape Verde Islands and not pure Portu- guese at all. Portugal itself chiefly receives Spanish and Italians. Sicitzerland. — Switzerland has 18 per cent of its population foreign born, or 5 per cent more than the United States. The number resident there in 1910 was 552,011, of whom 219,520 were Germans, 63,695 were French, 202,809 were Italians, 4,118 were English. 37,641 were Austrians, 2,363 were Hungarians, and 8,457 were Russians. In addition it should be remembered that this Republic has a native population whose languages serve to attract immigration. In 1910, there were 2,594,298 who spoke German, 793,264 who spoke French, and 312,578 who spoke Italian. Emigration from Switzerland is apt to be to these three countries, but is small, only about 2,000 a year. In France there are 73,000 Swiss. Yuyoslavia. — The census of 1920 shows that Jews, Gennans, Hungarians, and Rumanians are to be found in large colunies in this new Republic. Yugoslavs have emigrated to Canada, but to few other places outside of the United States, but they are found in small groups in many of the Balkan and mid-European countries, including Italy. Miss Kellor. Unless there are some questions that you want to ask me, Senator, on remedies, I have practically finished. The Chairman. Thank you very much. We will next hear from Prof. Jenks. STATEMENT OF PROF. JEREMIAH JENKS. Prof. Jenks. Gentlemen, I will speak very briefly this morning on the subject that I have to cover. The Chairman. Will you kindly state for the record what we call your qualifications, so they may be in the record ? Prof. Jenks. I suppose perhaps the qualification that I should mention first, and perhaps the sole one, is that I was a member of the Immigration Commission to which you have referred so fre- quently, and that since that time I have endeavored, in a general way, to keep in touch with the immigration situation, as I had before that, somewhat. I perhaps ma}' say also that I did not know until after I reached Washington j^esterday, that I was expected to ap- 480 EMERGENCY IMMIGRATION LEGISLATION. pear before the committee, so that I liave made no special prepara- tion. It has seemed to me that you have already liad a larj^e amount of statistical evidence and detailed facts placed Ijefore you, and I had thoujxht that I should like to emphasize particularly one or two of the more workers. Then ajrain : As soon as it became known that we were in Warsaw, we were besieged by person.s anxions to join tlieir relatives in Americ-a. The clamor for help and for jjuidance was insistent and the work would admit of no dt-lay. We bejian imme: over with that thouojit in mind, and for that purpose, are sure to Ije disappointed largely, and many of them, doubtless, are coming back again. The Chairjian. But still I can not understand, if the conditions in Europe are as you describe them, economically and politically, why those large numbers of people return to those countries. Prof. Jenks. As I say, my impression is that that is a temporary movement, and is not likely to last very long, and the reason that I have given, it seems to me. would account for that. The Chairman. Well, wouldn't 5^ou suppose, if it was a temporary movement, not likely to last long, that the numl^ers who return to their country would have gradually decreased during the last several months instead of increased? Prof. Jenks. Well. I should think that they would decrease be- fore much longer, at any rate. It is in part a question, also, of the shipping facilities, their opportunities of getting passports, and get- ting away. The Chairman. We had in October 33,000 departures, and in November 34,000 departures. Prof. Jenks. Yes, even those figures, of course, are rather small. The Chairman. Yes, all the figures are small. The number of immigrants arriving is comparatively small. Prof. Jenks. Excepting that it is also the fact, is it not — I understand that that is the fact — that during these latter months the number of tliQse that are coming in is really quite materially increasing, and the net increase is steadilj- rising. The Chairman. No. We had 101.000 arrivals and 33.000 depar- tures in October. In November we had 103,000 arrivals, and 34,000 departures. So the slight increase in arrivals was about made up by the increase in the departures. Senator Harrison. Would the records show that thej'^ intend, when they leave this country, to stay in the other country to which they are going? Senator Dillingham. There is a large numl)er going over there that intend to stay. Senator Harrison. Would the records show that they really in- tend to live in the country- to which they are going, after leaving here? Senator Dillingham. I don't know about that. Prof. Jenks. It has seemed to me. and I have the opinions of people who are rather familiar with the immigration conditions at Ellis Island and elsewhere, that a good many of them are going back to visit and look into the situation, and that they are not cutting loose from here, but they do expect to come back. On the other hand. I have had specific instances called to my attention — but I can not at the moment give them — of men who have EMERGEXCY IMMIGEATIOX LEGISLATION. 489 gone so far as to sell out their property here, and who were going back to their mother country Avitli the thought that conditions over there were good, and with the intention of remaining there, but when they got over there they found that conditions were so unfa- vorable that they have come back again, even at a great loss to themselves. The Chairman. You are. Prof. Jenks, very familiar with this whole situation. Let me ask you this question from a practical standpoint : Supposing we had sixty to seventy thousand net increase in our population arriving at the ports of the United States. Assum- ing that half of those people who arrive in this country were women and children, leaving about 30,000. Assuming further — and the facts show this — that perhaps 10 per cent stayed in Xew York, 15 per cent went to Pennsylvania, 12 per cent went to Ohio, and so on, would you think that that number of arrivals would have any particular effect upon the labor market? Prof. Jenks. Speaking generally, no. It is a relatively small fac- tor, of course. There is this other thing, however, to"^ be kept in mind. We already do have, at the present time, so far as the in- formation goes, a very considerable amount of unemployment, and that is increasing, more particularly in the industrial centers. The facts show that most of the immigrants that do come in — not referring to wives and children there — go rather to the industrial centers than otherwise. We have not at the present time the machinery to induce them voluntarily to go elsewhere, as I hope we shall have in the future. It seems to me that people are expecting that this question is to be taken up now, and that it ought to be taken up, and that it is very desirable at the present time to have a' policy outlined. The Chairman. We will have to suspend now. You can return at 2.15, can you. Prof. Jenks? Prof. Jenks. Yes, sir. The Chairman. The committee will now take a recess until 2.15. (Thereupon, at 12 o'clock noon, a recess was taken until 2.15 p. m., of the same day, January 14, 1921.) after recess. The committee reconvened at the expiration of the recess, Senator Le Baron B. Colt presiding. The Chairman. Mr. Jenks, we will hear from you further. STATEMENT OF PROF. JEREMIAH JENKS— Continued. The Chairman. May I ask you a question, Mr. Jenks? Prof. Jenks. Certainly. The Chairman. I understood you to say that you thought the number of departures at the present time was due to present' condi- tions, and that you were inclined to think that the number of depar- tures would diminish? Prof. Jenks. Yes, Senator. The Chairman. Upon that point I wish to call your attention to this fact, that the returning tide of immigration has been constant. I have statistics covering the period from 1909 to 1919. 26911— 21— PT 9 3 490 EMKnOKXCY IMMKIKATION l.Ki. ILLATION, In 100!) tho arrivals Avere 944i>3o. The .lepartiires were 400,892, loavinir the net .U3.S43. In ioiO the arrivals were 1.198.037: the depai-tures 380.418, leav- inff the net 817,619. In 1911 the arrivals were 1,030,300: the departures r)18.-21.'i. leaving :i net of ol-2,085. In 1912 the arrivals were 1,017,155: the departures 615.292, leaA-ing the net 401.863. In 1913 the arrivals were 1,427,227: the departures 611.924, leaving :i net of 815.303. In 1914 the arrivals were 1.403.081 : the departures 633.805, leaving the net 769.276. In 1915 the arrivals were 434,244; the departiue> 3s4.174. and the net was 50.070. In 1916 the arrivals were 366,748: the departures 240,807. leaving I net of 125,941. In 1917 the arrivals were 362.877: the departures 146.379, leaving the net 216.498. In 1918 the arrivals were 211.853; the departures 193^68, leaving the net 18,585. In 1919 the arrivals were 337.021 : the departures 216.231. leaving" the net 20,790. In July of 1920 the arrivals were 83,959; the departures 39.505, leavinof the net 44,454. In August the arrivals were 85.431 : the departures 43,800 and the net was 41.631. In September the arrivals were 98.400: the departures 31,200 and the net was 67j200. In October the arrivals were 101.000: the departures 33.000. leav- ing the net 68.000. In Xovember the arrivals Avere 103,000: tlie- dei)artures 34.000, leaving the net 69,000. Might I not ask you this question, therefore : Has there not always been a very strong returning tide of departures, and do not those figures demonstrate it ? Prof. Jexks. Oh. clearly. There is also a very good reason for that, and it seems to me that these figures. availal»le as they are. are ]\ot especially surprising, if I may just take a few moments on that. In the first place, as has already been said, a very considerable por- tion of the immigrants that come here do not come with the expecta- tion of making this their peiTnanent home. They expect to go back again. I would like to develop that a moment later, as regards Italy par- ticularly. The CHAimrAX. Might I finish? Mr. Jknks. I beg your [)ardon: I supposed you had finished. Mr. Chairman. The Chaikmax. For the vear ending June 30. 1920. there were 141.000 net Senator Dillixohaim. Where did you get that figure? The CuAiit^fAX. From the commissioner's report, the last report of the commissioner. Of that 141.- to the report of the commissioner, there Avere l'2S (lei)artures to eastern and southern European countries where there Avere lUO immiorants who came to this country. From northern and western Europe there Avere only 25 departures to 100 immigrants who came from those portions of JCuro])e. In other words, I remember that in the report of the commission tliey divide the immigration into the old and the new: the neAv be- ginning in 18S2. from southern and eastern Europe. The character- istic of the old Scandina\ian immigration was that it was perma- nent; that it developed the Northwest and settled on the farms. One of the characteristics of the new immigration from southern and eastern Europe Avas that it Avas more of a temporary character ; that tliey came here more for economic purposes, to remain a short time and then to go home. I do not understand that the condition of the Avoi-ld that existed from the 1st of January last to the 1st of July has substantially changed. I understand that the conditions in Eurojje are substan- tially the same as they Avere during the first half of the year 1920. During the first half of the year 1920, 123 of these immigrants from these countries, which are sometimes called objectionable, returned to 100 that came in. I Avould like to ask you Avhether you see any reason why that phenomenon should not continue to exist. Prof. Jkxks. May I just answer the last question first, and then I Avould like to speak somewhat on the general question. As I said this morning, it has seemed to me that as regsirds the European population, and moce j^articularly tiie southern and eastern European population and imniiirration fi'om those countries, tlie conditions are materially diiferent from those in tiie north and west and from other immigration that Ave haA^e. It is especially from those countries that Ave haA'c this temporary immigration of those that come here leavinir their families behind Avith the expectation of staying only a short time and then going back again. Of course, when it comes to specific cases from specific countries and in specific months there are likely to be local matters, temporary matters, that come up with imi)ortant effect, and these are quite material. For example. Ave have steamship line< running much more regu- larly to northern and Avestern Europe than to Italy, to southeastern Europe, so that the mere matter of being able to get tickets promptly may affect the situation quite materially for a period of months. vSo. again, the means of communication by mail among friends, and this, that, and the other thing, is certainly very much easier from Great Britain than it is from Bulgaria, we Avill say. or Serbia or Greece. Taking it as a whole, the means of publicity as regards conditions in those sections are distinctly better in Great Britain and in France — they Avere before the Avar — in Germany, in Scan- dinavia, and in Holland to-day than in southeastern Europe. All of those conditions might affect matters from month to month quite materially. The fact remains, hoAVCA-er, that there have been very many thousands of those people here that were not able to get back during the Avar and for a considerable time afterwards, owing to legal requirements and regulations, and that would make it clear that Ave could expect after the Avar a verA' large emigration. That 492 EMERGENCY IMMIGRATION LEGISLATION. goino; back would probably be, as regards those southeastern European peoples, pretty largely a going back to stay, because they have been here four or five years: the opportunity for earning very large wages during the years of the war and for a year afterwards were great, and they presumably would largely have accomplished what they came here for and would be glad to go back now. The fact that it has been the custom of people of that type Avould, it seems to me, justif}- us in the conclusion that altliough it mi^t last for a few months longer, nevertheless that remigration to Europe would probably cease before so very long, so far as those peoples particularly are concerned. May I also comment a little bit upon the statement you made about the emigrants that were going out to Canada, to Mexico, and to Italy? Of course, the Canadian immigration policy has been for some years this general selective policy that I mentioned incidentally this morning. Their laws and the administration of them are peculiarly fitted to take the kind of immigrants they want and turn them into the lines of occupation that they think best for their country. The very best immigrant into Canada, according to the views of the immigration authorities of Canada with whom I have discussed this question, is the American farmer from the Xorthwest and the Middle "West. They are eager to have their lands in the northwest settled by men who will make good Canadian citizens. The consequence is that they have repeatedly — I say repeatedly; ceitainly. more than once or two or three times — sent circulars and even their own agents into the Middle TTest and Xorthwest to take up this question with the American farmers to get them to come over into Canada. They have offered them at times free transporta- tion for themselves and their families and have offered them lands on very good terms if they would come : and as they have explained to me personally, some of the immigration officials of the north- western part of Canada as well as the former Minister of Labor at Ottawa, these Americans make the best type of immigrants they have, first, because they come with capital. The}- sell out their farms and can pay for their lands pretty well. In the second place, they speak the English language, largely. They are likely to be well educated. They are enterprising and. from the experience thev have had here, they believe in good schools and in a good type oi civilization; and if they can persuade them to come up there and take up lands they know that they will have a population that will develop that country. So they have been bid- ding for them. I had not known of it before, because I had not looked these things up. but as was said here yesterdav, they have been making .special efforts again to get them up into Canada; and that would acctjunt for a good many going up there. As regards the Mexicans. I think that is a temporary condition. If I may take up just for a moment this general policy which ac- counts for large numbers going back always from year to year, and, at the same time, for some of those very material fluctuations in num- bers that go back and forth from year to year. I think there is no better single illustration of that than the Italian policy. Miss Kellor referred to the general Italian policy that they have in mind now. They have had Substantially that same policy for a EMERGENCY IMMIGKATIOX LEGISLATION. 493 period of 10 to 15 years, which is that they like to have a rather large number of their people and those of the rather enterprising class come over here with the idea of staying for a time and then going back. I read some 8 or 10 years ago a rather detailed discus- sion of this question of the Italian emigration that was published by the Italian Government in an official report of their labor de- partment. They stated that, in the first place, if they could let their citizens come over here and stay for some years, sending back their surplus earnings, that was a very material advantage to them, and according to the best figures we could get at that time, if my mem- ory serves me. we could count on from two hundred and fifty to three hundred millions of dollars going back annually to Italy. In addition to that, after the men had been here for some years they would return to Italy and make their homes there. _ The one thiiig that struck me as most interesting in their discussion of the entire policy was this : They said : Better than the money that our emigrants send back to us. better than the money that they brnig back to us, is when they come back with the American spirit of enterprise after they have lived in America for some years and learned the American ways of looking at things and the Amei'ican ways of doing things, for they are more efficient citizens than tliey were before they went, and we especially welcome their return. We can see that the policy that the Government had in mind was, on the whole, rather to welcome that condition, and we should ex- pect to go back to Italy a good many thousands, and sometimes hun- dreds of thousands. Another factor, however, that should be taken into account when we speak of the variations is this : The transportation in these days, when times are normal, as of course they are not now between Italy and the United States, is very easy and not very expensive. A good many of those men are fairly prosperous, and it has been the cnse over and over again — here again one could count into the thousands, although I am not able to give statistics — that when there has come an actual period of depression here for a year or two, even if there were a period of unemployment that was thought to last only a few months, many of the Italians who are here in this country in this temporary class would go back and spend the winter in Italy and then come back in the spring. Those cases can be found literally by the thousands, of those that go over there purely temporarily to take a rest when conditions are not good here, and then come back here and stay for awhile and then go back again. So that we should expect that there would be this fluctuation in the net numbers in any one year. It would be dependent to a con- siderable extent upon temporary conditions, a demand for labor here for the time being, or a slackening. The CuAiRriiAX. A"\'e are dealing with the problem of a flood of that immigration. Prof. Jexks. Exactly. This I think will have a little bearing on that. Senator. The statement was made here yesterday that we need not fear a flood because the iipmigration and emigration adapt themselves so ])romptly to conditions here. As a matter of fact, they do to a considerable extent adjust themselves promptly, but pretty largely to our detriment from the economic point of view. 494 E.MEHGKNCY lALMlGKATlON LEGISLATION. For e.\:unj)le, if there came a demand here for a jrood many to go back, those that -wouhl go back are the ones that have hiid up money and those who are the most enterprising from that point of view. Tlie ones that they leave here are the least efficient and have been earning less money and have made fewer savings. The conse<:|uence is they leave the burden for us to carry and the benefit goes to the people on the other side. That. I think, was established beyond ques- tion by the Immigration Commission as the result of its studies. Does that cover the question you asked. Senator? If so, I may take up perhai)s for just a moment the specific question of the John- son lull and how that Avould apply. When the Johnson bill was first published I read it with a great deal of interest and with cordial approval, because it seemed to me th-at from the facts that had been reported to me from Ellis Islnd — and I had been there myself, personally — and from the statements that I saw in the papers and elscAvhere. there were very large numbers of immigrants coming in at the present time from among undesir- able classes from an economic viewpoint, and that it was very desir- able to put a prompt check upon the numbers that came in. After a time, when it was found possible to analyze carefully the figures and to see the types that were coming in and to realize, as seems to be the unquestioned fact, that somewhere from TO to 80 per cent of those that are coming in are probably those that may be spoken of as the dependent classes rather than the productive classes — I do not mean by that that they are public dependents, but that instead of bringing a surplus here they are rather dragging upon our means — it had seemed to me that the Johnson bill as drafted, admit- ting the members of the families and considering that so large a per- centage of them were members of families, was not effective. I am quite in acc'ord with the s])irit of the John-^on bill that it is time to check the thing and do it now, when we may have time to formulate a policy Avhich is not merely very difficult to frame but which will take months and probably some years to get into effective working order. It is time to put a check on it now. I am inclined to think, however, that it would be wiser now to amend the Johnson bill or substitute something in its place that would go distinctly further in the way of being a real check on immi- gration and would be more selective along that line. I had not thought of a definite jiolicy, because, as I say, I had no opportunity of preparing definitely for this matter: but for some years I have ])een feeling that we should adopt a policy in general of this type : The conditions vary so from year to year and often even from month to month, that any policy that we adopt should be a flexible policy that can be adapted to new conditions. In consequence it has seemed to my rnind that a law should lay down the general principles but should leave to administrative authority- a considerable degree of discretion in the administration of the law itself. That opinion has been emphasized a good deal by the apparent ex- perience of Canada in the Canadian law, which does permit a decided flexibility in the applicaticm of the law through orders in council. AVe have not anything here that would exactly correspond to orders in council, but discretion might l>e left to adjust matters either to the immigration authorities in the Department of Labor, if they retain EMERGENCY IMMIGRATION LEGISLATION. 495 that, or in the Department of State, as has been suf^f^ested ; that we should transfer the immit^ration there, or to a commissioner, if that phm is adopted, but there should be discretion left in the hands of some administrative body to adapt conditions after studying care- fully what the conditions are. The Chaikmax. Under the Canadian law tlie governor and coun- cil are clothed with very large discretionary powers. Prof. Jenks. Yes, sir. The Chairman. My recollection is that the word " selective " is used. They have the power of selection as well as numbers. Prof. Jenks. Yes, sir. That has been applied in a number of dif- ferent wa5's. For example, the Canadian Government has thought it was the better j^olic}- for them to encourage immigration to the land, as I said before, and also encourage the coming in of women for domestic service as well as to go on the farms. There have been various ways that that has been brought about. In the first place, as regards get- ting people to go on the farms, the Canadian Government paid their agents in Great Britain and in other places in northern Europe a premium of a pound sterling per capita for immigrants that would be sent to Canada ticketed through to a local' station to go on the farms — and with a contract, practically, to go on the farms. The same thing as regards domestic servants. They paid in addi- tion to have people sent from southern Europe to go into the cities. Just of late, as you doubtless have noticed, in order that the}' might check quite decidedly the coming in of immigrants who would be likely to drift into the industrial centers, they have raised the amount of money that the head of a family should bring with him as he comes from $.")() to $250 per capita, and for ever}- member of his family who would normalh' be considered of the dependent class they have de- manded that he bring in $125. That is simply by an order in coun- cil as a distinct restrictive measure and a selective measure along this line. So that has its effect: The Chair:max. But does not the Canadian law go further and say that if a farm hand is coming in, or a domestic, he or she is not required to have that amount of cash? Prof. Jenks. Yes, sir: that is my understanding. My knowledge of this regulation is simply newspaper clippings that I have seen lately. But that is my understanding. They liavc done that. Still further than tliat they have made regulations as regards oriental immigration by specific orders. So that there is tliat flexi- bility there that I think Ave should have. Senator Dillingham. I have given some thought to that and have had some correspondence with authorities there, and I see difficulties that would prevail here that do not prevail there in connection with such a plan as that. I do not remember what the ])opulation of Canada is at the present time. It may be 10,()()(),000. Prof. Jenks. Somewhat less, I think. Senator Dillingham. We have 105.000.000. As early as 20 years ago, in 1000. manufacturing plants of America were putting out more goods than (ireat Britain, Germany, and France combined, and since that time we haA'e doubled that. There is such a contrast be- tween the conditions in this countrv and those in Canada that I have 496 EMERGENCY IMMIGllATIOX LEGISLATION. been led to doubt Avhetlier the plan they have adopted is in any Avay suited to us or to our conditions. Prof. Jenks. I do not see ^vhy the same principle can not be adopted. Senator Dillingham. That may be, but it -svould be a very great problem as compared with the problem which Canada has had to solve. Prof. Jenks. There is no question about that. Senator. The provision has been suggested, for example, in the Sterling bill, a copy of which I have seen, that a commission, if that plan is adoi)ted. or the immigration department, wherever it may ha])i)en to be, should secure almost continuously information from the different sections of the country and from different lines of industry in order that we may know not merely in what industries but in what locali- ties there is a real demand for labor at good wages and in what lo- calities there is apparently a surplus of labor. Acting on that in- formation the administrative body could determine how strong the restrictions should be and in what directions the restrictions should be. If that informatioji were sent abroad regularly, as. of course, it should be with regulations to people on the other side, we would be in i^osition to say to an immigrant who was presenting himself and coming to join his friends, we will say, as is the usual custom, in a certain line of industry, in a certain locality there is no normal de- mand for work there and that '' you can not go beyond a certain amount " Senator Dillingham. Is not this the great problem — that is, to work out proper administrative bodies? Prof. Jenks. That is it, exactly. Senator Diixingham. AYhether it should be in the Department of Labor, the Department of State, or whether there should be a com- mission or something else? Prof. Jenks. Yes. It seems to me that is distinctly the question; and while I have not attempted to work that through, one or two thoughts have occurred to me that I may mention. There is, of course, a certain disadvantage in an independent com- mission. I think that would be pretty generally conceded. Admir- able as the work of the Interstate Commerce Commission has been and one or two of the other commissions that we have had, in many ways, there are also many objections to an independent commission of that kind that there would not be to a bureau properly organized or to a department. The Senator suggested a moment ago, and I had heard the sug- gestion before, that some had spoken of the Department of State as the department to handle the immigration problem instead of the Department of Labor. There would be certain advantages in that. As has already been .suggested by witnesses here before, our immigra- tion question is a great international problem and it is becoming more and more an international problem all of the time. It is, as I heard very wisely suggested this morning, decidedly an advantage, practically a necessity, that we deal with foreign Govern- ments in connection with this question of immigration. If I may venture to refer again to the report of the Immigration Commission, a recommendation was put in there that the President EMERGENCY IMINIIGRATIOX LEQISLATIOlSr. 497 appoint a commission to attempt to work out legislation with h, nmnber of the leading European countries. I know from investiga- tions made that those European countries would welcome an ap- proach from this side, an attempt to work out a policy that would be friendly and helpful along all lines. Of course, under our Constitution and laws our dealings with foreign countries in any official way are normally carried on through the Department of State, so that in many ways there would be advantages in working out this policy which ought to be international, through the State Department instead of through the Department of Labor, and that would in no way imph', of course, that we in any sense had changed our policy as regards the first principle that was laid down here, that our great task is to main- tain the standards of living and to promote the standards of living of the great mass of our wage-earning classes, but it might perhaps be done more easily through the Department of State than through the Department of Labor. But I will not venture to express any ver}^ positive opinion on that question. I may add, perhaps, just one thing more, that at the present time, as a temporary matter, as was suggested yesterday, by slight changes in regulations and emphasizing somewhat our discretion we could put an immediate check on immigration through the viseing of pass- ports perhaps more quickly and promptly than in any other way, which would be the first step toward putting the subject into the hands of the State Department, but the fundamental thing which I think we should keep in mind is that whatever law we have should be made with special reference to maintaining our own standards and preventing the lowering of our standards by a flood of immi- gration coming in. I do not believe that if the matter were approached in the friendly, courteous way that it should be and doubtless would be there would be any serious objection on the part of Eifropean Governments. I have not any fear at all of our getting into trouble with the European (xovernments by attempting to lay out a policy along that line in our own interests. They are all of them trying to do the same thing, and it is the normal thing to do. I do not believe there will be any trouble. The CHAiR:\rAX. Might I ask you this question ? It may be approached from the standpoint of emergency legisla- tion as called for by the Johnson bill, or, if there were any danger in the next few months, it might be approached from the subject of constructive and permanent legislation? Prof. Jexks. Yes. The Chairman. In view of the number of immigrants that are coming in now, do you see any particular danger in letting this emergency measure stand by until the committee can frame construc- tive legislation in a period of five or six months, when you see the number that are going out as compared with the number that are coming in ? Prof. Jenks. I feel, myself, that it is quite desirable to have rather prompt action. There are two reasons for that : The first and more remote one is this, that I believe that the pressure — and I will speak 498 EMERGENCY IMMIGRATION LEGISLATION. on that ill a moment — is likely to increase pretty steadily for the next six months or a year. The Chairman. That is a matter of opinion. Prof. Jenks. It is a matter of opinion. I say that is my opinion. That is one reason. i)erhaps. why I feel the way I feel, that if it does we shall find this jH-essure brought to bear upon Congress for im- mediate legislation in a very strong Avay, so that there may be, Avhen we come to frame a i)ermanent policy, more haste in getting that permanent policy than Avould be clesirable. Second. hoAvever, and perhaps more important, is this — and per- haps this thought is emphasized the more because I happen to be living in the city of Xew York — as a matter of fact, there does seem to be in Xew York at the present time a rapidly increasing effort on the part of our charity societies and everybody connected with the care of the less fortunate there to get more and more help : that if unemployment is coming there all of those organizations need more lielp than ever before, and they believe that the coming in of consider- able numbers of immigrants aifect this question very materially. We know from the records we have had earlier that a large per- centage of the immigrants coming through Ellis Island into New York of the particularly dependent or defective classes are rather likely to remain there in considerable numbers. At the present time, if I recall rightly, the majority of the inhabitants of the city of Xew York are foreign born or are the immediate young descendants of those of foreign birth : so that with that condition, we will say, of 50.000 or 100.000 of that type in the city of Xew York in the course of six months or a year it is really a rather important factor, and that emphasizes the thought with us. If. as your question implied, some time ago. Senator, they should be scattered all around through the country The Chairman. Did you hear the testimony which was offered here of the number that arrived, perhaps 10 or 11 ])er cent — it was in answer to a question ^by Senator Dillingham — perhaps 10 or 11 per cent remained in Xew York? The rest went to Pennsylvania, Ohio, and were scattered all over. Senator Dillingham. That was one boatload that came in in October, where they kept a record of distribution, and of about 90 per cent they kept track of, about 13 per cent stayed in the city of Xew York and the balance went outside. Prof. Jexks. I think, if my memory does not fail me. the general experience as a permanent matter is to the effect that a much larger percentage than that lemains in Xew York for a considerable length of time, a period of months, at any rate, if not years, and that would be determined by the industrial conditions in the city. I liaA-e not any late figures on that question myself. The Chairman, Thank you, Mr. Jenks. STATEMENT OF MR. FRANCIS HARRISON KINNICUTT. The CHATR>rAN. Mr. Kinnicutt, on what do you desire to be heard ^ Mr. KiNNicLTT. I should like, for one thing, to put in the record a newspaper report from the Herald of January 8 showing a state- ment cabled from the Paris agent of the IIel)rew Sheltering Immi- grant Aid Society, bearing on the number of Hebrews that are E.MERGEXCY I.MMKiRATIOX LECilSLATlOX. 499 collected there in Paris about to come into the United States. It is a short article. The Chairmax. What Herald? Mr. KixxicuTT. The Xew York Herald of January 3, I should like to read one sentence of that statement. This is quoted from Mr. Shapiro. The article says : Mr. Shapiro's bureau is taking- carv? of on an average 500 new innnigrant cases daily, he .said, 90 per cent of which arrive in Paris without funds and with only the most meager information regarding their relatives in tlie. United States, who are expected to provide for them. Most of.these emigrants succeed in leaving Frencli ports within a montli after they arrive here. However, Mr. Shapiro estimates that the number of .Jews going to Xew York by way of France certainly will not be more tlian 3,0 a week, with less than that number now awaiting passage, their passports having been vis4d, their tickets obtained, and everything in order for them to go to America. Emmigration from the poi-ts of soutb.ei-n France is not an important factor either from the standpoint of Jews or other nationalities. The consulates in Marseilles and Bordeaux report long lines of men and women mtiklng inquiries there every day, but the laws governing the entrance of aliens into the United States, and particularly the tinancial requirements, discourage thousands of these ]irospective emigrants from trying to get to America. The French are not likely to leave their own country in large numbers, Alexander M. Thackara, American Consul General here, said, a majority of Frenchmen who go there luaking the trij) for business rather than to make their home there. 500 EMERGENCY IMMIGRATION LEGISLATION, On the other liand, the consulates in Palermo and Naples report a constant increase in the nunitier of re<|ue.sts for vise of passports, most of the applicants coming from the IJalkiuis, while Greek emigration was said to be less than it was before the war. Polish and Lithuanian emigration is moving chiefly through Danzig and Lemberir, where the emigi-ant agencies are thronged every day, but through t)ther European gateways the foreign-exchange rate situation penults only a small percentage of emigrants to America to actually leave Europe. Germany has been cited as one of the countries ready to provide 2,000.000 emigrants, chiefly Jewish, but Jewish leaders here call attention to the fact that the total Jewish population of the world is only about 12,500,000, including those already in the United States. In so far as Austria, Hungary, and Serbia are concernerl, immigration officials here say that it would be safe to say that practically the entire popu- lations " are anxious to go to America or anywhere else where they coul* get food, but they will not be able to get out of Europe for many years to come." The Paris police assert there are at least 150,000 foreigners now in this city who had intended to go to America, but are unable to find the necessary funds or else have been rejected by the embarkation inspectors. I also would like to offer a statement showinp: the statistics in re- p:ard to the congestion of the Jewish population in this country in Xew York and a few other large cities, taken from the American Jewish Year Book and quoted in the World Almanac of 1920. The Chairman. That may be placed in the record. (The statistics referred to are here printed in full, as follows:) JEWISH STATISTICS. According to various authorities, who have made studies, the Jewish popula- tion of New York City, in past years was as follows: (17901 385: (1812) 400; (1824) 6.000: (1840) l.j.OfK) : (1880) GO.OOO: (1892) 2o0.0(X): (1905) 672.(^0; (1910, U. S. Census). 861.980; (1912. New York Kehillah) 1.250,000; (1918) 1,500,000. •' New York City, " says S. D. Oppenheim. '• contains the largest Jewish community that has ever existed within ihe confines of a single munici- pality. It has over 2.200 congi-egations and 181 religious schools with 41,403 pupils, exclusive of about 14,000, who attend private hedarin. It has over 100 recreational and cultural agencies, more than 1,000 mutual aid societies. 965 lodges, 193 economic agencies, and 164 philanthropic and correctional agencies. Over .$17,000,000 was expended in 1917 by all these activities, of wliioh amount the two gi-eat philanthropic federations, that of Manha;t;in and the Bronx, and that of Brooklyn, expended during the year $2,500,000. In these figures are not included the .S6,00t>,0!X) raised in the year 1917-1918 for Jewish War Relief abroad. Within the confines of the metropolis are printed and published 57 Jewish journals — five dailies, 28 weeklies, 11 monthlies. 1 bi-monthly. 1 quarterly. 1 annual, 10 occasional publications. Of these, 23 are published in English, 3 in Hebrew, 2 in Judeo-Spanish, and 29 in Yiildish. The great ma- jority of American Jews live in cities or towns, there being only about 20.000 Jewish farmers and other agi'iculturisrs in the United States ; and even most of the.se 20.000 reside in little centers. " Latest estimates of the Jewish popula- tion of the large ciiies follow : Place. New York: Manhattan... Bronx Brooklyn Queens Richmond... Total Chicago Philadelphia . . . Popula- tion. 6fl5,000 210, oon 2S.0O0 5,000 1,509,000 22.i, (100 200,090 Place. Popula-] i tlon. ; rieveland |100,noo | Boston 77, .500 Bahimore fiO.OOO | .St. Louis eO.OOO I Pittsburgh fiO.OOO ; Newark ' .55.000 Detroit .iO.OOO i .San Francisco. 30.0e new ships Avhich will soon be put in operation. Senator Dillingham. Xew ships? !Mr. KiNNicuTT. Xew for them. I do not mean newly built. I mean new on their line — additional ships. The Chairman. Have you any positive information as to the new sliips? We had considerable testimony in these hearings as to the number of new ships wdiieh Avill be likely to be engaged in Atlantic transportation during the next year. Have you any positive knowl- edge upon that subject? Mr. KiNNicuTT. Absolutely not : but I know that it will be very easy to get it by bringing a few witnesses from certain lines whose names I can give you. and very probably the officials who have charge of taking care of the immigrants at Ellis Island. I do not doulit they can give it to you. The Chahoian. We have had testimony on the subject of trans- portation, from agents of A-arious lines appearing before the com- mittee, and that question of the amount of transportation facilities that are now in operation and the future prospect of increased transportation facilities has been gone into by the committee. Mr. KiNNicuTT. I stated that my information on this subject was very limited. It is simply an indication that there are some ucav ships being put on. That is all I wish to i>resent. STATEMENT OF MR. EDGAR WALLACE. REPRESENTING THE AMERICAN FEDERATION OF LABOR. ^Ir. Waij.ack. From our point of view. Mr. Chairman, the emer- gency th.^t exists, to meet Avhich it is the intent of the Johnson bill, is the emergency of unemployment. Since ^Ir. Morrison gave his evidence we have evidence to the effect that out of 00 cities canvassed 20 show an unemployment of 2.400.000 people. We have not any returns from tlie others. EMERGENCY I.M. MIGRATION LEGISLATION. 503 It has been called to the attention of the lly fell off? Mr. Husband. It increased. Senator, before it fell off. The largest emigration from Germany Avas in 1882, 11 years after the forma- tion of the German Empire. There were 250,000 in that year. Ger- man emigration is, I think, perculiar, in that it began as a political emigration, practically as a political emigration rather than an eco- nomic, which has been the case of practically all other countries. The Chairman. You mean when Carl Schurz and others came? Mr. HusnAND. Yes: following the revolution in 1S48. That was political. And even after the formation of the empire it continued to be in part political, although then it was perhaps more economic than political. The Chairman. I had an idea that the falling off in the German emigration from 1880 down to the period of the war was due to Bismarck's policy which was opposed to emigration, and Bis- marck's policy of giving work to every man capable of work, a policy in the form of. you might say. state socialism : and also due to the fact that Germany changed from an agricultural country to an industrial country ; that her manufacturing industries increased enormously, and the population of her cities increased very largely. So that there were two causes : The policy of the Government to check emigration and the change of Germany from an agricultural country, largely, to an industrial country. At any rate, we know that the immigration from Germany from 1880 on fell off very largely: isn't that true? Mr. Husband. That is very true, and that decline was due to the economic adjustment of Germany following Bismarck's plan, so that the population was cared for at home. (Teimany could support from her agricultural resources only about 60 per cent of the people, even at the opening of the "World AVar, and before the great development of industry in Germany fur- nished employment for the people the overflow population simply had to go somewhere. The Chairman. Well, Germany's population ran up in that period from 38.000.000 or 39.000.000 to 68.000,000 or 69,000,000. Mr. Husband. Yes. Senator Harrison. From the time of the Franco-Prussian War up to 1882 there was a gradual increase in immigration, you say, from Germany ? Mr. Husband. No, there was not a gradual increase. Senator, for the reason that from 1873 to about 1877 and 1878 immigration was at a very low ebb from every source, due to the economic depression here, and German immigration in those years. 1874, 1875, 1876, and 1877 was lower than it was even in 1866, very much lower than it was in the fifties. But about 1878 it began to increase, and by 1882 it reached 250,000, which was the highest point, and then continued to be large, but decreased rather gradually following 1882 until about 1890, when it became what you might call normal, and it continued to be normal up to the beginning of the World War. 508 EMERGENCY IMMIGRATION LEGISLATION, Senator Dillingham. Mr. Husband, the fact that that was in your judgment a political immigration rather than an economic one, I think is supported by the fact that the greater portion of that immi- gration was made up of men who brought their wives and their children with them, with intention of remaining here permanently, and they went into the West and helped in that development of our West which followed the war between the States. Mr. Husband. Yes; the German immigration, though, both the political and economic immigi'ation from Germany, was very defi- nitely permanent immigration; it came to stay. It was never like the wants of temporal'}'- labor which we have witnessed in recent years. I was speaking of observation in Europe and opinions expressed in Europe during the six months following the armistice. There were some who believed that the peoples of eastern Europe, having achieved what they had struggled for, self-determination and polit- ical freedom, would cease to come to the United States, and that there would even be a large return movement from the United States to those countries. That was not generally believed, however, and most of the ob- servers with whom I talked, those who knew the conditions in that part of Europe, predicted that as soon as possible, as soon as traveling facilities were available, there would be a return of the pre- war movement, and possibly even an increase. But considering the fiscal year 1920 as a whole, the statistics as presented in the Commissioner General's Annual Keport do not seem to support extreme theories in either direction. Taken month by month, however, they appear to show a decided drift toward pre- war conditions, both as regards immigration to and emigration from the United States. The figures that I shall give are for immigrant and emigrant aliens only, I don't need to explain the difference between immigrant and nonimmigi-ant and emigrant and nonemi- grant aliens, I am sure. In other words, at the beginning of the fiscal year emigi-ation con- siderably exceeded immigration, while during the last month of the year, June, 1920, immigration was about two and a half times as great as emigration. I shall insert a table showing immigration bv months for the year ending June 30, 1920. Immigration and emigration, hy months, fiscal year eliding June SO. 1920. Immigrant aliens admitted. Emigrant aliens departed. July August September . October November . December.. January February . . March April May June Total 152 597 5.H4 418 219 913 S58 i 606 ! 971 1 219 i 772 692 I 25,757 28,934 27,770 25,447 36,105 22,199 27,086 11,607 22,639 19, 107 17, 121 24,542 430, 001 288,315 EMERGENCY IMMIGRATION LEGISLATION. 509 The Chairman. Just a moment, please, Mr. Husband. Congress- man Hudspeth wishes to make a statement. — \ Congressman Hudspeth of Texas. I just ask one moment, Mr. l Chairman, to present certain affidavits from farmers, bankers, and business men of Texas relative to the statement that has been made here that the Mexican labor was not wanted by Texas ; relative to the statement that the Mexicans were used to corrupt the policies of Texas, and relative to the statement that they were drafted into peonage when they came across. The Chairman. They may be placed in the record. (The letters and -affidavits presented by Congressman Hudspeth are here printed in full, as follows:) Texas Cotton Growers Saxes Agency, Corpus Christi, Tex., January 14, 1921. Hon, C. B. Hudspeth, M. C. Washington, D. C. Dear Sir : My attention has been called to the statements made by Mr. Box from the Jacksonville district in regard to Mexican labor. With reference to the statements made, I desire to say that I have been a farmer in this county, cultivating 774 acres, and have employed Mexican labor for 10 years. I never knew of their being brought across the border for political i)urposes. These laborers have been well paid for their work. They were furnished with wood and water, and medical attendance when necessary, and comfortable quarters have been given them. They are absolutely necessary to the agricultural life of this country, and the statement that they were not desired is untrue. Respectfully submitted. B. F. WOLCOTT. Subscribed and sworn to before me this 14th day of January, A. D. 1921. [sBLiL.] Minnie Talbott, Notary Piihlic, Nueces County, Tex. Corpl's Christi, Tex., Janiiarij 14, 1921. Hon. Clal'de Hudspeth, M. C, Washington. D. C. Dear Sir : The Coit)us Christi Conunercial Association wishes you to em- phatically deny for them the statement of Hon. J. E. Box from the .Jackson- ville district as being wholly wrong when he says ^Mexicans are permitted to vote without first complying with every State law which has to do with citizenship. The farmers of Nueces County, the greatest cotton-growing county in south Texas, must have this labor to clear their laud, to chop and pick the cotton, and do other forms of unskilled labor necessary in the carrying on of successfftil agriculture. Yours, very truly, . Corpus Christi Commercial Association, By W. P. Helscher, President. Sworn and subscribed to before me this the 14th day of January. A. D. 1921. [SEAL.] R. L. Garrett. Notary Public in and for Nueces County, Tex. Corpus Christi, Tex., January 14. 1921. Hon. Claude Hudspeth. M. C, Washington. D. C. Dear Mr. Hltjspeth : I have just read your telegram to Roy Miller, this city, in which you make the statement that Mr. J. E. Box, M. C. from the Jacksonville district in Texas, has made the charges in a hearing before the Senate Immigration Committee recently that the cotton farmers of southwest Texas immigrate from Mexico Mexicans for political purposes, and that tlie 510 EMERGENCY IMMIGRATION LEGISLATION. Mexicans so imported are practically poons while engaged on this side of the border, are not properly paid, and that the Mexicans imported are not needed. In reply to this charge wis-h to say that I have been farming in this country for 15 years, and for tlie past seven or eight years I have had under cultivation around 7,(XH) acres of land. I employ a great many Mexicans, pay them the regular current wages for all labor done, such as cotton picking, cotton chop- ping, etc., and many of these laborers during the cotton-picking season made as high as $7 per day. All Mexicans »'mploye(l by me have good quarters, wood and water is furnisheil to them, and we give them a square deal in every re- spect. The fact is they made .*o much mtmey that an average of four days' work per week is about the ordinary service rendered. Not to my knowletlge has there ever been an impor-ted ^lexican who voted in any election in Nuf>ces Ck)unty. An examination of the poll list of those who voted in the primary and general election will disclose the fact that practically no Mexicans vote in this county. Quite a few vote in the city, but these are regular bona tide citizens of tlie State. I am well acquainttnl with conditions in Xuece.s, San Patricio, and adjoining counties, and I know from my own knowledge that Mexicans are not imported for political purposes. ntMther are they treated as peons while here, but on the other hand they are well treate- year to resort to the Mexican labor to get my cotton picke«l and without it I would have been unable to liarvest my crop. That I have never nor do I know of any place where IVIexicans have been worked against their will or for less than a just wage for the class of work done. That the Mexicans that I have dealt with were not imported for any political purpose whatever, and further that the vote of the naturalizef .Tanuary, A. D. 1921. H. M. Roper. Xotnry Public in and- for Xua-es County. The subjoined telegram from the ^laniifacturers Association of San Antonio, on the same subject is herewith printed in fidl, as follows : San Antonio. Tkx., January 12. 192J. Senator Colt, chairman Senate Committee on Immigration. I'nited States Senate, Washington. I). C. Representing some ."tOO industries, we vigorously protest statement and views reported by press made by Ri'prcsentative Box before your c in our industrial life in this country, and if you wcmld ask ten men of the Slavic races — possibly of the Italian race also — whether thev would like to become farmers in the United States, jn-obablv nine of theni would saAV yes, and say it very em|)hatically. IJiit they do not; knoAv hoAv. The Chaihman. Do not a considerable number of Italians eno-age in o;ardenino: in the outskirts of the cities, and so forth ^ It is so in Rhode Island. Mr. IIusnANi). Quite a considerable number, yes: but not so con- siderable when compared Avith the number of Italians who are in the country. Senator Harrlson. Hoav do you class those Avho do the aai-deninj^? Do you class them as farmers? Mr. Husband. Yes. I think anyrAX. But take voiir own time. 1 on may proceed with your statement. Mr. Husband. But just now I will discuss that, if I ma}'. I have seen these peoples, many of them, on their farms, in eastern Europe. The Chairman. When you say '" these people." whom do you mean, the peoi)le of southern and eastern Europe? ^Ir. Husband. The peoi)le of southern end ea^^tern Europe, the farm- in^r population who are now coming to the T'nited States. And I will take the Russian, for exam]5le, because I know more about the Russian. In three montlis that I spent in Russia I practically lived with the peasants, slept in their homes, ate with them, went to about 35 of their villages to see how they lived in Russia, and in even the best parts of central Russia if a num had 6 acres of land for himself and his family he was counted rich among them. That was all that any one would have asked in Russia, if he could have had 6 acres of good land. The average Mas around 3^ acres I was told. And that allot- ment 3^ acres of land, under the system which prevailed over a great part of Russia, for the most part was cut up into little strips, a scind of a semicommunal arrangement, whereby a man had a strip here, another one there, and another one there, sometimes 10 miles apart, and would go from his village this day to cultivate a piece of land, which, fi'om a distance, looked like an arrow laid out in the field, and another day he would be in another part working on another strip. And then every 10 years, or perhaps every 10 or 15 years, there would be a redistribution of that land, because while the area of land on which the ]:)eople of that particular community lived did not increase, the population did increase, and as new families came into existence it was necessary that they should have land. Conse- cjuently when these periodical redistributions took place the strips were narrowed, and the man who had had 3^ acres would, for the next 10 years have 3 acres, while his half acre was split up among other familes. Senator Sterling. That is. each man would have 3 acres all told ? Mr. HisBAND. Yes: each man would have only 3 acres all told, for himself and family. That is. each family would have that much. Senator Sterling. "Wherever it might be loc-ated ? It might be located in different places? Mr. Husband. Oh, yes, w^herever it might be scattered about, and that is what drove tlie Russian population first to Siberia, and then to begin an immigration movement to the United States. In 1907 about three-quarters of a million peasants from central Russia went to Siberia — one of the biggest movements of population, and by far the biggest migration, that is in the sense that it was a movement within one country, that ever occurred. Senator Sterling. Xow what were the conditions under which they got and held land in Siberia ? Mr. Husband. The land laws of Siberia, as I understand them, were more liberal. They approached ownership, definite owner- sliip, whereas in central Russia it Avas largely a community owner- ship. Senator Sterlin(;. And thev were able to get larger tracts of land? 522 EMERGENCY IMMIGRATION LECJISLATION. Mr. IlrsHAXi). And tlu'v weiv al)le to loyed had worked full time. 48 hours a week, that labor would have i)roduced perhaps 250,- ()0(V)(>U more tons of bituminous coal than this country cotdd possibly have used. Therefore, work in that industry was in a measuie sea- sonal rather than continuous. Accordin'>() to Illinois: r)3s to Wiscon- sin: 676 to Iowa: 1.2.")4 to Wasl.ington: 4^^ to Pennsylvania: 1,871 to Minnesota: 485 to North Dakota. Of the 21.00<) Scotch who came in only 1") per cent, or 3.249. went to Nev.- York. And I am mentioning New York because that is the one point that people talk ai)out a ji'eat deal. One thousand eight hundred and eighty-fcui- went to California. 809 to Illinois. 2,767 to Michigan, 32.") toMinnesota. 964 to New Jersey. 9:^2 to Ohio. 1.413 to Washington State. 1.26)7 to Pennsylvania. And the distribution of the English was practically the same. The total number of English immigrants was r)8.:W8. And r).982 English immcrrants went to ^'alifornia last year, as compared with 10,000 to Nevx- York. To Illinois. 2,166: to Michigan, 7.992; to New Jersey, EMERGENCY IMMIGKATIOX LEGISLATION. 527 1.872: to Ohio, 2 271: to Pennsylvania, ;j.(;7G: to Vii-ainia, 4s0: to Washineh Xew York City? Mr. HLsr,ANn. Yes: that means very largely Xew York City. Hut tlie tiijures show tlie difference, I think, between the two prroups of peo])le. One is a perfectly normal and a perfectly desirable im- miave been better executed. Xow that will be disputed. l)ut I thinlc tliat is probably true. There has been leniency in individual cases, but even a most ri^id enforcement in this respect would not improve the present situation to any perceptible degree, but it would bring an avalanche of criti- cism on the grounds of inhumanity. If I might mention an illustration : I read in a prominent X'^ew York paper the other day an editorial about the inefficient execution of the immigration laws, the impression l)eing given that no one was kept out : that they came in under this exception and the other excep- tion, and finally, if they did not come in under any of these named exceptions, therest of them were admitted as fleeing from religious persecution. And there were nine admitted as fleeing from religion- persecution last year. That is all right. I am not objecting to that criticism. But if there should be held up at Ellis Island a case for deportation whicli involved inhumanity in any respect, that same paper would cover 528 EMERGENCY IMMIGRATION LEGISLATION. its front page with objections to the inhumanity even of })roperly enforcing: the law. and there woiikl be l)ri1<». 1 to 48. Then came the hiw of 15*17. and in 19*20 1 to 8<> were rejected. I mention that to show that in the development of the law there had been under each successive act a more careful siftin«r of immi t,ixotta:m. Five per cent. That is Avhat he is dis- cussing. Mr. Htsbaxi). Yes. Tt would be 67.000 from northern and Avest- ern P^urope under a 1 per cent limit. Xow. from southern and eastern Europe the average number ad- mitted in 1910-1914 Avas about 789.000 annually. Under the 5 per cent j^rovision 255,416 could be admitted: under the 4 per cent provision. 204.882: under tlie 8 per cent provision. EMEEGENCY IMMIGRATION LEGISLATION. 535 153,249; under the 2 per cent provision. 102. 1G6; and under a 1 per cent provision the limit would be approximately 51,000. I won't discuss the effect it would have on the immiirration from China. Japan, and other countries, but these appear in the statis- tical table. Senator Dillingham. In round numbers, Mr. Husband, under the 5 per cent basis immioration from northern and western Europe would not be affected at all, would it? Mr. Husband. Xo. Senator Dillinghaim. Ea'cu more mitrht come in than had been cominor in. but it would reduce the immigration from eastern and southern Europe substantially two-thirds? Mr. Husband. Yes; it would reduce it to about one-third of the average before the war. Senator Dillingha.^i. It would l)e reduced to one-third of the average prior to the war. Mr. Husband. Yes. The only country in northern and western P^urope that would l)e affected, according to this table — that is, where immigration might be limited — is Belgium, which, because of the very small number of Belgians residing in the Ignited States and a considerable immigration from 1910 to 1914 — an unusually large immigration from Belgium — immigration from that country would be reduced, theoretically, from 5.G90 to 2,470. Senator Harrison. It would not restrict the Germans? Mr. Husband. The Germans would be the least restricted of all. The average immigration from (xermany in 1910-1014 was 32.239, and the 5 per cent clause would allow the admission of 125.066 annually. Take also Sweden, for example. The immigration was 17,848, and 33,000 could be admitted. Senator DTLLiNGHA:\r. You will insert that table in your testimony. Mr. Husband? IVIr. Husband. Yes. The Chairman. It may be placed in the record. (The table presented by Mr. Plusband is herewith printed in full, as follows:) Xiiiiihcr of natires- of countries specified who were resident in the J'nital States i)) 1910: (tverafie nimiher of inn)iifira)if aJieiis uho irere admitted from siie?} countries durinfi 1f>tO-10J.'i : the iiiimher irho irould t)r adinixsihle aiiviialh/ under the Dillint)lia)n '> jicr ce)it plan, and also under a .'/. .?. and 2 per cent limit. Country. Belpiim Denmark France Germany Netherlands Norway Sweden Switzerland United Kingdom. Population in United States, 1910. 49,400 181,649 117,418 2,501,333 123, 134 403, 877 tW.S, 207 124, 848 2, 573, 5.34 Total northern and western Eu- rope I 6,740,400 Average annual immigra- tion, 1910-1914. 5,690 6,694 8,601 32, 239 7,147 11,416 17,843 3, 762 89, 188 Approximate number who would be ad- missible annually under specified per cent limit. 5 per cent. 4 per cent. 3 per cent. 2 per cent 182,850 2,470 9,082 5,871 125,066 6,157 20,194 33, 260 6, 232 128,677 337, 020 1,976 7,266 4,697 100, 053 4,925 16, 155 26,608 4,994 102,941 1,482 5,449 3, 52.3 75, 04(1 3,694 12,116 19,956 3,745 77,206 3,633 2,348 50,027 2,463 8,078 13,304 2,487 51, 471 269,616 I 202,212 | 134,808 536 EMERGENCY IMMIGRATION LEGISLATION. y limber of uiitircs of rottntrics specifiPd 11)10 icrrc resident in the United States in 1910, cff.— Continued. Counfrv. Austria-Hungary Bul^ria ". Servia Montenegro Greece Italy Poriugal Ruma nia Russia Spain Turkey in Europe Turkey in Asia Total southern and eastern Eu- rope and Turkey in Asia China Japan , India British North America Cuba Other West Indies Mexico Afric-a Australia Atlantic Islands Central America South America Population in United SUte;, 1910. 1,670,&S2 11,498 4,6:39 5,374 101,282 1, 34.3, 125 .59,360 65,923 1, 732, 462 22,108 32,230 59,729 .Vveraee annual immigra- tion, 1910-1914 5, 108, 312 56.756 67,744 4,664 1,209,717 15,133 32,502 221,915 3,992 9,055 18,274 1,736 8,228 225,931 4,964 26,442 220,967 10, .380 2,570 210,922 5,722 13,930 16,780 Approximate number who would be ad- missible annually under specified per cent limit. 5j>ercent. 4percent. 3percent. 2peTcent, 738,612 12,092 » 7, 713 »348 65,863 12,805 17,672 1,197 1,068 1,285 6,661 83,529 575 232 269 5,064 67,136 2,968 3,296 86,623 1,105 1,612 2,986 255,416 2,837 3,387 233 60,486 757 1,625 11,096 200 452 913 87 411 66,823 460 196 215 4, ail 53,725 I 2,'v74 I 2,6.37 ' 69,298 I 884 1,289 I 2,389 I 50,117 345 139 161 3,aiS 40,294 1, 7S1 1,978 51,974 663 967 1,792 204,332 i 15.3,249 33,412 230 93 107 2,028 26,863 1,187 1,318 442 645 1,195 102,166 2,270 1,703 2,710 2,032 186 140 48,389 36,292 605 454 1,300 975 8,877 6,657 160 120 361 271 730 548 69 52 329 247 1,135 1,355 93 2^194 303 650 4,438 80 181 365 35 165 I 1910-1919. Mr. Husband. Senator Dillingham's bill provides that in addition to this percentage certain relatives of immigrants may be admitted after the maximum number had been reached — that is. after the maxi- mum number had been admitted certain relatives could come in. That is a detail. I should think that the basic maximum number in any case would take care of all the relatives who might want to come, but. as I said, provision ought to be made for the exercise of humanity in individual cases after that maximum has been reached. The matter of ethnic groups seems to me a more difficult one to handle. Our census, while it gives .some information concerning the number of people in each ethnic group, is not so definite as it is in the case of countries of birth or nationality, and if passports are to play a part in the regulation of immigration it would be difficult to attach passports to ethnic groups, whereas it is perfectly easy to at- tach them to nationality. But on the whole I don't think it makes so very much difference. Either plan could be worked out so as to produce the desired result. Senator Dillixham. In some of the European countries, especially those of eastern and southern Europe, the number of races within one (Tovernment are (juite numerous, are they not ? Mr. Husband. Oh. yes; even now. although that condition has been modified greatly h\ the war. And I have thought it possible that a combination of nationality and ethnic group> in the case of some countries might be desirable. Take Turkey, for example. Our immigration from Turkey is Syrian, Armenian. Greek, and Hebrew, and finallv Turks, who in the EMERGEISrCY IMMIGRATION LEGISLATIOX. 537 past liaVe plaj^ed a very small part. I think a few years ago in immi- gration from Turkey only 1 in about 80 was actually a Turk in race. It has seemed to me that in the case of a country like Turkey, whei'e there might be some conflict among the A-arious races or peo- ples as to which should have preference, possible difficulty might be avoided by providing that the number coming from that country should be apportioned among the various races on the basis of the l^opulation of such races in the country of origin. There would be a little difficulty in the beginning in determining the population in the United States of natives of some of the new countries of Europe, particularly Finland, Poland, Czechoslovakia, the Kingdom of the Serbs, Croats, and Slovenes, but Senator Dill- ingham's bill provides that that number shall be determined by a board consisting of the Secretary of State, the Secretary of Com- merce, and the Secretary of Labor, pending the results of the pres- ent census, which will not be available until somewhat later in the year. Senator Dillingham. I Avas thinking, as you mentioned that, Mr. Husband, whether it would be well to modify that bill by giving the I3ureau of the Census or the department in which the Bureau of the Census is located charge of making those estimates, the same to be approved by some of the other organizations that are interested, be- cause it would be from the Bureau of the Census that we would derive all the information on which the law would be executed. Mr. Husband. Yes. The three departments mentioned in your bill, I think, are the ones that would naturally be selected to determine a matter of that kind, for the reason that the De})artment of State knows boundaries in Europe, the Department of Commerce, which includes the Census, has the population statistics, and the Department of Labor is charged with the control of immigration. Now, I mentioned the board or commission. But just as a matter of suggestion — not that I am absolutely convinced myself as to the wisdom of the matter — I will suggest that such a board might be in- creased by adding the Secretary of the Interior and the Secretary of Agriculture, and that the duties of the board might be expanded to include : First, authority to admit labor to meet an emergency. I think it has been pretty clearly shown here that the seasonal labor in the Southwest, and on the east coast of Florida, and I know it is so along the Canadian border — the Canadian lumbermen coming over into Maine, and Xew Hampshire, and Michigan, and Wisconsin during the winter season for the lumbering industry — has ahvays been a large and a perfectly natural movement, and one that I think no one w^ould want to interfere Avith. But this l)oard might be vested Avith definite authority to admit that labor. Senator Dilltncjham. And by being enlarged it avouIcI cover sub- stantially all the practical interests of the country? Mr. Husband. Yes. Now, continuing: Second, that the board might be authorized to make plans for the distribution of immigrants, including their permanent distribution to the land as farmers. Third, in promoting the cooperation of goA'^ernraental and other agencies which have to do wnth immigration and immigrants. 538 K.MEiujKNc'v i.mmi(;hati()N le(;islati()N. Now. take that jrroii]) of (It'paTtnu'iits : The Department of State ill nny coinpi-eheiisive j)hm for passjiorts or exainiiiatioii abroad oi- inspection aliroad is oleaily interested in the iTnniieneficial eli'ect on the distril)ution of inmiiirrants and the utilization of immis its work in contact with the work of another depart- ment for the purpose of accomplishing a common object. And those departments that I have named. I think, could very well work to- "ration or immi- grants could be coordinated it would be a saving of effort and a sav- ing of money. That is practically all I have to say. The Chairman. Mr. IIusl)and. to repeat. i)erhai)s. what was your A'iews of the Johnson bill, of the temporary suspension of immigra- tion, and the provision for admitting dej^endents? EMERGENCY IM.MKiRATIdX J.KiJISLATIOX. 539 Mr. HusRAND. My view of the Johnson bill was that it would not meet the emergency. That it would act as — I won't say as a detri- ment — but it certainly would reduce immigration from northern and from Avestern Europe. I believe it would cut immigration from northern and from western Europe to almost nothing, for the reason that admissions under the Johnson bill are very largely based on dependency. Senator Hakkison. Do you think if we should report out the John- son bill, that we ought to strike out that dependency feature of it ( Mr. Husband. AVell. that would cut out all immigration. Senator Harrison. Well, that is what I am for, right now. What do you think about the advisability, if we should report out the John- son bill, of working out some scheme such as we now have in Senator Dillingham's bill, for example, of limiting immigration to this country ? Mr. Hi'sBANi). AVell, that is my solution of the present emergency, Senator, to fix a definite limit at whatever the Congress might deter- mine is proper. Senator H.ujrison. Xot to put the two together? But have an interim Avhere we would suspend immigration, as is ])rovided in the Johnson bill, striking out some of the exceptions, the dependency feature, for instance, and then at a certain time to start the opera- tion of the principle embodied in the Dillingham bill or the Ster- ling bill? ]NIr. Husband. Well. I personally tliink that the principle involved in those two bills ought to be applied at once to meet the emergency. I think there is an emergency. I don't think the emergency is the immigration from northern and western Europe, which is, I think, exceedingly desirable. In fact, I came over on a ship six months after the armistice with some immigrants aboard, and they were a per- fectly splendid type of British families who were tired of the turmoil of Europe, and were coming to the United States with plenty of money, to settle down: people whom any community Avould welcome. And there is a great deal of that. One of the very definite things that I have seen concerninor future immigration from Europe was a statement. I believe issued by the Federation of Labor, that there AA-ere some ten or fifteen thousand or more Hollanders who wanted to come th the United States. Well, if Hollanders want to come to the United States I don't think any- thing at all ought to be placed in their way except, of course, the usual te.st as to health and everything of that sort. The CHAiR:\rAN. ^Ir. Husband, I underst;t€^rn Europe is concerned, that we were about to return to preAvar conditions in respect to immigra-, tion; and that so far as southern and eastern Europe is concerned it Avas your opinion that the immigration would be in excess of prewar conditions. Was that so ? ]Mr. Husband. Yes. The Chairman. Xoav then, that is Avhat you term the emergency? Mr. Husband. Yes. sir ; that is what I term the emergency. The Chair^ian. We would return to preAvar conditions so far as northern and Avestern Europe is concerned, and there Avould be an in- crease — you didn't state the amount, but your opinion Avas that there 540 EMERGENCY IMMIGRATION LEGISLx\TION. would be an increase — so far as southern and eastern Europe was con- cerned. That is the emergency which you say confronts the country ? Mr. Hi SB.A.Nn. That, in my opinion, is the emerrAX\ "We will hear from you. Mr. Patten. STATEMENT OF MR. J. H. PATTEN, REPRESENTING THE PATRI- OTIC ORDER SONS OF AMERICA. ^fr. Pattp^x. ^Ir. Chairman and members of the Senate Com- mittee on Immigration. I Avish to make a statement bearing on the emergency lecislation and also on this percentage proposition, which coincides with what Mr. HusV)and has said. I appear on behalf of the Patriotic Order Sons of America, whose principles and traditions go back to the colonial period and to the '• Sons of America " of that eventful epoch in our country's history. Although primarily a patriotic society, the Sons of America is in- cidentally a benevolent organization: it cares for its sick, buries its dead, tries to look after their Avidows and oi-phans. and i)er forms other beneA'olent functions. The chief object of the order. hoAvever, is the inculcation of patriotism, devotion to this count ly. its institu- tions, and its ideals. As a strong advocate of the American public-school system the order urged enactment of the reading test for adult immigrants. Its member.ship favored the test for the same reason they favored com- i>ulfeory school-attendance laws. They see no reason Avhy we should not require as mucli of adult aliens rominsr here as we compel of our own native-born adults. They believe that the enactment of the test will tend to increase, as it already seems to haA'e done in Italy and elsewhere, the s])read of public schools throughout the world. It is their ojnnion that, on the average, the man or Avoman who can lead or Avrite is better equipped for the struggle for existence, for turning a living, for being a better man or Avoman. and for more in- tellifrently participating in our public affairs, than one who can not i-ead or write. It is their contention that an elementary education iu'ttcr fits a person for citizenshij). and that the ignorant and illiter- ate constitute a much more fertile field for the educated rascal and EMERGENCY IMMIGRATION LEGISLATION. 547 irresponsible agitator than the literate, else our whole public-school system is all wrong. Consequently, they are opposed to the repeal of any modification of that provision in existing law. The membership of this and other similar orders have always taken a deep and somewhat intense interest in immigration legisla- tion, and it seems to me an advanced and progressive stand. They are opposed, fundamentally, to any foreign interests of any kind whatsoever in our State or National affairs. They believe that our immigration policy is strictly and exclusively a domestic question to be determined by the people of this country through the legislative department of the Government. They believe in putting the determination of our immigration pol- icy ahead of business and every other consideration, except its effect upon America, American institutions, American standards, Ameri- can ideals, and Americans, whether native or foreign born. For that reason they would respectfully suggest that even the hand-made cigar factories of Tampa, the large cotton and sugar jdantations of the Southwest, and similar employing interests whose representatives have been before your committee and the House com- mittee during the past year, seeking legislation that will except illit- erate, pauper, contract alien labor from the operation of existing law. .should bow to the public-school principle and .should thereby help instead of hinder the banishment of ignorance and illiteracy from our country. They fear ignorance and illiteracy, the use which the educated rogue can and does make of the ignorant and illiterate, and there- fore they favor its eradication as a necessary safeguard to our insti- tutions and a blessing to our citizenship itself. They believe with Washington in raising here standards to which not only men. but nations, will aspire. The Patriotic Order Sons of America is composed of local. State, and a national camp. At its last session the national camp adopted the following resolution : ResolrPd. That we urge the enactment of H. R. 67.50. deporting: dangerous enemy aliens ; H. R. 8572, suspending immigration for two years, outlining a pjis.sport system and for other purposes: the maintenance of our existing Chi- nese exclusion, .Japanese exclusion, and Hindu exclusion policies ; and the fur- ther restriction of immigration by numerical limitation of nationalities accord- ing to percentage of aliens naturalized. The attitude of State and local camps is well illustrated by that of the Penns3dvania State camp, which recently adopted the follow- ing: AVheieas our country is reported honeycombed with alien radicals, our ambas.sa- dors and othei- representatives alu'oad report foreign ports congested with millions of the worst elements awaiting peace and transportation to come to America, and inasnuich as we already have within our gates over 5,000,000 illiterates to be educated and over 10.000,000 aliens to be assimilated and Americanized : Therefore be it RcMolvcd b;/ the Peutisiilrania State Catni). Patriotie Order Sana of America, in (nniual .sp.-j.s/oji at Ifarrishiirg this 2nth dmi of Aiifjust, 19.20. rrprcsentinfj 132JG7 )iiriin)er.etition. '* Not only did the mistake saddle upon most of the white people an economic evil," which according to the Immigration Commission has its parallel in the steel industry to-day, but it was ffdlowed in time, as was recently state; 04 S. 743 S57,04(; 812, 870 026,499 100,733 285,349 782, S70 7.51, 7S6 O41..i70 878.. 567 11.9 y. 5 S.9 12. s 12.1 12.1 • 1. s 8.1 Nonimmi- grant alien arrivals. 74,950 S2,0.">5 ti4,269 27, 844 35.2.=* 6.-., 618 Vi'j, 120 141.825 192, 449 150, 467 1.51.733 4,19.5,524 9,673,9.53 1,143.586 ' Official Government statistics. ( Annual report of Conimissioncr General of ImniiCTation. ) 2 Statistics furnished to the Government by steamship companies. ( Required by act of i eb. 20. 1907. ) 3 Not giveii'after 1909. Note. — The distinction "immiKrant alien" and ••nonimmiCTant alien"' is fan-'iful. the only diiTercnee being as to whether the alien comes for the first time or comes intending to remain. A ••nonimmigrant alien"' is so classified if the ahen says he expe.ts to return to the native land. Note 2. — .Ylthough 9.7S7.2iJ aliens entered this country dunng the lastcensus decade U9W lo 1910) the Census Bureau reports that our fo.eit'n-born population ih:-e3:ed only 3.129.766. which tends to sho.v that the number of alien departures reported by the steamship companies falls short of the number that at-tually leave the country. The Immigration Commission reports that "a* least 40 per cent of those coming re- turn." taking a minimum of ?2.5O,00O.0OO annually out of the country. Mr. Patten. It is difficult to reconcile the census figures, which show an increase of three and a half million foreign born, with the Immigration Bureau's figures showing a net alien addition of over six millions. Certainly, the difference can not be accounted for by mortality, since nine-tenths were in the prime of life. At an}' rate, the net addition of al ittle over 3.000,000 immigrants during the decade ending in 1910 was found by the commission to have caused " an oversupply of unskilled labor in the basic industries to an extent which indicates an oversupply in the industries of the country as a whole, a condition which demands legislation restricting the further admission of such unskilled labor." The crux of the commission's •12-volume report about immigration conditions at the end of this decade, during which there was a net increase in foreign born of a little over 3.000.000 aliens, is to be found on page 48 of the first volume, where the whole 42 volumes are summed up as follows : The coniniii^sion as awliole — all nine members — rec-onimends restriction as (leniaiided hy economic, moral, and social consideration, and furnishes in its rejiort reasons for stich restriction, and points out methods hy which ron.irre.ss can attain the desired result if its .iudfrment coincides with that of the com- mission. Then the commission goes on to say : It is desirable in iiiakiiitr the restriction that — in) A sufllcient imniher be debarred to produce a marked effect upon the pres- ent sup])l.v of unskilled labor. (fi) As far as i)ossible, the aliens excluded should be those who come lo this country with no intention to become American citizens or even to maintain a EMERGENCY IMMIGRATIOX LEGISLATION. 555 permanent resiflence here, but merely to save euousih. by the adoption, if neces- sary, of low standards of liviufi. to return permanently to their home country. Such persons are usually men unaccompanieil by wives or children. (r')As far as possible the aliens excluded sliould also be those who, by reason of their pv'rsonal ([ualities or habits would least readily be assimilated or would make the least desirable citizen.^. The foUowins;:. methotls of restricting immisartion have been suKe.'^ted : {eriod of years. (<■) The exclusion of unskilled Iborers unaccompanied by wives ov fiimilies. ('/) The limitation of the ninnber of innuijiiants arriving annually at any port. (e) The material increase in the amo .nt of money required to be in the jios- session of the inunigrant at the port of arrival. [f) The material increase of the liead tax. (p) The levy of the head tax so as to make a marked discriiiuiiation i;i favor of men with families. All Ihese metliods would be effective in one \\ay or another in secnrinjr re- .strictions in a greater or less degree. A ma,1ority of the connnission favor the reading and wi-iting test as the most feasible single method of restricting unde- sirable innnigraiion. Mr. Patten. Just as these findings and conclusions of the Immi- gration Commission corroborated the results of previous hearings and inquiries, they were in turn confirmed in the report of the Commis- sion on Industrial Relations to Congress in 1915, which contained the following summary : The immigration policy of the United States has created a number of our most difficult and serious indu.strial problems and has been responsible, in a considerable measure, for the existing state of industrial unrest. The enormous influx of immigrants during the last 25 years has already undermined the American standard of living for all workmen except those in skilled trades, and has been the largest single factor in preventing the wage scale from rising as fast as food prices. The great mass of non-English speaking workers, who form about half the labor force in basic industries, has done much to prevent the development of better relations between employer and employee. These reports establish the fact that immigration, as at present regulated, causes a surplus of unskilled labor in this country as a whole. Even alien labor is found, by these investigations, to be ruin- ously competing with itself, as well as with the native born. And precisely as it undermines the standard of living it undermines other standards and conditions. " Economic, moral, and social considerations," the nine members of the Immigration Commission conclude, " demand " substantial limitation of foreign immigration, which during the decade of their searching inquirv averaged a net alien addition to our population of 300,000 a year. Practically the weakest one of the nine restrictive remedies sug- gested was adopted by Congress, and it onl}^ in part and with many partially nullifjdng exceptions. "With Italy and other countries opening night schools to teach their populations to read, and with Europe war torn and seething with radicalism and a desire on the part of the people to get out from under those war-torn conditions, existing law does not seem to satisfy the commission's conclusions. We should think first of America and Americans. Our country is thronged with unemployed. Soup kitchens are being opened this very week in parts of Pennsylvania and Ohio where they have been imknown before. The world is practically bankrupt and it is natural 556 EMERGENCY IMMIGRATION LEGISLATION. that its people should want to come to the best place in it. They can not all come. For them to come will merely duplicate here the con- ditions from which they flee. With the situation as it is, why should any come until we get our bearings? Why should they even come to take the places of those leaving? For that will maintain foreign conditions here which our assimilative and Americanization forces have not been able to correct. The figures seem to indicate that they will soon be coming at the old rate. The number has increased from 14.643 in Januarv. 1919, to 85,959 for August. 1920. and is estimated at fi-om 92,000 to'lOl.OOO for each of the remaining four months of 1920. Conditions in this country are what should control, in our opinion. To intensify any one of the>e conditions may be dangerous. We recognize that there will always be immigration. A circular has just been sent to me entitled " T'nem])loyment."' issued recently by the central executive committee of the Communist Party of America. After describing the large army of unemployed, and how workers are " beginning to feel the pinch of hunger and cold," in a year of bumper crops and a land of, plenty, while the "idle rich are enjoying the fat of the land,'' the reader is exhorted to " put an end to this j^rofit system " which keeps him in "' poverty, misery, and degradation and gives all the good things of life to the rich," and the way pointed out is " to conquer ]>olitical power and • destroy this capitalistic Government and establish in its place a soviet — just as did the workers and peasants of Russia." Again and again the circular urges the overthrow of the American Govern- ment by force and the establishment of communism in its place. The Attorney General in his last annual report represents that he has a card index of over 200.000 radicals, and that " 90 per cent of the communist and anarchist agitation last year is traceable ta aliens." The Patriotic Order Sons of America teaches that the American form of Government is the best that ever has been devi.sed anywhere, any time, and that under it, when properly administered, there is more personal liberty and greater equality of opportunity than anywhere else. The membership is opposed to radicals and radicalism, and would prefer absolutely shutting the gates at this time until the present agitation in this country can be wiped out. They would prefer keeping all out rather than admit a very few such enemies of our free institutions. Our members have come in contact with the propaganda and have been instrumental in putting an end to it in a number of instances, and as a result of their efforts have been commended by various public officials, including the Attorney Gen- eral of the United States, who said. "It is a pity that there are not more organizations like the Patriotic Order Sons of America in this country." About a year ago. when an effort was made to get Congress to empoAver the Secretary of Labor to waive the provisions of the immigration law and admit illiterate, pauper, contract labor from Mexico and other contiguous foreign territory. T made a statement before the House committee on behalf of the order in opposition to the proposal. The same gentlemen that have been before your com- mittee at this hearing were before the House committee then. One EMERGENCY IMMIGRATION LEGISLATION. 557 of them. Mr. Fred Roberts, of Corpus Christi. Tex., testifying before the House committee described unemployment conditions savoring of sLaverv and peonage. The House committee unanimously tabled the bill or. rather, resolution excepting from the immigration law illiterates, pauper, contract laborers from contiguous territory. Ten da^^s later the Secretary of Labor issued an order suspending the law, saying he did so " pending action by Congress," although the House committee had unanimously refused to act. The order issued by the Secretary purports to be done without clear authority of law, because it is done "pending action by Congress" authorizing "the admission of laborers for agricultural pursuits." It was not intended by the committees or those that drafted the existing law to give the Secretary any such discretionary power as to declare the law to be law at one time and in one place and not law in another place and as to all countries' nationals with whom we have treaties containing the most-favored-nation clause. We should maintain our proud boast that this is a Government of law and not of men, and that all are equal before the law and enti- tled to the same privileges, be they life, liberty, and the pursuit of happiness, or the importation of illiterate, pauper laborers under contract. Congressman Box, of Texas, a member of the House Committee on Immigration and Naturalization, made a statement before the House committee, and showed, by reading from the official journal of the Texas State Senate, which conducted an extensive investigation into the matter, the illegal voting of large numbers of Mexicans, to which 1 would call your attention. It has been stated these Mexicans were desirable and affidavits have been introduced to that effect. Of course, it is impossible to prove a universal negative. The evidence taken before the Texas Senate committee shows the contrary. It does not show that those imported under the contracts, as a result of the waiving of the immigration law, were used to cor- rupt the ballot, but, on the other hand, it does not show that they were not, and it does show that hundreds upon hundreds of illiterate Mexicans were so used. Mr. Patten. I have here a four-page brief in favor of the numerical limitation of immigration, which I should like to have placed in the record. The Chairman. It may be placed in the record. (The " Brief in favor of the numerical limitation of immigra- tion" presented by Mr. Patten is printed in full in a subsequent part of the record.) Mr. Patten. I have here various orders issued by the Secretary of Labor suspending the law, and certain letters and memoranda, which complete the history of the proposed amendment, and which the committee may have if it cares to have them printed in the record. I have also a statement which I made before the House committee in opposition to the resolution which contained the gist of the amend- ments for which Mr. Roberts, Mr. Mandeville, and others have con- tended before this committee. These orders issued by the Department of Labor and this cor- respondence on the part of the Secretary of Labor and Mr. Caminetti bearing on the admission of illiterate Mexicans and aliens would. 558 EMERGENCY IMMIGRATION LEGISLATION. 1 think, be valuable for the purposes of this committee. I have here a copy of the order issued by the Secretary of Labor on Febru- ary 12, 19*20. and copies of letters and orders appearing in Appendix A "to the hearings of the House committee on " Temporary admis- sion of illiterate Mexican laborers "' from pages 358 to 373, inclusive. The Chairman. They may be incorporated in the record, if you will submit them. (The letters and orders presented by Mr. Patten are printed in full in a subsequent part of the record.) The Chairman. The committee will now stand adjourned until Tuesday, January 25, at half past 10. (Thereupon, at 11.55 o'clock a. m.. January 19. 1921, the committee adjourned until Tuesday, January 25, 1921, at 10.30 a. m.) X Emergency Immigration Legislation HEARINGS BEFORE THE COMMITTEE ON IMMIGRATION UNITED STATES SENATE SIXTY-SIXTH CONGEESS THIRD SESSION ON H. R. 14461 A BILL TO PROVIDE FOR THE PROTECTION OF THE CITIZENS OF THE UNITED STATES BY THE TEMPORARY SUSPENSION OF IMMIGRATION, AND FOR OTHER PURPOSES TUESDAY, JANUARY 25, 1921 PART 12 Printed for the use of the Committee on Immigration Sk WASHINGTON GOVERNMENT PRINTING OFFICE 26011 1921 COMMITTEE ON IMMIGRATION. LeBAROX B. colt, Rhode Island. Chairman. WILLIAM P. DILLINGHAM, Vermont THOMAS P. GORE, Oklahoma. BOIES PENROSE, PennsylvanUt. JOHN F. NUGENT, Idaho. THOMAS STERLING. South Dakota. WILLIAM H. KING, Utah. HIRAM W. JOHNSON, California. WILLIAM J. HARRIS, Georgia. HENRY W. KEYES, New Hampshire. PAT HARRISON. Mississippi. WALTER E. EDGE, New Jersey. JAMES D. PHELAN, California. IIexry M. BAttBT, Clerk. EMERGENCY IMMIGRATION LEGISLATION. TUESDAY, JANUARY 25, 1921. United States Senate, Committee on Immigration, WasMngtorij D. C. The committee met, pursuant to adjournment, in room 235, Senate Office Building, at 10.30 o'clock a. m.. Senator LeBaron B. Colt presiding. Also present: Senators Colt (chairman), Dillingham, Keyes, Edge, Gore, Harris, and Harrison. The Chairman. The committee Mill now be glad to hear Mr. McCleUan. STATEMENT OF ME. GEORGE McK. McCLELLAN, WASHING- TON, D. C. The Chairman. Before you go on with your statement, will you not tell us in a preliminary way as to your profession and experience i Mr. McClellan. Yes, Senator. I am a lawyer, and I have for about 10 years, during the past 15 years, represented here at Wash- ington the Chamber of Commerce of Honolulu, Hawaii, and have been in touch with all public legislation for the Hawaiian Islands. I have not represented private interests, but have been working on behalf of commercial oi-ganizations of Hawaii for public legislation affecting those islands. I do not now represent those interests, and I appear as an individual citizen. The Chairman. Have you made a special study of the subject of immigration ? Mr. McClellan. I have for the past two years. Senator. I have been engaged on this subject, because it is to me one of the most fascinating subjects that one can study, since it represents really the fundamental drama of the human race. The (^hairman. It is fascinating, but rather difficult? Mr. McClellan. Fascinating an.d also difficult, as all important human problems are apt to be. Senator. Gentlemen of the committee, through your courtesy I appear, as a citizen and without financial interest in the issues before you, to dist?uss briefly the immigration situation. My purpose is to make a prclimiiuiry statement and outline of a new and comprehensive plan of immigration control. Its considera- tion now may have some bearing on the type of emergency legislation to be adopted at this session. The plan as a whole, and the problem, it undertakes to meet, should receive both prompt and thorough con- sideration by the Sixty-seventh Congress. The chief indictments of the present immigration practice in this country are that control and direction are scarcely attempted; that 559 560 EMERGENCY IMMIGRATICfX LEGISLATION. it treats a vast conn try as one immigration unit of destination and vocation; that it grants to the untrievl alien full and unrestricted admission: and finally that it leaves to the restless masses of Europe and to the activities of foreign steamship companies the real determi- nation of the volume, character, and destination of our immigration. A comj)re!iensive immigration plan must em])ody llexihility under varying conditions, and control of volume, distribution and general lines of occu])ation to be followed by the immigrant. Finally, it should condition the alien's right to land and to remain upon com- pliance with definite stejs toward citizenshi].. No comj rehensive immigration system has ever been ado])ted by the nation: rather we have allowed immigration to mal- e its own volume and currents and to remain alien. . Even l>eiore the great war, big industry and big opportunity had combined to make immigration a j.roblem to this nation of ours. The World War and its trailing misery have raiseil the problem to an impending crisis. A bankrupt continent is ready to flood us with the millions who typify the wretchechiess and poverty spa\^^^ed by relentless war. In addition, tne war lias forced us to recognize some of the majoi defects of our immigration flood. First oi these is the stupidity of rermitting the alien masses to control their o%m pereonnel and numbers, we admitting and turning the immigrant loose in the country with no ] Ian or effort to coordinate him with our industrial activities, some of which needed him, and others of which were injured by his unsought arrival. The second is the miwisdom and actual danger of permitting large bodies of aliens to remain as a foreign mass in the nation's organism vrith neither plan nor requirement for assimilating them into the citizen body. The Congress, alive both to its responsibility and to the danger, has moved to bar the entrance gates for a fixed period. Some such heroic temporary action is probably necessary. But its chief value will be to emphasize the crisis, warn the country that no adequate method lias yet been devised to meet the intensified immigration problem and give Congress time to adopt a comprehen- sive plan. Xeitlier Congress nor the country believes that we can become a hermit republic, with our doors long closed to immigration. It must meet the situation and continue the stream of immigration as a permanent policy. The situation therefore invites, and even urges affirmative proposals of methods from those who have given thought to the subject. In the hope that it may lead to constructive discussion and to a better practical solution, the writer submits a new plan for meeting the immigration ]>roblem. The mechanism of the new immigration system would center in a board of immigration control. ^Miile generally ojjposed to the creation oi new govenunental boards, it seems necessary here, because the authority and duties are too great and varied to be met by a single man. Tne authority and responsibility of the board of immigration con- trol should be comparable to that of the Federal Reserve Board in the finances of the country. Tlie Commissioner of Immigration, with a salary of not less than 810,000, should be the chairman: the other EMERGENCY IMMIGRATION LEGISLATION. 561 four members, appointed by the President, should receive not less than .1^9,000 per year. The task is too important to be handled by other than first-rate men. The control system itself should be built on three chief bases. First of these is the revocation of the full admission now granted to immigrants. I regard it, gentlemen, as fundamental that we shall cease giving full and final admission to an immigrant because he is allowed to cross from Ellis Island to the mainland of the contijient Substitute for that a qualified and revocable permit for temporary denization. The revocable permit is the central point of the new plan. It A\'ould put the immigrant in line for citizenship if he fulfilled its reasonable conditions; failing those requirements within a period of, say, five years, he would be deported without right of reentry. Tlie ])ermit would limit the immigi'tmt while ac(juiring citizenship to certain groups of occupations. Suggested groups are: (a) Farm labor and common labor other than factory, shoj), or mine. (/)) Mining and outdoor common labor. ((■) Unskilled labor in factories, mills, shops, etc., and outdoors, including railway section work. (d) Skilled factory workers, with privilege of common labor. {e) iNlechanical trades, with privilege of indoor common labor. (/■) Business, the professions, students, travelers, etc., to be classi- fied as internationals. Under ordinary conditions classes {d) and {e), that is, the skilled fact 'rv workers and the skilled workers in the mechanical trades should be restricted or closed, in order to make all higher paid occu- pations the privilege of citizens only. The permit should also contain conditional limitations as to location of the immigrant within certain general divisions of the States. This country is so large, its sectional conditions and requirements so varied, that it is sheer stupidity to treat it as a unit for immigration purposes The Chairman. Have you considered, in outlining that ccmi])li- cated machinery in order to finally admit the alien to full privileges of American citizenship, that the more complicated you make the machinery the more you prevent the alien himself from being willing to become attached to the country ? In other words, from the stand- point of nationalism of the unioji of these alien races ^ Mr, McClellax. Yes. The Chairman. It is not complicated machinery and conditions that make an alien an American citizen? Mr. McClellan. No; you are quite right. The Chairman. It is the spu'it in which we approach him, and we must create in liim a feeling of affection and attachment to the country. Well, now, if you overload him with conditions and regis- tration and everything of that kind, it seems to me that you hinder the main political object of making these alien nations of one nation- alism. Mr. McClellan. I quite see that point, Mr. Chairman. The Chair>l\n. Have you outlined that? The other thought merely occurred to me. Mr. McClellan. The principle which has been adopted here is based on the principle well known to all men in public life, that the hope and expectation of things in the future is always a stronger 562 e.mer(;kn("V IMMH;RATIO^' legislation. inducomcMit to tho human boiiif; than anything alroady achieved; conse(|uently, ostahHshing citizenship as a pri^'ilege and some of the industrial privileges whicli go with it as something to be worked up to. that lieing miderstood hy the alien before he ever comes to tliis country, he is then working definitely townrd a prize which is within his rea"li if he fulfills the condition. It does not have to meet the limitation. Senator Colt, which you cite. But I am impressed that on the whole the result will be ])etter if citizenship be made a prize to be worked for by the alien instead of presenting to him in advance all the economic benefits of citizenship before we know whether he will either appreciate or use them rightly. Concerning the limitations as to occupation and residence, it is to be considered that a surplus of factoiy operatives in New England should not bar the entrance of agricultural immigrants for the West; neither should an excess of steel workers prevent the entrance of cigar makers in Florida; miners may be needed in the South or the West at a time when no more should be admitted east of the Alle- ghanies. A reasonable degree of flexibility would be provided by giving the board of control authority to extend the scope of any permit both geographically and as to occupation. The second important basis in the new immigration plan is a system by which our own countn', through its proper officials, would decide and select not only the numbers but also the occupational classes of the immigrants to be admitted in any given year. This seeks to reverse the present conditions under which the restless masses of Europe deciae for us what shall be the volume, type, and distribution of our added population. To effect this vital and revolutionary change, the board of control should establish offices in some of the leading ports of Europe from which immigrants sail. The function of those offices would be a dual one: First, to limit the sailings of immigrants within such numbers and occupations as our Government should find from time to time were then desirable; second, to make a preliminary sifting of those wdio apply for immigration permits; such selection to be based on the industrial record and personal history of the applicant, proven by proper local evidence. To each prospective immigrant approved by any European office, would be given a form of permit setting forth the occupational groups and the territory for which he had been recommended. The issuance or withholding df such permits abroad would regulate both the volume and the occupational pei*sonnel of the immigration stream; it also makes such control possible without violation of the favored-nation clause in our treaties. In other words, it is possible to work out a selective system without impinging upon the treaty status as it now exists. The final decision as to the admission would be made at our own ports as at present; but no one would be admitted without possession of a permit jjroperly identified and bearing the tentative approval of one of our European offices. In countries from which a small volume of immigration comes the issuance of tentative permits cf)uld be handled by consular repre- sentatives. EMERGENCY IMMIGRATION LEGISLATION. 563 Authority should, of course, be given the board of control to grant admission under conditional permits to arrivals from any country when the preselective service is lacking, provided such immigrants meet the other requirements of the immigration laws. The third basis of a proper immigration system is the creation of both facilities and requirements that definitely tend to fit the alien for citizenship, and that either lead him to actual citizenship within a reasonable time or else deports him to the country of origin. The problem of fitting the immigrant for citizenship is admittedly difficult of solution, but it is one that statesmanship must meet and solve. One possible method would be to require that every vState to which aliens are granted permits for residence shall make provision for citizenship training. This would place economic pressure on the several States to make the necessary provisions in order that it be able to secure its needed quota of labor. In some States it might be feasible to pass this responsibility on to those employing the labor, particularly where it is in considerable groups. In other words, to a certain extent, you would place upon industry the charge for the educational preparation of work for citizenship just as in modern legislation 3^ou have placed on industry, very proper!}-, the cost and burden of the industrial loss through acci- dents, that being now recognized as a proper charge on industry- itself. If the minimum requirement for citizenship be made a capacity to speak and to reasonably understand the English language and the Erinciples of our Government, that could be accomplished in five ours of instruction per month. Much of the minimum requirement for citizenship would be assimilated by the immigrant in his daily life if there were a sharp limitation of the publication of foreign language newspapers. To make practicable and definite the needed study and prepara- tion for citizenship, the board should prepare an official manual or handbook of citizenship, printed with the English text in parallel columns with the language of the immigrant. This manual should contain, in brief and simple language, a state- ment of the structure, purposes, and principles of the Federal Gov- ernment, an outline of its relation to the States and municipalities, and the rights and duties of citizens and of those who are candidates for citizenship; it should include an outline of the most relevant and important parts of our history. A fair understanding of this manual and full acceptance of its principles, coupled with a satisfactory record under his permit, should admit the alien to citizenship on his final examination. Aliens should be eligible for citizenship at the end of three years if they meet all requirements: unless here as internationals they should be required to attain citizenship within five years. The board should have authority to extend the time of individual permits, and to change the same to the international class for reasons shown. The central purpose of the plan is to coordinate immigration with our industrial conditions, and to treat the right of immigration as a conditional and qualified privilege, leading definitely toward citi- zenship. Growth, change, and world events have made no longer 564 K.MEKCKXCV IMMIGRATION LEGISLATION. workabh^ tho prosont s^.stom of full and relatively open admission without any effective distribution. They have also shown the mistake of not placino; a higher and definite valuation on the privi- leges of denization and citizenship. The polic of holding that the alien who may iu)t he able ever of instances the investigations should be made in cooperation with the Department of State, as it is intrusted with the administration of certain portions of the law. You are well qualified l)y virtue of your long e.KiJerience in immigration matters to undertake these inquiries, and I would be pleased to have you take the matter up with the State Department with a view to arranging for a trip to Europe, northern Africa, and eastern Asia liordering on the Mediterranean for the purpose of gathering information on the questions dasired and giving such instructions relative to visaing of passports, the shipping of seamen, and similar matters as will lead to the elimination of unnecessary hardships by preventing the movement of people to the United States who are not admissil)le and who consequently would be required to return to the countries from which they came. W. B. Wilson, Secretary. Conferences were had with the appropriate officers of the Depart- ment of State concerning the proposed trip, at which every courtesy was extended and the good offices of that department's entire service tendered. The preparation of the annual report of the bureau for 1920 delayed action, but as soon as it was practicable to devote time for the voyage arrangements were comi>leted for departure, which took place November 17, last, from New York, on the steamship Adriatic. Owing to the many requests from the press for information as to the object of the journey, a statement was issued, as follows [reading] : The Secretary of Labor has detailed the undersigned to visit theprincipal immigra- tion, centers of Europe for the purpose of initiating a study of existing conditions affecting emigration to the United States. The Secretary is anxious that there should be a cessation of the cause of hardships resulting, as he states, from "individuals in Eui'ope, or elsewhere, breaking up their homes, selling theii- belongings, and expending the proceeds for transportation to this country only to find on arrival at oiu- ports that they are not admissible under our laws and miist return to their former abode." It i^ his opinion that this "•tragedy," as he terms it, "might be eliminated or reduced by preventing the immigration of inadmi.ssibles at the source." Efforts in this direc- tion undertaken previous to the World War were checked by its operations. Since then additional problems have been added by the war and its aftermath and by new legislation. Among those caused by the latter may be mentioned the literacy test and provision for the inspection of seamen. A study of so much of these as have their origin abroad would not only be interesting but beneficial in aiding a solution by cooperation between the authorities of the respective nations affected and those of our own country, or by direct legislation by Congress. An inquiry into the various phases of immigration will also be of assistance in con- sidering que.-^tions involved in the regulation of immigration, particularly under existing circumstances. It is important in this relation that there be as little interference with commerce, or the movement of passenger trathc, as is consistent with a fair and proper enforcement of immigration laws and regulations. Tliis constitutes a subject, which, by the method of cooperation mentioned, may be solved \\'ith benefit to the transportation interests, as well as the immigration service of the various nations. Under existing law (section 2:5 of ihe imniigratiou act of liUT) "the conmiissioner general may, with the approval of the Secretary of Labor, whenever in his judgment such action may be necessary to accom])li.sh the purposes of said act. detail immigra- tion officers for service in foreign couriiries, "" and similar provision is made for like purposes concerning the detail of medical ofhcers of the United States Public Health Service, with the apj^roval of the Secretary of the Treasury. Should the stud\- proposed to be initiated under the Secretarv's direction reveal that bv cooperation and by thorough explanation of our laws and regulations, a solu- EMERGENCY IMMIGRATION LEGISLATION. 571 tioii would bf found for some of these problems, and that as regards all of them, benefits would accrue from a detail of immigration and medical oflicers for such service, recom- mendations to pursue such course might follow after due consideration of all the facts. The Secretary cites with approval the experience with Canada, where, by a reciprocal arrangement, aliens resident therein may apply at United States immigration offices established in that country under said arrangement for admission to the United States and have a final decision of the Immigration Service before undertaking to give >ip their residences or make any changes concerning their property. Senator Gore. Is that the law now ? Commissioner Caminetti. It is a regulation and an agreement between Canada and the United States under section 23 of the immigration law. Senator Gore. Does it work satisfactorily ? Commissioner Caminetti. It works very satisfactorily, Senator. [Reading:] In the event that an alien is admitted, he may tnke ^uch steps as he may desire •concerning his belongings; whereas, if he is denied admission, he goes on as before. This is one method of determining one of the problems mentioned '"at the source" that the Secretary has in mind in having this study extended to European and other centers of immigration . In the Secretary's judgment, such a study "will add considerably to the himiane administration of the law, and if all of these phases could be handled intelligently at their source, there would l)e an elimination of unnecessary hardships by preventing the movement of people to the United States who are not admissible. " The bureau is pleased to state that Surg. Gen. H. S. Cumming. of the United States Puldif Health Service, has detailed Surg. J. W. Kerr, now and for a long time sta- tioned at Ellis Island as head of said medical service there, to join in the study to be made, as the representative of the Public Health Service. At the direction of the Secretary of Labor, the Public Health Service was requested to furnish a representative to accompany the ofhceis of the department on the voyage and join in the study for which instructions had been given, and Surg. J. W. Kerr of that service, chief medical officer at the Ellis Island immigration station, Ellis Island, N. Y., was detailed by the Surgeon General, Immigrant Inspector A. R. Wiggin, an experienced officer of the Immigration Service, was assigned to accompany the wi'iter, to act as secretary, and was also designated as special disbursing agent for the detail. We arrived at Southampton on November 25, and at once entered u])on the discharge of our duties. The plan agreed upon was that endeavor should be made to call on the chief officers of the respec- tive immigration services of as many nations as possible ui the brief time at our disposal, and also confer with American dii)lomatic and consular officers hi the nations visited. As it turned out, owhig to drawbacks uicident to a trip in winter under existuig transportation facilities, the detail was able to visit only eight nations, as follows: England, France, Italy, Belgium, Holland, Czechoslovakia, Poland, aiul Jugoslavia. We were treated with every courtesy and consider- ation by the rei)resentatives of the immigration ser\-ices of said countries. The general subjects of immigration and emigration were discussed and great mterest was evmced by all taking part hi the respective conferences. Without exception they were particularly interested in the proposal of the department as contamed ui memorandum No. 1, to consider the matter of the admissibility of intending immigrants, as much as possible, at the source, in order to avoid the long voyage together with its attendhig hardshii)s, to ports of the United States, in cases where denial of aclmission would make necessary a return to 572 EMERGENOY IMMIGRATION LEGISLATION. the home countrv. The fact that the ])roposal was hi effect one in- volving mutual beiu>tits was recogjiized by all. The procedure to effect this (l','sira])le object was also considered. In connection with these methods it was suggested by members of the detail that oi)portunities for closer contact between the Immigra- tion Ser\'ice of the Department of Labor of om* Government and the immigration services of the various nations from which emigrants come to tiie United States would result in keeping each Government mformed as to laws, regulations, and procedure in immigration mat- ters and bushiess connected therewith and when occasion arose, con- ferences could be held with the officers rci)r(^senting the respective services at each ca])itol. Such immigration officers could also be detailed to act as advisors to the Consular Service on matters com- mitted to its care. The detail of medical officers to act in like capacity on medical questions was also considered. Provision was made for the recip- rocal exchange of reports, publications, and circulars, including laws and regulations. Many questions concerning our laws were asked, and were answered by the members of the detail. England, France, Italy, Belgium, and Holland have immigration systems in operation, and Poland, Czechoslovakia, and Jugoslavia are making an extensive study of immigration matters and are deeply interested in the subject. I anticipate the adoption of a progressive and able system by them. These nations take great interest in their nationals and in addition expressed a desire to see to it — as much for their benefit as from a wish to respect the rights of friendly nations— that no one would depart from their State unless they were prepared to stand the immigratioi> tests of the countries to which they were destined. In this respect the representatives of the older nations as well as the new seemed to be of one thought. The new nations are very anxious to obtain from this Government all the statistics concerning the territories in their respective jurisdictions that can be furnished from our records. They were informed that the same would be supplied, together with such otlier information as might be of interest to them. The sugges- tion to furnish them with not only the laws and immigration regula- tions, but also the detailed methods of enforcing and administering- same, was received with satisfaction. On the whole, the matters discussed seemed to create a favorable impression, as far as could be judged, upon the various representa- tives present at each conference. These official visits were in all cases made in company with our diplomatic or consular officers in the respective countries or their representatives. Conferences with the diplomatic and consular officers of our own country were, of course, more general, and went into the entire range of immigration work. As in the conferences with the representatives of the foreign Governments, the interest at these meetings turned on, as a main point, the suggestion of the Secretary to consider iis far as practicable at the source the admissibility of intending immigrants so as to avoid the "tragedy" described in his menKu-anckmi. There was a unanimous agreement that every effort should be directed toward esta})lishing such a system as would eliminate the coming of people who can not pass the tests of the immigration laws. This involved discussion of the vise laws, for unless the present law is EMERGENCY IMMIGRATION LEGISLATION. 573 amended there can not be any hope of accomplishing very much in this direction. The detail of immigration officers and medical officers to cooperate with the Diplomatic and Consular Services of the United States in foreign countries was considered, and unanimous approval was given to this suggestion. In addition the suggestion was made that a few of the most experi- enced officers of the Immigration Service might be detailed to move from place to place and keep the immigration inspectors on the various details up to date upon latest laws, instructions, and rulings applicable to the work committed to them. The addition of examiners at the consular offices, to secure infor- mation when necessary for the use of such offices, was agreed upon as a necessity under present conditions. The remaining suggestions contained in memorandum No. 1 were taken up with all the consular officers. The time at our command and the drawbacks incident to the trip in winter made it impracticable, if not impossible, to extend the visit to other nations, the inclusion of which would have added much, not only to the pleasure afforded in meeting their officers but also to the value of the work accomplished. In the five older nations visited the experience of decades was apparent in the systems established as well as the laws in force. In all of the eight countries" the officials impressed the members of the detail with their earnestness. All were men of high standing, com- manding ability, and distinguished public service. As a result of the conferences, it is my judgment that the justness of the secretary's suggestion has been made apparent, and that cooperation within their respective jurisdictions may be reasonably expected to follow. The members of the detail enjoyed in a high degree contact with the diplomatic and consular officers upon whom they called, receiving from all of them earnest attention and careful consideration of the matters made the subject of the various conferences. All displayed exceptional ability, great initiative, and a high sense of duty. At the various capitals and the ])rincipal cities visited, including seaports, the detail met the representatives of the various steamship companies, and the courtesies extended by them and the assistance rendered were of great help. Emigration conditions in Europe was the general subject of conversation. Maj. Frank Bustard, of the International Mercantile Marine Co., who had made a visit to all the principal European centers immediately previous to our arrival, furnished in detail considerable valuable information, ^fr. P. V. G. Mitchell, director general of the Red Star Line, Antwerp, also favored the members of the detail with his views, and, like Maj. Bustard, was fair in his treatment of all matters discussed. These gentlemen, as well as others representative of the steamship interests, displayed great interest in the administration of our laws and expressed their desire to fulfill their obligations toward our Government. They conveyed the wish of their companies for conference with the officers of this department to see in what way by cooperation more effective enforcement of the law and regulatit ns might be secured. All joined in the desire to stop at the source all madmissibles and promised the fullest cooperation. 26911— 21— PT 12 2 574 emee(;kx('Y immicration legislation. At this time all seem to be deeply engaged in making j)rovisi()n f( r the present as well as future business. The immigrant hotels or ])arracks in existence before the war have either been placed in com- mission or preparations therefor are under way by the various com- panies owning or controlling them, and new hotels or barracks of the same character on improved lines are under construction. The management and conduct of these is fully set forth in Dr. Kerr's report, henc(> extended description herein at this time is unnecessary. Arrangements in the new structures particularly provide for delousing and fumigation of baggage and clothing, and in estab- lished places additions for the same purpose are being made. Plans for the new immigrant hotel or barracks to be built bv the Red Star Line at Antwerp were inspected and copies thereof have been fur- nished. An immigrant hotel and barracks of like character is being planned for Cherbourg by the White Star and (^unard Lines, possibly on a larger scale owing to the necessities of the port, now giving promise of becoming one of the largest immigration embarkation points in P^urope. Senator Gore, What place is that ? Commissioner Caminetti. That is Cherbourg. France. Plans of the same have been promised and as it will be necessary to take at Ellis Island the same precautions that have been used by the steamship companies oi Governments abroad as to delousing, and fumigation of baggage and clothing, these plans, containing the latest information and improvements, may be of value to the Immigration Service. At Southampton and at the other places visited, tlie activities of organizations and committees in connection with the movement of immigrants to America and other places were made apparent; in fact, there appeared to be as much publicity given and desired as to their labors as business enterprises manifest. They possess headquarters at Paris, Warsaw. Danzig, and in many other cities of Europe. The organizations present a complete network, with thousands of aliens in their train, moving from place to place appar- ently under their direction. They possess establishments at which these people are fed and lodged, and maintain offices for the transac- tion of the business involved in their work. I visited their principal office in Paris,, and found a large number of people congregated at what is known as the Asile, perhaps over a thousand being present. Mr. Jacciues stated the objects and pur- poses of the organizations he represented and said they work through committees at various places, nelping to find people and get them out, procuring passports, vises, and transportation, and in various other ways looking out for tlieir welfare. I called attention to the fact that people moving during the cold weather and with the hard- ships prevailing in the nations through which they have to pass, was a very serious thing and that after witnessing some of the scenes in some of the countries I readily understood how it is that many children and elderly people are" sick when they reach Ellis Island. Immigrant lodging and eating places are established by these organizations at various places. In Warsaw, an extensive organi- zation exists where the general v\'ork mentioned above is carried on, taking care of about 400 applicants a day. it was stated. EMERGENCY IMMIGRATION LEGISLATION. 575 On December 17, when the members of the detail visitetl War- saw, we were informed by the officers there that people are con- stantly coming. Passport and other bureaus are established, papers are made out and showing submitted upon which to secure pass- ports. Information was at hand that the matter of preparation of showing for a passport was one of form only. As at Pans, so at Warsaw, the work is conducted through c(mimittees. At one of the offices visited I was informed that 80 clerks are employed. Here, too, lodging and boarding houses exist. A like organization on a larger scale is Found at Danzig, where the place known as the Troyl, a former Russian prison camp, has been converted into a station where food and lodging is given and embarka- tion takes place direct for America. Besides committees, work is carried on through delegates, who come from America representing particular communities there, bringing money for distribution, and return with individuals to whom money was sent to pay the cost of transportation. An illustration was called to our attention where the previous week a delegate of this character arrived and stated that he came with donations for 84 families, of from $5 to SIO apiece, and besides was in possession of funds from individuals in America to pay for the transportation of particular members of families. The organizations represented by Mr. Chapira, known as the Hebrew Immigrant Aid Society, referred to by the initials H. I. A. S. through- out Europe generally, seems to be the life of this work. The plan of operations can best be illustrated b^^ a card upon which is entered the history and action taken in each case with which they deal, a copy of which I will insert at this point, with your permission. (The card presented by Mr. Caminetti is here printed in full, as follows :) [Front.] H. I. A. S. Record. Danzig Office. Case No No. of persons Ages Date uf arrival 192 Name Occupation Barrack No Or address ( Vo From city of Address Country Destined to Address City State Relationship Emigrant in possession of: Prepaid S. S. ticket on Class From port of To port of Kind of passport American vise Other vise How much money? Emigrant in need of: Cable relative for sum of Dollars Get S. S. ticket from Get Dollars from Vise Get baggage from Get temporary loan of Maiks For the purpose of Remarks Record filed by 576 E-MEiu;kn("Y immi(:i;ati().\ ij:(:isi.ation. IBack.] DISPOSITION. ( 'ahk'd tor the sum of Dollars on 192 Received for cable Marks by Answer not received in 14 days and cabled H. I. A. S. on 192 To see relative. Cable No Reply received on 192. . Cable No To pay the sum of dollars. Hias also advises Loan department : Date 192. .. Note No Amount dollars by Repaid loan on , 192 . . , to Date , 192. . . Note No Amount dollars by dollars. Date , 1920. . . Note No. . . . Amount dollars by balance due dollars. Total dollars, by Remittance department: Remarks. Paid Hias remittance on • , 192 . . , in following manner i By cash S dollars | Order No on for S. S. tickets S dollars i Receipt No Total dollars j Emigrant sailed on S. S Date, , 192 . . . Commissioner Caminetti. You will notice that the card provides blanks to show the name of the applicant, his address, etc., including spaces for recording history of financial and other transactions in his behalf. In the Paris edition of the New York Herald, under date of Decem- ber 14, 1920, Mr. Chapira has given an interview, a copy of which I will ask to be inserted, in which he sets forth the work and j)ur])oses of the H, I. A. S. [reading]: The H. I. A. S., as it is known to intending emigrants, is cooperating closely with French shelter organizations. Its headquarters are at Ki Rue Lamarck, where at least 1,.5()0 Jews — men. women and children from central and eastern Europe — apply daily foi assistance. ''Ninety per cent of the applicants,'' Mr. Chapira says, "arrive in France without funds sufficient to carr\ them to America. Some have only the most meagre information regarding relatives in the United States, but so extensive are the society's ramifications that nearly every demand for assistance is met and the emigrants are sent to New York." "During the two or three weeks necessary to locate relatives, to purchase railroad and steamship tickets, and to comply with health regulations, hundreds of emigrants are fed daily at the Rue I.amarck shelter, while as many as 750 have oeen giA en sleep- ing space — when beds were not available - at another shelter in the Rue des Saules." EFFORTS TO BE EXTENDED. "The American organization will extend its cfiorts soon, in cooperation with a recentl\ formed French society for sheltering Jewish voyagers. Premises in the Rue de la Durance are now Deing arranged to accommodate 3C0 emigrants. In each of the shelters medical service is available; serious cases receive prompt attention in Paris hospitals at the expense of the New York organization. "Most of the Jewish emigrants who ])ass through I'aris come from Bessarabia." Branches of the H. 1. .\. S. at Warsaw, l.emberg and Dan/ig are receiving .additional hundreds of emigrants daily, but Mr. Chapira characterizes as "wild tiights of fancy" the reports that millions of Jews intend to pass through Ellis Island as soon as steam- ship passages can be booked. "My estimate of Jewish emigrants from Europe to America is l)etween 400,000 and 500,000." he said. 'One thing is certain — when the Ukranian liorders are opened not a single Jew will riMuain there, lint they are not going to .Vmerica. Many are going to Argentina; but it is now intended to direct the Ukranian Jews toward Palestine. ' ' EMERGENCY IMMIGRATION LEGISLATION. . 577 The joint distribution committee, referred to in European nations as the J. D. C, an American organization, has oflices at Warsaw, also at Danzig, and does work similar in character and employs methods similar to those of the organization above mentioned, ex- cepting that it does not take up the work of passports and vises. Senator Gore. What is the lull name of that organization? Commissioner C^vmixetti. Joint distribution committee. The foregoing is presented as explanatory of conditions in many countries of Europe which have succeeded in arousing an interest in emigration to the United States by activities and agitation long continued and carried on, it is understood, partly in charge of Amer- ican citizens. It is not claimed, nor is there any information going to show, that such activities are illegal, nor are they cited by way of complaint, but to indicate the kind of impression created not only on the people for whom intended but on the public generall}^ and on people in partic- ular of communities of all nationalities and races among whom dis- couragement due to their war experiences and unrest exists, that the United States through these agencies was inviting them all to cross the seas. This was not the intention of the organizers, nor has it at any time been their purpose, but the effect has been as stated, and great masses of people left their homes last fall and this winter, enduring hardships and suffering to reach ports of embarkation. The strange thing about the matter is that individuals or asso- ciations, etc., not engaged in the business of transporting aliens to or within the United States may encourage, invite, or solicit aliens to come to the United States, provided no promise of employment, express or implied, is given, while any person or association, etc., engaged in the business of transporting aliens to or within the United States is prohibited under penalty of the law to in any manner solicit, invite, or encourage any alien to come into the United States. It can be easily seen that if it is contrary to the interest of our Government — and that it is there can be no question — to have steam- ship companies solicit, invite, or encourage any alien to come into the United States, the act is not any less injurious to this country when it is done by individuals or associations not engaged in trans- porting aliens to this country, as the effect is the same in either case. What can be done or what should be done, if anything, is a matter to which consideration should be addressed. Of course, a different situation is presented when the alien's passage is paid for by an individual, association, corporation, etc. Wlien such payment is by an individual, the alien is confronted with the burden of establishing, affirmatively and satisfactorily, that he is not of an excludable class; and if payment is by a society, association, corpora- tion, etc., he is thereby placed in a mandatorily excluded class. The statement heard in some quarters that the steamship com- panies have stimulated tlic movement is met by their re})resentatives in Europe by asserting that with more traffic offered for a long time past, and apparent in the future, than can be accommodated, such a charge is absurd. Senator Edge. Mr. Chairman, before Mr. Camiuetti continues, may I inquire if it is the intention to go right along after 12 o'clock ( 578 KArERCJEXCY TMMTGRATION LEGISLATION. Tlie CiiAiuMAX. No; my intontioTi is to rocoss from 12 until 2.1 '. Sonator Edcje. I woiiUl liiartment of Ijabor and the action of tliat department. So that I want to furnish what we have found in this investigation and let it go into the record for what it is worth. Senator Edge. Mr. Caminetti. if we can not get from you your direct impression after a month or two of contact with the immigra- tion ofhcials and the actual preparation for exodus to this side, what type of immigrants and what your view is as to the numbers, com- paratively speaking, etc., whom can we get it from? Commissioner Caminetti. I am just proceeding to that. Senator Harris. Mr. Caminetti, how long is your general state- ment? It will probably take vou a couple of hours to finish with that ? Commissioner Caminetti. Well, it will take, if the entire matter ijv presented, possibly a counle of hours longer; yes, sir. Senator Harrison. The only proposition is, we are all interested in his statement, but there are some matters coming up, so that some of us wanted to be on the floor of the Senate. The Chairman. Would it not help, Mr. Caminetti, now understand- ing the general purposes of this committee and the class of facts that we want to find out, to come right down to answers and specific questions ? Commissioner Caminetti. I have not given the The Chairman (interposing). Would it not be helpful if we suspend now until to-morrow morning, say, until half ])ast 10, and then give Mr. Caminetti an opportunity to condense his statement preparatory to our putting certain questions to him ? Does that appeal to the committee? I want Senator Harris to understand that this examina- tion is not going to be prolonged. This is our last witness. Senator Edge. Why not continue at 2.15 and try to get this in the record ? The Chairman. I am willing. Commissioner Caminetti. Mr. Chairman, I think I will be ready to present and give what you desire after recess, and then fui'ther action could be continued until to-morrow morning; if it is agreeable EMERGENCY IMMIGRATION LEGISLATION. 579 to the mombers of the committee, it is agreeable to me. I will then be able to continue and present the complete statement. Senator Hahrison. Why not start at 9.30 to-morrow morning? The Chairman. To be fresh on this subject, I can not start too early. Senator Harrison. Half past 10 is too late to start. The Chairman (after consultation with members of the committee). It seems to be the desire of most of the members of the committee not to go on this afternoon. They have other engagements, and we will therefore suspend until to-morrow morning at 10 o'clock. (Thereupon, at 12 o'clock (noon), the committee adjourned to meet to-morrow, Wednesday, January 26, 1921, at 10 o'clock a. m.) Emergency Immigration Legislation HEARINGS BEFORE THE COMMITTEE OxN IMMIGRATION UNITED STATES SENATE SIXTY-SIXTH CONGRESS THIRD SESSION ON H. R. 14461 A BILL TO PROVIDE FOR THE PROTECTION OF THE CITIZEiNS OF THE UNITED STATES BY THE TEMPORARY SUSPENSION OF IMMIGRATION, AND FOR OTHER PURPOSES WEDNESDAY, JANUARY 2G, 1921 PAKT 13 Priiited for the use of the Committee on Immip:ratioa ^1^ WASHINGTON GOVERNMENT PRINTING OFFICE 2G911* 1921 COMMITTEE ON IMMIGRATION. WILLIAM P. DILLINGHAM, Vermont BOIES PENROSE, Pennsylvania. THOMAS STERLING, South Dakota. HIRAM W. JOHNSON, California. HENRY W. KEYES, New Hampshire. WALTER E. EDGE, New Jersey. LeBARON B. colt, Rhode Island, Chairman. THOMAS P. GORE, Oklahoma. JOHN F. NUGENT, Idaho. WILLIAM H. KING, Utah. WILLIAM J. HARRIS, Georgia. PAT HARRISON, Mississippi. JAMES D. PHELAN, California. Heney M. BARRr, Clerk. II EMERGENCY IMMIGRATION LEGISLATION. WEDNESDAY, JANUARY 26, 1921. United States Senate, Committee on Immigration, Washington, D. C. The committee met, pursuant to adjournment, at 10 o'clock a. m,, in room 235, Senate Office Building, Hon. LeBaron B. Colt presid- ing. Present: Senators Colt (chairman), Dillingham, Sterling, Keyes, Harris, and Harrison. The Chairman. You may proceed, General, if you are ready. STATEMENT OF HON. ANTHONY CAMINETTI, COMMISSIONER GENERAL OF IMMIGRATION— Resumed. Commissioner Caminetti. Mr. Chairman and gentlemen of the committee, I have condensed much of the material that I had desired to offer, following the suggestion made 3'esterday by the chairman. Having selected a few of the most important matters which it is proposed to present to the Secretary of Labor when I make my com- plete report, they are now submitted as follows: On the European immigration situation, it may be said that the people of Europe, anxious to emigrate, may be divided into the fol- lowing classes: First, those who for one reason or another had decided to leave for America but whose passage was delayed by the World War, now constituting what has been denominated as deferred immigration. Second, dependents joining relatives, in particular the wife and children proceeding to an established home. Third, middle-class people, such as ex-Government officials, ex- military officers, etc., who find it impossible to keep up appearances in Europe, but who will be prepared to undertake work in America, or elsewhere, that their social traditions would not permit them to engage in at home. Fourth, working classes whose natural desire is to find a more open field for their activities than is possible in Europe under present conditions. Fifth, people who find that with the formation of new boundaries their homes are now in countries that are racially alien to them, and sooner than subject themselves to the rule of their new governing authority they prefer to emigrate OA'ersoas. Sixth, those who left Europe years ago, but returned after the World War. These people find conditions in Europe unsatisfying as compared to what they left behind, and are anxious to migrate once more to this country. 581 582 . EMERGENCY IMMIGRATION LEGISLATION. The following observations all hoar on the eraigation situation: Despite rail transport and passport dilliculties, emigrants show a marked tendency to follow the routes of prewar days. One reason for this is that the greater bulk of })resent-day emigrants are travel- ing on prepaid tickets or funds furnished by relative-; or friends in the United States, who, as a rule, advise the newcomer to travel by the same route that they did. Much has been done in the last 12 months to restore rail facilities and it is now possible for intending passengers to reach the seaboard from any part of Europe west ol Russia, although the journey is usually attended with difficulties, hardships, and delays. Through emigrant trains are not operating now. Improvements, however, are noticeable and can, in the natural order of events, be considered certain in bettering the situation. The coming spring will, with the cessation of cold weather, permit a great increase in passenger traffic. Thi'ough tickets are not usually obtainable beyond frontier points, this adding very materially to the inconvenience of the emigrant, who must purchase transportation once or sometimes twice in each country he passes through, each time in a currenc}^ that is foreign to him. Five or six countries must in many instances be traversed before reaching a port of embarkation. To overcome man}^ of these difficulties, conductors are provided in some instances by the steamship lines or their agents, to accom- Eany parties of emigrants from their country of origin to the sea- oard. Concentration of emigrant and other traffic in the capitals and leading cities of Europe, many of which are already much over- crowded by Russians and others, including refugees, and the cessation of building operations during the war and subsequent period, has caused a congestion w^hich only can be relieved by additional steam- ship facilities and milder weather. The conditions cited above are all productive of more or less hard- ship to emigrant passengers. The great surprise is that so many have been willing to undertake journeys across so many nations, notwithstanding these unfavorable conditions. Dealing specifically with conditions in the northern, central, and eastern countries of Europe, the following observations have been brought to my attention: It is not expected that there will be any appreciable emigration from France and Belgium. They are both living through a period of reconstruction that should not allow of any great diminution of their man power. There is, however, a comparatively small emi- gration from the agricultural sections of Belgium. No considerable movement of emigrants is expected from either Holland or Switzerland, but both these countries, as well as France and Belgium, will figure prominently in handling the emigration movement fiom central European and near eastern countries. Some Swiss are going to F'rance. There is a strong desire on the part of the middle and laboring classes of Germany and Austria to migrate. While their respective Governments do not care to see their best workers leave the country, they are not likely, it is said, to place any insuperable difficulty in their way. In Austria, where the food shortage is acute, the Gov- ernment will probably not interpose impediments to the movement. EiVrERGENCY IM-MIGEATIOX LEGISLATIO:sr. 583 The presonce of so many Russians, including refugees, in Vienna, it is reported, has done much to aggravate the hardsliips in that city. The movement to be expected from Hungary will be more pro- nounced among the middle than the laboring classes, as the latter, to an extent not now known, may be absorbed by her agri- cultural lands. There are many Hungarian peasants, however, resident in districts ceded to neighboring countries, who will prob- ably elect to emigrate rather than become nationals of the countries in which they now find themselves situated. With reference to Czechoslovakia, there is a considerable feeling between the Czechs and Germans domiciled there, the latter repre- senting about 50 per cent of the population of Bohemia, and may be expected to emigrate in considerable numbers. As to the Slovaks, their emigration maybe expected to continue, and probably increase. Poland is overpopulated, and emigration seems to be the outlet for the surplus population, including workers, many of whom are wend- ing their way to seaports and cities to obtain transportation to oversea points. Owing to recent reported changes in the land laws of Rumania, which will make small ownership possible, it is not expected any great number of the peasant class will emigrate from that country, although there are indications, as found at various places in Europe, of people from Rumania and near-by States, goin^ to embarkation points, notwithstanding unfavorable traveling conditions. Bulgarian peasants have not figured to any extent in prewar immigration to our country, though many Bulgars came from Macedonia and other sections of the Balkan territory. To what extent war conditions will effect a change is not ascertainable at present, but like their neighbors, the Bulgarians, it is expected, will be influenced by the prevailing efforts to secure a change. Important additions to the outward movement from among the people who have been driven from the regions ceded to Greece and Serbia may be expected. Concerning Jugoslavia, the authorities at Belgrade appear not to favor emigration, as they consider the country already too thinly populated for its agricultural possibilities, though evidence of some movement is apparent. While this may be true as to Serbia, it can hardly be applied to the States of Croatia and Slovenia. There has been an active emigration from these last Provinces to the United States for many years, and this will probably prove an incentive to further emigration of the surplus workers of these two sections of the new kingdom. Present immigration, except as it has leaked through the lines, is from European countries, including Great Britain and Ireland, other than Russu\, Germany and Austria. In northwestern and southern Europe west of the Adriatic, the movement has shown increased numbers over those coming therefrom since 1914, and with some exceptions the same is true of the territory east. of Germany and what is now Austria, including Poland, Hungaiy, Czechoslovakia, Jugoslavia, Greece, Rumania, Bulgaria, and other Balkan and near- Balkan States. Western Asia, down to the Suez Canal, including former Turkish territory in Europe and Asia, has likewise taken renewed life, as shown by rising numbers coming therefrom. 584 EMERGENCY IMMIGRATION LEGISLATION. The foregoing are observitble changes in immigration conditions in Europe and western Asia during the last eighteen months, record- ing steady increases in most of the nations in this territory for the 12 months ending June 30, 1920, the last fiscal year, and sudden and continuing rise since June 80. The rate for the 12 months mentioned was 621,576, and for the latter period, the first 6 months of the present fiscal year, 549,790, or at the rate of 1,100,000 per year, nearly double the arrivals for the last fiscal year, equaling the average annual rate — 1,012,000 — for the 10 years previous to June 30, 1914, and approximating within 140,000 the 1914 rate of 1,218,480. Reference is made to tables showing arrivals and departures since July 1, 1904, to December 31, 1920, and for the first six months of the present fiscal year, which I will ask permission of the committee to in.sert at this point. The Chairman. That may be done. (The tables showing arrivals and departures, submitted by Mr. Caminetti, are here printed in full, as follows:) Aliens admitted to and departed from the United States, by classes and years, 10 years -previous to June 30, 1914, and since June -30, 1914. Admitted. Departed. Fiscal year ended June 30— Immigrant. j^^?^;„t Total. Emigrant. Xon- emi grant. Total. 1905 1,026,499 1,100,735 1,285,349 782, 870 751,786 1, 041, 570 878,587 8.38, 172 1, 197, 892 1, 218, 480 33, 256 65, 618 153, 120 141, 825 192,449 156, 467 151,713 178, 9S3 229,335 184, 601 1,059,755 1,166,353 1, 438, 469 924, 695 944,235 1,198,037 1,030,300 1, 017, 155 1,427,227 1.4a3.081 0) (') (') 395,073 225, 802 202, 436 295, 666 333, 262 308, 190 303,338 0) (') (') 319,755 174,590 (') 1906 (') 1907 (') 1908 714, 828 1909 400. 392 1910 177, 982 386! 418 1911 222,549 282,0.30 303,7.34 330, 4f)7 518,215 1912 615, 292 1913. 611 924 1914 633, 805 Total 10,121,940 1,487,367 11,609,307 j 2,06.3,767 1,811,107 3, 874, 874 1915 326,700 298, 826 295, 403 110,618 141,132 430.001 107,544 67, 922 67, 474 101, 2.35 95,889 191,. 575 434,244 366, 748 362, 877 211,853 237,021 621,576 204,074 129,765 66,277 94,585 12.3, .522 288, 315 180,100 111,042 80, 102 98,683 92,709 139, 747 384, 174 1916 240, 807 1917 146,379 1918 193, 268 1919 216, 231 1920 428, 062 Total 1,602,680 631, &39 2,234,319 906.538 702,383 1, 608, 921 1 Alien departures prior to July 1, 1908, were not recorded. Aliens admitted to and departed from the United States since July 1, 19^0. Admitted. Month. I Immigrant. Nonimmi- grant. Total. July 62,832 21,127 83,959 August 67,369 18,062 85,431 September' 72,900 25,500 i 98,400 October 74,800 26,200 I 101,000 November 65,900 23,100 ! 89,000 December 68,100 23,900 92,000 Total 411,901 137,889 549,790 Departed. Emigrant. 27,565 0) (') (') (1) (>) 0) Nonemi- grant. 11,940 (») (') (') (') («) (>) Total. 39,505 50,000 31,200 41,000 37,000 39,000 237, 705 I Complete figures for admissions later than August and for departures later than July not yet available. Those above given for later months are estimated. About 26 per cent of the aliens admitted during the 14 months ended .\ngust, 1920, were nonimmigrants, and this percentage is estimated as the average for this class admitted during the following 4 months. EMERGENCY IMMIGRATION LEGISLATION. 585 Commissioner Caminetti. The rising ti(le bids fair to grow by leaps and bounds unless checked, so that tiie 1914 rate will from present indications be passed by the end of this fiscal year, June 30 next. Steamship authorities in Europe, while they will not give out declara- tions on tiie subject, I am satisfied, from all I have been able to gather, are in accord with this expectation, and if reports can be credited new lines and additions to going concerns are among the early certainties. It should be borne in mind that we have already reached the average annual rate for the 10 years previous to June 30, 1914, and approxi- mated the 1914 rate without the additions expected, particularly from Germany, Austria, and other territories now practically closed to transportation, and with soviet Russia and the states carved out of old Russia, from and including Finland, on the northwest of soviet Russia, to the Caucasus and trans-Caucasus regions, on the southern and eastern borders thereof, supposedly closed. I hesitate to estimate what will be the rate when Germany, Austria, and near-by States open up their supply. Soviet Russia may be backward, though it is prob- able that many may break away from there too, but so far as the states carved out of old Russia are concerned, particularly those on the west and south of soviet Russia, the outpouring, it is expected, will be great. It is considerable now, though it is veiled in secrecy. At the rate of increase of the past six months, if Germany and Austria open their gates through the declaration of peace, the 2,000,000 rate will be approximated and probably passed before January 1, 1922, pro^dded that shipping facilities are available. With the opening of the German and Austrian gateways, even if soviet Russia continues closed, nothing can prevent an outflow from the states carved out of old Russia on the south and west boundary of soviet Russia. To all this must be added the imunigration of the balance of the world, which in the aggregate has increased year after year since 1914, notwithstanding the war. The countries east of Germany and Austria, unless communication is provided, can not now take the same part in the movement as the countries farther west, but with the opening of spring all will be brought into action. The cold weather and hardships incident to long journeys in winter, with the extra expense involved, have acted as a deterrent during the winter months and will continue to do so while the cold weather is on. There is no doubt that many people are drifting out of Russia throughout the western and southern borders and stopping wherever they can find an abode until they can go to places selected in Europe or elsewhere, but, follo"wing the general trend, most probably to the United States. Senator Dillingham. Mr. Caminetti, may I interrupt a moment ? Do you intend before you close to analyze this immigration as to sexes, and show us how it compares with the previous immigration? Commissioner CA^rIXETTL That was my intention. Unfortunately, the reports from Ellis Island have not been furnished to the bureau containing complete ligures since August 31. Senator DILLlXGHA^r. Why has not that been done ? We are troubled to death to get information which we want. Commissioner Caminetti. I appreciate the situation, and it was a disappointment to learn that we are not able to utilize such statistical reports. 586 EMERGENCY IMMIGRATIOX LEGISLATION. Senator Dtt-LINGHAM. It has hoon rc^portod to us that you have been taking av:ay the machinoiy from Ellis Island. Commissioner (Lutinettl We sent maeliincMy there; and, my reeol- loction is, furnished extra men to he added to the roll. The other day an extra number w<;s ordered for the purpose of completing report of d'^Iayed statistics. I am very much disappointed that we have not those figures. Senator DiLLixciiA^r. I asked the cjuestion, Mr. Caminetti, because it has ])een a good deal discussed here: b(>fore the Johnson bill was introduced, I asked the department for figures relating to immigration since the close of the last fiscal year. I have not been a])le to get them yet, and we are told by those at Ellis Island that the department has taken away the machin(n-y — that is, the clerical force — for tabulating this information at Ellis Island and brought it to Washington, and I do not know anything about it; I am trying to get at the truth of it. Commissioner Caminetti. I am very glad that you have presented the matter, because it is something that has caused me a great deal of distress. Senator Dillingham. Is that true or is it not ? Commissioner Caminetti. It is true that they have completed reports of the present fiscal A^ear only for the months of July and August. I can not explain the situation; I do not know why it should be so. Ellis Island has over 700 officials now — 200 more than it had in 1914 when immigration was at a greater rate than it is or has been in the last two years. Senator Dillingham. Allow me to make another suggestion? Commissioner Caminetti. Certainly. Senator Dillingham. It appears in evidence here from the com- missioner at Ellis Island that of the immigration that has been coming in since the close of the last fiscal year substantially one-half of it was made up of females. Commissioner Caminetti. Forty- two per cent plus was the rate at the end of last fiscal year, and what it has been since we are not able to estimate because we lack the returns. Senator Dillingham. As to this particular immigration from the eastern and southern Europe of which 3"ou have been speaking, and of which 3"ou seem to expect a large inflow in the future, I think the statistics show that when we get one woman we usually get four or five or six men; and for that reason I was hoping that you, in rela- tion to this later immigration, would have information to give us as to the proportion of males and females and the character of the immigration that was coming. Commissioner Caminetti. Your hope in that respect was what I had expected to be able to gratify. I had expected to be able to furnish this committee at this time, as part of this report, the same deductions and the same information contained in the annual report up to June 30 last extended so as to include the first four months of this fiscal year, or five months, if it was practicable. I find I can furnish arrivals and departures only for July and August. Senator Dillingham. Then I am to understand that the com- mittee will be unable to secure at this time an analysis of the recent inmiigration such as we have had in previous years of immi- gration coming in ? EMERGENCY IMMIGRATION LEGISLATION. 587 Commissionor Camixetti. Efforts have been made during the last 30 days to lend assistance and to ascertain whj'' this condition exists, and the department has ordered the temporary addition of 30 ehi- ployees to supply this information by the 1st of March complete, or before that if it is practicalile. There is a large accumulation of work on hand, I am informed. Senator Dillixgham. Excuse me for interrupting your remarks. Commissioner Camixetti. That is all right; it is very proper to bring it up. Senator Sterlixg. What do you think the pro])able reason is for failure in having that information here now ? Commissioner Camixetti. I can not understand how with 700 offi- cers at Ellis Island they have not been able to keep up with this work. They have not the immigration they had in 1914 to contend with, and at that tim.e with nearly 200 less employees they got along. There is something unexplainable in the situation. Senator Sterlixg. While you say they have 700 officers there. do you have the statisticians there ? Commissioner Camixetti. They have had the statisticians, which they have always had, and they have more people — more help in that office than they had in 1914 or in previous years. The bureau will be pleased to submit an early report upon the subject and also to assure you gentlemen that it is desirous of supplying this informa- tion and of doing the best that can be done to obtain it. The Chairman. Mr. Caminetti, in answer to a letter addressed to the department, we have some of the particulars with regard to July and August, classification, etc. For July, the number of males, according to the letter received, was 53,205 and the number of females, 30,753: in August the number of males was 51,541 and the number of females, 33,980. Those figures include both the immigrants and the nonimmigrants ? Commissioner Camixetti. Yes, sir. The Chairman. And we also hare, the correct estimate as to the number of arrivals furnished by the department. Commissioner Camixetti. 1 am placing in this record the latest figures which we have completed up to the end of August, and estimated from that time down to the 1st of January. The Chairmax. According to the information from the depart- ment for the six months, the number of arrivals was 343,285 and the number of departures, 220,505. But I will tell you, since you are on this subject, if you will give us, in the line of Senator Dillingham's inquiry, the latest data that you have down to the 1st of January the committee will appreciate that. Commissioner Camixetti. I am placing in the record the figures as I have been able to obtain them. I will be pleased to consult further with you gentlemen upon what you desire in relation to the statistics, and tlien to undertake specially, not only through efforts in the department but also at Ellis Island, to see what is delaying the matter and take necessary action to secure this information at the earliest possible date. The Chairj[ax. From all the information I can gather down to date, the number of immigrants arriving up to the 1st of January 588 EMERGENCY IMMIGRATION LEGISLATION. arc not in excess of the prewar poi-iod — tliey are under the prewar average. But, however, that is merely my impression. I wish to be corrected by the statement you make. Commissioner Camixetti. Tliey are not in excess, if no more were to come for this fiscal year; but if you take the average for 10 years from 1914 back, which was, as I have indicated, 1 ,012,000; thenthefact that for the first six months of this fiscal year the arrivals amounted to 549,790, indicating a yearly rate of 1,100,000, it would show that we had nearly reached the average annual rate for 10 years previous to June 30, 1914, the greatest years in the immigration liistory of our country, so far as the numl)er of j^eople coming to it is concerned. I'he Chairmax. Those figures differ from the estimates of your private secretary, but perhaps you are right. Commissioner Caminetti. I do not know; errors in copying may have taken place. The statement placed in the record was prepiired under my supervision and is correct according to the records. The Chairmax. And, Mr. Caminetti, do you not think that it conveys rather the wrong impression, possibly, when you state the number of immigrants if you do not at the same time state the number of departures so as to show the actual increase in the alien population ? Commissioner Caminetti. No; Mr. Chairman. Ever since immi- gration to this country has amounted to anything, there has been emigration as a consequence, and in great numbers. The Chairmax. That is true. Commissioner Caminetti. In my citation of statistics I have stated the arrivals and departures for the period covered by the tables. It is no new thing in immigration to have a large emigration, and particu- larly it is nothing surprising at this time following the cessation of war activities in Europe that people who in 1914, 1915, 1916, 1917 or 1918 wished to go to Europe now desire to do so. The wonder is that so few, comparatively, go from the large mass of people that we have here, for it must be remembered that the people who came to this country from foreign territories in 15 years before the war amounted to many, many millions, and that the close connection between so many millions of families in the United States and so many million families in Europe necessarily brings about a desire for a meeting. The Chairman. Mr. Caminetti, I do not mean to interrupt you, but we are dealing with the question of many — of a flood. Commissioner Camixetti. Yes, sir. The Chairmax. Now, if a million arrive and a million depart of the aliens, there is no flood, is there ? Commissioner Camixetti. Not if they came and departed at that rate; but they do not depart at that rate. And, mintl you, the peo- ple who depart many come back in two or three months or in a snort time. The Chairmax. But they are counted when they come back ? Commissioner Camixetti. I know thej' are counted. The Chairmax. I may be too much impressed by this, but we have the flgures for the month of July, and in that month the number of immigrants from northern and western ' Europe — the Dutch, the English, etc. — this is official — was 19,869, and the number of de- partures of those classes was 3,541. Now, the number of new immi- EMERGENCY IMMIGRATION LEGISLATION. 589 grants from southern and eastern Europe, Bulgarians, Greeks, the Hebrew and the ItaUan, was 34,228, for the same month, and the number of departures of that class of immigrants was 22,534. In the case of the Poles, there were more than tliree times as many de- partures as there were arrivals. I am not going to say that that is conclusive, but I say that that is a factor which enters into the menace or the increase in our foreign population; and it does appear to me that the number of departures of the new immigrants is very much larger than that of the old immigrants, leaving the old here; but if you please, prepare what Senator Dillingham and all of us have been trying to get at for some time — the classified statistics down to the 1st of January from the 1st of July. Commissioner Camixetti. As I said awhile ago, I wull give it my earnest attention, Mr. Chairman. Senator Sterling. Have you ever made any comparison of the arrivals and departures prior to the war, or during any period prior to the war, with arrivals and departures since the war, so as to show the net immigration in either case ? Commissioner Caminetti. I believe that in the statistical tables for the last two fiscal 3"ears and review of world immigration con- tained in the last two annual reports which I am asking to be made part of this statement at its conclusion, without reading, you will find that all those matters are supplied. I want to say to the com- mittee that if there is any particular information or any particular line of statistics that is desired by any member, the bureau will be pleased to undertake to furnish same and to place at your disposal everything that we have. Senator Sterling. Mr. Caminetti, can you give a reason for that exodus from Russia ? Commissioner Caminetti. It is the same reason that animated the people in certain sections of Russia anterior to 1914. They have been living under one system of government, subjected to the same unfavorable conditions for so many ages, that they have acted more or less together, and it appears from a study of emigration conditions that previous to the war certain sections of old Russia furnished a very large migration to our country, and as soon as transportation facilities permit and Russian territory is opened for passenger traffic it is natural to suppose that such activities will be resumed, particularly as latest reports indicate unfavorable industrial conditions there. Senator Sterling. What does their uncertainty as to their future and the kind of government they are to have have to do with it ? Commissioner Caminetti. Nothing; the working masses tied to the soil will not be afiected as much as those without lands. There is so little authentic information concerning the attitude of the masses there as to any uncertainty for the future that may exist or as to what form the government may take, that it is difficult to answer the question. Senator Dillingham. I think it was said by Miss Kellor, when she was on the stand — and she has been making rather careful investiga- tions in Europe — that she thought Russia was going to be a great emigration field for certain masses from Poland and other sections of Europe. 590 EMERGENCY IMMIGRATION LEGISLATION. Conimissionor Caminetti. That is tho information wc have from thrro. Movomonts arc comino; out of Soviet Russia and the Httle States carved out of old Russia, the l^krainc and other such States ail the way from Finhmd down the western hor(h>r and the southern border goino- on unchecked and entering- into the various nations adja- cent, as 1 was about to show. Senator Dillingham. Her sup^gestion was that the immigration would go to Russia. Commissioner Caminetti, To Kussia? Senator Dillingham. Yes; that Russia would be the field. Commissioner Caminetti. I should hope so. All indications, Sen- ator, that I have been able to notice, and from discussions that have taken place throughout the points visited, there is nothing to bear out the sugo-estion that people are migrating to Russia, but there is evi- dence that the movement that is now all over Europe is in the direc- tion of the country that has been the hope of mankind ever since and previous to our Revolution. The Chairman. Is any of that immigration drifting to South America ? Commissioner Caminetti. Some of it; not in great numbers. It might be anticipated that with the promise of land, and donation of free homes that a large number would go there. But I was surprised at w^hat I learned from the attention given that subject in some of the countries the source of such emigration for the last 15 or 20 years. There have been so many disappointments of late years that there has been a check to the movement. That is my information from authoritative sources. The Chairman. In your commissioner s report you have a very valuable chart, in which you show that the immigration to this countr}' has always been checked in time of depression of business and times of unemplo3^ment. Now, you know the situation in this coun- tr}^ to-day. Maj^ I not ask you whether it is your opinion or not that the business depression here to-day will tend to bring into operation the phenomenon wdiich you illustrate in your map there, tliat always automatically immigration is materially checked as soon as business conditions in this country are bad ? In other words, it is economi- cally true that when we are prospering here immigration is high ; that as soon as we reach a period of depression, they find out about it and immigration decreases. As bearing upon that, we have testimony here that the vessels now on their way from Spain and one or two other ports of embarkation, with respect to steerage passengers are awa}' below what they had been. How far will the operation of that automatic law, do you think, tend to check immigration during the next six months or a year ? Commissioner Caminetti. Mr. Chairman, in normal times that natural law would operate, as the reports have indicated for many years past. The Chairman. ]iut it has operated in the vessels coming from Spain to-day. Commissioner Caminetti. That is only an exception. It does not seem to operate with respect to vessels coming from other ports; besides we have the information of new ports being opened up and EMERGENCY IMMIGRATION LEGISLATION". 591 of new vessels being provided by the leading steamship companies and added to the service. For example, the very boat on which I returned was to have been laid up. Instead of that, in obedience to the necossitj^ to meet the demands of business, she was brought into action again. So these evidences have multiphed in Europe. Why, yes, that law operates and will continue to operate, but not to the extent that might be expected owing to the unrest in Europe and the conditions that exist there now. PJuropean conditions to-day are so much worse than they are in the United States that the people from countries which have furnished us immigration in the past would rather come and take their chance in the United States, even with conditions of unemployment as reported, than to stay in Europe; and that is the sentiment, Mr. Chairman. So that, as there are excep- tions to all rijles, you will find, Mr. Chairman, that when this year shall have rolled by that there is an exception to that particular law as well. The Chairmax. Mr. Caminetti, let us deal in facts and not in conjectures Commissioner Camixetti (interposing). I am dealing with facts. The Chairman. Now, wait a minute. There arrived in November 103,000 immigrants and in December 92,000. What I mean to say is that that shows, as to the number of arrivals in this port, no increase. Commissioner Caminetti. Mr. Chairman, the arrival of 103,000 from Europe last November supports the statement I have made that that rule does not operate now. The Chairman. I ask you, why do you find in December 92,000? It is over two years since the armistice. You see, you are dealing with apprehensions and conjectures. What the committee wants are facts. I am inviting your attention to the natural economic law that has always worked, that when we have a period of unemploy- ment here we have a cessation of immigration. Commissioner Caminetti. Yes, sir; if you will permit me The Chairman. When you talk about war conditions in Europe, wars have existed before and it has had no particular increase upon immigration. When you deal with conditions in Europe, you are dealing with certain conditions which go to favor immigration, and you are dealing with other cross currents and checks on immigra- tion; and to my mind, from all the facts that I can ascertain, I have grave doubts as to whether there will be any great increase in immi- gration during the next six or nine months. Commissioner Caminetti. I hope your conjectures will come true. The Chairman. I see no demonstration of it except conjecture. Commissioner Caminetti. That is a matter of opinion, Mr. Chair- man. When you see the steamship companies enlarging, not only their fleets but preparing to enlarge their harbor accommodations; when you see immigrant hotels and barracks that previous to the European war were used to accommodate the great immigration up to 1914, in use and being placed in preparation for utilization to meet the increase in traffic that is expected to follow in the spring; when you see not only that, but also the addition of new immigrant hotels and great establishments to accommodate more, why, then, a person looking on can not help but think that something is coming. An observer will soon get out of the domain of conjecture and come 592 EMERGENCY IMMIGRATION LEGISLATION. down to solid facts in the consideration of the dangers that arc imminent to this country l)y this rising tide that is coming on. The Chairman. How long were you in Warsaw, Mr. Caminetti? Commissioner Caminetti. Part of a day — I should say three- quarters of a day, owing to necessities of transportation and lack of train facilities outward for three days thereafter. But wo ])ut in our time during that period to the utmost extent. The Chairman. Did you form opinions of our immigration from Poland from a few hours in Warsaw? Commissioner Caminetti. From the authorities that we consulted. We consulted not only the officers of our Government, the minister and the consular service, but also the immigration authorities of that country, and then visited agencies that existed there and saw places The Chairman (interposing). How long were you in Warsaw? Commissioner Caminetti. We arrived there one night and left the next afternoon between 3 and 4 o'clock The Chairman. You were there one day? Commissioner Caminetti (continuing). Because of the conditions of transportation. The Chairman. Do you remember what day of the week that was ? Commissioner Caminetti. I could give it to you, sir. As it had been planned to visit eight nations, I had to move on and do the best I could to obtain the desired information from authoritative sources, and not from outsiders. I had no time to talk to other than those who knew this business and who attended to this kind of woi-k and made it their business officially, either for our Government or for the foreign Governments; the same as to the activities of organizations — the information that one organization took care of 1,200 people daily and sent them forward out of Warsaw alone was secured in this way. We did not lose a minute of the time we were there. The Chairman. Let me come to a fact. According to your report, in the month of August there were 663 Poles who came here, and there were 3,282 who went home. How can you understand that this movement — ^"the returning tide" — when you say the war con- ditions are such in Poland that there is a flood coming from there? Why do they go Ijack ? Commissioner Caminetti. I am not telling you tliat there is a flood coming now. But what do vou call an immigration at the yearly rate of 1,100,000? The Chairman. Now here; I am basing it on facts; what you are reasoning from is conjecture. Conimissioner Caminetti. Not at all, sir. The Chairman. You state conditions, and then you draw certain deductions. Commissioner Caminetti. Not at all, sir. The Chairman. The trouble with a deduction in ariiving at a flood of immigration is that no man tnkc^s in all the facts. Commissioner Caminetti. Exactly; I realize that. The Chairman. And you can not form a proper deduction except you have all the facts. Unrest ? Oh, uir-est of 2,000,000 ; what does that amount to? We want the facts here to fo:m a sane measure, if we can. EMERGEXCY IMMIGRATION LEGISLATIOX. 593 Commissioner Camixetti. I have endeavored to furnish you as much as I can. The Chairman. I know 3'ou have. Commissioner Camixetti. I have stated things from facts gathered by people who understand what they are talking about and who are in contact with the conditions that exist in Europe. Senator Sterlixg. ^Miat explanation would you have for the dif- ference between immigration of November last being 103,000, as I understand from the chairman's statement, and 92,000 in December? Commissioner Camixetti. The passage of the Johnson -bill in the House of Representatives had a marked effect in Europe and caused some hesitation on the part of some desiring to come, until they could ascertain what this country intended doing. It was discussed all over the European countries. United States officials told us that it was a source 01 much worry on the part of some of the people and that they had become imbued with a doubt. The Chairman. The passage of the Johnson bill do you mean ? Commissioner Camixetti. Yes. Senator Sterlixg. Would the season of the year have anything to do with it ? Commissioner Camixetti. The season of the year in Europe of course has had the effect of checking emigration for the time; but notwithstanding that check they are coming out in great numbers and suffering hardships; and yet they come notwithstanding that it takes from eight days to two and three weeks for them to reach em- barkation points from the interior of Europe. Senator Sterlixg. Wliat did you observe before in regard to that, and what do your tables and statistics show in regard to immigra- tion for various months of the year — is it a smaller immigration dur- ing the winter months than it is during the warmer months ( Commissioner Camixetti. The transportation facilities are all below the prewar standards from the interior points to the seaboard. The through immigrant train service has not been resumed. Immi- gration is in part checked, owing to the season and traveling condi- tions in every nation. Immigrants are delayed at every border, and it takes, as I was informed — and we were particular about asking for this information — from eight days to tv%"0 and three weeks for them to get to the seaports. So you can see that people subjected to all these unfavorable con- ditions do move out in large numbers and do suffer, as they must, because those who constituted the detail experienced some of it and witnessed the suffering of emigrants upon the trains upon which they traveled; it was a surprise that so many would undergo those hardships. The only explanation is that the hope of the world has been ^Vnierica, and that they think any hardship at any tune w'j compensate them in order to reach oor coimtrv. And if they come now with all these hardshhis, what will happen in the spring; what will happen as soon as Geimany and Austria are opened^ What will happen as soon as soviet Russia and the little border republics carved out of old Russia are open ( I only wish that the gentlemen of this committee would go over to Europe and see for themselves. I am satisfied they would come 5*J4 EMERGENCY IMMIGRATION LEGISLATION. back having the same opinion of the conditions that have caused mo to express myself as I liavc. The CiiAiu.MAN. Would you suspend immigration for live years ^ Commissioner Caminetti. My statement in the record of yesterday indicates my attitude concerning action on the pending bill, which is involved in your question. As a subordinate officer i have not felt at liberty to state my views tliereon, but only to seek information and report it for whatever value it may possess. But there is no question but that something ought to be done, in order to protect America until we know what the result of the conditions of unrest in Europe will be, and until we know how many people there are there who will want to come and what we can do for them after they come. The Ciiairmvn. Can we not protect the United States largely through the vises and passports 'i Commissioner Caminetti. I had hoped that these general discus- sions would come after the completion of my statement. The Chairman. Take your own method now. Commissioner Caminetti. Of course, I am pleased to answer ques- tions at any time to the extent I am able to do so. I am sorry that I lack the ability to answer them more satisfactorily. [Resuming statement:] The same process with the same probable results is being followed by people from Germany and Austria, and nearb}^ States to the east of them. If and when the doors are opened to Germany and all the territory of old Austria the movement now practically stopped will revive and this with the slackening of the bonds that now hold the people of old Russia — though there are many now drifting out, as above stated — will constitute a movement the like of which has never b33n known in the history of immigration. Tnere is no evidence that any of the nations of central and western Europe are permitting immigrants coming from northern, central, eastern, or southern Europe to remain in their respective territories. On the contrary when there is a tendency to lag on the way, passports are given them so as to "pass them on" west until they reach the coast cities. The issuance of passports contrary to the usual red-tape recpiire- ments met with in those countries is, for some reason, not publicly announced, made unusually accommodating, as persons interested in moving these peo])le, in no way connected with the governments and comprising in the main people employed by committees, are per- mitted to })repare these documents, their issuance being then only a matter of signature by an officer, who delivers the same. This would appear an easy eiiougli raetliod to o])tain passports^ but the limit has not yet been reached: i)assports are forged, often with the vise also of our consular officers. As a general proposition, European governments are particular in. the issuance of jiassports. Most of them were before tne war, and manv of tli >m still are, very jealous of the rights of their nationals. It se Mns to be a general re((uirement of their laws not to issue a pass- port for the departure of a national until the passport-issuing officer EMERGEISrCY IM.AIIGRATIOX LEGISLATION^. 595 is satisfied that the party requesting it or for whom it is intended will not become a public charge in the country to wliich destined. A wholesale system has been devised by interested and active parties in America to obtain a foundation upon which to secure a passport, which in turn is used to secure a vise. The sliowing is made, consisting generally of an affidavit on a blank form executed by a Eerson in America who desires to have a relative or friend come to im, wherein, among other things, it is stated that the signer obligates himself that the party for whom he seeks the privilege will not become a public charge should he be admitted to the United States; some- times the showing is made by a number of affidavits differing in some respects from such blank form, but to the same effect. It is stated that a passport is seldom refused on this showing, as it is urged that this affidavit constitutes evidence that the party for whom the passport is secured will not become a public charge. Thus the first step is gained in the movement to start for the United States, for once a passport is obtained, unless there is reason to believe that the safety of the United States is involved through the admission of the applicant, or there appears good cause to the contrary, the vise generally is granted. Immigration officers and others having experience with affidavits made to obtain permits or admission of aliens, know how valueless and useless as a means of protecting the United States, or the State, or municipality, are the promises made in these affidavits; and yet they have been the foundation for the large majority of passports issued by nations in Europe. The Immigration Service at one time permitted affidavits for use only at the port of arrival to be made by citizens or residents who in- tended to offer and give security for aliens who might be admitted on bond, but when it was found nearly two years ago that they were being utilized in Europe to secure passports, the bureau discontinued their use. These had the Department of Labor and Bureau of Immi- gration headlines, indicating the official character of the document, and readily passed in Europe and elsewhere as official documents, though no legal obligation had been entered into by which the United States was secured in case the party in whose behalf it was issued became a public charge. The affidavits now used lack, of course, the reference to the De- partment of Labor and Bureau of Immigration in their headlines, but they do set forth generally therein reference to the United States, and the name of the State and county in which the affiant resides, and are signed by the affiant and sworn to before a notary public or other officer authorized to administer oaths, who himself signs a certificate thereto and impresses his official seal thereon. All this imparts an official appearance to the document. These affidavits have been issued and sent out in large numbers for over a year past. * Our Government can not interfere with the individual action of its citizens or residents in making out such affidavits, but with the knowledge that owing to the appearance of the document as above stated, and that it is used to facilitate the issuance of passports in large numbers by foreign States in the belief that security is thereby afi'orded not only to tlie individual in whose behalf the passport is 26911— 21— PT 13 2 • 596 EMERGENCY IMMIGRATION LEGISLATION. requestod, but also to tho rospectiv^c Governments affected, our Government would be justified in advising other nations that such documents have no odicial authority in the United States and ofl'er and give no security either to the individual for whom made or to the respective Governments affected. In other words, they should be plamly advised that there is no official sanction for such affidavits by our (government nor by the Immigration Service. I am satisfied that an explanation setting forth the facts will satisfy interested Governments that no security is given to them or their nationals by the present methods pursued in these cases. The explanation should also show that when an alien is admitted on bond and such is given, there is security afforded to such nationals and to the respective Governments interested, but that this can not be done until alter the arrival of the party at our port, and in no other way can an effective instrument guaranteeing security be made, and that none can be recognized unless so made. There is another phase of this work that operates in Europe and the United States, and involves the practice of "assisting" aliens to come to the United States to the extent that it will encourage, or solicit immigration to this country of aliens who otherwise would or could not come here. This practice is carried on by individuals who have offices in this country to enroll those who have relatives or friends in foreign countries of whom they desire information with correspond- ing offices in Europe to secure such information as well as to obtain the enrollment, free of charge, of people there who desire information of relatives or friends in this country. A charge is made for services rendered only to the applicant on this side. Some of these offices secure transportation for their clientele. One company states its purpose is "guiding and assisting" prospective immigrants to reach their relatives and friends in the United States,' etc. Another com- pany has an officer establishing foreign branches in Europe and among its purposes is the efiort to aid its clients to reach ports of embarka- tion and finally get them in touch with their relatives here. Written forms of contract are used and advertising is employed. It is stated that agents also go back and forth between Europe and this country in charge of aliens. The results of the operations of these firms and companies cer- tainly stimulate immigration. It is the opinion of the law officer of the bureau that while, if all the facts were known, the present law might reach some of these firms and companies, yet it can not be said that any of them are violating the law in a sense which would render applicable to them the penal or criminal clauses in force. Tne remedy, in case it is thought that this method of stimulating immigration should be prohibited, would appear to be by new legis- lation providing a penalty as to those engaging in the business and denial of admission to aliens who apply for entry under the auspices of or in connection with such concerns. These concerns and their activities may account in part for the visit to Illurope of "delegates" heretofore mentioned. Regulation by the means suggested would considerably reduce the number of newcomers and permit immigration to the United States to follow natural channels instead of being unduly and artificially stimulated for private gain by the parties engaged in the traffic. EMERGENCY IMMIGRATION LEGISLATION. 597 Mr. Chairman, if this only affected immigrants of the character who came several decades ago there might not be so much harm done by it, but the moving mass that is coming out of Europe, Russia, and the border Republics mentioned, among whom there are dangerous elements and to whom these passports are given on the slightest pretext, as described, makes it necessary that attention be given to the matter for the protection of this country against the effects of such a procedure in the United States and the loose sys- tem in vogue in Europe. If a way can be found to check it, or by which "we can so legislate as to prevent the effects of it, we will to a great extent reduce the number of people coming to the United States. The CiLViRMAN. I think that line of information is very important. Commissioner Caminetti. That is why I present it here, to call your attention to the proposition. The Chairman. There has been a great abuse along that line. Commissioner Caminetti. In the next branch of the discussion to which 3'our attention is requested, Mr. Chairman, I have endeavored to give consideration to the subject you called to my notice concern- ing the supply of labor from foreign countries to furnish needed labor at the place where it is wanted in this country under a contract system. The experience of our country as regards immigration is unique. Into no other State, either of the present or of the past, has there been so extensive a movement of alien people, nor one involving so great a number of races and nationalities. And no other nation has done so much as ours for the people of other lands. For more than a century after our independence was won there were thrown open for settlement vast areas of land u]>on no other condition than settle- ment and citizenship, and the payment of an inconsequential price therefor if a preemption, or free if a homestead, thus affording a home and opportunity for all in the country or those who might come from across the seas; and so long as public lands were available the coming from abroad of those willing to make homes for themselves and their families was of inestimable benefit, as they aided those who had preceded them in the settlement of the country and the develop- ment of its vast resources. As lands suitable for settlement have for a long time not been available owing to the immense demand which appropriated practi- cally all that were suitable for cultivation, the newcomers to a great extent were from necessity, if not by choice, diverted to industrial centers and cities, as were some of our own people for like reasons when lacking the anchorage to the soil created by the ownership of a home or a farm. Thus new ])roblems arose and continue, which require study and the best statesmanship for their solution. This tendency has continued until, as shown by the census of 1920, a majority of our population now for the first time in our history is founcl in such centers. This migration to the cities in the natural order of things would have been long deferred or entirely avoided if our Government had begun in 1890 to pursue a selfish policy as to immigration, partly for the reason that the large bulk ol our public lands had become converted to private ownership. ^lore than 18,000,000 aliens were allowed to enter the country since that year, the greater number of them to settle at once or ultimately in the cities. 598 EMERGENCY IMIMIGRATIOX T.EGTSLATION. Evon before the World War, wlien tho avoraf^o ninnber of newcom- ers entering the country for more than a decade previously exceeded a million a year, tho need for protective measures had become vital for reasons aside from those arising from urban congestion. Wo woro then fast entering into a condition when it would have been necessary to take an accounting and face tho situation. No doubt this would have resulted in some movement looking to a solution had not the European war and our subsequent entry therein directed our attention and energy toward the defeat of our opponents. The report of the Industrial Commission, of which P>ank P. "Walsh was chairman, iiled in 1910, depicted conditions in this country affecting the laboring classes and called attention to their injurious effect upon our people. While this study was not directly one of immigration, it indirectly afl"ected it, as through immigration the ranks of the laboring classes are constantly being augmented, so that if conditions were as shown by that report there is no question but that some action on the increasing immiOTation shown by the 10-year period previous to June 30, 1914, would have taken place had normal peace conditions continued from and after 1914. It is difficult from the changing number coming in to fix what is or would be normal immigration. With the situation existing previous to June 30, 1914, and with thfr then rising figures, certainly the application of the word "normal" to the immigration immediately preceding the World War, as a basis for the future, can not be said to be warranted. In fact, conditions producing economic pressure in the nations from which most of our immigration is supplied, are abnormal in each nation so aff'ected, and as such have had the tendency to increase our immigration and to that extent, make it abnormal also. And so long as this pressure exists in the nations supplying immigi'ation so long will immigration to our country be, at least in part, abnormal. This pressure in Europe and elsewhere has been intensified b}' th& war and its aftermath and if there were grounds to consider pro- tective measures had the war not taken place, such need has now become vital. We have properly protected our commerce and, in fact, have passed laws during the war to prevent dumping, as it was termed, on our country of manufactures from abroad, the inspiring cause of which was not only to protect labor but business as well. The same principle applies to the protection of the people now here, whether of natiA e or foreign birth. The statement from official sources that there were on January 1 about 3,447,000 unemployed in the United States, and with a con- tinuance of conditions that have since the armistice prevented stabilization in prices and in industry, affecting more or less the cost of living, considered in connection with news of contemplated reduction of working forces in industrial establishments and on railroads, raises the question whether the admission of more people from abroad is justified, as its continuance would undouotedly result in injury either to those already hero or to tho newcomers. Relief of some sort seems to be a necessity of tho present situation, both in our own interest and in that of the masses who desire to come; but how it shall be secured, or what measures are needed to bring it about, constitutes a debatable proposition. EMERGENCY IMMIGRATION LEGISLATION. 599 Apparently, laborers in many branches of industry are now facing what seems to be a general reduction of working force. Wliether, with this reduction, people in the industrial centers, used to other kinds of labor, will accept employment on the farm is a question; so far, information shows that no backward movement to the farm has made itself apparent. The necessity to secure a supply of labor of the latter class from some source is undeniable and absolute if production in necessary quantities for home consumption and for export can be expected at reasonable cost. The experience of the last season has worried many producers, and the danger is imminent that unless farm labor can be secured at reasonable compensation serious reduction in c{uan- tity of agricultural products may ensue. With this situation presented for consideration, it appears proper to state that should immigration be temporarily or otherwise re- stricted, ready relief for the farmer might be provided — temporarily or otherwise — by amendments to the Immigration Act of 1917 and the regulations issued thereunder. Our laws have for a long time made a wise provision calculated to protect American labor from destroying competition from abroad and to foster it under conditions needed for the development of our national life, under the authority of the contract labor provisions of said act, permitting, upon compliance with the law and regulations, skilled labor when needed in industry wliich can not after due dili- gence be secured in the United States, to b^ obtained in foreign •countries. Experience has shown that this elastic plan, protective in the highest degree and yet responsive in case of industrial and com- mercial necessity, can in fact be administered, so as to aid labor and stimulate industry. There is no question of its permanent place in our immigration system. By a simple amendment the rule that limits the exercise of juris- diction under the contract labor laws to "skilled labor" can be extended to all labor without distinction, whether so-called skilled or unskilled. If this change is approved, a further amendment is sug- gested that as to all such labor imported under contract the persons so allowed entry shall at the completion of the contract depart from the country. If desired, when labor conditions warrant, provision could be made for the permanent admission of those who could meet the tests of the immigration laws. A fair opportunity would thus be presented to the applicant for admission as well as to the Govern- ment, as the record of the conduct of the individual while working here under contract would be before the Immigration Service to aid it in passing on his admissibility, something not possible at all times under the present practice. The above suggestions would permit an al)undant supply of labor for the farm, for, according to the following statistics, farming occu- pations seem to have been followed as in previous years by a large number of the immigrants admitted for the period covered by the table. 600 EMERGENCY IMMIGRATION LEGISLATION. (The table referred to is here printed in full, as follows:) Jnivard and outicard moxemmt of alien agriculturists during the years 1913 to 1920,. inclusive. Inward. Outward. Year. Farm labor- ers. Farm- ers. Total. Farm labor- ers. Farm- ers. Total. Gain. 1913 368,718 314,305 29, 247 29, 141 25,271 6, 543 7, 448 42,686 18,377 19,120 9,215 9,113 10, 228 5,108 7,088 17, 770 387,095 333, 425 38, 462 3S254 35, 499 11,651 14,536 60,456 34, 491 22, 428 6,389 3,604 3,588 1,464 1,015 12, 197 14,878 17, 749 9,094 7,732 7,463 6,836 6,123 16,616 49, 369 40, 177 15,483 11,336 11,051 8,300 7,138 28,813 337,726. 293,248 22, 979 ■>6 918 1914 1915 1916 1917 24,448 3,351 7 39& 1918 1919 1920 3l'643 Total 823,359 96,019 919,378 23,375 85,176 86,491 171,667 13,620 747,711 9 755- Mexican agricultural laborers admitted under departmental exceptions during the fiscal years 1917, 191S, and 1919 Grand total 941,753 178, 772 762 981 Senator Sterling. What years does that cover? Cornmissioner Caminetti. It covers the years 1913 to 1920, both inclusive, and had I gone back 8 or 10 yeare previously the net result would have been far greater. Of course there was a greater portion anterior to the war than since. If the relief so proposed is to be for the period pending any neces- sity for farm labor, or any other class of labor that could properly be included, then the general provisions of said act of 1917 could remain intact; but if it is deemed practicable and advisable to make the change a permanent one, then it is suggested that until there has been time to give the subject full study and investigation, and until experience has shown that the interests of labor and of the country are fully protected, laborers of all kinds by change of the present law to that effect be permitted to enter the United States only as the result of the system above outlined. In this way, labor of the class needed could be brought into the country where required, and w^hen the limit of time provided in contracts expired, or at the end of such extension thereof as might be permitted on proper showing as to merit, it would depart. Our people flocking to the cities and industrial centers, augmented by the addition of a considerable proportion of immigrant classes on arrival, or soon after a limited stay in the rural districts, is in the main responsible for the increase of population in urban commu- nities, and such increase can by this method in considerable part be materially checked so far as the immigrant class is concerned, as in the event the proposed plan is made part of the contract labor section of the law, laborers of all classes, skilled or unskilled, can enter only, when permitted, to go to such places from which indi- viduals, firms, or companies may have applied for their entry and made sufficient showing under the law. The proposed change, if made, will apply not only to farming and other rural occupations but to all industries where labor is a neces- sity, no matter where located. EMERGENCY IMMIGRATION LEGISLATION. 601 In this way distribution according to necessity for labor would be effected on the farm, in the household, the store, the shop, the mine, the factory, and for other requirements. Under such a system the sending of laborers, as at present, to communities where they are not needed, would cease. Under it, if desirable, as admission is purely for a limited period pending contract after which return is provided, the requirement of literacy may be held in abeyance. A complete record of those entered should be made, so as to show entry, departure, or other action that may occur. A tax of SI to cover cost of certificate provided might be imposed in lieu of the head tax, except where admission finally occurs, in which event the head tax would be payable as usual. The Chairman. Do you mean the temporary admission of labor for a given time Commissioner Caminetti. Yes, sir. The Chairman. Let me finish. I was going to ask, Does not that system prevail in France to some extent? Commissioner Caminetti. Yes, in France; and it prevails in England, too, to some extent, though not exactly as proposed. But there it is allowed to go on by permission only. As far as my infor- mation extends there is no law on similar lines to those above sug- gested. [Resuming:] In this manner the requirements of the northern and southern border States, Florida, and other sections of the country may be met, and a branch of the work that has caused endless trouble and confusion in immigration administration be brought to an end. As a proper working of this system would be dependent upon the necessities of the. people for labor they can not procure in this country and as its administration would be by public hearings where all interests affected could be represented under proper regulations, providing necessary security, there would be little danger of over- supply in violation of the fundamental principles of the contract- labor system or of undersupply where legal grounds are shown by the parties interested. The United States Employment Service could be utilized to keep the Secretary of Labor advised of labor conditions throughout the country and also for the purpose of investigation of applications for the importation of labor from foreign countries; particularly, the allegation being an essential element thereof, that labor of the class called for does not exist or cannot be obtained in the United States. Except as stated, no alien laborer should be permitted to enter under contract unless otherwise admissible under the provisions of existing law. With all these safeguards it is reasonably certain that abuse of the authority to import labor would be difficult. The establishment of this plan would affect the present immigi'ation svstem to the extent of stopping immigration of the laboring classes, skilled and unskilled, no matter how they might try to enter — as fii'st, second, or third class, or as immigrants. This would, no doubt, reduce the volume of immigration, while it would also confine admis- sion of laborers, skilled and unskilled to the actual necessities of the countrv. 602 EMERGENCY IMMIGRATION LEGISLATION. Of course, the physical, mental, and other protective tests of the act of 1917 would be maintained and such other conditions pre- scribed as the new system would call for to meet its recjuirements. Unless the literacy and head-tax requirements should be set aside, these, too, woidd be included. The selective system often referred to in immigration discussions would have an excellent opportunity to be put into operation, as when an employer of labor is permitted to contract for labor abroad he or his agent will have a choice among the large number from which to select. It is certain that he will take no chance in selecting persons who can not meet the tests of our laws, as to do so will involve delay and loss to him. In this way the Government would receive the benefit of careful selection and should enjoy the satisfaction that only such people would leave their homes in distant lands as are actuall}' needed here. In addition, there appeared to be a growing interest among the official representatives of some of the nations visited as to the future of their nationals intending to go abroad. Italy, France, Belgium, and other nations, we were informed, are making contracts for labor. Some of these contracts are made between governments and indi- viduals, and some between governments. These contracts cover nations in Europe and South America. In fact the intimation was plain in some quarters that contracts to furnish any number of laborers would be gladly considered. Selection would be further aided from the fact that nations would be reasonably certain that their nationals will not suffer for the necessities of life or become public charges, and that their mterests wdll be safeguarded. All those visited indicated a desire to allow only such of their nationals to emigrate to America as can comply with the requirements of our laws, and in this way, by the joint efforts of all interested, a proper selection of those fit for the job would result. The adoption of this method at this time, with a period of unem- ployment and attending unfavorable circumstances facing the coun- try, should not injure labor or business interests, but would stop the immigration of many thousands of aliens who, going to places where there is a surplus of labor, might come to want, or cause others to meet that fate. The chairman will remember a hearing before the Department of Labor upon this subject asking that it allow the entry of lal)orers from foreign countries, and the open hearing that was then had. What is contemplated if such a plan as this could be adopted is the adoption of methods that Avill provide for an open hearing, so that there can be no admission of laborers unless they are needed, followed b}^ distribution to the places where they are needed; and as it is pro- vided that as they come in and finish their work they must go out again, why, then, there is no permanent addition to the population and no congestion in the places to which they may be sent. And, of course, while they are here by their conduct their character is established, thus affording the Government an opportunity in case any of the number so entering applies for admission to test his admissibility upon what is known of him in this country. By this method also the (Government would have an opportunity to determine if they belong to dangerous elements. I come now to the vise system. EMERGENCY IMMIGRATION LEGISLATION. 603 The time is approaching when by operation of hiw, unless the same is continued, the vise system will be abolished, in which event the status quo in an immigration sense existing prior to our entry into the war will be resumed. Without regard to what in my judgment constitutes an absolute necessity for the continuance of the vise regulations, or some equally effective method to safeguard the interests of the United States, in view of the conditions of unrest and other s}Tnptoms growing out of communistic and other tendencies antagonistic to law and order abroad, it has been my \'iew that there is a principle therein which it is necessary to apply in completing the immigration system of the United States, which owing to its extensive operation equals, possibly, the combined operations of the immigration systems of all other nations, and, having business daily with most of them, can not forego the development of some plan whereby it will be in constant touch with representatives in every nation from which any considerable immigration comes to the United States. Immigration is not only a national but also a world question, and necessarily what happens or affects either immigration or emi- gration conditions in other nations has its bearing upon the work- ings of the system in the United States. When it is considered that until the establislmient of the vise regulations by the joint order of the Departments of State and Labor of July 26, 1917, followed by the enactment of its salient features into a law, there was no organ- ized effort made in foreign countries to guard the interests of the United States, so far as the activities of corporations or individuals •engaged in transportation interests were concerned, or of individuals disconnected from transportation interests, but connected directly or indirectly with smuggling or other operations intended to avoid the provisions of our laws by surreptitious or illegal entry of aliens into this countrj^ The Chairmax. You are aware, Mr. Caminetti, that the Committee ■on Foreign Affairs of the House have reported favorably a bill ex- tending the vise system? Commissioner Caminetti. I am glad of that; I have not had time to follow that. All inclined to engage in any activity affecting immigration mat- ters antagonistic to the United States then had practically full scope. There has been a degree of protection in the vise sj^stem, which though not established as an immigration adjunct, yet has shown how beneficial it is as such an agency. By saying this much it is not intended to convey the idea that the vise regulations as they are at present in force under existing law are favored as a permanent system, or for a continuance of the time of their operation even. Amendments enlarging the authority of the officers of the Consular Service are an absolute necessity. Provision should be made authorizing a denial of the vise (or issuance of a permit in case passports are not used) where, under the immigration act of 1917, it would appear to the satisfaction of the consular officer acting that the alien applying for vise or permit would not, in all probability, on arrival at a United States port, be admitted. It is not meant by this that the consul should act in the same capacity that the Immigration Service at American ports does, nor to the extent that the latter exercises authority, as it is not necessary 604 EMERGENCY IMMIGEATION LEGISLATION. that such power ho conferred or exercised in foreign territory; hut when an inchvichial who is defective physically or mentally, or plainly shows hy evidence that is unmistakable that admission could not take place, it would be just to the applicant as well as our Government that he be so informed and denied his request. For like reasons, where everytliing in the appearance of an applicant would indicate that he wouhl be likely to oecomc a public charge, and because of such indications he would not in all likelihood be admitted into the United States at the port of arrival, denial should follow as in the other illustrations cited. There are many other references that might be made, and conditions as plain as these, which would clearl}'" indi- cate to a vise or permit officer that under the law the party would not be admissible, in which like action mivik adherents show evidence of much power in opposition to the moderate elements. If to tliese are added the individual efforts of unorganized groups scattered tliroughout Europe, the aggregate influence of these ele- ments can he readily realized. The activities of these parties and of such groups arc not all known, and to the extent that they are under cover, constitute a standing menace. There is no intercourse between this Government and soviet Russia nor with the various governments it controls, nor with Ger- many and Austria in the scnsO; that intercourse exists with nations with whicli diplomatic relations exist. In a general sense it is sup- posed that Russia and the governments under its control are not per- mitting migration of their people, hut it is an open secret in Europe that Russians in considerable numbers are coming out of soviet Russia as well as from the republics referred to, such as the Ukraine and adjacent States, moving into various nations across their re- spective borders. People from some of these governments are found in all immigrant hotels or barracks preparing to take passage to America. It is also known that llarge numbers from these territories swarm into the adjacent nations beyond, and after a time obtain passports in order to secure their departure. The Paris Temps, in its new-year issue, states that the official statistics show there were in Paris alone, on December 31 last, 23,466 such Russians. They are found in many other parts of Europe, though no report of their number is at hand. The claim that people coming out of old Russian territory are refugees belonging to WrangeFs army is sustained only as to that part of Russia near the Crimea in which his forces met defeat, but all these have been taken out long ago. Who knows who and what these people are and what their purpose is in getting out ? Some, no doubt, perhaps the largest numtier. are fleeing away from what has been described as intolerable conditions, but in view of the purposes announced and the propaganda that is going on, apparently with the approval, if not under the direction of Lenin, it is well to continue on guard. It is in just such a mass of people that dangerous emissaries could ex])ect success in the endeavor to reach localities they have in mind for the purpose of executing their plans. This movement is not only from old Russia but from other European nations, including States in western Asia. The foregoing is confirmatory of the information that I was able to gather from various sources on my travels. The barriers our Government has erected in Europe to detect dangerous aliens of the class mentioned, as well as others, and stop their coming, have been well devised and those in charge carefully execute their trusts, but while this accomplishes the work as to those known or ascertained from exaTninations given them, we are failing to shut out tliose not known and of whom no trace can be made, either because they are able through connivance of authorities or through fraud to travel under an assumed name or because their connection with bolshevism, anarchism, or communism is unknown. HMEKGENCY IMMIGRATIO:Nr LEGISLATION, 611 Discovery is also made difficult by the fact that often in nations outside of Russia it is not possible to detect dangerous elements be- cause their standing in their own communities is such that connection with the elements mentioned is not suspected. The experience of consular ofhcers with forged passports traced to Essen, Germany, and Warsaw, Poland, adds to the many difficulties they encounter in their endeavor to prevent the coming of dangerous elem_ents. , Can the present plans of prevention be improved ? The Chairman. Mr. Caminetti, do you think that that danger you are speaking of now, of the soviet propaganda, could be checked through vise regulations ? Commissioner Caminetti. Yes, sir; to a certain extent. It has been checked by vise regulations, but I am explaining here that that is only where the party is known or where there is reason to believe from examination at the time or from information they may have, but even with all that the consuls admit it does not check it all, and that they can not check it all, and that they need something more. The Chairman. I understand the general drift of your testimony is to the efi'ect that regulations and tests that could be applied at the place of origin of the nationals is the solution in part of the danger that confronts the country; is not that true? Commissioner Caminetti. That is one of the solutions, and possibly the main method of reaching it, but with respect to this particular element possibly something more is necessary, if something more can be devised. Administratively^^ by some additions to the present service, new methods might be provided which would, in a degree, be of further aid. Unless effective safeguards can be devised we are not certain that the entrance into our country of dangerous aliens can '^? e.ntirely or even approximately prevented. As time goes on and the movements in and out of Russia and in and out of said Republics continue across their respective boundaries, the situation will become more complicated and dangerous, and this will considerably increase when intercourse is opened between our country and Germany and Austria by a declaration of peace. Whether we like it or not, we can not fail to note the existence of dangerous aliens well organized in practically all European nations, nor can we fail to realize, due to conditions some ages old, some the results of the war, and others of its aftermath, that while a large majority of people in these nations may not take part in organized movements many are sympathetic with one or the other of the various revolutionary elements to be found throughout Europe. This is the impression that one obtains, if common report is to be depended upon. Certain it is that fear abides in a number of these nations, and there does not appear to be sufficient initiative or power or cohesiveness in the governing classes or in the masses of a number of them to command the situation on the basis of the support of govenmient based on law and order. Under these conditions such nations are powerless to prevent the growth of propaganda and even the movement of people from sections where revolutionary elements are known to exist. 26911— 21— PT 13 3 • 612 EMERGENCY IMMIGRATION LEGISLATION. The movement is an active force practically throughout Europe, working in tlie open in party orojanizations. What its secret political activities are is known only to its leaders, and possibly in part to the police authorities of the various nations in which the activities pre- vail. Propaganda work seems to be generally carried on. The news- stands in tile various nations carry many pamphlets and publications on Lenin and on various communistic and bolshevistic theories. Lack of tune has prevented an hiquiry into the laws of the conti- nental nations upon the subject of anarchy and communism, includ- ing bolshevism. Whatever provisions may exist, there does not seem to be any open, aggressive movement against these peculiarly dangerous political manipulators. The reason is not far to seek and can be found in the present general unrest existing in many nations on the Continent, if not, to some extent, in all of them. Bolshevism and communism loom up as the greatest menace of Europe. In my judgment it is unsafe for the United States to re- main even as at present situated concerning the safe^ards now pro- vided agauist the entry of dangerous elements into the country. What constitutes Europe's menace is in effect, in lesser degree per- haps, ours also. The fact that it is lesser in degree and that owing to the depend- ence we place in our form of government (strong yet giving full free- dom with constitutional and statutory limitations, Federal and State) we feel that we enjoy full protection, does not alter the fact that, according to avowals from bolshevik Russia, our Government constitutes the greatest menace to the development of its political plans. In view of the foregoing and the possibilities of the entry of danger- ous elements among the great mass of people coming to America, continuation of immigration from Europe and adjacent territory in Asia has become fraught with dangers of a kind and extent heretofore scarcely imagined. The Chairman. IVIr. Caminetti, did you say that bolshevism had made any particular progress in England, France, or Gemiany? Commissioner Caminetti. The press reports up to yesterday and day before indicate that it had made general progress throughout Europe. The Chairman. That is a very broad proposition. We know that it has made some progress, but the attempt in Hungary and in some of the Balkan States has failed. It seems, however, to be admitted by most of those who have reasoned upon the subject that bolshevism as an economic proposition must perish from the earth. I can not see at tlie present time any serious menace of bolshevism to the German Empire, to France, to England, or America. It has made some progress in Italy, but even there the radicals gained little headway. But its progress in America is still further off. You give me business prosperity "in America, and there is no danger of extreme radicalism. Commissioner Caminetti. Business prosperity was with us two years ago and a year and a half ago The QiAiRMAN. What I object to on this cjuestion of immigration is that men wake up at 4 o'clock in the morning when they feel blue and they exaggerate all these so-called world movements, both as to Europe migrating to America and to bolshevism coming over here. EMERGENCY IMMIGRATION LEGISLATION. 613 When we have an election, as we had a few weeks a^o — do not call it a part}'^ victory, call it a victory of the plain people of America — it was a rebuke to radicalism in every form. I met a very prominent Russian yesterday, who has just come from Russia, and he said the soviet government could not possibly last a year longer. Of course, that is only the opinion of one man. (bmmissioner Caminetti. People have been saying that for three years. The Chairman. It has Commissioner Caminetti (interposing). And Lenin to-day in Eu- rope and western Asia is stronger than he was two years ago or one year ago. The Chairman. Human nature is human nature. These experi- ments in communism have been tried many times in the past. Dur- ing the French Revolution various experiments of this character were tried, but the fundamentals of modern civilization, such as the right of property, can not be overthrown. These experiments only lead to misery, because they are economically false. I do not thinK therefore that we should suspend immigration at the present time for fesr of bolshevistic propaganda. Commissioner Caminetti. I only present it, Mr. Chairman, not as an argument to the committee to prevent immigration of all classes, but as one of the elements to be considered in determining the new safeguards that it may be necessary to establish for the protection of our country. The Chairman. I am very glad to hear that from you, Mr. Cam- inetti. Commissioner Caminetti. I trust that the hopes of the chairman will be realized at the earliest possible time, but a study of the situa- tion from the press reports and from other information of apparently authoritative character reaching this country it will be found that this sentiment in Europe — I do not call it bolshevism alone, I call it communism — is growing, and that it has in congress after congress defeated the moderate elements of various nations. Even the great congress that took place at Tours, in France, riot long ago, the moder- ates who favor parliamentary action were defeated, and in Italy great strength was developed and a new party organized, and so in other parts of Europe — Sweden, Norway, Spain, and other nations have shown the same results. Some may pass lightly over these things, but in my judgment no thinking man can consider the situation in Europe to-day without coming to the conclusion that, though it has been for two or three years asserted that Lenin and his power would be destroyed, he is to-day stronger than he was a year ago, and to the extent that he is stronger he has become more dangerous, not onl}" to Europe but to the balance of the world. Let us not rest upon the assumption that we are safe. Let us protect ourselves to the fullest extent and avoid the consequences that maj" come from failure to do so. I am not afraid of any power defeating us. But why invite the struggle; why invite the trouble ? Why not anticipate it and prevent it from ever having a growth upon American soil ? The Chairman, Mr. Caminetti, will we get back to earth again? 614 EMERGENCY IMMIGRATION LEGISLATION. Commissioner Caminetti. Oh, surely; I am on the earth."^ In making these statements, Mr. Chairman, I beheve that I was upon the earth, because if you do not beheve there is any danger, you will some day wake up to the fact that it exists not only in Europe but right here in America also kS^9M The CiiAiKMAX (interposing). I meant "come back to earth" — get back to what the committee are dealing with. The committee are dealing with remedies. Commissioner Camixetti. Certainly. The Chairman. We are dealing with remedies. Now, I will assume that your view upon this subject is correct. We are trying to frame legislative remedies. May I ask you, with your wide experience, what practical remedy you have got to suggest to the committee to prevent the realization of this so-called bolshevistic menace from the immigration standpoint ? What shall we do to legislate ? Have you not any suggestions to make ? Commissioner Caminetti. I could make them if the committee wants me to submit them. I have not felt it my duty unasked to go into the form of any proposed laws upon the subject. The Chairman. Can 3-ou not state, in a word, what is your remedy ? Commissioner Caminetti. Well, the remed}' is, first, continue tne vise, materially strengthen the system so as to give the representa- tives of this country abroad the necessary power to enable them to keep out all dangerous classes, as well as inadmissible aliens, as far as it is practicable to do so at the source; and, further, to consider what new barriers and new^ safeguards can be devised to protect us from the classes we have just been discussing. In deciding the ques- tion of new barriers and new safeguards it might be finally deter- mined that .even with all that we might devise we can not feel certain that we can completely prevent the coming of such elements; in that event it might be necessary to consider whether immigration from countries that acknowledge such doctrines as bolshevism and com- munism shall not be made inadmissible into the United States; also whether, before a vise or permit shall be granted, an applicant coming from a country where bolshevik or communistic parties exist he shall be required to satisfy' the consular authoiities that he is not a member of an anarchistic, communistic, or bolshcnik organization. Senator Sterling. Mr. Caminetti, would you suspend immigration entirely for anj period of time, or would 3^ou adopt the restrictive and selective process ? Commissioner Caminetti. As I recall, in all the annual reports submitted during the time I have been in ofTice I have maintained the theory that selective and restrictive immigration laws, with K roper provision for their enforcement, woidd be sulficient. That as been my belief all along, and I would hesitate to go ])eyond that in any permanent system of law. I might possibly now make it more restrictive than we have ever had in our history. I have also said that I did not Imow whether v\'e ought to depart from the traditional policy of our Government upon tlie matter of immigration. But the conditions that have confronted us during the last two years — during the la'^t year particularly — and that confront us now in a general way as to immigration and, with par- ticular lefcrence to the subject that we were discussing — com- munism—makes it necessarv for us to resort to everv means in our EMERGENCY IMMIGRATION LEGISLATION. 615 powei, and to utilize all the efforts that our best state' manship may propose in order to devise an efheient system that will entirely protect us, and in order to do so it may be necessary to temporarily erect bariiers that we have not hitherto needed. For this purpose under all the circumstances, it is advisable to depart from the rule. It is an easy matter, Mr. ('hairman — pardon me for saying this — to ask a man to prepare a system of law or even to suggest one. You know, as a judge of great experience and distinguished attainments, that the enactment of laws and the formation of plans for a system of law to meet this emergency present difficulties which require deliberation. At this time I am not prepared to submit proposed laws, but if it is desired that the Bureau of Immigration do so it is placed at your service. vSenator Sterling. Mr. Caminetti, how would this, in general, suit as a plan: A proper board or authority to study the question of immigration, to study the peoples that emigrate to this country, their tendencies, the motives that inspire immigration here, etc.; and then to determine what should be admitted and what should be excluded, or what per cent of any people should be admitted at any time. Commissioner Caminetti. The purpose that the Senator has in view is what is to-day hi the minds of every one of the ambassadors, ministers, and consular representatives at the places that the detail sent by the Department of Labor had the honor to visit during the last two months. That is the reason it has been recommended that there be representatives of the Immigration Service, including officers of the Pubhc Health Service, detailed for the purpose of making such studies in every nation. And, also, when it was recommended that examiners be placed in the consular service, so that such information as they may desire to obtain to enable them to discharge their duties, may be at their dis- position to prevent the coming of dangerous elements to our country, as well as to obtain the information that will be of benefit Senator Sterling (interposing). Would you have tke authorities that we may put at our consular agencies abroad have the power to say whether they can come or not, or would you simply have their power made an advisory authority, so as to give them information and advise them as to" the prospect of their admission after they reached the port of debarkation? Commissioner Caminetti. The plan ought to be both advisor}^ and executory. In other words, as it was set foi-th in the statement this morning, where the evidence of inadmissibility was plain to the consular officer acting after having advised with the medical and immigration representatives, why, then, the power to decide ought to be conferred, subject to the right of appeal as provided in said joint order. Senator Sterling. What would } ou think about a plan of regis- tration for immigrants ? Commissioner Caminetti. I am in favor of the registration not only of cver\- foreigner who comes into our countrs', but ever\^ native American citizen as well. In the last two annual reports there will bo found not onK a discussion of the subject but also a proposed law to provide for its establishment. 616 EMERGENCY IMMIGRATION LEGISLATION. Senator Sterling. Of course, you have heard the objection to a, system of registration, namelr, that a system of espionage goes along with it that is not quite consistent with American ideals and mstitu- tions. Commissioner Caminetti. We have registration now in order to enable a man to exercise the right of suffrage that does not prevent the exercise of a man's liberties. Senator Sterling. But that does not involve following a man up, etc. ? Commissioner Caminetti. I do not believe in following people up, nor in peonage, nor in anything that would promote it, but I do not think there is anything wrong to cause the registration of a person who comes to the United States, under any system that may be devised to more fully enforce and administer the immigration laws of the country. Such a system might possibly be utilized to aid in the work of assimilation. Senator Sterling. You spoke about the number of unemployed in this country at the present time. As I remember it, you said there were over 3,000,000 unemployed? Commissioner Caminetti. The statement released to-day by the Employment Service of the United States indicated 3,447,000 unem- ployed on the 1st of January. Senator Sterling. Do you know how they get those figures ? What is the basis of a statement that there are 3,400,000 not em- ployed in the United States now ? Commissioner Caminetti. I happen to have a copy of the unem- ployment survey here. Senator Sterling. Suppose a particular industry dismisses Commissioner Caminetti (interposing). The Immigration Service has no part in the work [handing paper to Senator Sterling], but that is the result of a survey the Employment Service has made. Senator Sterling. Yes; but suppose a particular industry dis- misses 5,000 of its employees to-day. Is it certain that they will be unemployed to-morrow or unemployed next week? May they not find employment elsewhere ? Commissioner Caminetti. Ordinarily, yes. But it happens that the number of unemplo3'ed has gone on increasing during the last 60 days, so that would indicate there is lack of employment, and that lack of employment is continuous, I am sorry to say. Senator Sterling. It may in the aggregate be indicative, and yet there may not on any one day be 3,400,000 not employed in this country. I suppose tfiey make up these figures from data furnished by the various industries showing how man}^ they have dismissed from their service ? Commissioner Caminetti. I am afraid it is only too true that there are that many, from the indications existing. The Chairman. Mr. Caminetti, we are passing through a period of war readjustment. Take, for example, a great many women who were employed during the war activities, who have been dismissed, would this list probably include that large number among the unem- ployed ? Commissioner Caminetti. I suppose if the list is properly pre- pared — and I have to assume and I do believe that it is so prepared — it would include women who are unemployed. EMERGENCY IMMIGEATIOliT LEGISLATION. 617 The Chair.max. Will you file that ? And in addition, Mr. Caminetti, will you bear this in mind, that Senator Dillinf^ham and the rest of the committee are very anxious to get the details of the immigration and the emigration from the 1st of Julv, 1920, to the 1st of January, 1921? Commissioner Caminetti. I shall bend every energy, and I shall make a report to the Secretary of the department of this request. The CiLURMAX. If you will give us all you can of that data as soon as possible, the committee will appreciate it. Commissioner Caminetti. I will direct myself to that end, Mr. Chairman. I haye with me the report of Dr. J. W. Kerr, who made the in- vestigation as part of the detail, but as I have no copy to leave, this being the office copy, and as I may not be authorized to file it at this time The Chairman (interposing). Mr. Caminetti, could you make an abstract of that document and file it with your others? Commissioner Caminetti. I think I will write to the doctor to do so. The Chairman. Very well. But it must be remembered that we are closing this evidence, and we do not want to have it delayed. Commissioner Caminetti. I appreciate that. I want to say to the committee that it is an excellent report. His painstaking investiga- tion, deep study, able marshaling of the facts and deductions from the studies made by him, as well as his recomm.endations concerning the medical problems connected wiih immigration form a valuable addition to the notable work already performed by him in his long official career. I regret that, owing to the desire to condense my statement at this time, consideration of the recommendations made can not now be given the attention they deserve. Mr. Chairman, this morning I was asked a question, and as I was thinking of the many other things I had before me I omitted to complete my answer. When the chairman asked me how lon^ we were at Warsaw, I told him three-quarters of a day. I should have gone into the matter more fully, because the necessities of travel either compelled us to get out late in the afternoon of the day we attended to business there, or, if we did not, be compelled to stay from Friday until the following Monday. Had we done so we probably could not have gone to Jugoslavia. And rather than take chances upon that we determined to do the best we could, by calling upon the American minister, who secured an interview with the Government authorities — some of the highest officials — upon the matters to be discussed, and everything was done during the morning that could have been done had we remained there longer. Then, we spent the balance of the day with the minister, the consul, and their assistants. Owing to the way in which this work was prepared for us by these officers, we were enabled to secure the information desired. In all other places there was devoted in some two days and in some three or more days to the work. In the subjects discussed and opinions expressed in this statement I have given only my sentiments and views. It has been my inten- tion to present matters and things affecting our immigration interests 618 EMERGENCY IMMIGRATION LEGISLATION. as I saw them in Europe and as they affect those at home, for such consideration as in j^our jud^jjment you may feel they deserve. The subjects receiving the attention of the detail are important, and their ramifications extend to many channels and affect many conditions which it will be impossible to consider fully in the time which your kind indulgence has granted. I want to thank the committee for the courtesies extended, and again I want to place myself at its service. The Chairman. Thank you. Upon consultation with other mem- bers of the committee I have to announce that all of the additional data that will be received by the committee must be filed this week. Commissioner Camixetti. I have nothing to file except The CiiAiRMAX (interposing). I am not speaking of you only. There are others; and you will also bear that in mind, Mr. Caminetti. Commissioner Camixetti. Certainly. The Chairman. That we w^ant all the data in this week. And after Saturday we will receive nothing more, unless the committee calls for it. [Extract from the Report of the Bureau of Immigration for the fiscal j-ear 1919.] A Century of Immigration. The two charts accompanying this report serve to direct attention to the interesting fact that our official immigration records now cover a period of 100 years. It is known that there was considerable immigration following the Revolution and that it declined during the second war with England, but prior to 1819 there vv'as no pro\dsion for the collection and publication of statistics relative to the movement. After the peace of 1815 immigration increased, and it is recorded that as many as 20,000 came in 1817. The demand for passage brought many unsuitable ships into the traffic, overcrowding was general, and there was much suffering during the loag ocean voyages. An attempt to remedy these conditions was made in the passenger act of March 2, 1819, which limited according to ships' tonnage the nun ber of passengers who could be transported and provided that certain supplies of food and water must be carried. The act further directed that the sex, age, and occupation of each passenger should be reported to customs officials at ports of arrival, and this pro\ ision marked the be- ginning of official statistics of immigration to the United States. Detailed information concerning our earlier immigration seems very meager compared with the present elaborate records, but there were no laws regulating imsftigration in those days, and the simple statistics which resulted from the act of 1819 presumably met the requirements of the time. In any event they afford an interesting record of the extent to which various alien peoples contributed to a century of population development. Chart 1 presents a graphic picture of the wave of immigration from all countries during the past 100 years. It will be seen that in the first 25 years covered by the rec- ord, or from 1820 to 1845, the wave gradually increased but did not fluctuate greatly. From 1845 to the present time, however, the crest line shows remarkable fluctuations, peaks and depressions following each other in bewildering fashion, but in every in- stance the cause of the rise or fall is easily traced to economic or other conditions in foreign countries, which frequently forced masses of people to leave their homelands, or to conditions in the United States which in turn invited or discouraged immi- gration. The first really notable influx was in the decade from 1845 to 1854, when the tide rose from al)out 114,000 in the former year to nearly 428,000 in the latter, due largely to famine in Ireland and revolution in Germany. Then follows the very pronounced depression covering the period of the war between the States. After peace there was a large increase, but the movement declined during our economic dei)ression of the Beventies, and then increased suddenly from about 179,000 in 1879 to nearly 789,090 in 1882. Several causes contributed to this unprecedented influx. Prosperty was returning in the United States; Germany was undergoing an economic depression ani contributed more than 250,000 immigrants in the single year 1882; the movement from the Scandinavian countries reached its greates height, and finally the subsequent great movement from Italy and Austria-Hungary was already de^•eloping. EMERGENCY IMMIGRATION LEGISLATION. 619 Then come? a 20 years' period of peaks and depressions, due very largely to varying .economic conditions in the United States, including the hard times of 1893; but this period is particularly interesting from an immigration viewpoint because it witnessed the rai)id shifting of the principal sources of our immigration from northern and western Europe— which furnished 71 per cent of the immigrants in 1882 and only 21 per cent in 1902 — to southern and eastern Europe, which furnished 11 per cent of the total in 1882 and 75 per cent in 1902. Following this, the wave increased until it reached the total of 1,285,349 immigrants in 1907; receded during the disturbed economic condi- tions of the following years, and rose again to 1,218,480 in 1914, the second highest pinnacle. Then came' the World War, which practically closed the floodgates in Eu- rope, until in 1918 immigration reached the lowest level since 1862. Chart 2 shows the trend of immigration from various countries during the last 100 years. It will be noted that in the beginning the great bulk of our immigrants came from the United Kingdom. Germany sent less than 1,000 in 1820, but later the move- ment from that country increased rapidly, and during the 50 years following 1840 there is a somewhat striking uniformity in the columns representing those two sources, although the tide from the United Kingdom actually reached its highest point in 1851 and that from Germany not until 1882. During the 25 years before the outbreak of the World War German immigration was small and practically uniform, wiiile that from the United Kingdom has varied considerably from year to year and on the whole has been much larger than that coming from Germany. Immigration from Scandinavia was a much slower development, but from 1880 to 1900, and even later, the column representing it is not greatly unlike those representing Germany and the United King- dom, although the movement was very much smaller. An interesting feature of chart 2 is found in the columns representing Italy, Austria- Hungary, and Russia. These begin at about the same period and follow very similar outlines until since about 1900 they overshadow all other countries. The columns representing Greece, Turkey, and Mexico show somewhat similar outlines but on a much smaller scale, and the same is true of British North America. The following figures will afford a convenient means of comparing immigration from the six principal sources represented on the chart during the 100-year period under •discussion: Country. Total immi- gration. United Kingdom ! 8,205,675 Germany : 5, 494, 539 Italy I 4, 100, 740 Austria-Hungary I 4, 068, 448 Per cent of total. 24.7 10.6 12.4 12. 3 Country. Total iinim-i Percent "ration. 1 of total. Russia Scandinavia Other countries 3,311,400 2, 134, 414 5,884,887 10.0 0.4 17.7 In this connection it may be of interest to review briefly Federal laws for the regu- lation of immigration. Prior to 1882, when the Federal Government first assumed ■definite control of immigration, the movement was practically unregulated, although .at times, particularly during the great influx of the forties and early fifties, there was a strong demand for legislation, and while Congress gave some consideration to the .sul)ject it took no action. Some of the seaboard States repeatedly attempted to assume some degree of control over the influx which poured through their ports, but in most, if not all, of these cases their laws were rendered of no avail by adverse court decisions, and the plan v\-as finally nullified by a decision of the United States Supreme Court, which declared in effect that the States were without power under the Constitution to tax or otherwise to regulate the coming of passengers into the country. In the same decision the court pointedly suggested that Congress ought to assume and exercise full control over the subject. Previous to this, in 1875, Congress had enacted a law pro- hibiting the immigration of prostitutes and convicts, but this was especially aimed at the importation of Chinese prostitutes, and it was not until 1882 that the first general immigration law was enacted. The act of 1882 imposed a head tax of 50 cents on each alien, and excluded idiots, lunatics, persons likely to Ijecome a public charge, and convicts, except those con- victed of political offenses. The Secretary of the Treasury was charged with executing the act, but immediate control was delegated to State boards. The importation of laborers under contract was forbidden in the law of 1885. A general immigration law, enacted in 1891, added somewhat to the excluded classes and provided for inspection and control by ['nited States oQicers rather than by boards made up of State oflicials. This law was amended in some particulars in 1893, and the acts of 190;), 1907, and that of 1917, which is now in force, were all general revision which added to the excluded 620 EMERGENCY lAIMIGKATlOX LEGISLATION. classes, increased the head tax, extended control over th(i admission of immigrantf and the deportation of undesirable aliens after their landing in the United States, until under the present law the list of those who are inadmissible includes about 30 more or less distinct classes. ltsh)iild be pointed out that, fundimentally, the United States immigration law is bised on the th^^ory of selection rather th-^in restriction. It is true that the new law of 1917 increased somewhat the number of excluded classes and took a long step by denying admission to illiterates, but it is still selective in theory, and the fact that illiterates may not come will not prevent others from taking their places. The new law. however, provides safeguards of another nature which it is hoped will prove effective. For one thing, it seeks to prevent the promotion of immigration by steamship compmies. by imposing fines on the guilty and even dt^nying them the right to bring any immigrants to Unit3d States ports. It also aims to protect immi- grants by reqiiiring carriers to return passage money paid bv certain classes of inad- missible aliens, not to the immigrant but to United States officials for the immigrant. These arc not directly restrictive proA-isions, but they should prove highly beneficial in helping to insm'e that immigration shall be normal and natural rather than stimu- lated, and also to insure that at least some immigrants who can not meet the test of our laws shall be saved the disappointment and cost of a fruitless voyage across the ocean. Beginning with the fiscal year 1899, arriving aliens have been classified by races or peoples as well as bv coimtries of origin, thus affording a valuable record of the ethnological status of the foreign elements which are added to oiu- population, and since 1908 a detailed record has been made of all aliens leaving the country, so that it is now possible to determine to what extent the various races or peoples contribute to the permanent population. The policy of excluding Chinese immigration was adopted in 1882 and is still in force, with the residt that oiir population of that race has steadily declined; and in 1908 the passport agreement with Japan, the piu'pose of which was to prevent the coming of laborers from that country, was concluded. In enacting the law of 1917 Congress extended the policy of excluding oriental labor by means of a proAdsion which in effect bars immigration of this nature from India and other parts of the Orient not already covered by the Chinese-exclusion laws or the agreement with Japan. This subject is discussed at some length elsewhere in this report. * Review or World Immigration. The ending of armed hostilities in Europe and the promised return of normal con- ditions in the world have naturally aroused much interest in the question of future immigration, and perhaps no one of the many intern.ational activities which have been affected by the great struggle presents a more complicated or important situation. The war has created new immigration problems, as it has also afforded an opportunity to view old problems from a new angle, and accordingly it is believed that the present is an appropriate time for reviewing, in the light of the bureau's experience, the world situation, so far as it may concern immigration to the United States. The discussion which follows deals largely with the probabilities of futm-e immigra- tion from Europe, and the possible influence the war may have on its extent and character. The war has had little or no apparent effect on the situation so far as immigration from the Orient is concerned, but this subject is nevertheless a very interesting one, and accordingly the development and present status of the movement from China, Japan, and other parts of Asia are discussed at some length. Immigration from Canada. Mexico, and other countries also is considered. THE EUROPEAN SITUATION. During the century for which records of our immigration are available approximately 89 per cent of the movement came from Europe; 2.4 per cent from Asia, and somewhat less than 9 per cent from other sources. The proportion of Europeans varied somewhat at different periods, l)ut as a rule it was more than 90 per cent of the total. Numeri- cally, therefore. Europe was. up to the outbreak of the war. by far the most prolific source of our immigration, and undoubtedly its preponderance in that respect will be resumed when normal conditions are again established. • The history of European immigration is a familiar one. but as a basis for what follows, a brief review of the extent and character of that unprecedented movement will not be out of place here. As already stated, nearly 90 per cent of all our immigration has come from Europe, which means in round numbers approximately 30.000,000 souls during the past EMERGENCY IMMIGEATION" LEGISLATION. 621 rentiiry. The Ignited Kingdom furniphed the largest niiml-er. approximately 8,200,000, of whom nearly 4. 350.000 came from Ireland, (lermany followed ^vith nearly 5, .^00, 000 immigrants, and then come Italy, Austria Hungary. Russia, and the Scandinavian countries in the order named. Prior to 1870 nearly ail our European immigrants came from northern and western nations, which is to say. Belgium. France, Germany, the Netheilands. Scandinavia, Switzerland, and the I'nited Kingdom. Up to that time, in fact, approximately fi. 648. 000 came from such sources, compared with less than 70,000 from other European countries, comprising Austria-Hungary, Bulgaria. Serbia. Montenegro. Greece. Italy, Poland, Portugal, Rumania. Russia, Spain, and Turkey in Europe. Immigration from Asiatic Turkey is also included with the latter, as the peoples coming from that source are racially more closely related to some of the southeastern Europeans than they are to other Asiatic races who have come to this country from the Far East. In what folloM's. therefore, immi- gration from Turkey in Asia is included in .southern and eastern European immigration without so specifNing in each case. In the decade 1871-1880, when in round numbers 2,071,000 immigi-ants came from northern and Avestern Europe, the numl>er from southern and eastern countries had increased to about 201,000. In the next decade. 18S1-18W, the numbers admitted from these sources were 3.770.000 and 960.000. respectively. This is the last decade in which immigration from the older sources was in the majority, for in the 10 years 1891-1900, the northern and western countries sent 1,644.000 compared with a southern and eastern European contribution of 1.942.000. A much greater change, however, is shown in the records of the next decade (■1901-1910) when 6.300.000 came from the new sources and only 1,911.000 from the old, and these proportions continued up to the outbreak of the war in 1914. It is a commonly known fact that during the years when this change was taking place in the immigrant tide the industrial life of the United States was also revolu- tionized, and that southern and eastern European immigrants played an important part in that unparalleled development. In fact, the new stream of immigration from its beginning has been essentially a more or less temporary movement to indus- trial centers and the cities, and although the immigrants came mostly from the farms of Europe, comparatively few of them have shown an inclination to go to the land here, either on arrival or afterwards. On the contrary, the old immigration came during a period when agi'icultural development was in the ascendency; was dis- tributed to nearly every part of the country: went into all branches of industry, and as a rule the immigrants became permanent home makers. In another section of this report there is a brief review of our immigration during the past 100 years, and in that connection the development of our laws upon the subject is explained. It is there pointed out that about 30 more or less distinct classes of aliens are now debarred from the country. This list includes all classes of physical and mental defectives, moral delinquents, anarchists, laborers coming under contract, and finally, under the new act. illiterates; but the law does not limit the number who can come provided they meet the prescribed tests. Therefore, unless immigration is actually restricted by the United States or emigration restricted or forbidden by European countries, the extent of the movement in the future, as in the past, will depend very largely on whether the drawing power of this country continues to be greater than the holding power of Europe. How the situation will be affected as a result of war is problematical, and the history of our past immigration affords no really substantial criterion as a basis for speculation. We have no statistical data prior to 1820 which would make possible a survey of the effect the Napoleonic wars and our second war with England may have had on immi- gration, but it is said that following 1815 there was a sudden influx which reached the then unprecedented total of 17.000 in 1817, and it is worthy of note that most of these came from a nation with which we had ju.st been at war. On the other hand, immigration decreased following the Crimean War. but this is readily attributable to conditions in the I'nited States rather than to any influence that that far-away war may have had on the sources from which we were then drawing immigrants. The Pru.ssian and Austrian war against Denmark and the strife between Prussia and Austria which followed were of brief duration, but these, with the subsequent Franco-Prussian war. and the final events in Italy's struggle for national unification created a disturbed condition in Europe which affords at least some grounds for comparison with the present situation. The events alluded to occiuTed during the period 1864-1871, so that the time cohered was somewhat longer than in the case of the present war. The countries directly affected were Austria, Germany, France, Italy, and Denmark, and the following compilation will show the trend of immigra- tioil from such sources during the disturbed period and following it: 622 EMERGENCY IMMIGRATION LEGISLATION. Immigration from countries named, by years. Year. .Viistria- Ilungary. Germany. France. Italy. Denmark. 1866 87 392 553 1,499 4,425 4,887 4, 410 7,112 8,850 7,658 6,276 5, 396 5,150 5,963 17,267 27,935 29.150 27,625 120,218 124,076 122,677 131 , (M2 118,225 82, 554 141,109 149,671 87,291 47, 769 31,937 29, 298 29,313 34,602 84, 638 210, 485 2.50, 630 194,786 5,724 5,8S6 5,119 3,879 4,007 3, 137 9,317 1 1, 798 9, (543 8,321 8, 002 1,318 1,58,5 1,519 1,489 2, 893 2,816 4, 190 8.757 7,667 3,631 3.017 1,092 1867 2,031 1868 1,596 1869 3,649 1870 4,083 1871 2,015 1872 3,699 1873 4,931 1874 3,082 1875 2,656 1876 1,.547 1877 5, 8.56 3. 195 1,695 1878 4, 159 4,655 4,313 5,227 6,003 4,821 4,344 5,791 12,354 1.5,401 32,160 31,792 2,105 1879 3,474 1880 6,576 1881 9,117 1882 11,618 1883 10,319 It must be confessed that there is comparatively little in the foregoing figures which can be confidently pointed to as indicating the effect the wars of 1864-1871 may have had on immigration. In the first place, the period began toward the close of our own war between the States, which had stemmed the tide of European immi- gration for several years, and a subsequent increase in the influx from former sources was oniy natural. It is also true that during the financial and industrial crisis of the seventies, immigration from all of the countries, except Austria-Hungary, fell away, and, except in the case of France, increased sharply when favorable conditions pre- vailed again in the United States. However, the figures reveal some interesting and po.ssiblv significant facts. Immigration from Germany, or rather from the loosely confederated States then called Germany, had assumed great proportions following the revolution of 1848, reaching a total of 215,000 in 1854; but it fell to 72,000 in the following year and was even much smaller until the close of our CiA'il War. It reached a total of 131,000 in 1869 and of 118,000 in 1870; dropped to 82,500 in the war year of 1871 but immsdiately I'ose to 140,000 in the following year and to 150,000 in 1873. Turning to France, it will be noted that from an average of 3,600 immigrants in the three years 1869-1871 the influx rose to an annual average of 11,250 in the three years following the conflict. These figures suggest that, in this instance at least, war, regardless of victory or defeat, may have been an actual incentive to immigration. Previous to the period under consideration the Italian States had never sent us more than a handful of immigrants in any >ear, buticma_\ be noted that as soon as the unity of Italy was fully accomplished the flow from that country began to increase, and this increase continued, until at the outbreak of the war it was one of the chief sources of our immigration. Thus, Italy affords another example where victory was followed by a great exodus of the victors. But it will also be noted that Austria, which had feuffi red a severe defeat at the hands of I'russia in 1866 and lost Venezia to Italy, as she had lost other Provinces a few years previously, followed the example of victorious Italy in the matter of emigration, for the close of the disturbed period under consideration witnessed the beginning of a mighty stream of overseas emigration from the dual empire which continued undiminished up to ^he besinnin? of the world conflict. The movement from Denmark increased during the late sixties and early seventies, declined during our period of depression, and rose again in the eighties, but this was true of all Scandinavian immigration, and presumably it was little inlluenced by the war with Prussia and Austria in 1864. Coming now to the; present situation, it may be stated that at the outbreak of the World War our immigration from Italy, Austria-Hungary, and Kussia. not to mention Greece, the Balkans, and Asiatic Turke>-, had reached a stage which closely corre- sponded with the influx from Germain- in 1871. That is to say, the movement from those countries was at flood tide and promised so to continue for years to come, t'on- sequenth', if history rei)eats itself, we ma> reasonably expect a repetition of the Ger- man experience unless, of course, artificial barriers are erected either by the coun- tries themsehes or by the United States. There is, however, a highly important factor which ])resiimably affected Cierman immigration only to a limited degree, but EMERGENCY IMMIGRATION LEGISLATION. 623 which now must be taken into account, and that is the political state in which central and eastern Europe find themselves as a result of the war. This factor may ha^e a powerful influence on future immigration from such sources, including even Ger- many itself. Economic 2)ressure and political unrest and oppression are all potent j^romotors of emigration. The first, of course, accounts for the greater part of the enormous move- ment from Europe to the New World, but the effect of the German revolution of 1848, and other political disturl)ances. in this regard miist not be overlooked, nor can we forget that oppression, as well as economic causes, was behind the great Jewish influx from Kussia and Paimania. At the present time disturbed economic and political conditions both prevail in intensified form over a great part of P^m-ope instead of only locally as in the past. The situation in the various countries of Europe, as the bureau views it, may be briefly stated. As already pointed out, the first extensive immigration from Gennany was largely due to political causes, while the great OAerseas movement from that coimtry follow- ing the Franco-Prussian War was essentially economic, and practically ceased with the stabilization of conditions in that respect. But the close of the ^^ ar finds the former empire in the midst of a crisis which involves both of these factors, and it is not unrea- sonable to supi)ose that they will operate to reestablish Germany in the category of immigrant furnishing nations. On the other hand, Germany lost upward of 2,6()0,000 men in the war. a loss which has appreciably decimated the age and occupational groups from which most inunigration springs. Moreover, it is not impossible that the classes which are most prone to emigrate may see hope for themselves and their chil- dren in the changed political status of the fatherland and willingly endure the inci- dental hardships of reconstruction on that accoisnt. But it is just as reasonable to suppose that there are many, perhaps a multitude, of another class in Germany, including army and navy ofhcers, landowners, small capitalists, and others, upon whom the burden of changed conditions will fall so hea-\ ily that they will resort to emigration for relief, while still others will be similarly influenced by the new polit- ical status of the country. The last mentioned classes may be deterred from emi- gi-ating by reason of inaliility to transfer material possessions from Germany, but on the whole the bureau believes there will be an increased, and perhaps a greatly in- creased, emigration from that source, and it also believes that the tide will largely set toward the I nited States, just as it did in earlier days. The situation in what was once Austria-Hungary is bewilderingly complicated, and it is difficult to estimate what the effect on immigration may be. In 1914 — and that year was fairly typical of immigiation from Austria-Hungary in previous years- — as many as 10 races or peoples each contributed largely to the 244,000 who came from that Empire. These included, in round numbere, 49.000 Poles, 43,700 Mag^-ars, 35,000 ("roatians and Slovenians, 32,000 Ruthenians, 29,000 Germans, 25,300 Slovaks, 22,000 Rumanians, 20,400 Hebrews, and 9,300 Bohemians and Moravians. Now the former Polish population, and the Jews as well, are mostly in reconstructed Poland; the Bohemians, Moravians, and Slovaks are in (V.echo-Slovakia: the Croatians and Slovenians are largely transferied to other countries, and presumably most of the Rumanians in Hungary and the Ruthenians will also come under changed sover- eignty. Therefore, the population of the two countries is largely reduced to Germana and Magyars, the latter being the native race of Hungary proper. There are still a good many Jews in both countries, as well as remnants of otlier peoples, but in Austria the Germans and in Hungary the Magyars are overwhelmingly predominant. There is a considerable German element in Hungary's population, however, and in fact the Germans in our Austro-Hunuarian immigration ha^ e come larselv from Humrarv in recent years— 86,000 out of a total of 122,000 in the five years 1910-1014. Although the boundaries of the Austria of the future are not definitely determined at this writing, population, as already stated, will be predominantly German, and the above figures indicate that they, like the Ciermans of the Fatherland, haAe not emigrated to the United States in large numbers in recent years. If current reports may be accepted, however, the war has left Austria in a most distressing economic condition, and a people so placed almost invariably seeks relief through emigration. On the otlier hand, a large part of the population of Austria is now in the single city of Vienna, and, »s a rule, the dwellers in great cities have not emigrated. As a matter of fact, the population of such cities is made up largely of people who went there from the country or smaller towns in preference to emigrating to another land. HoM'ever, if Vienna, inider the new order of things, is to be deprived of its former commanding commercial position in central and southeastern Eiu"ope, it may be expected that its population in large numbers will seek refuge elsewhere, but whether the drift will be toward the United States or to other European countries is uncertain, although it 024 EMERGENCY IMMIGRATION LEGISLATION. seems reasonable to expect that, in common with the rural peoples, these city d^veller8 may turn to the New World as a refu<,'e. Political developments may also have an important effect on emimation from Austria, but the present situation affords little intlication of what may be expected in that reu'ard. The population of Ilunt^ary proper is much more rural than that of Austria and tliere- fore more likely to emianiF)i-j\merican \\'ar. and tJiis readied its hif^hest point in 1917, wlien 10. 282 immifjrants came from tliat counlrv. The num- ber, however, fell to 4,295 in 1918 and 1,57:5 in 1919. Portugal, or rather the Portu- guese Islands, is a more important source of im.miijration, for since 1899 it has fur- nished about l.'iO.COO compared with ahout 78,0(10 coming from Spain. The Portu- guese movement fell from 12.259 in 1916 and 9,975 in 1917 to 2,224 and 1,222, respec- tively, in 1918 and 1919. This decline was no doulit largely due to war conditions, but in all probability the application of the illiteiacy test of the act of 1917 in the last two years was in part responsible, for Portuguese immigi'ants in the past have showed a higher degree of illiteracy tlian any other race. In 191G, the year before the new law became effective. 58 per cent of our Portuguese immigrants 14 years of age and above could neither read nor write. Therefore, the illiteracy test may liave an im]wrtant effect on this immigration in the future, but other-wise the movement from Portugal, as well as from Spain, may be expected to continue much the same as before the war. With regard to the United Kingdom the bureau believes we may expect a continua- tion and perhaps an increase of immigration from that source. England has long been an important emigrant-furnishing country, and while her overseas dorriinions have attracted the majority of them in "recent times, the United States has always received a generous share. On the contrary, this country has always been the chosen haven ofa large majority of those leaving Ireland, but this movement is now little more than a sliadow of what it was in earlier days. It is expected that with the return of peace there will l)e a considerable movement of deferred immigi-ation from the United Kingdom, as well as from otlier countries, but it is also true that Great Britain, like the rest of Europe, is struggling under heavy war burdens and that many of the so- called middle classes, as well as laborers, may resort to emigration as a means of es- caping them. So far as the neutral countries are concerned, it is expected that there will be a coi - siderable influx of the so-called deferred immigration mentioned in connection with the situation in (:lreat Britain. Holland and Svdtzerland have never contiibuted largely to the innnigTant tide, and the bureau does not look for much, if any, change of a permanent nature in that regard. Neither does it look for much change in the movement from the Scandinavian countries, which have been important sources in the past, although there will doubtless be more or less deferred immigi-ation following the complete restoration of transportation facilities. From a general survey of Europe, therefore, the bureau finds factors growing out of the war which may retard immigration and other factors which may promote it. On the one hand, it is found that perhaps 8,000,000 men of the age groups from which most immigrants come w ere lost in the conflict, while millions more were maimed or dis- eased to an extent vrhich might make their immigration impossible under our laws. On the other hand, Europe is laboring under heavy burdens which may render it difficult for those who remain to make aliving. and the promised reduction of standing armies and armaments will add to the difficulty In- releasing millions for the pursuits of peace who otherwise would follow the unproductive pursuits of war. Thus it is- believed that future immigi-ation will depend primarih- on the ability of European countries to )3rovide profitable employment for those who have survi\ed the war and those who hitherto have been occupied in the pursuit of war. The biireau finds, further, that the realization of long-sought political freedom may at least temporarily retard the immigration of various" important immigrant peoples, such as the Poles, Slovaks, and others, liut on the contrary it is felt that the forcible transfer of many peoples, like the Germans and Russians, to the sovereignty of Poland and other coun- tries may stimulate the immigration of such classes. War weariness, among victors and vanf|uished alike, is another factor which the bureau believes may be a powerful incentive to immigration. It realizes that the people of Europe generally are tired of war and as a rule not inclined to believe that permanent peace is now assured. They know that their fathers and grandfathers have been obliged to bear the burdens of recurring conflicts; they themselves have repeated the exnerience, and now they fear that their children are destined to a like inheritance. Therefore many look to this" country as a land of peace, where they and their children will be free from the constant menace of armed conilicta. Taking up the probable future attitude of the j)eople of enemy countries toward coming to the United States, the bin-eau may refer to the sudden influx which canrie from the I'nited Kingdom following our second war with England and the increase in Spanish immigration since 1898 as an indication that such differences are soon for- gotten by the immigrant classes. It may be pointed out that during the entire period from 1820 to 1898 our total immigration" from Spain amounted to somewhat less than* EMERGENCY IMMIGRATION LEGISLATION. 627 41,000, while more than 78,000 have come from that country in 1899-1 919. Judging: from this experience and also from reports of observers who have visited Germany since the armistice, the bureau is convinced that such animosity as exists toward the United Btates as an enemy will not in itself seriously deter immigration from that coantr>% or Austria and Hungary as well, after the friendly influences of commerce are again in oj/eration. Another condition which may play an important part in our future immigration from Europe is the position in which the Jewish peoples in various countries find them- selves as a result of war-changed sovereignty. Russia has long been the chief source of our Jewish immigration, for out of a total influx of 1,480,000 of this people during the 16 years 1899-1914, 1,066,000 came from that country. A large part of this immigration originated in what is now Poland, and if the conflicting reports concerning recent anti- Semitic outbreaks in that country are even in part true, it will be perhaps even greater than it was under the fonner Russian control. There are conflicting reports also con- cerning the status of the Jews in othei«parts of Russia. It is knoAvn that after the revo- lution thev were given freedom to leave the Jewish pale, and even before that many had been forced from their usual habitations into the interior of Russia. It is also re- ported that they share v.-ith other jeopl?s such political liberty as the present Soviet Government affords. On the other hand, a large part of the Jews in Russia are subject to the shifting fortunes of the so-called Government of the Ukraine, and reports of anti-Semitic outbreaks have also come fi-om that section. If peace brings them equality of rights, choice of residence, and religious freedom, it is felt that the Jews may become peniianently absorbed into the population, but unless these things are realized tfap bureau looks for another and even greater exodus than has occurred in the past. In the foregoing the bureau has considered the general aspect of the emigration situation in Europe wdthout reference to the subject of legal control on the part of the United States or the possibility of regulation on the part of European countries. It has been suggested that the warring countries might forbid or restrict emigration in order to prevent their people from escaping the burdens of war and reconstruction, but heretofore nations have almost invariably recognized the right of emigration. Theoretically, Russia did not recognize the right of her people to leave that country and reside iii a foreign domain, but the fact that for many years it was one of the chief sources of our immigration proves that the law was essentially a dead letter. The bureau anticipates that restraint may be attempted in some cases, but it does not look for an actual denial of the right of emigration by any nation. It expects and hopes, however, that the nations generally will prevent the promotion of emigration by transportation and other agencies, a practice which flourished in some countries prior to the war. Germany may be cited as a country which did not permit such promotion, and it is believed that the small emigration from that countrj- partially resulted fi-om such inhibition. Some concern has been caused by the recent revival of alien emigration from the United States, quite forgetful of the fact that emigration is no new thing, for between 1908, when official records of outgoing aliens begin, and the outbreak of the war, 36 aliens left the country for every 100 admitted, while records of the Transatlantic Passenger Association show that during the 22 years 1899-1910 as many as 37 steerage passengers were carried from the United States to Europe for every 100 brought in the opposite direction. During the 5 years of war 530,000 aliens returned to Europe, whereas tlie normal movement, based on previous experience, would have been in the vicinity of 1,500,000, and it is reasonable to suppose that many more whose home- going has been deferred will depart whenever ocean passage is available. That many should desire to go to their native lands to visit relatives, look after property, or to bring over their families is only natural, and following the signing of the armistice there was an indication that an exodus of this nature would occur. Reports which have reached the bureau, however, indicate that disturbed conditions in Europe have led many, to postpone if not to abandon such purpose. THE ASIATIC SITUATION'. The record shows that a single immigrant from China arrived in 1820, the first year covered by our immigration statistics, and that up to and including the year 1853 a total of only 88 came from that countrj-. But the foUoAving year witnessed the real beginning of What was to be the first race problem in the West, for in 1854 immigra- tion from China amounted to 13,100 souls. The discovery of gold in California, which attracted people from nearly everj- country in the world, brought the Chinaman also. The influx was practically unrestricted for 30 years, and during that period (1854-1883) more than 288,000, or an average of 9,600 a year, arrived. But the im- 26911— 21— FT 13 4 628 EMERGENCY IMMIGRATION LEGISLATION. migration Avas checked as suddenly as it began, with the adoption of exclusion, for in 1884 only 279 and in 1885 only 22 immigrants from China ^vere admitted. During the 35 years since the first exclusion law became fully effective —that is, from 1884 to 1910— the total immigration from that country has been, in round numbers, 56,500, or an annual average of about 1,G00, showang that exclusion measures have materially reduced the number. As shown by statistics, during the 12 years (1908-1919) that records of emigration as well as immigration have been kept, the number of aliens departing for (^hina has slightly exceeded the number admitted from that source. It is also interesting to note that, according to census records, the number of Chinese in the United States has decreased quite rapidly in recent decades, as the following figures gi^■ing th.e number of natives of China in our population at various census periods will show: 1860 35,565 1870 63,042 1880 104, 468 1890 106, 701 190Q 81,534 1910 56,756 It may be expected that the census of 1920 will re\'eal a further decrease, for. as already stated, emigration has exceeded immigration, and, a ereat jiart of our Chinese population being of advanced age, the decrease by death has doubtless been com- paratively heavy. This should be the natural result, but os failure to be enrolled has not constituted an offense, or cause, in case of aliens, for dej'ortation, there is no question that more of this people, and those hereafter mentioned in this subdi\asion. are in the country than were listed on the respecti^'e decennial census rolls. The story of how Chinese exclusion was brought aboiit is an interesting one. .\s earlv as 1852, even before the larger movement began, the go\ernor of California advised that Chinese coolie immigration be restricted, and in 1S55 the State legisla- ture enacted a law imposing a head tax of S55 on every immigrant of that race. This was followed in 1858 by a law forbidding Chinese or Mongolians to enter the State, and later by other restrictive enactments, but all such legislation was declared uncon- stitutional" bv the California Supreme Court, and finally, in 1S76, by the Supreme Court of the tTnited States. After this decision the people of the Pacific Coast States turned earnestly to Congress for relief. A congressional inquiry took place in 1876-77; the California Ledslature appealed to the Ts'ational Government in 1877 and 1878, and Pacific coast Members made a vigorous effort for exclusion legislation. In 1879 Congress passed a bill lim- iting the number of Chinese who could come to the United States in any one ve?sel to lo, and repealing the favored-nation clause in the Burlingame treaty of 1868. which pro\'ided for free immigi-ation and emigration between China and the United States, but President Hayes vetoed the measure. In 1880 anotlier treaty was concluded with Cliina which gave the United States the right to "regulate, limit, or suspend '' the immigration of ( liinese laborers, but not to "absolutely prohibit it "' In 1882 Congress sought to take advantage of the new treaty's prmisions and passed a bill suspending the immigration of Chinese laborers for 20 years; this was vetoed by President Arthur. Later in the same year, however, a bill providing for a 10 years' suspension of such immigration, but giN-ins: the right of reentry to Chinese lawfully in the United States, became a law, and in 1884 another law was enacted which strengthened the law of 1882 in some particulars. In 1886 China indicated a desire to negotiate a treaty to prohibit the emigration of Chinese laborers to the United States, even including laborers who had been in this country and returned to China. Such a treaty was drawn, and signed oii March 12, 1888, its provisions being that Chinese laborers" should l)e excluded for 20 years, and that those who returned to China would not be permitted to reenter unless thev had left in the United States a wife, child, parent, or property to the value of ?1,000. An effort was made to enact the provisions of the treaty into law in an act approved September 13, 1888. but Cliina's linal refusal to ratify the comjiact without amend- ments nuUided its vital parts, and as a result the Scott law of October 1, 18S,8, was passed, which closed the doors even against returning Uhijiese, so that ]-)ractically complete exclusion was then pro\-ided. In 1892 the famous Geary Act was enacted which extended the exclusion act of 1882 for another 10 years, and made various amendments and Uiaterial additions, including a J)ro^•ision requiring the registration of all ('liinese laborers within a certain period. Following this legislation, China again opened negotiations for a new compact, \\dth the result that on December 8, 1891, a treaty was proclaimed wliirh jirovided for the exclusion of all Chinese laborers for 10 years, except returning laborers having a wife, child, parent, or proj^erty worth $1,000 in this country, thus iiullif\-ing the drastic proxisions of the Scott law of 1888, which refused departing Chinese of every class the right to return. EMERGENCY IMMIGRATION LEGISLATION. 629 In 1902 a law was enacted which extended all Chinese-exclusion laws then exist- ing, including the Geary Act, "without modification, limitation, or condition," and in 1904 such laws were made applicable to the insular possessions, and Chinese immi- gration from such possessions to the mainland or from one island grouji to another was jjrohibited. The only classes of Chinese aliens now admissible to the United States are teachers, students, travelers for curiosity or pleasure, merchants and their lawful wives and minor children, officials of the" Chinese Government and their body and household servants, persons holding return certificates, persons passing in transit to sorne foreign country, and those whose physical condition necessitates immediate hospital treat- ment. During the fairly typical year of 1918, when 1,576 Chinese immigrants were admitted, the principal occupations represented were as follows: Professional pursuits (JO, laborers 127, merchants and dealers 5t)4, servants 17, miscellaneous 477, and of such as gave no occupation, including women and children, 331. Chinese women have never come to the United States in great numbers and in 1882, when the influx from China reached its highest point only 116 females were among the 39,579 immigrants arriving. The proportion of women in recent years has been larger than formerly, but the average annual admissions are now only about 260, and according to the census of 1910 the population of continental United States included only 1,788 females who were born in China, and a few of these were not of the Chinese race. Putting it in another way, there were in 1910, 3,074 males to every 100 females in our Chinese-born population. Xo other people showed such a wide disparity in this regard, the nearest competitors being the ^Montenegrins with 1,833, and the Bulgarians and Greeks with, respectively, 1,540 and 1,193 males to every 100 females, while among oriental peoples other than Chinese, the Japanese showed 870, and natives of India, 427 males per 100 females. This lack of women is obviously an important factor in the situation because it insures a slow increase in the native-born Chinese population. Turning to the more recent movement from Japan, it is interesting to note the trend of such immigration before and after the adoption of the so-called passport agreement under which the admission of Japanese to continental United States has been regulated during the past 11 years. Japan appears in our immigration statistics for the first time in 1861, when one person was admitted from that country, but the movement did not become important until much later, as the following record of admissions by decades since 1860 will show: 1890-1899 13, 998 1900-1909 139, 712 1910-1919 77, 125 1860-1869 137 1870-1879 193 I880-I889 1,583 The census records mention Japan for the first time in 1870, and the number of natives of that country in the United States at that and subsequent census periods was as follows: 1870 73 I 1900 24,788 1880 401 1910 67,744 1890 2,292 I The above immigration figures include the movement to Hawaii as well as to the mainland since 1900, while the census figures relate only to continental United States. The number of native-born and foreign-born persons of the Japanese race in Hawaii in 1900 and 1910 follows: 1900 1910 Born in Hawaii 4, SSI 56,230 19,889 Foreign born 59,786 Total. 79,675 The immigration statistics above presented include persons of all races or peoples coming from Japan, but practically all were Japanese. Since 1899, as previously explained, all immigration has been recorded according to ethnological status, as well as by country of origin, and what follows concerns persons of the Japanese race only. It will be remembered that the passport agreement, which was made in 1907, pro- vides, in effect, that Japan will not issue passports good for continental United States to laborers, unless such laborers are coming to resume a formerly acquired domicile; to join a parent, husband, or children, or to assume active control of an already pes- 630 EMERGENCY IMMIGRATION LEGISLATION. aessed interest in a farming enterprise in this country. While tlie agreement relates only to immigration to continental United States, Japan soon voluntarily extended the same provisions to the movement to Hawaii, so tliat in effect all immigration of .Japanese laborers is subject to its terms. Nonlaborers, of course, are not affected and are free to come and go under the same conditions wliich o})tain in tlie case of aliens of other nationalities. During the 10 years prior to the agreement, or during 1899-1908, a total of 142,r)56 .Tapane.se immigrants were admitted to the United States and Hawaii, compared with 80, .532 admitted in the 11 years 1909-1919, and while there has been a considerable numerical reduction in the influx under the agreement, there is still a considerable immigration from .Japan. On the other hand, it is only possible to conjecture what the extent of such immigration might have been had it not been for the restraining effects of the agreement. .Japanese immigration reached the high-water mark in 1907, when .30,824 of that race were admitted, and it is altogether probal)le that in the absence of some restrictive measure it would have continued and very likely increased, parti- cularly during the years when the influx from Europe was so greatly reduced by the war. In 1909, the first full year under the agreement, only 1,-590 Japanese were admitted to continental United States, but the num})er increased (juite regularly year by year, until it reached 7,671 in 1919. Immigration to Hawaii has fluctuated considerably during the period since the agi'eement, 1,679 being admitted in 1909, 4,062 in 1914, and 2,385 in 1919. The influx as a whole — that is, to Hawaii and the mainland com- bined — increased from 3,275 in 1909 to 10,056 in 1919, or more than threefold. Con- sidering the two periods of time in another manner, it is pointed out that the annual average Japanese immigration to continental United States during the 10 years prior to the agi-eement was 7,261, compared to an annual average of 4,(i70 in the 11 years following. The average annual admissions to Hawaii during the same periods were 10,006 and 2,651. respectively, and to the United States and Hawaii together, 17,267 and 7,321, respectively. The Pacific Coast States continue to 'oe the destination of nearly all Japanese im- migiants, and 82.5 per cent of those admitted to the mainland since 1909 expressed the intention to reside there, compared with 88.5 during the preagreement period. California is far in the lead of other States, as shown Ity the fact that prior to the agree- ment 44.9 per cent were destined to that State, compared to 62.1 per cent during the past 11 vears. On the other hand, the proportion destined to Washington decreased from 37.1 per cent of the whole in 1899-1908 to 16.1 per cent in 1909-1919. The discussion up to this point has concerned only that class of alien arrivals known as ■■ immigrant aliens, ' ' or aliens whose permanent domicile has bepn in another country and who intend to reside permanently in the United States, Ijut the number of Japanese admitted to the mainland and Hawaii during the past 11 years also includes 36,196 persons — 31,534 males and 4.662 females — who were classed as 'nonimmigrant aliens." This latter class is made up of aliens making a temporary visit to the t nited States and alien residents of the United States returning from such a visit abroad, and there- fore not classed as immigrants. Aliens departing from the United States arc likewise divided into two classes, known as emiy:rant aliens and nonemigrant aliens; the former including permanent alien residents of the I'nited States who intend to reside per- manent'y abroad, while the nonemigrants include resident aliens making a temporary trip abroad and aliens leaving the country after a temporary- visit. It is a noticeaJile fact that the comparatively large influx of Japanese since the agreement is in a great measiue due lo the increased immigration of women. This is clerly brought out by published statistics, which show that 122.293 males were admitted during the preagreement period, compared with oidy 33.510 admitted under the agreement, while the total number of females coming in these two periods was 20,:'6.i in 1899-1908, and 80,.5:^2 in 1909-1919. Resorting again to amuial averages, it is .slunvn that before the agreement tlie average number of .Japanese females entering continental United States each year was only 688. but the average increased to 2.567 during the agreement. In the case of Hawaii the average annual number of females admitted was 1,926 before, and 1.708 after, the agreement, and for the mainland and Hawaii ccmbined, 2.614 prior to the agreement and 4.275 afterwards. The total number of Japanese aliens, immigrant and noiiimmigrant. admitted to Hawaii and the mainland in 1909-1919 was 116.728 and the total number of emigrant and nonemigrant aliens leaving was 97,849, showing an excess of arrivals over ilepar- tures of 18,879. In this connection it may be noted that 13.579 more males departed than arrived during the period, while among females the excess of arrivals over depar- tures was 32.458. The increased number of women is not considered surprising in view of the fact that the agreement lea^ es Japan free to grant passports to women coming to join husbands, EMERGENCY IMMKiRATlON LE(iISLATIOX. 631 although audi women may be of the lal)oring class and may become laborers here. In this connection, it may be pointed out that by far the largest number of the women thus admitted under the terms of tlie agreement are of the class usually known as "picture brides," and are alleged to be the wives of Japanese men already in the United States. Previous to May 5, 1917, if such female apj)licants were otherwise admissible under the general terms of the immigration law then in force and they presented passports issued under the agreement, admission followed only after the performance of a mar- riage ceremony in accordance with the laws of this country. This, in effect, allowed such a bride, while in an immigration station at a United States port, to qualify as the wife of a resident of the United States in order to become admissible under our immi- gration laws — something not contemplated either by its spirit or letter. In other words, a woman, no matter whence she might colne, arriving at one of our ports without possessing the qualifications required by our law for entry, might qualify by being permitted to do after arrival that which as one of the necessary elements for admission should have been a fact before arrival. This practice was not satisfactory either to the department or to the bureau. It became the subject of continued study, and when the present immigration act containing the illiteracy test was passed, it became imperative on or before the taking effect thereof (May 5, 1917) — ^as a percentage of the women who applied for admission as such wives had been found to be illiterate — to fix the legal status of these so-called picture marriages. In the absence of treaty provisions the validity of such a marriage is to be determined by the law of the place where it is contracted or celebrated, and if Aalid there it will, generally, be regarded as Aalid in any State or j::ountry in which the parties may subsequently reside, although invalid under the law of the subsecjuent domicile if contracted or celebrated there. It therefore became necessary to ascertain what was the law of Japan upon the subject, and whether that nation provided for and made legal a marriage contracted while one party to the marriage was living there on the date of the marriage and the other at the time was actually in a foreign jurisdiction. The department and the Bureau of Immigration accordingly made extensive investigations, as a result of which it was learned upon high authority that the Japanese law proAides for the complete legalization of the marriage ceremony upon official notification by the contracting parties and their witnesses to the Government registrar; that this notification may be either oral or in writing, and if the latter is the case, it is not necessary that the parties appear personally before the registrar, but the notification to him ma^- be made by a duly signed and sealed document, the place of actual residence of the parties not being material; that under this law it is possible for a Japanese man residing in the United States to contract a valid marriage ■ndth a woman residing in Japan by giAing official notification to the registrar in that country in writing over his personal signature and seal: that the woman who becomes a party to a marriage of this kind is always furnished with a certified copy of the family registry, attesting the marriage, upon which document the Japanese Government issues to her a passport as the wife of a Japanese resident of the United States. Accordingly the department (May 5, 1917), adopted the follo\\ang rule of administration: "That the validity of these marriages be recognized, unless or until it is definitely shown tha,t they are not legal marriages under the laws of Japan, or until it satisfactorily appears that the residence in the United States of one of the parties brings the con- summation of the marriage ceremony within the jurisdiction of our laws; that proof of such marriages be required, not only by a certified record of the registrar but also by a certified copy of the notification of marriage made out by the party to the same li"\dng in the United States; and that marriages at our ports be prohibited. " In pursuance of this rule passports issued to %vives of Japanese as above indicated are accepted, unless fraud or mistake in their issuance or presentation to immigra- tion officers is made to appear, and marriages at our ports nave not since been per- mitted.' It remains to be said that after 11 years of experience the bureau is of the opinion that, while the operation of the agreement has kept the immigration of laborers at a much lower point than otherwise would have been the case, it has not brought the degree of restriction which might have been, and probably was, anticipated by those who took part in its negotiation. This result, in the main, grows out of the terms of the agreement, rather than the manner of its observance by the governmental author- ities intrusted Avith its administration. 1 Information recently received by the bureau is to the effect that it is alleged Spain and Portugal allow the marriage of a resident of one of those countries with a resident of a foreign country by permitting representation of the latter by an attorney in fact appointed by power of attorney. 632 EMERGENCY IMMIGRATION LEGISLATION. THE ASIATIC BARRED ZONK. The Panifio Coast States were for a time face to face with an influx of East Indian laborers which, if it had not been checked, wonld have created another serious prob- lem. Nine immitrrants of this race were admitted in the year 1900, but the number increased until in 1910 it had reached 1,782. This was not a larcre number as immi- gration goes, but the coast States had seen other oriental immigration begin in a small way and develop to large proportions. Insistent demands for exclusion were made, and the Immigration Service utilized the then existing law to the fullest ex- tent in an effort to check the incipient movement until some means of stopping it altogether could be found. These efforts met with some measure of success, for the number admitted in 1911 was only 517, compared with 1,782 in the previous year, while in the next six years (1912-1917) a total of only 750 came. During this period Canada also restricted the immigration of East Indiansto a very small numl^er annually, and th? attitude of the Dominion helped materially to reduce the number coming to the United States, for it undoubtedly served to discourage the promoters of the movement from India to the western world. Various laws were proposed as a barrier against possible future immigration from India and this was finally accomplished through the so-called "barred zone" pro- vision in section 3 of the immigration act of February 5, 1917. This proAasion ex- cludes from the United States natives of the territory included within such zone not belonging to the exempted classes specified. The zone includes India, Siam, Indo-China, parts of Siberia, Afghanistan, and Arabia, the islands of .lava, Sumatra, Ceylon, Borneo, New Guinea, Celebes, and various lesser groups, with an estimated population of 500.000,000. The exempt classes consist of governmental officials, travelers for curiosity or pleasure, and persons of certain specified professional classes, so that, in effect, laborers only are prohibited. The actual boundaries of the barred zone include a portion of China, but the act provides that where immigration, regula- tion, or rather exclusion, is ' ' provided for by existing treaties " the geographical exclu- sion is not applicable, hence, China is not Avithin its scope. The act, however, contains the important stipulation that "no alien now in any way excluded from, or prevented from entering, the United States shall be aditnitted to the United States, " so that the status quo of exclusion is assured even if existing treaties should cease to accomplish that result. The bureau respectfully suggests consideration of the extension of the barred zone to such parts of Asia as are not now included therein nor affected by exclusion laws or agreements, and also to Africa and adjacent islands, so as to exclude inhabitants who are of the unassimilable classes or whose admission in any considerable number would tend to produce an economic menace to our population. The promised extension of existing spheres of influence, and the establishment of new spheres through mandatories or otherwise in various parts of the Eastern Hemi- sphere, will without doubt open means of communication which will inspire a migra- tory spirit among the people of those regions. Past experience has shown this to be true. Already there is considerable immigration of the classes indicated from the continent of Asia proper not now subject to exclusion laws or included in the barred zone, and also in a small degree from some parts of Africa. It is a well-known fact that as knowledge of the freedom enjoyed and opportunities offered in our country has penetrated remote corners of the earth, immigration therefrom has resulted, and it is certain that the same effects will follow with the opening up of these undeveloped lands along commercial and other progressive lines. In a period of transition, and while the spirit of emigration is still largely dormant among these peoples, lies our opportunity to insure protection for the future. Like the barred zone, these parts of the world have masses who can be spared from their home countries but whose immigration here in large numbers would overwhelm us. Let us fully potect ourselves first, and consider afterwards whether exemptions can be made with safety to our country. OTHER IMMIGRATION SOURCES. Canada. — The records of earlier immigration from Canada are very incomplete, but our census shows that as early as 1850 there were 147,711 natives of that country in our population. The number increased steadily at later census periods and in 1910 it had reached 1,204,037, including 385,083 French and 819,554 of other origin. Newfoundland had contributed an additional 5,080, but natives of Canada alone ranked fifth among our foreign-born peoples, being exceeded only by natives of Ger- many, Russia, Ireland, and Italy. This record indicates Canada's importance as a source of immigration. EMERGENCY IMMIGRATION LEGISLATION. 638 On the other hand there has been, particularly in recent veal's, a considerable amount of emigration from the United States to Canada, including both natives of this country and former immigrants, and the Canadian census shows that there were 303,680 natives of the United States in the Dominion in 1911, compared vrith 127,899 in 1901, and 80,915 in 1891. During the 11 fiscalyears 1909-1919 the total immigration from Canada to the United States, including returning American citizens, was approximately 1,288,000, compared with an immigration into Canada from the United States of 1,072,000, or a balance of about 216,000 in our favor. In the movement of United States citizens alone to and from Canada the balance is in favor of the latter, for during the past 10 years nearly 562,000 have gone there and about 307,000 have come to the United States. It should be understood that these groups do not include those who cross the border temporarily in either direction, but only those who come or go for expected permanent residence. The movement of alien immigrants from Canada to the United States is very largely made up of persons of northern and western P^uropean descent or birth, the chief elements in the order of their importance being the English, French, Scotch, Irish, German, and Scandiaa\'ian. Peoples of southern and eastern European stock form relatively a small part of the movement Mexico. — Immigration from Mexico is not very large, but it plays an important part in the labor supply of the Southwest. In fact, much of the movement is made up ot those whose coming and going is resulated by the demand for labor in the border States. The records show that in the past 20 years about 187,000 immigra;nts have been admitted from Mexico. The great majority of these were native Mexicans, but there is also a small movement of Europeans and Asiatics over the border every year. The immigration legislation of Mexico lacks the restrictive features of oiu" system, with the natural result that some diseased, criminal, or otherwise inadmissible aliens from Europe and Asia seek illegal entry over the Mexican border, making that border an exceedingly difficult field of work for the bureau. West Indies. — The West Indies, including Cuba, Jamaica, and other islands, have become quite an important source of immigration in recent years, the total admis- sions during the past 20 years being approximately 215,500. The peoples chiefly represented in this movement are African (black), who came mainly from Jamaica and the Bahamas; Cuban; and Spanish. As in the case of Mexican immigration, many of those coming from the West Indies are seasonal laborers, who find employment in Florida, but the development of steamship connections between the islands and north- ern ports has resulted in a considerable movement of Negroes who stay more or less permanently in New York, Massachusetts, and other eastern States. Central mid South America. — There is comparatively little immigration from Central and South America, the total number coming from these two sources in the last 20 years being 20,603 and 52,009, respectively. These are divided between the natives of the various countries, and Europeans who settle there for a time and then move to the United States. Although these countries have not been the soiu"ce of much immigration in the past it is expected that improved direct steamship com- munications will result in a considerable, perhaps a large, increase in the near futiu-e. .^//■ica.— Immigration from Africa has been unimportant, as it has averaged only about 750 a year during the past two decades. Most of those coming have been of European stock, althoush a few natives have joined in the movement. It is appre- hended, however, that improved transportation facilities may result in the opening up of Africa as a source of immigration, and, as mentioned elsewhere, it is recom- mended that the barred zone be extended to include that continent. Australasia. — Australia. New Zea'and, and TasTiania combined have contributed somewhat less than 22,000 immigrants in 20 years, the majority of these bein? of British stock. There has been no increase in the movement in recent years and there is little or no indication that these far-away countries vdW ever become a source of much immigration. [Extract from the Report of the Bureau of Immipration for the fiscal year 1920.] Immigration and Emigration in 1920. The statistical tables in Appendix I, as indicated by the complete table of con- tents which precedes them, show in much detail immigration to and emigration from the United States during the fiscal year ending June 30, 1920, and as they represent the first fiscal year since the beginning of the World War in which there has been any- thing like a normal movement from or to any part of Europe, the figures afford not only a basis for interesting comparisons with pre^Tious years, but also more or less reli- able grounds for speculation as to what may be expected in the future. 634 EMERGENCY IMMIGRATION LEGISLATION. Continuing a long-established practice of the bureau incoming and outgoing aliens are each divided into two classes, namely, immigrant and nonimmigrant aliens, and emigrant and nonemigrant aliens. In the compilation of statistics under this classifica- tion the foUownng rule is observed: Arriving aliens whose permaneTit domicile has been outside the United States who intend to remain permanently in the United States are classed as immigrant aliens; departing aliens whose permanent residence has been in the United States who intend to reside permanently abroad are classed as emigrant aliens; all alien residents of the United States making a temporary trip abroad and all aliens residing abroad making a temporary trip to the United States are classed as nonemigrant aliens on the outward journey and nonimmigrant aliens on the inward. An understanding of this rule is necessary to a clear comprehension of the statistics. In what follows some of the more important features of immigration and emigration in the fiscal year 1920 are shown in comparison with the inward and outward move- ments during five years preceding the beginning of the war, and in some cases during the war period. The first table shows the total immigration and emigration in each fiscal year since 1910. Total alien immigration and emigration, fiscal years 1910 to 1920. Year. Arrivals. Immi- grant. Nonimmi- grant. Total. Departures. Emigrant. Nonemi- grant. I Excess of I immigra- Total. 1910 1911 1912 1913 1914 191.') 1916 1917 1918 1919 1920 1, 041, 570 878, 587 838, 172 1, 197, 892 1,218,480 .326, 700 208, 826 295, 403 110,618 141, 132 430, 001 156, 467 151, 713 178, 983 229, 335 184, 601 107,544 67, 922 67, 474 101, 235 95, 889 I 191, 575 ! 1, 198, 037 1, 030, 300 1,017,155 1, 427, 227 1, 403, 081 434, 244 .366, 748 362, 877 211,853 237, 021 621, 576 202, 436 29.5, 666 333, 262 308, 190 303, 338 204, 074 129, 765 66, 277 94, 585 123, 522 288, 315 177, 982 222,549 282, 030 303, 734 3.30, 467 180,100 111,042 80,102 98, 68:5 92, 709 139, 747 380, 418 518, 215 615, 292 611,924 633, 805 384, 174 240, 807 146, 379 193, 268 216,231 428,062 817,619 512, 085 401, 863 81.5, 303 769, 276 50, 070 125, 941 216, 498 18,585 20, 790 193,514 While the foregoing figures need little comment it may be pointed out that the total number admitted in 1920 was largely in excess of the average annual admissions during the war. and more than two and one-half times as great as in the fiscal year 1919. During the five years preceding the war the annual admissions of both classes averaged 1,155,160, and it is noteworthy that even with several of the most important European sources of immigration still cut off and ocean transportation facilities still far from normal the inward movement should have been more than one-half as great in 1920 as during the high-tide years 1910-1914. It %vill be noted, however, that nonimmigrant aliens made up 30.8 per cent of the total admissions in 1920, as compared with only 14.8 per cent in the five years 1910- 1914. As a matter of fact the actual number of arrivals of this class in 1920 was greater ihan in any one of the five prewar years mentioned except 1913. Considering immigrant aliens alone it appears that 430,001 were admitted in 1920, compared \\T.th 141,132 in 1919 and an annual average of 1,034,940 in the five years 1910-1914. The number of this class admitted was, therefore, 41.5 per cent as great as the annual average during the five preway years. Turning to the statistics of emigration, it will be seen that the outgoing tide in 1920 was proportionately much higher than during the prewar period, this being especially true of the emigrant alien or permanent class. The total outward movement, 428,002, was equal to 68.9 per cent of the total admissions, while in 1910-1914 the total outward movement was only 45.4 per cent as great as the incoming. Among immigrant and emigrant aliens alone the latter in 1920 was equal to 67.4 per cent of the former, com- pared with 27.9 per cent in 1910-1914. Putting it in another way, the number departed per 100 admitted of each class of aliens and of the total in the two periods under consideration, was as follows: ' 1920 1910-1914 67 73 69 28 Number of nonemiprant aliens departed for 100 nonimmigrant aliens admitted 68 46 EMERGENCY IMMIGRATION LEGISLATION. 635 This shows clearly that while the proportion of departures to admissions among the more transient classes of nonimmigrants and nonemigrants did not differ greatly in 1920 and 1910-1914, there is a very wide difference in this respect among the more permanent classes of immigrants and emigrants in the two periods. Under normal conditions this could doubtless be construed as an indication that a remarkable and highly significant change had occurred in the alien movement, but in view of existing conditions it is quite certain that the relatively large outward movements can be explained by the eagerness of aliens, whose departure had been deferred by war conditions, to return to their former homes, coupled with the fact that the facilities for leaving the United States, including financial ability, were much more conducive to emigration than to immigration. The return movement of aliens is no new thing, however, for between 1908, when official records of outgoing aliens begin, 36 left the country for every 100 admitted, and records of the Transatlantic Passenger Association show that in the 22 years, 1899-1910, as many as 37 steerage passengers were carried to Europe for every 100 brought to the United States. The increased relative importance of the exodus may possibly continue for several years, in which event it may become an important factor in the immigration problem. In this connection it will be seen that while in the five years, 1910-1914, the indicated net increase of population by arrival and departure of aliens was equal to approximately 55 per cent of the total number admitted, in 1920 the increase of 193,514 shown in the table was only about 31 per cent of the total admissions. PORTS OF ARRIVAL. The principal ports through which arriving aliens of both the immigrant and non- immigrant classes were admitted in 1920 and 1919, and in 1914, the year immediately preceding the outbreak of the war, were as follows; Port. 1920 1919 1914 Port. 1920 1919 1914 New York 330, 549 17, 007 4,845 355 22,698 6,550 61, 757 668 402 285 18,396 6,411 992,573 80, 450 59, 529 40,004 9,800 5,373 Canadian Atlantic ports . Canadian border 8,158 113,406 68, 816 49, 192 3,110 72, 074 44,671 29, 247 45, %5 95 514 Boston Philadelphia 15 901 Baltimore 57 972 Total Seattle 621, 576 237,021 1,403,081 Owing to the partial revival of immigration from Europe the number of aliens admitted at the port of New York increased from 55,254 in 1918 and 61.757 in 1919 to 330.549, or more than one-half of the entire immigration in 1920; but this number, it will be noted, is only about one-third as great as the number which passed through that port in 1914. There was a revival of immigration also through the ports of Boston and Philadelphia, and an increase in the number admitted through Canadian Atlantic ports, but in every case they were still far below their prewar status. Baltimore, therefore, is the only important Atlantic port which did not share in the post-war increase of European immigration, and the number admitted there in 1920 was less than 1 per cent of the number admitted in 1914. The Pacific and border ports, with the exception of Seattle, show large increases in 1920 over 1919 and 1914, this being especially true of the Mexican border, where the admissions in 1920 were more than four times as great as in 1914. COUNTRIES OF ORIGIN AND DESTINATION. As already explained, immigrant and emigrant aliens represent the permanent as distinguished from the transit movement to and from the United States and are the basis of immigration and emigration in the common usage of those terms. Accord- ingly in what follows the discussion will chiefly relate to these two classes. Europe has always been the chief source of immigration to the United States, and for nearly a century prior to the beginning of the World War approximately 90 per cent of the total came from that source. During the war, however, the percentage coming from Europe fell to approximately 60 in 1915, 50 in 1916, 45 in 1917, 28 in 1918, and 17 in 1919, but in 1920 it had increased to 57 per cent of the total. But even before the revival of European immigration the return movement, which also had been largely checked by the war, began to increase, and in 1919. when only 24.674 immigrant aliens came from Europe, 84,531 emigrant aliens returned there. The movement from and to Europe and other parts of the world in the fiscal year 1920 are shown in the following table; 636 EMERGENCY IMMIOnATlON I.iailSLATION. Countries. Europe Asia British North America Mexico Other Total Immigrant aliens admitted. 246,295 17,505 90,025 52, 361 23, 815 430.001 Emigrant aliens departed. 256, 443 9,441 7,668 6,606 8,167 Excess of immigrant aliens. I 10,138 8,064 82,357 45, 755 15,648 288,315 141,686 1 Decrease. It will be seen that emigration again exceeded immigration so far as Europe is con- cerned, although not so overwhelmingly as in 1919. The exce?? of emigration in 1920 was due to the large return movement to ea.=tem Europe, for in the case of every northwestern European country except Germany immigration exceeded emigration, as the following compilation shows: Countries. Immigrant aliens, 1920. Emigrant aliens, 1920. Average annual im- migration, 1910-1914. 6,574 3,137 8,945 1,001 5,187 4,445 5,862 3,785 27, 871 9,591 9,347 1,253 1,846 1,477 4,477 3,069 1,017 3,022 3,109 1,103 8,099 3, 735 1,488 141 5,690 6,694 8,601 32,239 7,147 11,416 17,843 3,762 43,753 27,482 15,678 "VVales 2,274 The above figures seem to indicate that what might be termed the sta>ang qualities of northwestern European immigration have not changed with the war. for the exodus was very small in spite of the fact that for the first time in several years there were adequate facilities for such aliens to return to their homelands. Germany, of course, affords an exemption; but technically at least, a state of war still exists between the countries, and this makes impossible a free movement of German citizens either to or from the United States. The last table also affords an opportunity to compare immigration in 1920 from the countries named, with the average annual immigration in 1910-1914, and it is interest- ing to note that while, as a rule, the normal prewar movement had not been resumed, it was slightly exceeded in the case of Belgium, France, and Switzerland. Four other" European countries also showed in 1920 an excess of immigration over emigration, as follows: Coxmtries. Immigrant aliens, 1920. Italy.... Portugal. 95, 145 15, 472 Emigrant aliens, 1920. 88,909 4,728 Countries. Immigrant aUens, 1920. Spain Turkey in Europe. 18,821 1,933 Emigrant aliens, 1920. 3,841 1,812 With the single exception of Turkey, however, the number of emigrant aliens going to eastern European countries was in excels, and in some instances greatly in excess, of immigration from the same countries. This is shown in the following table' Countries. Austria Hungary Bulgaria Czechoslovakia Finland Greece Immigrant aliens, 1920. 84 90 3,426 756 11,981 Emigrant aliens, 1920. 2,274 14, 2;J3 3,587 11, 147 1,473 20, 314 Countries. Poland Rumarua Kingdom of the Serbs, Croats, and Slovenes. . . Total Immigrant aliens, 1920. 4,813 1,S90 1,888 Emigrant aliens, 1920. 18,190 21,506 28, 474 26,191 123,131 EMERGENCY IMMIGRATION LEGISLATIOX. 637 The number of emigrant aliens going to tlie coimtries named wa? 96.940 greater than the number of immigrants alien received from them, but in view of existing conditions in eastern Europe, this record has little or no significance, any more than has the fact that approximately the same territory- now included in the countries named sent, in round numbers. 583.000 immigrant aliens to the United States in 1914 compared with only 26.191 in 1920. NEW EUROPEAN COUNTRIES. The foregoing table also directs attention to the fact that changed political boun- daries in Europe have necessitated a revision of the list of countries so long used in immisrration statistics. The Republics of Czechoslovakia. Finland, and Poland and the Kingdom of the Serbs, Croats, and Slovenes appear as political entities for the first time; the "Rus.sian Empire and Finland" in pre^'ious reports is now "Russia." and the "German Empire" is changed to "Germany." Obviously, this disturbs the long unbroken continuity of our immigration records by countries of origin, for not only are four new countries added to the list, but their advent as political entities has so "changed the boundaries of other countries, that comparison of their future contributions to immigration with contributions of the past will be practically meaningless. Three of the chief sources of immigration in the past which are radically affected in this way are Austria. Hungary, and Russia. In 1914 nearly 135.000 immigrant aliens came from Austria, but these included, in round numbers 49.000 Poles, 29.000 Ruthenians. 15.500 Croatians and Slovenians. 9.000 Bohemians and Moravians, and considerable nimibers of other peoples who. for the most part, are no longer under Austrian rule. In a lesser degree the same is true of Hungary, and through the newly achieved independence of Poland and Finland. Russia has lost much important immigrant-furnishing domain, while territorial changes in the Balkans. Italy, and elsewhere will also add to the difficulty of comparing past and future immigration on the basis of coimtry of origin. This Avould be highly imfortunate from the standpoint of immigration statistics were it not for the fact that since 1899 all records have been kept by races or peoples, as well as by countries of origin, and as this method is in nowise affected by changing political boundaries, an unbroken record in this respect is assured. RACES OR PEOPLES. It is usual in a discussion of immigration statistics to make comparisons between two principal groups of European races or peoples, namely, those indigenous to northern and western Europe, including the Dutch and Flemish, English, French, German, Irish. Scandinavian, Scotch, and Welsh, and those who come from the other or southern and eastern countries. For many \ears prior to the outbreak of the war the latter group of peoples made up bv far the greater part of our European immigration, and, in spite of the almost complete cessation of the once great move- ment from Austria, Hungary, Russia, and other eastern countries, they contributed 184,903 immigrant aliens in 1920. compared with 165,871 northwestern European peoples. These figures, however, include immigrants coming from Canada and other sources as well as from Europe. Of the southern and eastern European peoples, 97,800, or more than one half of the entire numljer, were Italians, 93,0(59, of whom came from Italy. Of the northern and western group 58,366 were English, of whom 5,044 came from Europe and 30,398 from British North America. In the case of emigrant aliens southern and eastern Europeans were much further in the lead vriih. a total of 226,566, compared with only 41.532 among north and west Europeans. In other words, 122 emigrant aliens departed for every 100 immigrant aliens admitted in the first named group, compared %vith only 25 departed per 100 admitted in the second. Other races or peoples which contributed more than 10,000 each to the year's immigration were the following: Mexican, 51,042; French, 27,390; Spanish, 23,594; Scotch, 21,180; Irish, 20,784; ^ScandinaA-ian, 16,621; Portuguese, 15,174; Hebrew, 14,292; Greek, 13,998; and Dutch and flemish, 12,730. French immigrants, as in the past, were largely of Canadian origin, 19,087 haA-ing come from British North America and only 6,445 from Fance. A majority of the Scotch and Irish also came from British North America, 11,756 of the former and 9,614 of the latter being from that source compared with 9,094 Scotch, and 10,963 Irish who came from Europe. The Hebrews came from widely scattered countries, 638 EMERGENCY IMMIGRATION LEGISLATION. the principal ones being Poland, 3,793, British North America 3, 32(1, Rumania- 1,304, United Kingdom' 1,304, Turkey in Asia 829, TurViey in Europe 490, and Russia 4(j0. SEX. The proportion of females among immigrant aliens as a whole was 42.4 per cent of the total in 1920, compared with :53.5 per cent of the total in the years 1910-1914. This increase is especially noted in the case of certain ICuropean peoples among whom the proportion of females was consistently low prior to the World War, as the following compilation, which includes all races or peoples having more than 10,000 immigrants in 1920, will show: Race or people. Dutch and Flemish English French Greek Hebrew Irish Itahan (north) Per cent females. 1920 1910-1914 44.6 35.9 48.7 43. 48.0 4,3.7 20.2 9.2 53.2 45. 5 50.8 48.1 48.9 25. 2 Race or people. Italian (south) Mexican Portuguese Scandinavian . Scotch Spanish Per cent females. 1920 1910-1914 48.0 33.3 27.1 41.1 47.9 13.1 25.1 36.0 35.8 3.5. » 43.2 20. & It will be seen that except in the cases of the Mexicans, Portuguese, and Spanish the proportion of females was higher in 1920 than in 1910-1914. But this fact has little or no real significance under the circumstances unless possibly the very large increases among the Greeks and Italians give a hint that the immigration of these peoples in the future may be somewhat more permanent than in the past. Experience has shown that a large proportion of women in any immigration movement insures greater permanency of residence in the United States, while one largely made up of men invariably results in a correspondingly large emigration after a few years. This well-recognized stability of female immigration is illustrated by the fact that only 17.9 per cent of the aliens who left the country in 1920 to take up permanent residence elsewhere were of that sex, and that practically the same proportion, 17.7 per cent, is found among emigrant aliens in the tive-year period 1910-1914. Therefore it may be safely said "that Greek and Italian immigration in 1920 represents a far more per- manent class than came before the war, but whether this is not merely a temporary result of post-war conditions remains to be determined by the experience of the next few years. OCCUPATIONS OF IMMIGRANT ALIENS. Tables in Appendix I show in much detail the occupations which arriving immigrant aliens had followed in their homelands and those which departing emigi'ant aliens had pursued in the United States. The compilations which follow show the same data in condensed form for the fiscal year 1920, and also for the five years 1910-1914. The first table divides the occupations of immigrant aliens into a few general classes : Occupations of immigrant aliens. Occupations. Number, 1920 Per cent of total. 1920 1910-1914 12,442 69, 967 15, 257 12, 192 SI, 732 .37, 197 28, OSl 173, 133 2.9 16.3 3.5 2.8 19.0 8.7 6.4 40.3 1.2 Skilled. . 14.5 24.3 1.1 Laborers 18.4 11.7 Other occupations 2.7 No occupation (including women and children) 26.2 Total 430,001 100.0 100.0 EMERGENCY IMMIGRATIOX LEGISLATION. 639 Comparison of the above percentages for 1920 and 1910-1914 shows two outstanding differences between the occupational status of immigrants in the two periods, lirst that whereas in 1910-1914 24. .S per cent, or practically one-fourth, of all arrivals had been farm laborers before coming to the United States, only 3.5 per cent were of that status in 1920, and second, that the proportion of immigrants having no occupation increased from 26.2 per cent of the total in the earlier period to 40.3 per cent in 1920. In the first instance the striking change is very largely accounted for by the fact that eastern European immigration which was largely made iip of farm laborers was practically shut off during 1920, and the increased proportion of those having no occupation is for the most part due to the larger proportion of females coming in 1920, as already pointed out. The occupational status of aliens lea"ving the United States for permanent residence abroad in 1920 and 1910-1914 is shown in the next tal)le. and it will be observed that the proportions in the various occupational groups differed but little in the two periods: Occupations. Occupations of emigrant aliens. Number. 1920. Per cent of total. 1920 1910-1914 Professional 3,379 20, 782 2,754 11,262 183,826 .5,802 12,075 48,441 1.2 7.2 .9 3.9 63.8 2.0 4.2 16.8 1.0 Skilled 10.9 Farm laborers 1.5 Farmers 2.5 Laborers 58.3 Servants 4.5 Other occupations No occupation (including women and children) 6.3 14.9 Total 288,315 100.0 100.0 ILLITERACY. Of the 348,111 immigrant aliens 16 years of age and over who were admitted in the fiscal year 1920, 15,094, or 4.4 per cent of the total, were not able to read or write, and were admitted under various exceptions to the literacy test provision of the immi- gration act of 1917. There were 2,190 males and 12,i)04 females among the illiterates admitted, and the exceptions under which they gained entrance were, to joinrelaii v es, 14,741; to escape religious persecution, 9; physical defect, 1; other causes, 343. The fact that the literacy test is applicable to aliens 16 years of age and OA-er made it neces- sary for the bureau to eliminate the formerly used group ''under 14 years" from the statistical records and substitute the group "under 16 years. '' For this reason earlier records of illiteracy among immigrants are not quite comparable with those of the present, but it may be noted in this connection that in the years 1910-1914, 25.3 per cent of the immigrant aliens 14 years of age and over were unable to read or write . These figures therefore a-tord at least an approximate indication of the eft'ect of the literacy test. FINANCIAL CONDITION OP IMMIGRANTS. Immigrants applying for admission to the United States are not required to state how much money they bring with them unless the amount is under $50, but as a rule those having larger sums report the amounts they possess to the examining officials. In 1920, 141,799 immigrant aliens out of a total of 276,0 1'.i sho\\-ing money exhibited less than $-50 each. This was 51.4 per cent of the total number shoAving money compared with 44.6 per cent in 1919 and 82.7 per cent in 1910-1914. 'Ihe average amount shown -was $119 in 1920, compared with $112 in 1919 and $44 in 1910-1914. 640 EMERGENCY IMMIGEATION LEGISLATION. DESTINATIONS IN THE UNITED STATES. The principal destinations of immigrant aliens in the United vStates and the number of emigrant aliens leavinj; the same States in 11)20 are shown in the following table: States. Immigrant aliens. Emigrant aliens. Excess of immigrant aliens. New York 106,030 41,594 39,115 32, 502 2«, 227 27,637 16,964 16,666 15,377 105,289 88,713 16,490 2, 469 13, 614 12,931 44, 156 17, 951 14,210 29, 543 48, 238 17,917 25,104 Texas 36, 646 IS, 888 15,296 1)6,519 1987 2,456 Ohio 1 14,166 Other States 57, 051 Total 430,001 288,315 141, 686 I Decrease. In prewar years New York invarial)ly led all other States as a destination of immi- grants, and for many years Pennsylvania held second place and Illinois third. New York maintained the lead in this respect throughout the war years, and in 1920 the number destined to that State was more than two and one-half times as great as that going to Massachusetts, the nearest competitor. Pennsylvania and Illinois, however, ranked sixth and seventh, respectively, in 1920, and the.se States, -with Ohio, are- recorded as having lost more aliens through emigration than they received, the rela- tively large return movement to eastern Europe, previously noted, accounting for this loss. Texas received more immigration than ever before, and California the greatest number since 1907, when 35,377 were destined to that State. All but 1,905 of the- 39,115 destined to Texas were Mexicans, but several races of peoples contributed largelv to California's share, including 5,982 English. 5,691 Mexican, 3.939 Italian, 3,9.33 Japanese, 1.911 Portuguese, and 1,844 Scotch. The foregoing discussion includes only the more important facts relating to alien arrivals and departures during this year, and those who are interested will find in the statistical record in Appendix I much additional data of value concerning the subject of immigration and emigration. Review of World Immigration. Although nearly 20 months have passed since the signing of the armistice, the close of tire fiscal year 1920 finds the immigration lanes from a great ]»art of l^urope closed almost as effectively as they were during the war. It is true that the resumption of peace-time trafTic on the ocean and the return of fairh' normal conditions in (ireat Britain, France, and other western Euroj^ean nations liaA e brought about a consider- able immigration and emigi-ation movement between those countries and the United States. It is true also that the movement to and from Italy and Greece has reached considerable proportion.s. but Austria, Hungary, Russia, tlie Palkans, Germany, and the war-born States of Finland, Czechoslo\akia, and Poland — territory wliieh sent nearly 600,000 immigrants to the United States in 1914 alone— sent less than 6,300 in 1920. Therefore, what will undoubtedly be our greatest postwar immigration problem is still a matter of the future, hut even a casual observation of tlie trend of events in central and eastern Europe is enough to warrant the conviction tliat at any time and without warning this problem may become an immediate and very pressing one. The central and eastern Europe situation and its probable relation to future immi- gration was discussed at some length in a reWew of world immigration which appeared in the bureau's annual report for 1919. It was pointed out in tliis connection that while immigration from western Europe long ago passed the crest and ])robably would never again attain its old-time volume, the mo\ement from the southern and eastern countries was still considerably below the antirijiated flood stage when the World War began. The bureau at that time ])re'licted that immigration from western Europe would soon resume its normal prewar status, and that very probably there would be a somewhat increased movement in the case of some countries, and the EMERGENCY IMMIGRATION LEGISLATION". 641 experience in in-jn has only strengthened that belief. It predicted, also, that immi- gration from eastern luiroj/e would almost certainly resume prewar importance when- ever this became phvsically possible. It went further than tliis. and pointed out the possibilitv and even the p"roba])ility that when this re.gion finally emerged from the maelstrom into which the World War had plunged it the overseas exodus would not only reach its prewar status but would increase beyond anything that was ever dreamed of in the past . As already suggested, the experience of the fiscal year just ended has seemingly justified the bureau's prophecy concerning immigration from western Kurope, for, as pointed o\it in the discussion of immigi-ation statistics elsewhere in this re})ort. the mo\-ements from and to most of the countries ha\e already resumed something like their prewar pro])ortions. and in the case of some countries the westbound tide is even higher than in the years immediately i:)receding the war. The vear brousht little change in immigration from central and eastern Europe, however, and at its close those regions are still so involved in the aftermath of the World War that immigration frotn them is negligible. Developments of the year, however, have been such as to strengthen the bureau's belief that when real jieace finally comes to that part of the world and free communication with other countries is again resumed, the volume of immigration will be limited only by the lack of ocean transportation or the effectiveness of possible barriers wluch the %arious countries themselves may erect against the emigration of their people, or which the United States and otheV nations may erect to wholly or in part prevent their admission. The situation in specific sections or countries of Europe, as it appears to the bureau at the close of the fiscal year, may be briefly summarizefl as follows: From all accounts Great Britain— that is to say England, Scotland, and Wales— has made rapid advances toward the restoration of normal conditions along all lines since the war ended, and this apparently is reflected in our immigration from those sources during the last fiscal year, when 'it resumed practically its prewar status. This is clearly shown by the' following comparisons between the number admitted from those coimtries in 1920 and 191 1 : 1920 England i 27,871 Scotland 9,347 Wales 1,253 35,864 10, 682 2,18S So far as the statistics reveal, the character of this immigration wa,s not materially different from that of earlier years, and it is predicted that it will so continue, except that a considerable increase may be expected provided stable economic conditions are maintained in this country. However, the demands and attractions of Canada and other British overseas dominions, which are extensively presented to the people of Great Britain, will undoubtedly prove as effective as they did in years prior to the war, thereby preventing any very large movement to the United States, though many may leave the home countries. Fewer immigrants came to the United States from Ireland in 1920 than in any year between 1833 and 1916, and it is presumed that disturbed political conditions in that country were in large part responsible. The number admitted in 1920 was only 9,591, compared with an annual average of 32,000 in the 15 years 1900-1914, and. while a substantial increase may be expected, it is doubtful whether Ireland mil ever regain its former place as one of the most extensive immigrant-furnishing countrie.'*. Following the close of the Franco- Prussian war there was something of an increase in immigration from France to the United State.-;, but there was no suggestion of an exodus of population, because at its highest point, in 1873, only 14,798 came. In the five years 1910-1914 immigration from France averaged 8,601 annually and in 1920 it was 8,945, which probably indicates nothing more than a quick return to a normal status. This may be expected to continue without important fluctuations. As for other countries of north .vestern Europe the developments of the year were substantially the same as in the cases of Great Britain and France, for while immi- gration from Belgium, Denmark, the Netherlands, Scandina\-ia, and S^^-itzerland did not reach prewar proportions in any case, except that of SAvitzerland, nevertheless the trend was clearly in that direction, and the bureau expects a fulfillment of the prediction made in 1919, that with the restoration of tra^■eling and other facilities the movement from these sources will soon resume and perhaps for a time somewhat exceed its average for the years immediately preceding the war. 642 EMERGENCY IMMIGRATION LEGISLATION. Perhaps the most important development in the immisration record of 1920 was the largely increased number r-ominp; from Spain, a country wliich until recent years had contrilnited only a few thousands to the many millions who have come from Europe during the past century. From 1820 to 1902 the average number coming from Spain was only about 500 a year, and it exceeded 1,000 only six timers during that period. In 1903, however, 2,080 came, and the average numl)er from that year until and including 1919 was 4,480 annually, the largest numl)er, 10,232, coming in 1917. In 1920 the number coming from Spain reached 18,821. Thus, although one of the westerly countries of Europe, Spain was the last to become an important source of immigration to this countrj^ It has a population of above 20,000,000, and with a newly started and rapidly growing immigration at a time when so many other sources are closed, it is reasonable to expect that within a few years the Spanish people will be a very important factor in the movement from Europe. Immigration from Portugal, including Cape Verde and Azores Islands, in 1920 also reached the highest point in its history— 15,472, compared with an annual average of 7,128 in the 21 years, 1899-1919. The resumption of immigration from Italy soon followed the close of the war, and a total of 95,145 came from that country in 1920, compared with an annual average of 194,500 during 16 years prior to the beginning of the World War. This may safely be taken to indicate that the prewar status will soon be reached, and it would not be surprising if it siu-passed for a time at least the average of prewar years, especially if immigration from eastern Europe is not resumed in its former proportions. What is said of Italy can also be said of Greece, for while the 11,981 immigrants who came from that country in 1920 represent less than one-half of the average number coming during the few years next preceding the war, the quick resumption of immi- gration on such a consideral)le scale indicates a tendency which will very prol)ably result in much larger numl^ers coming when normal conditions of travel are fully restored. So far as the remainder of Europe is concerned^ — which is to say, Cennany, Austria, Hungary', Russia, the Balkans, and the newly created States of Czechoslovakia. Fin- land, and Poland, which appear in this report for the f rst time as separate political entities — there is little that can be said on the basis of the year's immigration, for the reason that almost none was admitted from these sources. Of course, the failure of the United States to ratify the treaty of Versailles leaves this countiy in a technical state of war ^'ith the so-called Central Powers, so that there is little freedom of inter- course ^^'ith them. Russia proper is still largely shut off from other parts of the ^vorld and communication ■with the Balkans is very much restricted. There has been a considerable return movement to some of these countries, particularl>- to HunearA-, Rumania, Czechoslovakia, and Poland, but all of the central and eastern European area under consideration furnished fewer than 6.300 immigi-ants in 1920, compared with nearly 600,000 in 1914. But, as aheadv stated, there is even,' reason to believe that when the barriers are removed there will be an outbursting of people from these countries Avhich v.ill produce an immigration limited only by the facilities for ocean travel. With the exception of the so-called great Russians, who may be briefly described as that part of the Russian population now included in soviet JPaissia, all of the prin- cipal peophs of eastern Europe have furnished large contributions to our inimigiation and in most cases the numbers coming were increasing Avheu the v.ar began, vrith the prospect that under ordinary circumstances such increase would have continued for years to come. Many of these peoples, as a result of war, have come under changed political sov- ereignty and as a rule have ceased to be subiect peoples. Natin-aliy this would have at least a temporary effect of restraining emigi-ation, but it can not be supposed that it will do so permanently, es])ecially under present economic conditions, A\'hich, according to all available estimates, are destined to be the lot of practically the entire region under consideration for a long period, even after f'ghting ceases and stable and permanent governments are established. This being the case, it can not but be expected that as in the past the sur])lus population will seek relief in cmigi-ation. An important question — perhaps the most important one which arises out of the turmoil of eastern Europe — is to what extent will the people of gi'eat Russia become a part of future immigration. For many years after other peoples of what was then Russia, notably the Poles, Hebrews, Lithuanians, and Fins, had become large factors in our immigration it was commonly predicted that the Russians themselves would never follow their example to any great extent. The contrary' proved to be true, however, for in the few years next preceding the beginning of the war they began to come to the United States in rapidly increasing numbers. EAIEEGEXCY IMMIGEATIOX LEGISLATION. M3 The followins: figures shov'ins the number of immi^-antvS of each of the peoples named who came from Russia in 1910-1914 will illustrate this point: 1910 1911 1912 1913 1914 Hebrew 59,824 63,635 21,676 14,999 14.76,S 65,472 40, 193 16,210 8,942 17,oSl 58, 3S9 51, 244 13, 576 5, 708 21, 101 74, 033 112 345 23, 873 11,156 48, 472 102, 638 Polish 66, 278 Lithuanian 20, SOS 10,968 Russian 40,241 With the exception of the Russians the peoples enimierated came from western and southwestern Russia, the most of wkich territory is either definitely separated from the former empire, as in the case of Finland and Poland, or which, for the present at least, is oustide the jurisdiction of the so-called soviet go^^ernment. Accordingly, the only immigrants who in the past have come in any numljers from what is now soviet Russia are the real Russian people, mentioned in the table, and some immi- grants of German blood who came from the old-time German settlements on the Volga River. Leaving out of consideration the \arious peoples of Asiatic origin who inhabit the eastern part of the country, the population of the present soviet Russia is very largely made up of the real Russian people already referred to, and the extent of their future immigration to the United States can only be conjectured. But it is safe to say that much will depend upon economic, and perhaps political, conditions in Russia when normal intercourse with other countries is resumed. The rapid increase which, as the al)ove table shows, occurred just preceding the World War was thoughtfully con- sidered by the bureau, and the conclusion was reached tliat, unless artificially restricted, these Russians would soon become one of the largest, if not the largest, racial groups among our immigrants. At that time it was believed that unfavorable economic conditions, resulting largely from overpopulation of land available for the peasants in large sections of central Russia, were chiefly responsible for the beginning and raj)id growth of the movement to this country. In earlier years this populationpressiire liad been somewhat relieved by an enormous immigration of peasants to Siberia but for various reasons this de- creased, and the increased movement to the United States, and also to Canada, almost immediately followed. The World War. of course, abruptly stopped this movement, as it did all immigration from eastern Europe, and the isolation of Rus'-:ia since the war ended has been e'jually effective in that respect. Whether the political upheaval in that country will result in removing what seemed to be the chief cause of peasant migration to Siberia and emigration overseas remains to be seen. THE ASIATIC SITUATION. There was no material change in immigration from the Far East in the fiscal year 1920 compared with 1919, but that coming from Asiatic Turkey increased from only 19 in 1919 to 5,033 in 1920, this being due to the fact that the SATians and Armenians are again beginning to find their way to the United States, These and other subject peoples of Turkey have come to the United States in considerable numbers in ilxe j^ast, and wliile their emancipation from TurVrish rule may have some effect in checking immigration it seems very likely that the movement will continue much as it was before the war with a probability of considerable increase. China contributed 2.330 immigrant aliens during the year 1920 and 3,102 returned to that country, wliile 9,432 came from Japan and 4,249 returned there. The annual immigration from China has not changed materially during more than a quarter of a centruy and it long ago responded to the jiolicy of exclusion. The number admitted from Japan was slightly less than in 1919, and also slightly under the annual average for the 21 years, 1899-1919, that average being 10,984. During tliat period, however, the number varied greatly, the extremes being 30,226 in 1907 and 2,720 in 1910. BRITISH NORTH AMERICA. With the single excei>tion of Italy, Canada, or rather British North America, as a whole, led all other countries as a source of immigration in 1920, the number admitted •2&M1- n— ptK] 5 644 EMERGENCY IMMIGRATION LEGISLATION. being the largest recorded immigration from tJiat source since 1882, with the exception of the two years, 191(J and 1917. Immigration from and emigration to Canada are discussed at greater length elsewhere in this report. (See p. 23.) After Italy and Canada, ^Mexico furnished more immigrants in 1920 than any other country, 52,361 having been admitted from that source compared with 29,818 in 1919, and an annual average of 10,320 in the 21 years 1899-1919. The largo increase in 1920 is said to be due to various causes, the chief of which was the demand for labor at high wages in the southwest, where these immigrants form a highly important part of the labor supply. CENTRAL AND SOUTH AMERICA. Immigration conditions from the various countries in this part of the world show little change, but with the development of commerce now progressing to the mutual interests of all nations contributing to the same, it is expected tliat movement of peo- ple to and from the Unitfed States and all countries to the south will materially increase. (Extract from the report of the Bureau of Imfaiigration for the fiscal year 1919.1 The Passport- Vise System. In its last report the bureau directed attention to the fact that shortly after the United States entered the World War it became evident that this country must protect itself against all plans and schemes of the enemy, including those that might involve the sending to the United States of spies, and like actiAities. On July 26, 1917, the Secretary of State and the Secretary of Labor issued a joint order requiring that aliens coming to the United States should present passports and that in the proces of securing the approval by American consular officials they should furnish quite detail- ed information concerning themselves, and also providing for the investigations of these cases, to as full an extent as possible, by diplomatic and consular officials stationed aliroad. The joint order of July 26, as well as the regulations promulgated by the Department of State in connection therewith, resulted from various conferences held between the Bureau of Citizenship and the Bureau of Immigration, for the purpose of discussing the proper super\ision of aliens coming to the United States during the continuance of the war. While the regulations were being enforced at the seaports and on the land boundaries by immigration officers, and in foreign countries by diplomatic and consular officials, the interested branches of the Departments of State, Treasury, War, Xavy, Justice, and Labor, exerted every possible effort to prepare a la-R that would more adequately deal with the subject which the joint order and accompan>ing regulations were intended to cover as an emergency arrangement. These efforts resulted in the passage of the act of ^lay 22, 1918, "To prevent in time of war departure from and entry into the United States contrary to the public safety. " Upon the basis of this act, the President issued a proclamation followed by an Execu- tive order establishing regulations for the complete control of the travel of aliens to and from the United States. These regulations were enforced abroad by diplomatic and consular officers and in the United States by officers of the Treasury Department (customs service), of the Department of Justice, and of the Bureau of Immigration. As a part of the regulations, the joint order, which had proved so effective as an emergency measure, was continued in force. In the way above described there was established a system for the control of the travel of aliens more complete and more effective thai any which had ever been put in operation by the United States Government. It made possible an at least fairly complete incjuir^- with regard to the character and autecedants of every alien who Was seeking to come to this country, as well as the discovery, usually in most minute detail, of his purposes in coming. It is not meant by this that the system was perfect; like all human institutions, doubtless, it failed in certain instances, or perhaps in certain respects, to accomplish the objects in view, but, all of the circum- stances considered, it was a most excellent arrangement for the purpose for which it was dexdsed. Incidentally, but nevertheless in very valuable and rather extensive ways, this vis^-of-passports system placed upon immigration to the United States a safeguard which, simply from the point of ^^ew of the adequate protection of the country against undesirable or undue immigration at a time when economic and other conditions were disturbed, was of most distinct ^alue. Observing this, and having in mind also the experience of the bureau in the enforcement of the Chinese-exclusion laws, EMERGENCY IMMIGRATION LEGISLATIOX. 645 in connection ^vith which officers specialb. trained in the enforcement of those laws were a number of years ago placed in the principal consulates in the Orient, the bureau has become satisfied that to a considerable extent the immigration laws would be valuably supplemented in times of peace if a svstem modeled on the one above described, with or without the use of passports, could be permanently adopted. The bureau does not mean by this that the OLforcement of the immigration laws could, by any means, be transferred from the ports of this country to the places in foreign countries whence aliens come, or even to the seaports of foreign countries at which they embark when emigi-ating to the United States. There are certain difficulties, which seem to the bureau insuperable, in the way of so complete a change of practice. But if trained immigi'ation officers were attached to American consulates, to act as ad^^sers with, respect to questions raised by prospective immigrants, and as ad^'isers to the consular officials who vise passports, also to perform such other functions as may be required in any plan of immigration control that is evolved, it is believed that the results would be most beneficial. Aliens in every respect eligible and desir- able would in tliis way be fully informed of the laws and regulations; but those inad- missible for any reason and even those likely to be rejected on arrival at United States ports would either be discouraged from coming or would at least be put upon notice and could then have no one to blame but themselves for the hardship that might result from their being rejected on arrival at this side. Of course, the situation with respect to the Chinese-exclusion laws is somewhat different from that with regard to the immigrations laws. Under the former statutes members of the exempt classes must hold certificates issued by designated officials of their own governments and approved by American consular officers: and the system, above alluded to, which was put into operation some time ago at the more important consulates in the Orient contemplates that the experts upon the Chinese-exclusion laws shall make investigations and report to the consulates ^vith regard to ever>- appli- cant for vise of a certificate. As the immigration law does not require thait immi- grants generally shall hold certificates of any kind, and as the approval of passports by consular officials depends upon considerations quite different from those affecting the approA-al of Chinese certificates, immigration officers attached to the consulates pro- bably could not go nearly so far toward actually enforcing the law as the officials attached to the consulates in the Orient now do. But they could accomplish a great deal toward discouraging undesirable immigration as well as giving authoritative in- formation to persons clearly and beyond a doubt of desirable type. The matter of having representatives of the Immigration Service permanently stationed at consular offices and elsewhere in foreign countries has been frecjuently discussed, but not until the excellent results of the passport-vise system appeared, were the advantages of the proposal so clearly established. The bureau is not advocating the permanent retention of the vise system as main- tained during the war, but does strongly favor the continuance, as au immigration measure, of the principle involved, with or without the use of passports. It can be used not only as a means to aid in the regulation of immigration, but in gathering and giving information which will be beneficial in administering the immigration laws. Much of the misunderstanding arising in the enforcement of our laws results from lack of information of their requirements. The bureau is satisfied that there is in the system now in operation the germ of new extension of the immigration servise, whose officers, acting either ;inder the States Department's officials abroad or in a se])arate capacity as representatives of this department, but always cooperating fully with the former, will furnish an element that will help to complete its machinery of adminis- tration. Immigration is a world (juestion, but for each nation it has a domestic application. In order that such application may be intelligently made, world wdde information, not at intervals but constantly, has long been a necessity, and is now more so than ever before. The bureau is engaged in a study of the question and it hopes to submit to the de- partment for its consideration a plan for the operation of the proposed system. CONTINUANCE IN FORCE OF ACT OF MAY 22, 1918. In the meantime the bureau believes that in view of the present condition of Europe a temporary continuation of the existing passport-Ans6 system is as necessary as its institu- tion became during the war. In war time it was the public enemy that was to be kept out; now it is the undesirable, the enemy of law and order, the breeder of revolution, and the advocate of anarchy against whom we should guard. As above indicated, it is not desired that war-time regulations be maintained permanently. ])ut. with modi- fications suited to changing conditions, they should be continued at least for a suffi- (J4G KMEllGENCY IMMIGRATION LEGISLATION. cient lonfjth of limo mot less than a year after the ratification of the treaty of i)eace by the Allies) to permit the resumption of peace throughout the war zone and the various districts -where civil war and other disturbances have taken ))lace since the armistice. The Ijureau is interested in its continuance from an immigration standpoint, and in conference with the representatives of the State Department it has joined in efforts approved by this department to continue in force the act of Congress of May 22, 1918, under which the pass])ort-vise system was legalized and maintained in operaticm. [Kxtract from the report of the Bureau of Immigration for the fiscal year 1920. The Passport-Vise System. While the 1)ureau took strong grounds last year in favor of a continuance of the sc- called vise system, owing to the war situation then pending in many countries it wan the assumption that, if continued, provision would be made for the exercise of authority to be vested in the Department of State and the Department of Labor, so that the enforcement of the immigration laws might be secured at the source of much of the then expected increase in immigration, this not only to meet the necessity to safeguard our country from the entrance of dangerous elements, but to save from the hardships of an ocean voyage inadmissible applicants who woTild find on arrival at our seaports that they must return to their former homes. Instead of relievirg this condition, the continuance of the vise system without the insertion of the qualifying provisiors expected by the immigration service has had in part, under the amendatory laws on the subject, the opposite effect so far, and bids fair, unless s^me way can be found to remedy the situation, to produce congestion at our immigi'ation stations, and to increase the difficulties of regulating immigration under the act of 1917. The bureau invites attention to that portion of its annual report for 1919 under the caption ''The Passport- Vise System" to present its attitude on the system, and its strong support of it, but with qualifications none of which have been enacted in the amendatory laws. It still believes, as then stated, that "there is in the system now in operation the germ of a new extension of the Immigration Service, whose officers, acting either usder the State Department's officials abroad or in a separate capacity as representatives of this de])artment, but always cooperating fully with the former, will furnish an element that will help to complete its machinery of administration," and that "it can be used not only as a means to aid in the regulation of immigration, but in gathering and giving information which will be beneficial in administering the immigration laws," jjrovided such qualifications are included in the law. [Extract from the report of the Bureau of Immigration for the fiscal year 1919.] Immigration Bills Before Congress. Important changes in existing immigration law are proposed in a bill (H. R. 563) which was introduced in the House of Representatives May 19, 1919, by Hon. Albert Johnson, chairman of the Committee on Immigration and Naturalization. The lead- ing fciture of the bill provides for a two years' suspension of immigration, with the exception of certain professional classes; near relatives of former immigrants; aliens fleeing from religious persecution; and skilled labor, provided labor of like kind unemployed can not be found in this country. A similar bill, 1 tit providing for a four years' suspension of immigration instead of two, was favorably reported from the House committee at the last session, liut the Sixty-fifth Congress ended March 4 without taking further action. Other bills introduced at the present session fix the proposed suspension period at three years and four years; and one, a Senate bill, proposes to stop immigration from every source for a period of 20 years, and from Germany, Austria, Hungary, Bulgaria, and Turkey for a period of 50 years. Regarding the proposed suspersion of immigration as pro^•ided in these various bills, the l)ureau favors a continuation of the present immigration law. This law provides the best selective system yet de^"ised by the (lovernment, and it is believed that its far-reaching defensive machiney, aided by certain coiistructi\ e provisioi's of H . R. 5(i3 hereinafter explained, will meet all re(juirements of the existing situation and fully protect the people of the T'nited States. It is a question of serious importance whether it is de3iral)le to set aside the traditional policy of the Ciovernment concerning the admission of peoples from foreign countries at a time v.-lien world conditions are 'oeing reestablished on lines calculated to promote more friendly relations, and when the Government is endeavoring to increase its merchant marine and extend its foreign commerce. EMERGENCY IMMIGRATION LEGISLATION, 647 The present law, owing to war conditions, has not really been put into full operation. It was conceived to meet the situation that existed during the 15 years prior to 1914, when nearly 15,000,000 aliens, or an annual average of nearly 1,000,000 were admitted, and the necessity for the improved administrati\-e and protective features provided by the new law was accentuated l)y the fact that the influx had increased until the average annual admission during the last five years of that period totaled more than 1,200,000. From experience already had the bureau believes that when it is put to the test the law will fulfill the purpose of Congress when it was enacted. It is ol)vious that the adoption of a law suspending immigration temporarily would have the same injurious effect upon our efforts to further American commerce and enterprise in foreign countries, as though it provided for permanent prohilntion. Moreover, the first-named l)ill provides for a number of exceptions, so that a certain amount of immigration would be permitted in any event, and, this being the case, a continuation of the present law would be required to deal with it. Thus the Immigra- tion Service would have to be maintained and, judging from past experience with exclusion laws, it would even be necessary to increase the number of officials with consequent increased cost of maintenance. In other words, the proposed law would in fact produce in the entire immigration system the same conditions and difficulties that are now encountered in the administration of the Chinese-exclusion law. There are several considerations, therefore, that should be borne in mind in con- sidering the question of immigration suspension, and, in view of the conditions that would be produced by such a change in our policy, the bureau is convinced that exist- ing and anticipated problems would be better met by a continuation of the present immigration act, supplemented by certain constructive provisions which are proposed in the Johnson bill. Some of these provisions recommended by the bureau may be briefly summari:'.ed as follows:' 1. Our present immigration policy is negative, in that the law enumerates certain classes of aliens deemed to be undesirable and therefore inadmissible to the country, and regards all others as eligible to enter. Decisions as to admissions and rejections, particularly the former, are necessarily made in haste and usually only on such evi- dence as can be secured from the aliens themselves. It is true that the law makes possible the expulsion of aliens after entry under certain circumstances, thus affording a measure of protection against mistakes made at the time of admission, but, although important, this has been a rather minor incident in the general plan. The proposal is to remedy this situation by providing that immigrants who meet the surface tests of the law and appear to be admissible, but whose real character and purpose is un- known, may be admitted provisionally and required to report at stated times until upon the showing made they are finally admitted or debarred. 2. None of our immigration statutes, except the Chinese-exclusion laws, has con- tained any positive expression upon the subject of burden of proof with respect to the admissibility of aliens. As a result the Government has been placed in the dis- advantageous position of having to prove that an alien is inadmissilile, rather than being able to demand that the alien should prove that he is admissible. A complete reversal of this practice is proposed by requiring that in examinations at ports of arrival the burden of proving that he is admissible under the law shall 1)0 upon the alien. 3. It may be further pointed out that we have made no effort at all to utilize the time elapsing between the embarkation of immigrant? at foreign ports and their arri\al at our ports as a period in which observation and something like scientific and thorough selection might occur. It is suggested that advantage of thi8 opportunity be taken by providing that inspectors and doctors shall be placed on vessels of t'nited States registry, and others the OAvners of which consent, for the purposes alluded to. 4. The provision of the bill making changes in the present law as regards seamen are shown by the bureau s experience to be necessary to perfect the excellent system inaugurated by the immigration act of 1917 under which much progi'ess has already been made. 5. The registration sections have in view the development of a practicable plan for the assimilation as well as the protection of alien residents. The work of assimila- tion requires a knowledge of the environment, the occupations, and the conditions, economic and otherwise, surrounding aliens in this country. In this connection a ready method of making known frauds practiced against aliens and losses or injuries sustained by them should be established. Provision should be made for both public authorities and private organizations to take a beneficial interest in aliens and enable them to acqxiire a fair knowledge of what our laws. Federal, State, and municipal. ■ .\ppendix V of this report presents a proposed new immigration law, with explanatory memorandum, which the bureau prepared Feb. .3, 1919, and subsequently submitted to the House Committee on Immigration and Naturalization, ilany cf its provisions apiaear in the bill (H. R. 063) now before that committee. 648 EMERGENCY IMMIGRATION LEGISLATION. recjuire of them; parficiilarly is this so in respect to the laws geverninp: immis-ration, naturalization, labor, education, health, and kindred subjects. Ile.sistration, as contemplated by the proposed legislation, will assist in bringing these constructive measures to a successful issue, eventually placing those aliens so inclined on the road to intelligent and useful citizenship. As a means of protection to the law-abiding and peace-loving people of this class, and as an aid in the enforcement of the immisra- tion laws, it will be invaluable. The bureau of Information, as the arm of the depart- ment dealing wholly with aliens, and particularly new arriAals. has oflicial connection with them and hence should have a proper place in any plan devised by the Govern- ment in the work of their assimilation and Americanization. It is recommended that the seamen's sections of the bill be segregated froiji the balance of the measure and introduced spearately, owing to the necessity for immediate action on the subjects affected, and to take adVantave of the progress that has been made since the enactment of the seamen's pro\dsions of the act of February 5, 1917. This recommendation is made in view of the possibility that a general im'migration law may not be enacted at an early date. The House committee also reported favorably a bill providing for the deportation of interned alien enemies and aliens convicted of violation of various war-time laws, but this failed to become a law in the Sixty-fifth ('ongre.ss and has been reintroduced. This bill was recommended by the bureau "and had the approval of the department. A so-called per centum plan for regulating immigration has been presented to the House committee at the present session by an organization known as the National Committee for Constructive Immigration Legislation, but up to the end of the fiscal year no bill in this regard had been introduced. The plan referred to pro\ddes that the number of aliens of any race or so-called "mother tongue" group, who may be admitted in any year, shall not exceed a given per cent (5 to 15 or .3 to 10 per "cent suggested) of the naturalized persons and American-born children of such race or group in the United States as shown by the census of 1920; the exact per centum rate to be determined annually by an immigration commission composed of the Secretary of Labor, the Secretary of Commerce, and a third person appointed by the President. The plan further stipulates that the standards of qualification for citizen.<^hip .shall be raised, and that the privilege of naturalization .shall be extended to aliens of every nationality who qualify. Finally, the plan includes the repeal of all laws dealing specifically and differentially with the Chinese. As to the plan of the National Committee for Constructive Immigration Legislation, the bureau does not favor its policy or purpose. It does not believe in changing the present policy of naturalization except to improve the same by limiting admissions to citizenship to those now admissible who voluntarily seek the privilege. It does not favor the percentage plan nor the repeal of existing execution laws. The plan is experimental in many respects, is not demanded by any considerable number of our people, and is aggressively opposed by a large part of the population. We need the development of the present immigration system on constructiAe lines rather than ex- periments in new departures, however inviting they may be made to appear, or the introduction of new problems that may disturb economic and social conditions. The policy of exclusion is an established American policy; it has already avoided and practically solved one race problem; it will, if continued and extended, soh e all that may present themselves, and it should be extended rather than abolished or curtailed. Other bills introduced in the present Congress proposed to repeal the illiteracy test; to expel and exclude from the United States aliens who, to escape military service, have withdrawn their declaration of intention to become citizens; to prohibit the immigration of Asiatic labor; w'hile others relate to the Americanization and educa- tion of admitted aliens, but. as already stated, no action had been taken when the fiscal year closed. [E.xtract from the report of the Bureau of Immigration for the fiscal year 1920.] Pending Immigration Legislation. At the time of the submission of the last annual report comment was made witli reference to certain bills and resolutions pertaining to immigration matters which were then under consideration in the two Houses of Congress. Since that time a number of additional measures have been introduced, some similar in effect to those covered in the measures preAdously presented and others along new lines entirely. These measures have received consideration on the part of the respective Houses of Congress and by the bureau. Some of them advocate a complete suspension of immi- gration for varying periods; others the adoption of selective and restrictive methods. In its report of last year the bureau expressed the \-iew that it is a question of serious importance whether or not it is desirable to set aside the traditional policy of our EMEEGENCY IMMIGRATIOX LEGISLATION. 649 Oovernment concerning the admission to our country of peoples from foreign lands at a time when world conditions are being reestablished in channels calculated to pro- mote more friendly relations. That is the thought it wishes to convey in the present report; but existing conditions in Europe and in the United States, and the vast number of people in the former and in other parts of the world who contemplate coming here, have caused it to give serious consideration to the possible effect which an influx of the dimensions promised ^^^ll have, not only upon the people of our country, but also upon the newcomers themselves. This consideration of the matter has forcibly suggested to it the need for further legislation, both selective and restric- tive in nature, and it is believed that the early passage of such legislation is ad\dsable. The existence of a large element in some and a considerable percentage in others of the nations of Europe, as well as in some countries beyond its boundaries, who do not believe in government, in the commonly accepted sense, representatives of which have avowed hostility to and advocated "the destruction of ours, presents a situation that, though difficult, must be met from the standpoint of complete safety to our institutions. Unless there can be found a way to eliminate the danger of the entry of this element, it would appear that strong restrictive measures are necessary to assure protection to our institutions and safeguard our people. The stabilization of our business and industrial conditions anticipated through early reconstruction following the signing of the armistice has not fully developed, and until it does it is difficult to foretell what the immediate results to our people, at least for a time, will be. Under these conditions, ^vith multitudes of the earth's people desiring admission, many themselves needing help, it is the part of wisdom that unless their coming can be regulated so that their addition to om- population may have mutually beneficial results, their interests and ours should be subserved by legislation intended to avoid injurious consequences to both. Table shoicing incoming and outgoing migrations, classified respectively as '' old immigra- tion^ ' and "neir immigration," for the month of July, 1920. Race or people. Immigra- Emigra- tion, tion. Old immigration: Dutch and Flemish English , Fmnish , French German Irish Scandinavian (Norwegian, Danes, and Swedes) . Scotch , Welsh Total. New immigration: Bohemian and Moravian (Czech) Bulgarian, Serbian, Montenegrin . . . Croatian and Slavonian Dalmatian, Bosnian, Herzegovinian . Greek Hebrew Italian (north) . . Ita^iian (south) . Lithuanian Magvar Polish Portuguese Rumanian Russian Ruthonian Slovak Spanish 1,568 6,000 215 2,240 1,090 4,031 2,138 2,422 165 222 773 87 554 485 279 749 281 21 19,869 , 3,451 134 ; 86 333 3,158 218 493 36 176 1,736 1,499 6,033 51 2,715 1,041 13, 181 5,848 41 310 128 2,631 663 3,269 2,964 310 193 1,250 228 ! 333 21 121 1,874 1,481 3,730 477 Total. 34, 228 22,534 The CiiAiRMAX. The hearings now are closed, and the committee stands adjourned subject to call of the chairman. (Whereupon, at 3.35 o'clock p. m.,the committee adjourned subject to call of the chairman.) X APPENDIX 269U— 21 • EMERGENCY IMMIGRATION LEGISLATION. Certain memoranda, supplementary statements, etc.', submitted to the Senate Immigration Committee in the course of the hearings are herewith embodied in the following appendix: CHAMBER OF COMMERCE OF THE STATE OF NEW YORK. A copy of a report and resolutions on "Immigration into the United States" adopted b}^ the Chamber of Commerce of the Stnfn of New York, is herewith printed in full, as follows : Chamber of Commerce of the State op New York. At a special meeting of the Chamber of Commerce of the State of New York, held January 20, 1921, the following report and resolutions, submitted by the executive committee, were adopted: IMMIGRATION INTO THE tNITED STATES. To the Chamber of Commerce: While the Ignited States is still technically at war, the signature of a treaty of peace at Versailles has so modi tied international arrangements that agencies of transporta- tion ha^'e been enabled to resume direct or indirect business activity in Central, Eastern, and Southern Europe. The cA'idence is incontestable that the economic and political chaos now extant over large areas of Europe has set on foot an emigration of peoples comparable in extent, if not in form, to the great race movements in the early days of our historic epoch. The races of people affected by this tendency are manifold; Germans. Czechs, Slovaks, Magyars, Poles, Croats, Slovenes, Russians, Rumanians, Dalmatians, Serbs, Gypsies, etc.; the estimates of the Immigration Committee of the House of Repre- sentatives are that from 2,000,000 to 8,000.000 Germans desire to migrate; agents of 17 steamship companies recently told the Commissioner of Immigration of Ellis Island that if they had the ships they could bring 10,000,000 immigrants to the United States in one year's time, ((ifith Cong., 3d sess., H. Rept. No. 1109.) It is granted that the mechanics of the problem constitute to some extent a bar to an influx of these people in view of the fact that the present capacity of ocean shipping probably provides means for the westward movement of no more than from 900.000 to l,250,o5o annually, although this may be somewhat augmented by the refitting of existing ships. It should, however, be noted that the total of 900,000 has been exceeded but six times in the history of our country. Our Nation has two well-developed policies of immigration; we are proud of the asylum we have offered to the oppressed and we desire to welcome into our n idst people who A\ill become integral A\ith us in political ideals and social aspirations; we have, on the other hand, for many years resolutely excluded races of people whom we have determined as not falling vithin these rcduirements. It would certainlv not be inconsistent with our past practice to class with this latter type, for the time at least, immigrants originating in countries wasted l)y v ar and ravaged l)y disease, bringing among them individuals unfitted by liniitations of health, mental and moral capacity, physical condition, age and sex from forming useful additions to our industrial" population, and permeated vvith the idea that a universal revolution is the panacea for all the ills to which this generation is heir. A Representative in Congress has well said during the debate on this question "that the first law of nations, as of individuals, is the law of self-protection," and the executive committee, after mature deliberation, is of the opinion that during the 651 652 EMERGENCY IMMIGRATION LEGISLATION. period of readjustment, with unemployment staring manv of our people in the face, the introduction of large bodies of people not itnbued with ideas of American democ- racy, or orderly habits of mind, will throw such a strain upon our already overtaxed power of assimilation as to constitute a peril of the first mat:nitude. Congi-ess now has V)efore it two measures worthy of serious consideration dealing with this situation. First, is the Johnson bill (H. R. 14401), designed to cope with the present emergency, restricting immigration for one year as amended when it passed the House; the second bill, introduced l)y Senator Sterling, is more com- prehensive. It aims to reorganize 'the immigration service on scientific lines and permit immigratioft subject to selection under the direction of an Immigration Board, which it creates. The executive committee, however, believes that even supposing the Sterling bill be amended in certain essentials which it regards as necessar\- to its successful operation, a circumstance hardly to be expected \nthout considerable debate, its inherent features preclude a possibility that it can function efficiently without delay too givat to be disregarded. For this reason the following preamble and resolutions are siiggosted to the c'hamber for its consideration: WTiereas the general economic disturbances in Central, Eastern, and Southern Europe have initiated an influx of immigration to the United States threatening to overtax its power of assimilating foreign elements in the population ; and Whereas Congress has before it various bills dealing \\ath the regulation of immigra- tion: Therefore, be it Resolved, That it is the judgment of the Chamber of Commerce of the State of New York, that pending the preparation of perfected legislation along the general lines laid down by Senator Sterling in Senate bill No. 4594, House bill No. 14461, as amended, should receive the support of all citizens ha\dng the welfare of the country at heart; and be it further Resolved, That the president of the chamber is authorized and directed to appoint from the chamber a special committee to lay before the appropriate committees of Congress the views hereinbefore expressed and such other suggestions as may, in the judgment of the executive committee, be deemed within the scope of the preceding report and resolution. Attest: Darwin P. Kingsley, President. Charles T. Gwynne, Secretary New York, January 21 , 1921. AMERICAN DEFENSE SOCIETY. A telegram from the committee on immigration of the American Defense Society, New York, urging restriction of immigration, is herewith printed in full, as follows : New York, January 20, 1921. Hon. LeBaron B. Colt, Chairman Committee on Immigration, Washington, D. C. The American Defense Society respectfully represents to your committee that the time has come to effect a definite change in immigration policy from that of sub- stantially unrestricted admission to that of admission only to such extent and in such manner as may be compatible with the preservation and normal development of American institutions. As a means to this end the society belie\es that the only practicable proposal at this time is to adopt a temporary measure of stringent restric- tion, with the expectation that relaxations of these restrictions will occur only as adequate measures of control are developed. In this connection we respectfully call your attention to the fact that America can not with safety continue to be an asylum fur all the peoples of the earth. Each European nation is naturally 8tri^ ing to retain its best and is seeking to put impedi- ments in the way of their leaving, while allow ing dependent and undesirable classes to depart. Those now coming are, mo^eo^ er, largely of races who are untrained by inhentance to appreciate the institutions, laws, customs, and transactions of the United States, and the freedom expressed in our Constitution. They multijjly our {)roblems unduly even in comparison with their numbers. From their ranks come a arge proportion of the radicals, the terrorists, and a number of the criminal classes. EMERGENCY IMMIGRATIOX LEGISLATIOX. . 653 The labors of our past, the hopes of our future, are inAolved in the imn)igration prob- lem, and it is not too much to say that the hope of the world's future depends largely upon America standing fast before the cataclysm of world affairs which the World War has brought in its train We respectifuUy request your approval of the bill known as the Johnson bill, which is no'.v before you, and the creation under its shelter of a system of control of immi- gration which shall not only saAe the land from the real danger presented by this problem but shall uphold and strengthen in the future this Nation, which, erected by wisdom and with foresight, has been guarded by patriotic sacrifice, and which almost alone in the history of the nations has succeeded tlirough the prudent care of its governing powers in maintaining a standard approaching a reality of freedom for the individual combined with self-imposed restraint and obedience to la'-v. We are aware that your body is well ^'e^sed in the problems under consideration and that this ap]>eal \\ill be largely unnecessar^^ It is made only that on a question involv- ing vitally the defense of the land this society may not remain silent. Committee on Immigration' of the American' Deken'se Society, 116 East Twenty-fourth Street, New York City. EVELETH, MINN., ITALIAN AMERICANIZATION CLUB. A resolution embodied in a telegram from the Eveletli, Minn,, Italian Americanization Club, urging legislation regulating immigra- tion, etc., is herewith printed in full, togetiier with a letter from Senator Knute Nelson transmitthig the same, as follows: United States Senate, Committee on the Judiciary. December 18. 1920. Senator LeBaron B. Colt, United States Senate. My Dear Senator: I respectfully beg leave to call your attention to the inclosed telegram from the Italian Americanization Club of Eveleth. Minn., in respect to the matter of restraining immigration. Eveleth is one of the leading towns in the great iron mining field of Minnesota, and the Italians are numerous in that locality, are very energetic and efficient miners, law abiding and good citizens, and not inclined to socialism. Many of these Italians were among the reserAists of their country. They went from this country back to help Italy in the war. and now they are anxious to return to the United States to resume their work in our mines. We need just such men in this country, and it would be a pity to exclude them. I trust you will move along sane and conserA'ative lines in this matter of immigration. Yours, very truly, Knute Nelson. Eveleth, Minn., December 15, 1920. Senator Knute Nelson, Washington, D. C: The Italian Americanization Club of Eveleth, Minn., at a meeting held December 11 unanimously resolved: That Whereas in view of the fact that a large number of immigrants admitted to the United States during the last 11 months were reservists formerly residents of this country who fought in the allied army and are now returning to their former occupations; and Whereas immigration during the five years of war having been practically impossible and very small in 1919 on account of unsettled conditions and lack of transportation facilities; and WTiereas a large number of said immigrants are dependents and called to this country by natiu'alized American citizens and by immigrants permanently settled here; and Whereas the necessity to add to the phvsical and educational test also a moral test, and the same can be olitained only by investigation in the country of residence of the immigrants, and also for the purpose of limiting immigration when necessary in the interest of the national; and Whereas the stopping of immigration for any length of time would be contrary to the spirit upon which American civilization is based: Beit Resolved, That the Italian Americanization Club respectfully recommends and urges that war-time pas.sport regulations be extended indefinitely and that immigration 654 EMERGENCY IMMIGRATION LEGISLATION. be rei,'ulatod as to number, desirability, and qnalifications by (iovernment commission to be composed, respectively, of the Secretaries of Departments of State, Commerce, and Labor. Italian' Americanization Club, By P. Cesauetti, President. IMMIGRATION RESTRICTION LEAGUE (INC.). A statement from the Immigration Restriction I^eague (Inc.), of New York, submitted by its secretary, IMr. J. William Munson, is herewith printed in full, as follows: Xew York, January 24, 1921. Senator Le Baron B. Colt, Chairman Senate Committee on Immufration, Washington, D. C. Sir: The above league has been in existence for a number of years and has an extensive membership in this State interested in immigration restriction and the proper enforcement of our immigration laws. Our object has been to make a study of the situation, to keep up with the facts and the best thought upon the subject of immigration, and T)articularly to try to follow the legislative situation at Washington and the a 1 ministration of the law here at Ellis Island. Alien defectives, dependents, and delinquents cost the taxpayers of New York State an inmiense sum of money every year. We have enoueh charity work to do for our own, without importing more. As the Immigration Commission said in its voluminous report, ''too many" aliens become public charges and inmates of our institutions soon after landing. In 1920 the percentage of debarred and returned dropped one-half from the percentage of 1919. Nearly three times as many aliens came in 1920 as in 1919. The rush is on, and it is impossible for the authorities, if they had the facilities, to do the work efficiently. But it is not all a question of facilities and officials at Ellis Island and other ports of entry. I want to call your attention, on behalf of the league and its members, to the fact, as was pointed out on the floor of the House during the debate on the Johnson bill. H. R. 14461, that Assistant Secretary Fost has not shown the regard for America and our immigration law (which he opposed at the time of its passage, and has, since he took his oath of office to support and uphold the law, denounced here in New York City at public meetings, as a "crazy"' affair and the like) that a Federal official should show or resign. Not only has th^ percentage of debarred and returned dropped one-half since 1918-19, but the percentage of those debarred on appeal has also diminished. Al- though 1.639 illiterate alien? were debaired and deported last year, being brought here contrary to law, fines were levied in only 264 cases. Although the doctors at Ellis Island and elsewhere, certified 13.279 as physically and mentally defective, 11,541, or 87.6 per cent, were admitted. '^^Tien it comes to our own soldiers returning from a fore'gn war, we are much more strict in admitting them than we are aliens, and when it comes to importing horses and cattle for breeding purposes, we are much more par- ticular than we are about the phys'cal and mental conditions, apparently, of foreigners to whose ofi'spring may be intrusted more or less (he fut(u-e of this country, which our forefathers handed down to us after such a sacrifice of blood and treasure. Last year the number admitted on bond jumped from 5.6 per cent in 1919 to 18.8 per cent; 19.9 per cent were admitted without bond on appeals to the department. Over on-:>-fifth of the Mexicans admitted for temporary piuposes disappeared. The author of th" "bonding" and "temporary purposes" provisions in existing law, once a Member of the Ilouse and one of the conferees, boasted in a letter, of which we have a copy, to th? so-called National Liberal Immigration, which was financed by foreign steamshij) companies, one of which was his law firm's clients, that the "restrictionists" were "worse off" as a result of the law, because of the bonding loophole, than before the passage of the law. So it seems also with reference to the proviso admitting aliens for a temporary sojourn, which he says he wrote. If this sort of th'ng continues, there is certain to be an increasing demand for closing the doors absolutely. If immigration-restriction legi-slation continues to reveal jokers and much maladministration, as it seems to be having, when a clearly debarred stowaway, who has come in violation of our passport and other laws is allowed to land by such a violent construction of our law on the part of an official who has tak^n an oath to uj)hold that law and who will even suspend the existing law "pending legis- EMERGENCY IMMIGRATION LEGISLATION. 655 lation" authorizing him to do so, as he did February 12, 1920, the demand for more ■drastic relief by total suspension is bound to grow. My point is simply that if our ('hinese exclusion laws and the methods we have for keeping out the Hindus by geographical boundaries and the Japs by agreements are to be scrapped by a percentage plan that will let the Orientals in by a small percentage, to become progi'essively great, and the existing law is to be "scuttled " by substituting a discretionary power "in the Secretary of Labor, whose attitude is well illustrated by the above citations, to absolutely substitute for law his mere opinion, there is bound to be a growing demand on the part of patriotic people, who want to see this country properly safeguarded against a surplus of aliens, foreign notions, and other imported conditions, wh'ch if they come in too large quantities are more certain to cause injury than a flood of foreign-made goods. We are opposed to the proposal to repeal the contract labor laws by any such amend- ment as that proposed in the interest of the great big cotton plantation owners of the Southwest, the Tampa cigar makers, or any other interests, which are no more entitled to illiterate, pauper contract labor than is the United States Steel Corporation or the sweat shops of New York City. Likewise we are opposed to letting in the Chinese and Japanese by a percentage plan that proposed to cut down southeast European immigration. I would thank you if this letter could be made a part of the hearings next Tuesday when the Commissioner General appears. Very respectfully, J. WiLLiAii MuNSON, Secretary. ORDER OF INDEPEXDEXT AMERICANS. An argument in favor of the exclusion of immigration for two years, submitted on behalf of the Order of Independent Americans (Inc.), of Philadelphia, Pa., by State Council Secretary William A. Pike, is herewith printed in full, as follows: Philadelphia, Pa., January 7, 1921. To the Hon. Le Baron B. Colt. Chairman Senate Immigration Committee, Washington, D. C. Dear Sir: Representing (30,000 American citizens, members of the Order of Inde- pendent Americans in the State of Pennsylvania. I most respectfully submit for your consideration that the best interests of the L^nited States require that aliens be denied admission to the Ignited States for at least two years. No racial protest is made and no specific class of aliens is designated. The request for exclusion is based upon what is considered to be best in the interest of our people and for the good of American patriotic citizens. It is admitted that 15.000.000 of aliens are anxiously waiting to emigrate and the tide of immigration is only limited by the capacity of the steamships to transport them to the United States. Official figures from Washington, D. C, fix the number of unemployed in the United States at 2.325,000. Add to this those aliens who are now streaming in and the expectant horde who will come if permitted, and we will be facing the very serious question of an economic system of soup houses rather than an exclusive immigration law. The first (piestion of primary importance is: 1. Are they needed? The signs of the times indicate that they are not needed and that we can verj' readily do without them . They only come to better their own condition and not ours. 2. Are they desirable? Their desirability is an open question, and is measured by their educational quali- fication and intelligence or by some degree of merit which they may possess and of their good to a commimity by becoming Americanized and making good, loyal, patriotic American citizens. The test was applied during the late World War when to our very great surprise we experienced a very general lack of American patriotism among our alien and natural- ized peoples and a wide feeling of sympathy and hope for the success of arms for the country from which they came. Let us apply a strict American test before admitting any aliens in the future. 3. (an they be assimilated? All kno^vn theories of a means of assimilation have proven futile, negative, and un- reliable. 656 EMERGENCY IMMIGRATION LEGISLATION. They persistently huddle and colonize in the seaboard and inland cities, where they become clannish and live in well-defined lo'^-alities, l)elts. and spots, which become known, as for instance, the Italian ({iiarter, the Jewish colony, the Polack, settlement, etc. They do not eo to the farms and farm lands, exce])t in very limited numbers. By these methods of segregation, they themselves keep up foreign caste, racial distinction, and create a prejudice to their race or class. It appears that those who are opi)osing an exclusion law are: 1. The steamship companies who make large sums of money transporting the aliens to our shores. They care nothing for the immigrant nor for the United States, but are only interested in the dollars they make out of it. 2. Racial agitators and interracial societies who try to make it apparent tliat some particular race or class of people are being persecuted. 3. To furnish corporate and other monej^ed interests with a cheap and low grade of labor. It is worthy of note, in this connection, that there is now a surplus of labor in our country, because, very recently, in Philadelphia, Kansas City, and other cities and towns where in answer to advertisements calling for employment of laborers there has been a great number exceeding the demand by thousands and hundreds who have been turned away. In reality, it is not racial prejudice that calls for a law of exclusion for a definite period of time, but that opportunity be given for a thorougli study and investigation so that a ])ro])er law in relation to the restriction of immigration may be framed and enacted which will be thoroughly American in spirit and be a decided benefit to our country and its people. It is therefore requested that you will approve and report the Albert Johnson House bill 14461, wMch has passed the House of Representatives, in its original form as introduced in the House of Representatives, including the provision of a two- year exclusion. Very truly, yours, Wm. a. Pike, State Council Secretary. INDEPENDENT ORDER BRITH SHOLOM. A brief in opposition to immigration bills Nos. H. R. 14461 and S. 4627, in behalf of the Independent Order Brith Sholom, of Balti- more, Md., submitted by Mr. Maxwell Suls, grand chancellor, is herewith printed in full, as follows: To the Senate Committee on Immigration. Gentlemen: The Independent Order Brith Sholom, of Baltimore, begs leave to submit to your honorable committee the foUo^ving memorandum in opposition to the two measures now pending before your committee and known as the immigration measures, H. R. 14461 and S. 4627. reasons for opposing the bills. The reason for opposing H. R. 14461 is that, while the bill suspends immigration (witli a few exceptions) for a period of 14 months, it is feared that this bill may be a vanguard for permanent legislation setting up insurmountable bamers, perpetually barring worthy, desirable, and needed immigration and constitutes a radical change in the policy of the Nation which is not justilied in principle. This drastic legislation must be predicated upon the assumption that all of Europe's undesirables are clamoring for admission at our gates, and the majority Committee on Immigration and Naturalization of the House of Representatives (hereinafter called the majority committee) "ha^? estimates ranging from 2,000,000 to 8,000,000" of immi- grants seeking entry. Even though this estimate be accurate, with the present ship- ping, it would take from two to four years to transport this number. We must not lose sight of tlie fact tJiat from August, 1914, up to the present time, with the exception of a few months this year, there has been no immigration, due to the war and lack of shipping facilities, and if the present rush seems gi-eater tlian the usual flow, it is only because immigration has been pent up for the past four and one-half years. ' EMERGENCY IMMIGRATION LEGISLATION. 657 Two out of the four months selected by the majority committee (September and October, 1920) as a basis for their estimate of the great influx, show a net increase of but 83,431, and this would not be regarded as an unusually gieat influx of immi- grants if one bears in mind that in some years prior to 1914 there were as many as a million immigrant arrivals. A POINTING OI T OF THE JEW AS THE ONE INTENDED IN THIS LEGISLATION". A careful examination of the majority committee's report discloses the numerous references to the ••.Tews of Poland," ••Hebrews." and those of the ••Semitic race." seeking entry to the land of the free and home of the brave, and reports that ••it found by far the largest percentage of immigrants to be peoples of Jewish extrac- tion." ••On the steamship Neir Amsterdam sailing from Rotterdam, the committee found that 80 per cent of the steerage passengers were from Galioia, practically all of Jewish extraction. On the New RocheUe, arri^■ing from Tan^ig. the committee estimated that more than 90 per cent were of Femitic race," overlooking the reasons for this greater percentage in the facts as stated by the lion. Isaac Siegel and Adolph J. Sabath. representing the minority committee's A-iews "that we are credibly informed that this is due to the fact that these steamers sailed from ports which uere accessible to the Jews coming from the various parts of Poland, just as the immi- grants arriAing on steamers leading from Italian ports bring Italians and those from ScandinaAian ports those of Scandina^'ian descent." ••Representative Siegel had occasion to speak to many of the immigi-ants aiTiA-ing on the Rotterdam in tifie presence of three other members of the committee. He found that practically all of them were women and children coming to this country to rejoift the heads of their families and other near relatives in the United States. The children were especially intelligent and would, unquestionably, within a very brief period be thoroughly assimilated." To single out a people, who out of a population in the United States of about 3,000.000^ gave 225,000 to the United States Army and XaAT, "and that on the basis of population had contributed at least 33 per cent more than their quota." as the recipient of such hostile legislation, is the perpetration of a colossal injustice. "If additional evidence be needed to demonstrate the liigh quality of Jewish service in the recent war, it is to be found in the official citations for gallatry in action issued by the various allied commands. Of such honors there are so far, recorded some 600 to the credit of American Jews." And who will detract from the valor and ever- lasting immortality of the '•Lost Battalion" composed chiefiv of Jewish immigrants, or children of Jewish immigrants, living on the East Side of New York City? It is no longer a question as to whether this immigrant of the pointed out class can assimilate and become a true loyal American, and usefiil citizen. The crying need of the day is not for additional legislation on the subject of immi- gration, but the enforcement of the existing law by an adequate staff, with adequate facilities, which will insure the admission of those immigrants of good moral cliaracter, physically sound, and mentally fit, self-supporting and opposed to A-iolence and revolution. GOING TO THE CITIES, AND FROSI THENCE WHERE WORK MAY BE HAD. The majority committee reports that the new immigrants from Central Europe are not agriculturists, seeking the farms, but additional population for the large cities and congested industrial centers, and further stagnating an already dull labor market, and accentuating the lack of housing facilities. It is evident that buildins: activities have again resumed their former activity, and the question of inadequate housing facilities will soon be a thing of the past. The natural slowing up of industrie.^ for a brief period is far from a cry of wide- spread unemployment, and the two following dispatche-; is an illustration of the afore- going statement. [Baltimore Evening Sun, Jan. 3, 1921.] 1,000 BACK IN N. Y. C. R. R. SHOPS. Albany. X. Y.. January 3. Approximately 1,000 employes of the New York Central Railroad shops at West Albany, laid off December 23 for an indelinite period, returned to work to-day. 658 EMERGENCY IMMIGRATION LEGISLATION. 20,000 TEXTILE WORKERS RETURN. ^^ANCHESTER, N. H., January 3. Twenty thousand textile workers returned to work in the mills here to-day after a shutdown of two weeks. They accepted the 22^ per cent wage cut announced by the companies. If the newly arrived immigrant does not migrate to the farm his desirability is not lessened one iota, for who is it that wrests the wealth from the very l)owels of the earth if not the immigrant? It is an impo.ssibility to induce the average American born to do the back-breaking tasks that the immigrant is willing to. and does undertake. Dr. John McLeish, in a recent pu])lication of the Immigi'ation Bulletin, states that seven-tenths of all the coal mined in this country is mined by the immigrants. About 78 per cent of the woolens are weaved by the immigrant: nine-tenths of the labor in the cotton mills i-^ of foreign birth; nineteen-twentieths of the clothing is manu- factiu'ed bv the foreign born; he also produces more than one-half of the shoes worn in the Ignited States; and four-fifths of the furniture is made by him; one-half of all linens and glass u.sed in America foreign-born labor produc-es; and nineteen-twen- tieths of the sugar is refined by him; he makes one-half of the total output of cigars, and makes 90 per cent of our steel and iron; and constructs 95 per cent of the railroad mileage. "This is the commercial record of the men gathered from the proverbial four cornera of the world. Their brains and brawn have entered into the warp and woof of the fabric of America's life. Their patriotic record is as creditable. By their blood they cemented the foundations of the future America." We are no longer an agricultural Nation, and with the advent of modern farming im])lements there is no great dearth of agriculturists to properly care for the farm products. We are a great commercial country distributing our manufactured prod- ucts to the world, and with ample means to absorb in its great industries every immi- grant seeking an opportunity. If the original destination of the immigrant is some large industrial center it does not follow that he remains at his original destination permanenllv. Soon his brawn is appreciated in the steel and rail mill; another seeks his oppor- tunity in the mine, and still another in the factory end, etc., all filling an essential part in our gi'eat industrial life. "The immigi-ant of to-day is not inferior to the immigrant of yesterday. He is just as poor in poss'i'ssions and just as rich in promise as the immigrant of the thirties, forties, and fifties." Respectfully submitted. Maxwell Suls, Grand Counsellor, Independent Order Brith Shalom of Baltimore. NATIONAL LIBERAL IMMIGRATION LEAGUE. A statement in opposition to the bill submitted in behalf of the National Liberal Immigration League, New York, by Mr. N. Behar, managing director, is herewith printed in full, as follows: New York, January 2, 19-21. Hon. LeB. B. Colt, United States Senate, Washington, D. C. Dear Sir: I beg to submit for your consideration the following statement in oppo" sition to the Johns-on bill providing for the stopping of immigration for one year: We all know that the jjresent cri-is — like all our previous one- — is of a temporary nature, and not due to immigration. Ere long peace shall have been reestablished, our national life shall take its normal vigorous course, and immigration shall be as necessary for the maintenance of this national life as is the air to. our lungs. Never- theless, on account of certain vexatious problenxs at present commanding our atten- tion, together with the unfortunate world-wide postwar tendency toward rashness and summariness, immigration has been made the 8cai)egoat. It is now proposed to stop it alt'igether for a certain period. This is cutting off one's nose to spite one's face Here are our four l)iggest problems, and the simple remedies which the National Lil)eral Immigration League earnestly requests the Senate Immigration Committee to turn its attention to instead of such a radical reversal of ancient American policies as is embodied in the Johnson bill: EMEEGEXCY IMMIGRATIOX LEGISLATION. 059 The problems: (1) The menace of Bolshevism; (2) the Japanese question; (3) con- gested cities; (4) ignorance of our language liy too many aliens. The remedies: 1. (Bolshevism.) All aliens should be admitted conditionally and warned that until they have proved worthy of receiving the privilege of American citizenship they are lialile to deportation by order of even the police commissioner of every town the moment they make trouble. (Let me remind you in this conne-^tion that as far lia-'k as 1907 this league adopted as part of its platform, at the suggestion of Cardinal Gil)l)ons. that aliens convicted of crimes be first jailed, then deported. Had the Federal Government adopted this policy when this league first urged it, our body politic woidd have been purged of many unclean members.) As to our own too- numerous Bolsheviki, since we can not deport them we must direct our energies resolutely to the task of so strengthening and ^dtalizing our national body that it will not only resist this disease but get rid of it. We all must be so permeated with old- fashioned righteousness that jointly we shall be immune not only to Bolshevism but to all other social plagues. Of course, building a Chinese wall around America will keep out a few foreign Bolsheviki, but at what a price. 2. (The Japanese.) The-e proud people, looking upon us as upstarts, ^vill never be satisfied until the Mikado's subject- in our midst are admitted to absolute equality with native Americans. So long as we can not agree on this, we must keep our powder dry — and deal with immigration and other problems from the standpoint of our own needs. 3. (Congestion.) It is true that immigrants have contributed to the congestion of our cities and industiial districts. It is even admissible that native Americans would refuse to live under the conditions largely prevailing there. Ihit why blame the immigrants? They are raw material in whom we can and must inculcate Ameii- can standards of living. They are a stream which we can and must direct to our advantage, so that it will be an unmixed blessing to our Nation. Congestion is the result of our negligence. Your committee and other congressional committees and commissions have on file reports and other commimications suggesting methods of distribution, repeatedly submitted by this league since the record-breaking immi- gration of 1007, such as free transportation away from the ports, inducements to farm workers, spreading the knowledge of agricultural opportunities, etc. In xiew of the present rate of exchange of the cuirency of the countiies from which most of our immigrants come, I suggest as timelv and effective aids to distribution (a) that immigrants arriving at such ports as Galveston, Savannah, etc., be exempted from the $S head tax, which to them is enormous. This would induce steamship com- panies to divert immigrant traffic from congested ports. I furthermoie suggest (b) that prospective immigrants applying to our consuls abroad to have their passports viseed be exempted fjom the ?!" fee upon producing evidence that they intend to settle in sparsely populated localities whe e they aie wanted. 4. (Ignorance of English.) Immigrants do want to lea' n our language. Thousands of them have started to study it in our schools, but the g;eat majoiity have not stayed, they have been discouraged, and they ha\e spread discouragement. The reas(m is that they could not learn cm account of being improperh- taught. We must adapt our methods to the peculiar mentality of slow-witted foreign-speaking adults; we must have more sympathetic, more efficient, more highly remunerated teachers. There is no need to ex])eriment as certxin c rporations have already shown the way. We can and must have English adequately taught. Then immigrants will flock en ma.s.se to our night or company time schools, and will be readily Americanized. The National Liberal Immigration League earnestly hopes that your committee will make a report to the Senate recommending against plunging into hasty action which would not only add to the suffering of Euroi)e but, by depriving us oi" willing workers at a time when increased production is an imperative need, inc. ease the cost of living in our own country. Sincerely, yours, N. Behar, Managing Director. NATIONAL ASSOCIATION OF MERCHANT TAILORS. A brief setting forth the attitude of the National Association of Merchant Tailors, New York, toward the pending bill, submitted in behalf of Mr. E. Twj^efford, chairman of the association's committee on legislation, by Mr. E. H. Snyder, of Washington, D. C, is herewith 660 EMERGENCY IMMIGRATION LEGISLATION. printed in full, together with the letter transmitting the same, and a supplementary protest presented b}^ Mr. Snyder, as follows: Washington, D. C. January 6, 1921. Senator LeBaron B. Colt. Chiinnan Committee on Immigration. United States Senate. Wcskington. D. ('. Dear Sir: Here\\Tth please find lirief which Mr. E. Twvefford. of Xew York City, whose status is "ohiirman committee on leo^slation. of the National .\ssociation of Merchant Tailors." has requested me to su1)mit the document to your committee, with request that you have same made a part of the official records pertaining to the present immigration hill now before the said committee for consideration. Thanking you in advance for your kind attention to this matter. I remain. Yours, verv trulv, E. H. Snyder. Member National Association Merchant Tailors. BRIEF IN BEHALF OF THE X.\TIONAL ASSOCI.\TION OF MEHCHANT T.MLOK . Kon. LeB.^ron B. Colt, Chairman Committee on Imnnf/ration. United States Senate. Dear Sir: We desire to protest against the legalizing of hysteria in re the immigra- tion situation. We are of the opinion that the pre.~ent lavs adequately cover the subject in all its aspects, ^^^lat is needed is the enforcement of the present laws. Some will say that new laws are needed to protect citizens from unemployment. Ask the farmer if that is the case: othere may say /that in every city needy citizens are forming a bread line. This is answered adequately by this clipping of the New York World of December 28: ■"If there are many unemployed in the city, it was not made manifest to the street cleaning department yesterday when an appeal for workers to help remove the snow brought scant response. \\Tien the snow had reached an inch a call was issued through the police to the regulars and also the 3.500 'extras' who had registered and others who had not. 'i-ater an appeal was made to the State labor bureau. In spite of the offer of 65 cents au hour, 2.017 men were all Acting Commissioner Fschman was able to muster when he wanted 8.000. In the section from Fomteenth Street to Canal west of Lafayette, but 51 men responded. In the district from Twelfth to Forty-second Street easts of Fifth Avenue, but 65 men showed up." The high cost of lining specter is still with us. Nothing but the speeding up of production in agi-icultui-e and manufacturing will cause this monster to di=appear. Are we going to help the present situation by keeping out producers? History proves the contrary to be true. Some people of benighted intelligence favor the building of a Chinese wall around the Umted States. For live years the war kept our immigra- tion to a low ebb. Had it not been for this embargo we would have added 5.000,000 to our population. Evidently this is no time to put up the bars on emigi-ation, hence we hope your committee will report unfavorably on the bill now under consideration. Respectfully submitted. F. TWYEFFORD, Chairman Committee on Legislation. National Association of Merchant Tailors. Mr. Snyder's supplementary letter of protest against the bill follows : Washington, D. C., January 6, 1921. Senator LeBaron B. Colt, Chairman Committee on Immigration, United States Senate. Washington, D. C. Dear Sir: We beg leave to offer protest agauist the enactment of the proposed immigration bill pa.ssed by the House and now before your committee for deliberation. We have confronting our industr/ a very acute situation, which will oecome more accentuated should the proposed bill become a law. Ther? is an alarming dearth of skilled joumevman tailors in the United States. Because of the a-^en^ion our young Americans appear to have for taking up the tailoring trade as a vocation, merchant tailors are obliged to look to Europe for a replenishment of the prevailing and con- tinuous decrea.«e in numbers of journeymen tailors. This shortage we believe to be ascribable to the re?son that there is not sufficient arti\-ity in the work to induce young, vigorous, and active .Americans to take up the trade as a vocation. This EMERGE^^CY IMMIGRATION LEGISLATION. 661 shortage has become more accentuated for the past five years, due to the embargo on immigration because of \\"ar conditions. Hence, would respectfully appeal to your committee to report unfavoraljly on this bill. Respectfully submitted. E. H. Snyder, Member National Association of Merchant Tailors laXGS COUNTY GRAND JURORS ASSOCIATION. A copy of the action of the Kings Count}^ Grand Jurors' Associ- ation, New York, urging immigration legislation along the lines of "careful selection, economic distribution, and prompt incorporation into the body politic," together with a letter transmitting the same, is herewith printed in full, as follows: New York, January 19, 1921. Mr. Henry M. Barry, Secretary to Senator Colt, Washington, D. C. My Dear Mr. Barry: Referring to our talk last Thursday, I have the pleasure of giving you below a copy of the resolution passed at a meeting of the Kings County Grand Jurors' Association on the evening of January 14. This meeting was attended by about 500 men and there were only two "noes" on its adoption. "Resolved, That it is the opinion of the members of the Kings County Grand Jurors' Association, in meeting assembled, that the immigration policy of the United States of America should be framed neither upon highly restricted nor practically unre- stricted lines, but solely upon the lines of careful selection at the point of origin, economic distribution at the port of arrival, and prompt incorporation into the body politic." Sincerely, S. S. TUTHILL. PENNSYLVANIA DEPARTMENT OF LABOR AND INDUSTRY. An argument in behalf of the Department of Labor and Industry of the State of Pennsylvania against im.posing restrictions upon the entry of ''able-bodied, healthy, and literate" inunigrants, submitted by Mr. C. B. Connelley, commissioner, is herewith printed in full, as follows : Department of Labor and Industry, Ilarrisburg, January 6, 1921. Senator Colt, Chairman Committee on Immigi-ation, United States Senate, Washington, 3. C. My Dear Sir: At the suggestion of Mr. Robert J. Peters, director of the bureau of employment. Department of Labor and Industry, Commonwealth of Pennsylvania, I am writing you to urge that in the pending legislation upon foreign immigration, no restrictions or limitations be placed upon the entrance of able-bodied, healthy, and literate Polish, Hungarian, Lithuanian, North Italian, Albaman, Portuguese, Spanish, Norwegian, Swedish, Danish, and Dutch immigrants. The Polish, Hungarian, Lithuanian, North Italian, Albanian, and Spanish immi- grants are needed for the industries and for the large construction enterprises in the Commonwealth of Pennsylvania. The immigrants from Norway, Sweden, Denmark, Portugal, and Holland are espe- cially needed for labor upon the farms in Pennsyh-ania. The Portuguese and Hol- landers are skilled in truck or gaiden farming: the Danish and many Hollanders are experts in dairy farming: the ordinary or a\erage Hollander is a good general grain farmer, or if inexperienced is the best semiskilled farm labor who has come into the country since 1860. It is therefore necessary and imperative that these several types of valuable labor for the industries, for construction work, and for the farms be admitted into the United States. Thanking you for your prompt attention to and cooperation in this matter, I am, with much respect, Very truly, yours, C. B. Connelley, Commissioner. 662 EMERGENCY IMMIGRATION LEGISLATION. NEW ORLEANS ASSOCIATION OF COMMERCE. A telegram and letter from representatives of the New Orleans Association of Commerce, urging the admission of Armenian refugee agriculturists, are herewith printed in full, as follows: New Orleans, La., January S. Hon. LeBaron B. Colt, Chairman Seiiate Committee on Immigration: Millions of acres of vacant cut-over pine lands not wanted by American farmers are available for .settlement by Armenian refugee farmers now dependent on American charity at Black Sea ports, provided Government will aid some of them to reach. Southern State-!. We are assured ample charity funds for use of a committee which we will form to tide such homeseekers over initial period after arrival. We ha^•e re- quested President Wilson's cooperation. Matter in State Department hands. Would aid in solving Armenian problem and desirable land settlement South if your commit- tee would adopt amendment to Johnson bill permitting some of the=e unfortunate but desirable people to come. In our opinion, their training \vill ena1)le them to make good use of lands which American farmers will not occupy and for which there is now no other use. New Orleans Association of Commerce, Walter Parker, General Manager The letter referring to the same subject, submitted by Mr. William Allen, follows: Washington, D. C, January 14, 1921. Hon. LeBaron B. Colt, Chairman Committee on Ivimigration, United States Senate, Washington, D. C. Dear Sir: I have been requested by the New Orleans Association, an organization of more than 5,000 members, to bring to your attention the desirability of permitting Armenian farmers and agriculturists now at Black Sea ports to enter the United States, and to express the hope that in such legislation as the committee may approve, pro^'i- sion may l)e made for the entry into this country of immigrants of this class. These people, I am informed, are political and religious exiles and can not return to Armenia and have no opportunity for making a livin» where they are. I am also adA'ised that they are Christians and easily assimilated in this country. That these people may not starve, we understand that food in large quantities is being sent to them from this country, which appears to be an endless process, because they are not in a position to provide for themselves. The New Orleans Association of Commerce has practical assiu'ances that ample cut- over pine lands, highly suitable for agricultural purposes, would be furnished to such homeseekers without cost, or, at least, at a very small acreage cost. They also have assurances from Islr. Hagop Bogigian, an Armenian citizen of this country, resident of Boston, that a committee which we would form to tide these people over from the period of arrival until they are able to make a living, would be amply financed to do this thing. Tlie transports that carry food to the Black Sea ports for the relief of these people could liring some of them back to the southern ports. Our investigation indicates that because of intensive training and their intensive methods of cultivation, and also because of the fact that they have no opportunity where they are. these people would develop the full potentiality of the cut-over lands, whereas. American farmers, accus- tomed to better opportunities and trained in an entirely different school of economic thought, will not make use of these lands. It is the l)elief of the Association of Commerce of New Orleans that the proposal to bring some of these people here has merit in every direction. The association has been in communication with cut-over pine landowners, who have given practical assurances of complete cooperation with the committees which would undertake the placing of such immigrants where they would be of real economic value to the country. 'irusting the committee will give this suggestion careful consideration, I am, Yours, very truly, William Allen, Special Representative of the New Orleans Association of Commerce. EMERGE^'CY IMMIGRATION^ LEGISLATION. 663 PENNSYLVANIA STATE CAMP, PATRIOTIC ORDER SONS OF AMERICA, A statement in behalf of Pennsylvania State Camp, Patriotic Order Sons of America, submitted by Mr. C. B. Helms, State secretary, protesting against the admission of illiterate contract labor from Mexico, the Bahamas, etc., is herewith printed in full, as follows: Philadelphia, Pa., Januarii 2'i. 1921 . Senator LeBaron B. Colt, Chairman Commift.ee on Immiipation, Washington, D. C. Dear Senator: I note in the printed hearings on emergency immigration legisla- tion that certain communications from chambers of commerce and indi^'idna]s have becit read into the record by the clerk of the committee, and 1 am writing to ask if >oi> will not be good enough to ha\e this letter placed in the jirinted hearings? i speak for 132,267 native-born Americans who belong to the order in the State of Pennsylvania. On their behalf I wish to protest against the proposal urged by certain chambers of commerce and certain interests of the South and Southwest to be allowed to import illiterate, pauper, contract labor from i\Iexico. Pahama. and other foreign territory. Senator and members of the Senate Committee on Immigration. I had hoped that soutliern men and even southern captains of industrv had seen the error of import- ing illiterate, ])auper, slave labor. E\ery dollar the slave trade brought to the South or tlie North was blood money, if the handmade cigar industry of Florida, the beet-sugar interest of Colorado, ilnd the large ))lantation interests of southern Texas have to stand or fail on liringing illiterate, pauper, alien labor into this country' under contract and conditions which amount to peonage, then these industries had better fall. I do not believe it. I think inventive genius a\t.11 rise to the occasion, if Tiie'e is the necessity for the iu'veution of labor-saving machinery to do such work. Our membership is strong for the public-school principle. We believe our immi- gration laws should require as much of aliens coming here as our compulsory school attendance laws require of our own native born. We believe an elementary education makes a man or woman a better worker and a better citizen. We believe that igno- rance and illiteracy should be eradicated from this country, and therefore are opposed to its importation. We believe that the ignorant and illiterate constitute a fertile field for the educated knave and educated violent radical. We can not see any more reason for any such person haA-ing material supplied for his practices than that an industry should have it. If the cigar manufacturers of Tamjia are to have cheap, pauper, illiterate alien labor *ljrought in head-tax free, why shoidd not the United States Steel Corporation be allowed to import the kind of pauper, illiterate contract alien labor it used to and could use profitably? We are opposed to giving any official or group of officials any such discretionary power as is proposed by these interests, and how any such privilege can be given them compatible with the spirit of our institutions I can not comprehend. The Czar of all the Russias never had more autocratic power than that which would be conveyed by an amendment to existing law authorizing a man or group of men to decree by edict when a law was a law and was not a law. 1 know their argument that this country grew great on immigration and their indus- tries depend on it. I have heard saloon men make the same argument about America having grown great on the liquor traffic. I have seen hotel men l)efore prohibition more panicky about their business than the business men who have appeared before vour committee. I no more think that cheap, illiterate, servile, pauper alien labor IS necessary for the profitableness of their business than the saloon and liciuor traffic is for the profitableness of the hotel business. The liquor men made the same argu- ment before committees of Congi'ess that the hand-made cigar interests have made before your committee with reference to the large amount of internal revenue the business paid the Government, which is now raising se\en times as much taxes as it did in liquor days. There is a surplus of alien labor in this country, ^^'ith a return to 'normalcy" in immigration the oversupply reported by the immigration commission is again upon us. An oversupply of alien labor, competing with itself, means an oversupply of every other alien factor. The order engages in Americanization work and I know that there is more raw material now than the melting pot can hold. What we need is not more aliens, but more elbow room in which to Americanize. We do not feel, as one speaker connected with the interracial council does, that more ought to be imported 664 K.MKIKiEXCN I.M.MIGI!AT10>: l.K(, iSl .A 1 luX . for the sake of exercising our Americanization forces. I can not lielieve that one who speaks that way knows much &})Out Americanization. If so, he must be more interested in some other phase of the prol)lem. Soup houses are l^eiiiji; opened throughout Pennsylvania. Men are out of work from one end of the State to the other. Immigration has been increasing rapidly. Oiu" membership feels the ruinous effects of the cutthroat competition. Our institu- tions are bound to feel it. The process is painful. Congress should do something effective at once, in our opinion. I thank you. Very truly, yours, ^ C. B. Helms, State Secretar)/. ARIZONA COTTON GROWERS' ASSOCIATION. Telegrams to and from the Arizona Cotton Growers' Association in relation to the present status of Mexican laborers in this country are herewith printed in full, as follows: Washington, D. ('., January 25, 1921. Arizona Cotton Growers' Association, Tempe, Ariz.: State Department has protest from Mexican Embassy that Mexican consul at Nogales has reported by telegraph that 15,000 Mexican laborers hired by your associa- tion are now in desperate straits, owing to nonfulfillment of the labor contract by your association. It is reported that your association in numerous casts refuses to pay the wages of the laborers in question. Caminotti has referred to this matter in his testimony before Senate committee. Please wire status of this matter. I have promised State Department to make immediate report by ^vire. Congressman Hayden refused to give time to see me. Please give me immediate report by ^vire to submit State Derartment on this matter. John A. Happer. Tempe, Ariz., January 27, 1921. John A. H.\pper, Room 820 Colorado Building, Washington, D . C: Xo foiuidation statement Mexican consul, Nogales. Association fulfilling all legal and moral obligations involved in this work. Slump ifi cotton market has paralyzed industry in this valley; many farmers bankrupt, but with exception of three outfits all laborers have been paid, and all laborers returning to Mexico have received com- pensation in full. Those who have not are being held here, and every effort made to settle their account, and in meantime are being cared for. ( )ur association has returned total about 8,000; large proportion of these well supplied -with funds when leaving here. Large percentage of unemployment at Nogales accounted for by fact that C?narea ( opper Co. has suspended operstiors. Mexican consul, Phoenix, com- plaining because we are not returning Mexicans to border; Mexican consul. Nogales, complaining because we are. Are working close with State and courty authorities. Mexican cotton pickers have been paid nearly §6,000,000 tliis fall, which is all the money received from cotton crop to date. Will wire again from Nogales to-morrow. W. H. Knox. John A. Happer, 820 Colorado Building, Washington, D. C. O^ving to large number aliens leaving valley for Mexico in automobiles and teams accumulated while here, as well as hundreds leaving on trains for border without reporting to association, we are unable to give exact figures on returns to Mexico until receipt of Immigration Service report early in February, and even this report will not be complete because of fact that many of them will slip across border without our receiving credit for them thi'ough Immigration Service. Since Ajuil we have imported 14,523 full fares, and 2,144 half fares. Have no figures on children under 5. Our estimate is that between eight and ten thousand of these aliens will return dur- ing January, many of them at expense of association, where necessary, but the largest majority of them at their own expense, the latter carr\ing large sums of money, besides many known instances locally of families buying from $500 to $1,600 express money orders before leaving, though, of course, many of the improvident ones spend EMERGEXCY IMMIGRATION LEGISLATION. 665 their money fast as they make it here. Absolutely no cases of want or privation among aliens imported by this association as far as we have been ad\'ised that have not been taken care of immediately by association. Private adx-ices from El Paso and other points on border show that same conditions exist at every large port, though no official information to this effect. W. H. Knox. A memorandum on the regulation of immigration into the United States, submitted by Capt. John B. Trevor, as supplementary to his statement before the committee on Tuesday, January 11, 1921, is herewith printed in full, as follows: REGULATION OF IMMIGRATION. A combination of three circumstances has brought the question of immigration among the group of issues ranking first in importance for attention by the incoming administration and (kingrese. The circumstances are these: First. The evidence resulting from a state of war that the basic population had failed to assimilate the recent influx of alien population prior to the outbreak of hos- tilities. That is to say, what may be christened hyphenism represents a national peril, not only as an internal factor in our political life, but particularly as a cause of ever varying fiiction in our international relations, being a reflex of factional struggles in foreign countries whose cohesion has been shattered by war. Second. The next circumstance, also an outgrowth of the war, is the menace of bolshevism through the immigration of persons in whom the revolutionary spirit has become a habit of mind ratner than principle. Third. Finally, peculiar administrative factors tending to accentuate the dangers outlined above through the exercise of wide discretionary powers confided to a limited number of officials of apparent radical tendencies. With these cii'cumstances in mind Congress is considering a measure to deal with a threatened flood of new immigration by the passage of an emergency bill closing our ports for a limited period pending the preparation of a carefully studied law. It is in view of this fact that the following memorandum has been prepared. T'le fundamental defect underlying the immigration and naturalization bills before Congress which are worthy of serious consideration is the effort to accomplish an efficient administration of the law without a departmental reorganization on a scale sufficiently comprehensive to deal adequately ^vith a most complicated situation which is the outgrowth of years of tinkering with a defective machine. For example, a cursory examination of the Congressional Record of lfi03 will indi- cate that the purpose of the reorganization of that period leading to the establish- ment of the Department of Commerce and Labor was essentially the same as that which actuates us to-day. It was an effort to eliminate duplication and thereby secure efficiency and economy. The results, however, do not appear to have justified the methods adopted. A curious practical development has grown out of these transfers of jurisdiction. The Treasury Department which formerly conducted the Immigration SerNdce now relies upon inspectors of the Department of Labor to develop possible \-iolations of the customs regulations as a result of their investigation of the immigrant's fitness to enter the United States under the immigrarion law. That is to say, no examination of immigrants' effects is, under present conditions, attempted, so the writer has been informed, bv agents of the Treasurv. Under the act of February 5. 1917, (ch. 29, sec. 23, 39 Stat., 892) the Secretary^ of the Treasury is permitted, upon a request from the Commissioner General of Immigration -approved by the Secretary of Labor, to detail officers of the Public Health SerN-ice for service in foreign countries to perform duties in connection with the enforcement of the immigration law, for it must be furthermore bonie in mind that the enforce- ment of the immigration law involves a stringent medical examination conducted in practice at points of entry, for the information of the immigration officers, by the Public Health Service, this service, curiously enough, being subject to the juris- diction of the Treasurv Department under the i>rovisions of the act of February 3, 1905 (ch. 297. sec. 1, 33 Stat., G50). The immigration act of 1917. section 23, further provides that the Commissioner General of Immigration may detail, with the approval of the Secretary of Labor, immigration inspectors for service in foreign countries. Since the outbreak of the war. and particularly subsequent to the armistice and the growth of the bolshe\'ist movement, attention has been drawn to the fact that while 26911— 21— PT 14 2 666 EMERGENCY IMMIGRATION LEGISLATION. section 19 of the act of February 5, 1917, privides tliat aliens found \vithin the terri- tory of the United States contrary to the ])rovisions of that act, or as amended by the act of October Ki, 1918, shall ui)on a warrant of the Secretary of Lal;or be taken into custody and d(>ported, the actual apprehension of these persons is carriefl out by agents of the Bureau of Investijjation of the Department of Justice and the cases prepared either by United States attorneys or special assistants of the Attorney (i-eneral of the United States, who, it should be noted — and this is a vital point- have no status except by courtesy at hearintrs held by the Commissioner of Immitrration or the Secretary of Labor. \\'here, throujrh friction between departmental chiefs and their assistants, this privilege is accorded grudgingly and hedged with emy)arrassing limitations, the interests of the United States may be gravely imperiled. A flagrant instance of obstructions along these lines is the case of the notorious L. 0. A. K. Martens. A number of bills introduced in Congress contain proAasions which in general involve an extension of the passport system for a period beyond that covered by the passport act of May 22, 1918, in force for the period of the war. Should peace be de- clared the provisions of this act are extended by a supplementary law until March 4, 1921. Reference is made to this phase of the immigration qu^ftion because it is inevitable that passports be required under conditions as they will ]frobably continue to exist in Europe for an indefinite period. The question of passport control at ports of entry therefore will fall under the supervision of agents of the Bureau of Immi- gration — that is to say, the Department of Labor. We have seen in the preceding paragraph that in spite of the reorganization result- ing from the transfer of the Bureau of Immigration from the Treasury Department to the Departments of Commerce and Labor that owing to circumsatnces as yet uncor- rected there is collateral jurisdiction by agents responsible to four departments of om- Government. That is to say, the Pul)lic Health Service of the Treasury Depart- ment, the Bureau of Investigation of the Department of Justice, the Bureau of Immi- gration of the Department of Labor, and the passport division of the State Depart- ment. In order that the reader may have in mind the extent to which various agencies of the Federal Government and, indeed, of the States and municipal author- ities are by one provision or another of the United States statutes bearing on this subject involved in the immigration problem, the following table may prove helpful: Federal: Department of Labor: Bureau of Immigration and Natui'alization. Treasury Department: Public Health Service. Department of State: Diplomatic Service, Consular Service. War Department: Military Intelligence. XaAV Department: Naval Intelligence. United States Department of Justice: United States attorneys, Bureau of In- vestigation . State and municipal: State authorities, district attorneys, police, etc. Without furtlier discussion it will probably be admitted there is fruitful cause for friction, not to say duplication of effort witla consequent inefficiency and waste,. in a system such as that outlined above. Therefore it will be apparent that in order to deal adequately with the immediate problem under consideration it will be necessary to have in mind two fundamental factors: First. The creation of an investigation service which will function elliciently for all departments and bureaus of the Federal CTOA'ernment and in liaison with the State authorities. Second. The preparation of an immigration law which will not only protect our Nation from an inundation of undesirables but also create an agency which na-III de- termine efficiently and justly debatable cases presented by the Bm-eau of Investi- gation for its consideration. Before proceeding to discuss in some detail the provisions to be incorporated in a revision of our immigration law, it is necessary to outline the organization of an investigation service which should function for lihe se\eral departments. Investigations for Go^'ernment ])iu-poses may be roughly classified into two groups: (1 ) In\ estigations for the purpose of establishing proof of the violation of the criminal statutes or sanitary regulations of the United States. (2) Investigations for the piu'pose of placing in the hands of Government officers information as to the basic principles and causes of mass movements or indiviilual activity bearing ujjon the jwlicy of the State in its national and international policy. Cases arising under class 1 need little explanation. They relate to the indi\idual who smuggles, sells intoxicating liquor, counterfeits currency, violates the postal regulations, evades the immigration act, or indeed commits or attempts to commit any crime. EMERGENCY IMMIGRATION LEGISLATION. 667 Cases arising under class 2 are of infinite scope, but ^\'ith the possibility always in the back,ii;round that the actions of persons or groups under obser\ation may bring them within the purview of class 1. Obviously a great ])art of the information sought under class 2 is highly confidential and should only pass under the observation of a selected personnel. To meet the situation outlined in the previous paragraphs, it is necessary to divide the investigation service of our Government into two di\ isions: Division 1 : Under the sui)erAision of the Attorney General of the United States. Di^ision 2: Under the supervision of the Secretary of State. Both divisions jointly observed by a board consisting of the secretaries of the various department?', ex otticio, and of wJiich the Secretary of State shall be chairman. Taking up division 1 for consideration it is clear that under the supervision of the Attorney General of the United Stales, and actively directed by his first a.ssistant, it must be subdivided into sections dealing with various classes of investigation and crime. Tliat is to say, at headtjuarters and at important substations it would operate by subdivisions subject to one director and operating on one tile. This alone would eliminate the chaos of disorganization, duplication of effort, and jealousy which was so much in evidence during the war. As an illustration of inefficiency of the system or lack of it during the emergency period the writer recalls the chief of one of the sul)offices of an allied service saWng that frequently in the course of one day four or five agents of rival United States bureaus would be in his othce in regard to one and the same case. Again, I believe men at that time in Federal bureaus will recall agents of one service calling for infor- mation from another agency of the Government, and finally turning in their report, sometimes in paraphrase, as an oiiginal investigation. The net result being that the same data would return in possil)ly two or three weeks as apparently new material through the liaison service of the department at headquarters in Washington. The second division, under the supervision of the Secretary of State and actively directed by an Assistant Secretary, in addition to a consolidation of ililitary and Naval Intelligence with State Department investigations, also would comprehend all researches desired by Government bureaus outside the jurisdiction of the United States. This service, with its coordinated subdivisions, should function on one file, to which one copy of all reports of the first division would come automatically by proA'ision of law, but from which no file could issue without the 0. K. of the dii'ector under regulations not necessary now to recapitulate in detail in view of the fact that the primary purpose of this memorandum is to discuss immigration. With the bare outline of the investigating machinery in mind it will now be possible to under- stand what is meant by the first and second divisions of the Bureau of Investigation. It may be added that it would be futile to elaborate the details of this mechanism until the general principles herein contained are deemed worthy of further study. Proceeding now to the question of regulation of immigration in detail, it seems most expedient to develop the subject by a critical analysis of what seems to the writer the most scientifically conceived measures laid before Congress. Four bills stand out conspicuouslv as worthv of consideration: 1. The bill intro- duced by Mr. .Johnson, 11. R. mm. 2. The "bill introduced by Mr. Welty, H. R. 14196. 3. The bill introduced by Mr. Johnson. H. R. 14461, which recently passed with slight amendment. 4. The bill introduced by Senator Sterling, S. 4594. The Johnson bill, 13646, is essentially a naturalization bill; the Welty and Sterling bills are complements of each otlier, the latter apparently a development from the former and more carefully studied, while the .lolmson bill. H. R. 144(51. which reccTitly passed as amended, is an exclusion act pure and simple. It is an emergency act to cover the period of preparation of a detailed measure. With tiie amendment cutting down the exclusion to 14 months, it deserves, in the WTiter's opinion, sup- port with consideration of a possible amendment providing for the organization of a commission for the study and preparation of a comprehensive immigration law during the period that the exclusion of immigration is enforced. The Sterling and Welty bills may in their general features be considered together. Both bills provide for the establishment of an immigration board. The Welty l)ill provides the Secretaries of State, Labor, Commerce, Agriculture, and Interior, acting ex officio, and a sixth member appointed liy the Prendent. who shall act as chairman, as members of the board. This suggestion has some merit, l)ut is open to the grave objection that it would throw undue detail upon tiie heads of the vavious departments in addition to their already gi-eat responsibilities. It would appear that Senator Sterling may have had this objection in mind, because, while accepting the general provision and powers for the Ijoard as outlined by Mr. Welty, he sug- gests a board of five members "including the Secretary of Labor, who shall be a member ex officio, and four meml)er3 appointed by the President, by and with the 668 EMKKUENC;V IMMKJKATION LEGISLATION. advice and consent of the Senate." It Ih further provided that the Secretary of Labor shall l)e ex ofhcio chairman of the iramiirration board. '^Ihere are equally serioii.s oliiections to Senator Sterlin<>:'p pro])08al which, in fact, strikes at basic provisions of both bills. Section 3, pa£;e H, lines 1') to 22, of the Senate bill provides for '"a thorough and coniprehen,si\e intjuiry into the causes and condi- tions leading to the immit^ration of ])eo])le.s of different nationalities or ethnic groups to the United States, which inquiry shall include an investigation of the methods, if any, employed by the agents of foreign governments or of transportation cornjianies to ijiduce or eJicourage such innnigration or to induce, encourage, or assist the immigra- tion of ))articnlar pendens or classes of persons, whether desirable or undesirable, as residents or citizens of the United States," and again, section ?,, page •">. lines ] 1 to 20. '"The board is hereby authorized and directed to at once enter into negotiations througli the Department of State with the go\crnments of foreign countries with a view to detailing immigration in8])ectors of the United States for service at the several consular agencies and embarkation jwints within such co'.uitries, with authority on the part of such inspectors to investigate all intending immigration, to inquire into and report to the board tlie cause.s and motives inducing the immigration of particular persons or i)eoples." "U hJle it is true that the bill provides, of necessity be it said, for the negotaitions to be carried on through the liepartment of State, the ])roposed m.easure clearly con- templates that tlie investigation and emf)loyees connected thercA^ith shall be iinder the control of the immigro.tion board, which as constituted must ob\iously be a mere appanage of the Department of Labor, as indeed it is at preseiit. J^efore such exten- sive powers of investigation in territory outside the jurisdiction of the United States are conferred upon a de]iavtment in no way concerned with the direction of our foreign relations it is well to consider verv serioiisly the testimony of Mr. Lansing before the Committee on Foreign Affairs of the House of Representatives, January 7, 1920, from ■which the fojlowing excerpts are quoted: "Then there is another (jnestion of great importance wliich ought to be considered in this relation. The activities of our Government in the foreign lield, altliough extensive, have been conducted by several departments independently of each other, following no well-def'ned line of coordinated effort and \vithoiit regard to any well- conceived general polic-'. * * * " As an essential factor in the furtherance of any specific or general policy, the De- partment of State must be relie\'ed of all embarrassments which might arise through the uncontrolled acts of agents abroad who may not themselves be impressed with the bearing of their work upon the relations and the interests of the department respon- sible therefor." * * * It is, of course, impossible for the v.Titer to state the many instances of embarrass- ment caused by the Department of State which Mr. Lansing had in mind, but it may not be amiss to indicate at this point the fact that the Imperial German Government objected to the actiAities of officers of the LTnited States medical service who were attempting to carry out the provisions of the immigration act of 1893, and also that the Government of the Netherlands refused to permit medical inspection at Dutch ports under the act of 1903. In making this comment the reader must bear in mind that it is aimed not at the principle of an immigration board or, indeed, at the general tniderl\ing idea of the Sterling bill, but rather at its form and at the powers delegated which are, in the opinion of the writer, insutliciently studied in any measure as yet introdticed before Congress. It may be remarked that in as much as the Welly bill proxides that the Secretary of State should be ex oHicio a member of the immigration board, the objec- tions raised by Mr. Lansing to the independent operation of agents of other depart- ments are in a measure mitigated and therefore his suggestion is jjreferable to that proposed by Senator Sterling. While this is in a meastu-e true, nevertheless the objection already raised to Mr. Welty's plan is too weighty to be disregarded. It is interesting to look back in this connection to the debate on the transfer of the Bureau of Immigration from the Treasury Department to the new Department of Commerce and Lal)or constituted in 1903, in which it was said that, '"the qtiestion of immigration is of particular imjjortance to the labor interests of the country. The Bureau of Immi- gration ought to be in some department in connection with the Commis.-^ioner of Labor." In so far as immigration adds to the i'oating supply of labor this statement is true. Under the immigration laws as they existed at th>U time it was. howeA'er, a less logical conclusion than wotdd be the case shoidd one or the other of the bills restricting immi- gration be now adopted, because it mtist be obvious to any student of social and polit- ical conditions that the Department of Labor is greatly intUienced, if not actually dominated, by organized labor. To this fact anyone proposing to alter our immigration laws must give consideration to three other powerfid inlhiences which must be reck- EMERGEISrCY IMMIGRATION LEGISLATION. 669 oned with in the preparation of an immic;ration law: First, the steamship companies; second, employers of labor; and, third, the Jewish element of our population. The interest of the steamship companies is too obAious to need discussion. That of employers, as such, is probably oppo.sod to the theory which impels organized labor to demamd a restriction of immigration, while the \'iew of the Jewish element is probably well expressed in the statement attributed to Mr. Louis Marshall, the well- known iawver, commenting on" the alisence of Congressman Siegel from a meeting recently held in New York (New York Times, Dec. 12, 1920): "Mr. Siegel was compelled to remain in Washington, and referred to the valuable services to his race that had been rendered by Congressman Siegel in opposing the immigration restriction bill." While it is obviously impossible to create a mechanism which can cope with selfish aims, or a racial solidaritv, superior to the national interest, it is hardly probable that Congress or the people at large will disregard the danger of concentrating the great powers of a restriction act within the control of the Department of Labor merely because of its special affiliations arising throirgh the performance of duties otherwise imposed, particularly in view of the reasons hereinbefore and now about to be dis- cussed indicating that the direction of immigration should be placed elsev here. For example, while it is true that the act of March 4, 1913 (c. 141, sec. 3, 37 Stat., 737) , provides that tlie "Bureau of Immigration and Naturalization is hereby divided into two bureaus," no argument can be seriously advanced justifying the determina- tion of fitness for citizenship directly or indirectly by a department organized for the pin-pose of dealing with problems connected with a fragment of the population, no matter how great that proportionate numerical interest may be. The final objec- tion to the administration of our immigration laws by the Department of Labor is to be found in one of the most important functions imposed upon the Secretary of that department by the act of February 5, 1917, and also by the bills now particularly under re\"iew amending that tatute; that is to say, the provision delegating to the Secretary of Labor the power to exclude and deport aliens from the United states. It is difficult to imagine a subject more fraught with possibilities of foreign complica- tions or negotiations and, therefore, more properly within the cognizance of the Department of State than this feature of the immigration (faesticn. To demonstrate the truth of this assertion, it is only necessary to cite the Japanese question, on the one hand, and, on the other, that of the emissary of the i-oviet regime in Moscow, the notorious L, C. A. K. Martens, whose activities ha"\e recently been subject to review by the Secretary of Labor. Could anything be more grotesque than to hsi\e the Secretary of that department pass upon the credentials and actiA ities of an indi- xidual claiming to be an amba?sad'T, and e\en rule upon the character of a regime claiming recognition as a sovereign State? Having up to this point discussed the problems of immigration and its control in general, the Mi-iter will now proceed to analyze Senate bill 4594, Sixty-sixth Con- gi'ess, third session, with a view to making certain constructive suggestions rather than attempting to dictate in any way the precise provisions which in his opinion Congi'ess might properly adopt. In the discussion hereinbefore giAen it must be borne in mind that the comment must be read in connection with the bill as drawn by Senator Sterling. Section 1 : This section may be accepted intact. Section 2: It is suggested that the provisions of this section be amended to proA'ide for a board constituted as follows: (a) Chairman of the board should be Assistant Secretary of State ex officio. (b) The Assistant Secretary of Labor ex officio should be a member of the board. (c) Three other members appointed should represent manufacturing, commercial, and agricultural interests of the country. (d) Power to nominate commissioners at ports of entry subject to the approval of the President, and delegate poAver,-; of examination subject to appeal to the board. (e) The board shall have power to appoint a permanent secretary, etc. Section 3: (a) The board shall call upon the second division of the Bureau of Investigation for all data necessary for their study a.s outlined on page 3. lines 13 to 22 of the bill. (ft) From line 23, page 3, to line 10, page 5, the bill may be accepted as draAvn. (c) The board is authorized and directed to call upon the Secretary of State to arrange when necessary by negotiation for the assignment of agents from the second division of the Bureau of Investigation to make researches and furnish data and execute the administrative features in the bill, page >, line 11, ti page (i, line 7. (d) Page f), lines 8 to 15, may be accepted as \mtten. Page 6, lines 15 to 21, should be modilied to pro »ide that the commissioner of immigration at any port of entry or debarkation shall call upon the director of the l.rst di ision of the i.ureau of ln\esti- gation to conduct examinations and investigations for the purpose of detecting a iola- 670 EMERGENCY IMMIGRATION LEGISLATION. tions of tho law. Tho (Hrertor nf in\estij?ations may call upon the United States attorney of the district in which the port ia located for assistance in tl)e proser ution of cases arisiua; under the ])ro\ isions of the law before the commissioner of immigration of the port. The balance of this section is unobjectionable. Section 4: This section deiines the line of activity properly within the scope of the immigration board. Section 5: Tliis section should he amended to read somewhat as follows: (rt) All aliens entering the United States. e-Kceptiug accredited representatives and officials of foreign Cun ernments, recognized as such by the State Department of the United States, siiall i)resent passports ^iseed by a consul or a diplomatic representative of the United States specially authorized, in the country from which the holder starts on his trip to the United States, and if such country is not the country to v>hich the alien owes allegiance the ])assport must also be viseed by a diplomatic or consular officer of the country to which the holder owes allegiance. (b) All aliens except accredited representatives and officials of foreign Governments ''must furnish to the diplomatic or consular officer of the United Stales who vises the passport in the foreign country from which he starts on liis trip to the United States, and to the authoiities at the ])ort of entry or elsewhere in the United States, a written declaration setting forth: (1 I The date and place of the bearer's birth: (2) the nationality and race of his father and mother; (3) the pluce of the bearer's last foreign re.^idence and other places, if any, where he has resided within the past five years; (4) if he has ever been in the United States, the dates and objects of his v isits and the places and addresses where he resided or sojourned: (5) the date set for his departure for the Uiuted States, the port of embarkation, and tlie name of the ship on which he is to sail, if he goes by water: (6) not less than three names and addresses of persons acquainted with the applicant in the country from which he starts and, if possible, three names and addresses of persons in the United States; (7) the expected duration and object of his proposed visit to this country, the documentary or other proofs of such objects submitted, and the place or places in the United States where he expects to sojourn or reside: (8) that the bearer knows and understands the pro- visions of the immigration laws excluding certain classes of aliens from the United States and is certain that he does not fall within any of such classes: (9) that the bearer understands that if on arrival at a port of the United States he is found to be a member of a class excluded by the immigration laws he will be deported if practica- ble or, if for any reason deportation should be found to be impracticable, will be held in detention indefinitely in an immigration station or other place of conlinoment, and that he is. with fidl understanding thereof, assuming all lisks of deportation or con- finement in consequence of being rejected under such law; (10) that the alien will supply to the United States vise officers three photographs and permit the taking of a finger-print record and such other data for purposes of identification as maj- be pro- vided for in regulations adopted by the board. The matter hereinbefore given under this section is taken from pages 4 and 5 of Senate bill 4528. introduced by Senator King, with slight additions and amendments indicated by single quotes in the text. The wording of section 5, page 9, line 16, to page 10, line 2. as drawn in the Sterling bill, which we are discussing, is objectionable in the writer's opinion, owing to the fact that while it aims to accomplLsh precisely the same result as the matter suggested by way of amendment, it pro^ides in fact for the form of passport to be issued by foreign governments. A foreign government, it should be noted, will issue its passports at its own discretion, valid for such time as appears most compatible with its interests. However, it is quite proper for the United States to require such form of vise as will in the judgment of theGo\'ernment protect the Nation from the entry of undesirable immigi-ants. It is further suggested that the paragraph commencing page 10, line 3, continuing to line 9. be for the moment omitted and the section continued to read as drawn from page 10, line 10 to page 11, line 9. At this point the paragraph omitted should be inserted. This paragraph, however, should be modified to comply with the suggestions pre^■iously enumerated eliminating the Secretary of Uabor as the officer by whom warrants for deportation should be issued. Section 6: It would appear that the provisions of section 6, page 11. line 10, to page 12, line 18, of the Sterling bill are drawn as a substitute for that portion of section 3 of the act of February 5, 1917, omitted through the amendment suggested in section 7 of the bill we are discussing. In spite of the fact that the phraseology is a decided improvement and less provocative of international complications, there remains the possibility that the enforcement of this provision by the board may raise questions by foreign States regarding our treaty obligations. It is not the purpose of this com- ment to question the necessity of conferring some such power upon the immigi'ation board, but rather to point out this fact as an additional reason which renders it impera- tive, in the opinion of the writer, to place the exercise of the discretionary power EMERGENCY IMMIGRATION LEGISLATION. 671 imposed under the supervision of a representative of the department handling our foreign affairs. The only further modification to be suggested in connection with this section arises in the paragraph commencing page 15, line 16. On line 16, following the word "age," it is suggested that the words ''or over" be inserted. While the provisions of the rest of this p iragraph are meritorious, it is suggested that the sentence commencing page 15, line 1!J to line 22, be drawn to read as follows: '"The registration shall be in triplicate — one for preservation in the post ofiice at which the registry is made, one for the first division of the Bureau of Investigation in Washington, and one for the registrant. This alteration is de])endent on the reorganization of the in\estigating service sketched in an earlier part of this memorandum. Section 7: May be accepted as drawn. Section ^: May be accepted as drawn. Section 9: Mav be accepted as drav.n. Section 10: Mav be accepted as drawn. Sections 11 and 12: It is suggested that sections 11 and 12 be omitted and the ques- tion of naturalization, to which their provisions apply, be made the matter of more detailed study. Section 13: This section should be amended to read somewhat as follows: "That all the powers and duties conferred on the Secretary of Labor by the immigration act of February 5, 1917, or any other act or part thereof, relating to the regulation of immi- gration now in force are hereby conferred on the immigration boaid created by this act, and ])rovided further that the issuance of warrants in deportation jjroceedings be made in the name of the board, by the chairman." Section 14: This .section may be accepted as drawn. The writer believes that after a careful consideration of the provisions of the Ster- ling bill, as revised along the general lines hereinbefore indicated, there can be ]ilaced before Congress b\' one of its ap])ropriate committees a studied measuie ujjon the subject worth>- of popular sup])ort. To crystalize the thoughts suggested b>- this memorandum the following summary of essential features for the adequate regulation of immigration is appended in conclusion. 1. Recommend the support, of H. R. 14461 as passed by the House with slight amendment. 2. Recommend the appointment of a commission to study the situation and prepare a bill regulating immigration for submission to Congress before the exclusion pro\ision of the so-called Johnson bill, if it becomes a law, shall lapse. This commission should be vested with powers sufficiently broad to permit a re\'iew of the various investiga- tion services carried on regularly or irregularly by Government departments. 3. Recommend that the Department of Labor be divested of all powers and duties conferred by immigration laws now in force and the said powers and duties be con- ferred henceforth upon an immigration board constituted as outlined in this memo- randum. 4. Recommend the reorganization and consolidation of the investigating services of the Government. 5. Recommend that the Department of Justice be represented as a matter of law and not by courtesy at hearings for the exclusion and deportation of aliens. 6. Recommend that the naturalization law be revised upon the completion of the bill regulating immigration.^ MR. JOHN E. MILHOLLAND. An article entitled ''Immigration Hysteria in Congress," lately published in The Forum, and written by Mr. John E. Milholland, lormcrly supervising inspector of immigration at New York, is here- with printed in full, together with a letter transmitting the same, as follows : New York, January 12, 1921. €hairman Colt, Committee on Immigration, United States Senate, Wushinciton, D. C. My Dear Sexator: You seem to be so thoroughly in earnest in trjing to solve this immigration question that I venture to send you an article which I Wote at the request of the editor of The Forum for the ciu-rent number of that publication. 1 This matter will be the subject of a supplemontarv memorandum should the general principles herein contained be approved. 672 EMERGENCY IMMIGRATION LEGISLATION. If you or your committee deem it worthy, I should be glad to have it find a place in the record for it was written out of my practical experience as sui)ervi8or of immigra- tion at this port way back in President Harrison's administration, in a study of the whole qiiestion at home and abroad, where nearly 17 years of my life was spent. Sincerely, yours, Jno. E. Milholland. The article by Mr. Milholland referred to above follows: IMMIGRATION HYSTERIA IN CONGRESS. For the first time in the history of this immigrant Nation, it has been decided by the Federal House of Representatives that, with 300 years' wonderfuf experience behind us, we must go out of the immigration business entirely. A momentous step has been taken, and it was taken in haste. Much in fact sug- gestive of a stampede marred the proceedings. In portions of the debate conditions of mind boVdering upon a panic were reflected, lo be sure, a certain amount of spontaneity was evidenced, but behind it all the familiar work of propaganda and prearrangement was distinctly visible, as it has been for years, ('aim consideration ■was almost overwhelmed bj- vociferous demand and excited speech until methods prevailed that shocked the veteran members of a Government that is supposed to represent deliberate action, an appeal to reason and a reasoning from sufficient data. Pressed for the caiise of so much precipitancy on the part of the bill 's proponents, a leading Member of the House declared that he ''understood no less than 15,000,000 immigrants' ' at European ports to be preparing to overwhelm us with their numbers. No positive trustworthy information was furnished to iustify such an amazing declara- tion, and it was quickly demonstrated that ■with the existing system of ocean passenger transportation, 15,000.000 people could not be brought here in 10 years, though every ship were loaded to the gunwales and sailed at top speed. It was shown, moreover, that according to the actual report of the Immigration Department for the year ending June 30, 1920, exactly one more than 430.000 immi- grants arrived and 288,315 went home, leaA-ing an actual increase of 142,686, or less than one-tenth of 1 per cent in our population. ^Ihis included people from all coun- tries and all races — African, Chinese, Hebrew, Irish, Japanese, Polish, Russian, Scotch, Slavic, Spanish, 1 urkish, and a lot of I\fexicans. Since the close of the last fiscal year — that is, since June 30, 1920 — there has been this increase in the arrivals: Julv, 83,959: Aucust, 86,500: September, 98,400: October, 101,000: No-ember, 102,000: "or a total of 472,859 for the fi- e months, but over against this there were no less than 181,505 in the wav of returns, lea-^'ing a net increape of our population of 291,354, or less than three-tenths cf 1 per cent; or an indicated total immigraticn for the current fiscal year 1920-21 rf about 700,000, or nearly half a million under the high-water mark of the years preceding the war: practically two-thirds of 1 per cent of our total population, and far, far below the figures representing our natural increase — usually estimated at 1,000,000, at least, annually. A TEAPOT TEMPEST. Viewed in the light of actual statistics — and all these figures are taken from the official reports of the Go^vernment — the tide of immigraticm is certainly running very much below that of former prewar years. ( 'onsidered in the light of what was predicted M'ould happen immediately after the close of the World War, they are ridiculously small. In justification of such a drastic piece of leas'ation as proposed in tlie bill reported by the majority House Immigi-ation Committee, after years of agitation and propaganda, it is enough to make the intelligent citizen rub his eyes in astonishment and wonder what all the fuss is about. It is a teapot tempest, and, for the moment, the splendid calm figure of Cohmibia seems transformed into the traditional old lady, scrambling o^\er chaii-s and tables to avoid the real or imaginary mouse. Why is it among all the great questions that press upon us for solution that of immi- gration is the one OAer which the American people become so easily excited? Immi- grants ourselves, Ave should understand it fully, or at least consider it sympathetically; but we don't, and in consequence even sensible legis'ators go into hysterics at certain frequently recurring intervals. The solution of the immigration problem is summed up in one word — distribution. Had we gi'ven as much time to this simple solution as ve ha- e to di-scussing the evils or dangers that are snpposed to lie in its % -ake, we Would be free from all apprehension on the subject. All our ti'oubles over the foreigner here are due to the disregard of EMERGENCY IMMIGRATION LEGISLATION. 673 this experience-born injunction. It accounts for all the racial troubles that California and tiie other Pacific Coast States have had over the Japanese and Chinese. If tliat contingent of Chinese, mostly of the coolie type, that came from Canton, Peking, and the other big Chinese cities about half a century ago had been judicially scattered throughout the country instead of being permitted to settle down in San P'rancisco, they never would have become such a disturbing factor in the situation. This is true of the Hungarians who were brought to the Pennsylvania coal fields and allowed to build up colonies tliere; of the Italians, the Piussians, the Galicians, and the Polish Jews who swarm the streets of New York and give it and other cities of our country the appearance of foreign capitals. The organizations that haA'e undertaken this work of distribution at least are to be commended, and, where needed, should have Goa ernment support to do the work in a systematic, intelligent, practical manner. Herein is real genuine service for Congress to perform, and that immediately. Taking the worst xiew of it, there is nothing more alarming at present than the wild rumors voiced by Mr. Campbell of Kansas in the course of the debate of that phantom army of "15,000,000 im^migrants" that are resting upon their arms somewhere in Europe to iuvade us. Supposing it to be true, instead of being as it is nonsensical — inspired by talk on the part of those at home and abroad who are trying to frighten the American people into cutting off one of our greiitest national assets — what is there to be alarmed about? We enter tne danger zone, according to Macaulay's famous prediction, only when we have a population of 20,000 to the square mile. At present we have an average of betv/een 30 to 40 people living upon each of the 8,000,000 square miles of North Amer- ica. When that playful prophecy of the brilliant Englishman is fulfilled, we shall have 160,000,000,000, or ten times the population of the whole world, and that -will be long centuries hence, for we grow in numbers more slowly than popular supposition has it. It has taken this old gray earth 2,000 years, according to Mulhall, to increase from 54,000,000, in the days of Julius Caesar, to 1,600,000,000, one reason being that during the ]\liddle Ages the gain in population was so slight that there were less than 50,000,000 in Europe as late as the twelfth century. OUR VAST UNOCCUPIED TERRITORIES. But if it be necessary to quiet still fm"ther the Nation's nerves after this congres- sional outbm-st, let us remind ourselves that we have yet considerable territory des- perately in need of occupation. According to the census returns New York State itself to-day has no less than 25,000 deserted farms, vrith little prospect of their being taken up unless foreigners do it. The average American boy does not take to manual labor, either in the North or in the East, W'est, or South. It is not exactly that the rising native generation has grown "soft," but because they feel we have reached the point where they can have this service done by others. In the South there is the colored man, in the North and West the immigrant, and if the abandoned farms of the East, especially New England, are being taken up a little more rapidly than for- merly, or in other States, it is because of the influx of sturdy French Canadians who have come down over the border. They work. The United States "overwhelmed by 15,000,000 immigrants"? What nonsense; consider a few random facts. Texas has about the same acreage as Germany before the war. Its population to-day is less than 5,000,000, or about one-thirteenth of the old Teutonic Empire's, but it could take all the people in German}' and the forty millions of France, and then not be so thickly populated to the square mile as the Italy of to-day. One hundred and thiity millions of immigrants could settle in the South on the other side of the Mississippi and that whole southern section would not be one-half so thickly populated as Mas.sachusetts with less than 4,000,000 and with no end of de- serted farm.s — all well worth tilling. All the people of Portugal could settle down in Missouri, and Missouri then would be no more crowded than lortugal is at present. The entire South can take care of more than 250,000,000 immigrants without feeling the strain of excessive population. At least 500,000 people migiit be sent below Mason and Dixon's line every year from Ellis Island, and it would take a hundred years at that rate to lill up Dixie, or crowd out the 11,000,000 or 12,000,000 colored people, or close up, for lack of space, a single race-track or baseball held. A few years ago when one, William Hohenzollern, attempted to frighten us and the rest of the world with his talk about the "yellow peril," or the alleged certainty of occidental inundation by oriental populations, he harped on these arguments in favor of his imperialistic notions and fool war until a mathematical chap in Philadel- 674 EMERGENCY IMMKJKATION LKlllSLATIOX. phia sat down one day and figured out, that if India's entire 300,000,000 people ("that is the last oliicial Hritish record) would land some night on the Pacific coast and start for Chicago all of them could be al)sori)ed without a single one going farther east than the Roclcy Mountains. Washington, Oregon, California, Idaho, L'tah, Montana, and Wyoming coukl accommodate them all with as much land as they had at liome, and each State still he in a position to yell " Come West, young man! Come West! " We are supposed to lead the American continent, if not the whole world, in ability to handle the perplexing problems of civilization, but Argentina and some of the other South American Republics are setting us an example in the way they are handling immigration that is worthy of our consideration. Instead of putting up the bars, they greet the immigrant cordially, attend to his examination just as carefully and far more scientifically than we do, but once admitted they ne\ or rest until he is placed where he can be worked to the best advantage for himself and for the country, and in every way gi^en the best possible chance "to live up to his blue china." An argument in favor of this method of treatment of these unfortunate creatures against our barbarous ways was recently set forth in very temperate language by a writer in The Forum. It is bound to be in vogue within the near future because this whole (juestion is passing with great rapidity from the realm of academic discussion to the actual recpiirements of our country. THE UNCEASING CRY FOR LABOR. From East to West, the cry of every farmer, every contractor and employer is for labor — labor to sow and to reap and to gather into barns; labor for the public works, the shops, and for a thousand other forms of our activity. This labor must be found somewhere. The North has had to draw from the South. The limit has been reached, but while a temporary slowdown in manufacture may continue, there is no slowdown in the retiuirements of the agricultural regions of the United States. Peoi)le must be fed. Crops must be raised. The land must be tilled. Consumption is o^ertaking production e\ erywhere, and unless this wholesale rejection of foreigners be checked a situation vcill confront us not pleasant to contemplate. Andrew Carnegie once said that eAery immigrant was worth |5,000 to the country. Checking immigration is a menace to prosperity. To read the wild talk about the effect of this War upon immigration from the Old World, one would suppose that we had no history of what has followed preceding con- flicts. The Napoleonic wars of a hundred years ago were just as tremendous at that time as the late upheaval, consequent upon the World War. Yet nothing that followed Waterloo had any impressive effect upon our immigration, and the subserjuent abor- tive Revolution of 1848, which stirred Europe from one end to another, was not made conspicuous by the immensity but by the high character of the Old World exodus, particularly from Germany where immigration, stimulated by a desire to avoid en- forced military ser\ ice, was led by such men as Carl Schurz, Gen. Siegel, and that wonderful man, whom the medical profession of America still delights to honor, Dr. Jacobi. Few came to us from France following the peace of Versailles that closed the Franco- German War, because the patriotic French threw themselves into the task of rehabili- tating the country just as the Belgians and the Russians and others are doing now. The Russian-.Tapanese War was quite ^^'ithout effect as a stimulus to any tidal wave of emigrants from either country. A few months ago there arrived in New Y'ork a vessel laden ^^ith choice fruits from one of the new Zionist colonies of Palestine. From a strictly commercial point of view, it was a mere incident in the foreign import trade, but to men of vision it vras endlessly suggestive ; suggestive of the day when these historical regions of Asia shall once more take their place in the world's commerce and the ancient, long forgotten vast tracts — Palestine, Mesopotamia, Nine^■eh, Rabylon — come again under culti- vation along the lines of modern science and with other Old World peoples are finally brought untler governments of rational, well-ordered democracy. I said the sjlution of immigrants could be summed up in one word — distribution, but it requires four to state the remedy for emigration, good government at home. Good government at home means practically the end of that restless universal desire to go abroad. We ha\'e seen this in the case of England, Scotland, Holland, Belgium, France, and e\ery other country that is governed ^^ith even the semblance of real democracy. And we have seen how England's wretched misrule of Ireland through generations caused the Irish people to emigrate literally in millions. "A drift of men Gone over the sea, A drift of the dead Where the men should be." EMERGENCY IMMIGRATION LEGISLATION. 675 But through the great land purchase bill, the county councils, revived industry •and self-assertion, Ireland's home affairs have of late years improved to such an extent that emigration has dwindled nearly in proportion to that of the other countries mentioiKjd. So is it true of Italv, vrhich has arisen from misery to become one of the best gov- erned of modern nations. And, what is the result? Italy's immigration has fallen oft" like that of France, Spain, or Switzerland. Think what it will mean when the Balken States, Greece, Russia, Siberia, and China have become reorganized and brought in touch vith that modern developm.ent which makes democracv an absolute requirement of any advancing civilization. Immigi-ants will be in demand in the Old World as well as in the Occident — every- where. It is all very well to sift out the undesirables at Ellis Island, Angel Island", and all the other ports of arrival on the Atlantic and Pacific, but it should be rememV>ered that the reallv dangerous people — those who constitute an actual menace to the Republic — seldom come in the steerage. Occasionally thev tra\el second cabin, but usually they are found among the first-class passengers. They mean business; they take no chances. It is not worth while to discuss in detail this whole lamentable piece of legislation — for it is now before that bulk\rark of the R.epuV)lic. the Senate. The bill from begin- ning to end is an anachronism. It is out of place, out of time. We need every decent immigrant that may come to us. We are losing precisely in proportion as the other new and undeveloped countries of the world are being aroused, reformed, and put upon their financial feet. Within 20 years v:e shall be advertising for foreigners, just as other nations and even some of our own States and Territories have done already, as a matter of necessity. The bill is bad—inexpressibly bad. It should never go on the statute books. I do not believe the Senate \^ill ever pass it. If it does, Mr. Wilson, if consistent with his admirable record on this subject, v.ill veto it. It belongs to the congressional slag heap. As a matter of Republican policv, it is arrant madness and might be termed "A measure to insure Republican defeat in 1922." No wonder the solid Democratic South, to whom immigration means little, is for it as vigorously and unitedlv^for it means less Republican Congressmen — as it is against reducing the unconstitutional over-Representation by which Woodrow Wilson became President, de facto, in 1916, and still remains in the AMiite House although every State in the Union, according to its population and suffrage rights under the Constitution, voted to turn out his administration, something unprecedented in our political history. MR. FRANCIS H. KINNICUTT. A brief entitled ''The need for immediate restriction of immigra- tion," submitted by Mr. Francis H Kinnicutt as supplementing his statement before the committee on Friday, January 14, 1921, is here- with printed in full, as follows: NEED FOR IMMEDIATE RESTRICTION OF IMMIGRATION. Washington, D. C, January 15, 1921. It is much to be regretted that up to the present time the Senate Committee on Immigration has l]een unable to obtain data vitally necessary to determine whether the immigration situation calls for emergency legislation. While the figures for the total immigration since June 30, 1920, the end of the last fiscal year, sho\ving the total monthly inmiigration have now been obtained, the facts as to the character of the immigration by countries and peoples and other par- ticulars have not been supplied except tor the month of July. As to the total volume of immigration the c\-idence is somewhat alarming, shoM-ing monthly totals during the last few months of over 100,000, which equals or exceeds the rate during the largest inimigi-ation years before the war. It is true that during this same period from June, 1920, the emigration from the United States has also been large, but it has been pointed out that this emigration, which already shows signs of falling off, is jirincipally the tail end of the backward movement to Europe on the part of aliens who were unable to return during the war, and is also partly attributable to the desii'e of certain ratial or national groups to return to the political freedom which has been won for them in the war in the newly created States. 676 EMERGENCY IMMIGRATION LEGISLATION. Evidence has also been introduced at the Senate hearings to the effect that many of these emipi'ants have found upon arrival at their homes that economic conditions were so bad that they were forced to return, even with s^eat loss, to the United States. It seems to be admitted that the general economic situation in Europe to-day makes it extremely unlikely that this backward tide will continue in any gi-eat volume, but makes it extremely probable that the incoming tide will greatly increase unless checked by defensive legislation. So much for the general situation with respect to the volume o^net immigration during the <>oming year. But how about the kind of immigrants we are now getting? With reference (l)"to race or nationality; (2) physical qualities, including freedom from disease; (3) funds with which they are provided; (4) productive capacity and nature of productive labor offered; and (5) fitness for assimilation and future citizen- ship. Although, owing to the lack of official data, information is meager on all these points, certain broad facts seem to be matters of common knowledge. First, as to the race or nationality of the incoming aliens, the largest group is that from Italy, which is said to represent 35 per cent of the total immigration during the last six months. While doubtless this Italian immigration resembles in a general way the Italian immigration of the past, and consists principally of unskilled labor, it is quite important tohave more specific knowledge about it, particularly with reference to the numbers coming from south Italy, as compared with those coming from northern Italy, and as to the proportion who come with the general idea of permanent settle- ment in the United States to those who are only coming to make as much money as they can in a short time and return to their native country. This latter fact, as has been pointed out, can be approximately ascertained by determining the proportion of men who bring their families. In view of the very large volume of the pending Italian immigi'ation a careful investigation of the quality of this immigration should be made, and also of the labor situation in this country, with reference to the desirability of this Italian labor before hundreds of thousands of these Italians have been admitted. With reference to the Italian immigration, therefore, the Johnson bill would afford a valuable breathing spell during which this immigration would be halted until it could be properly regulated according to the needs of ths country. Looking now at the remaining immigration, it seems to be conceded that the next largest racial element after the Italian is the Hebrew immigration, although the immi- gration from Czeclio-Slovakia and Jugo-Slavia is a close third. ^\ ith reference to this last mentioned element, it is presumably somewhat similar to the immigi-ation from Hungary and ( 'roatia before the war and consists largely of peasants of the agiicultural class, who, however, have not gone on the farms in this country, to any extent, but have found their way partly into the mining centers and partly into colonies of their respective races in certain large cities such as New York, t leveland, Chicago, Buiialo, etc. It is a serious question, however, whether this imniigi-ation is not inferior in quality to that which we had from the same regions before the war, owing to the bad economic conditions and food shortage. This may well be the case. _ _ _ , Here, again, tlie Jolmson bill would afford time to make necessary investigations of this class of immigration, particularly with reference to tlie demand in this country for the kind of labor offered by it. Referring now to the Hebrew immigration, which is probably already the second in volume, there are even more serious reasons for at least temporary restriction with regard to this class, of immigration. It is important that tlie exact figures as to the numbtjrs of Hebrew immigrants during the last months should be obtained. Accord- ing to the present laws, it has to be stated in the ship's manifest to what race of people each immigrant belongs and by virtue of this rule Hebrew immigrants are reciuired to be registered as such. Whether or not this rule is in force as it should be, the sta- tistics, such as they are, should be obtained on tliis point. An estimate, based on personal observation of the immigrants landing at Ellis Island during recent months, which estimate is believed to be fairly relia])le, puts the number of Hebrew immi- grants at the port of New York at about 2.000 weekly, which would make an aggregate of about 50,000 during the last six months. There is al)undant e^ idence, however, from cabled reports to relialde newspapers, such as the New York Herald, showing that there are large numbers of these ile!>rew immigrants collected at various points in Poland, France, and Holland, many of whom have already obtained their pass- ports and are only awaiting transport accommodations to come to the United States. Whetlier there are enough ships to luring them at the present moment is a fact of com- paratively little importance. Most of them are sure to come sooner or later, especially since it appears that they are being looked after in the meantime by Hebrew societies in the United States and in Europe. (See the dispatch of Mr. Shapiro, president of EMERGENCY IMMIGRATION LEGISLATION. 677 the Hebrew Sheltering and Immigrant Aid Society, of France, appearing in the New York Herald of Jan. 3, 1921.) In this Mr. Shapiro is quoted as saying that the number of Hebrews in France, on their way to the United States is about 3,000 a week and that most of tliera arrive in Paris penniless. It is also reported that a very large number of Polish Jews are collected, awaiting transportati)n, in Poland and Holland. A gentleman arriving from Poland the other day stated that as many as 14,000 passports to Hebrew immigrants had been granted in Poland in one month. In A'iew of these facts, which have not been disputed, there is every likelihood of a large and increasing Jewish immigratii^n during the coming year. In this connection it may l^e p(unted out tliat taking the period of 1899-1920, inclusive, the Hebrew immigralion of the United States has been second only in volume to the Italian, and reached the large total of 1,505,670, notwithstanding the fact that during the four years 1916-]920 it was almost at a standstill. (See report of the Commissioner General of Immigration fi»r the fiscal year ending June 30, 1920, pp. 181, 182.) Before the war the largest Hebrev»' immigration in any one year was 149,182 in 1907 (which Would be a weekly average of 2,8(54), although there were several years when it exceeded the 100,000 mark. If the Hebrew immigration should reach during the coming year the average rate of 3,000 per week — as it will certainly do in the near future if the supply cf shipping accommodations even approximates the demand — we shall have during the present year a greater JJebrew immigration than ever before in our hi-^tory. It is conceded that the great bulk of this immigration is coming from Poland, although many of the immigrants are distributed in France and Holland, apparently for the purpose of facilitating their sailing. The question now to be considered is whether this very large immigration of Hebrews from Poland is desirable or other\dse. The answer to this question must be found by determining the quality of these immigrants on the one hand and the present economic and other conditions in this country on the other hand. Examining the matter first from an economic point of ^1ew ]t must be said that at the present time this immigration is not desirable. The great bulk of these Hebrew immigrants have in the past accumulated permanentlv in the largest cities. Out of the total Jewish popula- tion in the United States in 1!)'20 of about 3.300,000, 1,500,000 are to-dav found in ^ew York City alone, 225.000 in ( hicago, 200,000 in Philadelphia, 100,000 in ( leveland, 77,500 in Boston, and 60,000 in Baltimore, St. I^ouis, and Pittsburgh, respectively. These figures are taken from the World Almanac for 1920, page 175 (quoting from tlie American Jewish Year Book), in which a Jewish authority is also quoted as saying "The great majority of American Jews live in cities or to^vns, there being only about 20,000 Jewish farmers and other agriculturists in the United States." The same writer, Mr. S. D. Oppenheim, states "New York City contains the largest Jevdsh community that has ever existed within the confines of a single municipality." In 1880, however, the Hebrew population m that city amounted to only 80,000. With reference to the occupation of the Hebrew population in the cities, ■while many of its members are found in every walk of life and often achieve the highest success therein, it may be safely assertecl that the great mass of the recently arrived immigrants have halutually entered the garment making trade, other leading occupa- tions being the retail pro\Tsioning trade, banking, and money exchange. Fnmi the point of view of immigration it is the rank and file rather than the indi- vidual which must be considered, in determining the desirability of admitting any class. From this standpoint it must be said that the present Hebrew immigration is undesirable under present economic cnditims. Large unemployment in the garment-making trade has been recently reported to exist, not only in New Y^)rk City, but in Boston and other large cities, where the great bulk of the Hebrew immi- gration habitually goes. If it can not find employment in the customary channels there is grave doubt whether there is a sufficient demand in other lines of Work to which these people are adapted to furnish em]doyment to them. If this be true, then (m economic grounds abme they should be excluded for tiie present. It is a well-known fact that the average Jewish immigrnnt is not physically adapted to agricultural labor or other forms of hard physical labor. This fact is referred to in a well-known book, the Expansim of Races, by Charles Edward Woodruff, A. M., M. D., member of the American Sofiety for the Advancement of Science, etc. It is there stated, page 381, "It is to be noted that the Jew, as a race, never took part in the basic industries of a nation, and therefore could not become part of it until modern times. He can not farm, as he is pliysically unfitted for it." Again, on page 384, "For the piesent the Jew is taking the lead in many walks of life, being our best specialists therein, though he can nf)t yet indulge in outdoor work, mechanical employ- ments, or agriculture." The same author, writing as far back as 1909, points out the grave danger from Jewish immigration congesting in large cities. He states {pp. 385, 386): "We have protected the Je^vish commensal organism until it has multiplied to an extent which threatens to be harmful. 678 EMERGENCY IMMIGRATION LEGISLATION. "It is to 1)0 noted that New York City is in the main trade route from America to the rest of the world, and that the Jews always collect in such a place because needed. Manhattan and its vicinity is, therefore, another Poland, where the Jews are liable to collect in greater numbers than is good for them or the siipporting population. They originated in an Asiatic trade center, and have always flocked to new ones, which they will permanently remain. They have already taken possession of much of Baltimore, New Orleans, and San Francisco and every railroad center in the interior. ******* " In the 10 years ending in 1906, there were seven times as many Jewish immigrants as in previous years, and the number in the United States increased from 150,000 in 1860 to 1,500,000 in 1906, so that we harbor twice as many as (Jermany. In New York City alone there are more than 800,000, and they constitute abo\it one-fourth of the population of Manhattan, many living in al)ject poverty, and 75,000 to 100,000 being more or less dependent upon alms. They have developed a world of 'vice and crime,' 'irreligiousness, lack of self-restraint, indifference to social conventions, indulgence; in the most degraded and perverted appetities' and 'growing daily more pronounced and offensive.' (Twentv-seventh Annual Report of the United Hebrew Charities, Octolier, 1901.) Surely this is a picture of parasitism and ethnic diesase." It is to be hoped that the picture, though it is from one of the great Hel^rew charitable organizations of New York, is somewhat overdrawn. It is also believed that in recent years the splendid work of these great Hebrew charities has had some effect in remedy- ing the conditions referred to. Unfortunately, however, there is much truth in the passages quoted, which raises a second and even more serious objection to permitting large additions to be made to the Hebrew colonies in New York and other great citiee of the United States. The objection goes much deeper than the objectitm arising out of temporary eco- nomic and industrial conditions and is primarily ethnic and political. There is a dilemma. If these Hebrew colonies assimilate with the rest of the population by intermarriage, the result would probably be bad, owing not only to the low physical standard of most of these immigrants but also to the great differences of an ethnic nature. If assimilation does not take place in the racial sense then the objection is political; i. e., we have an alien element which is singularly tenacious of its racial and cultural habits of life and institutions, which in many respects are contradictory and antipathetical to American life and institutions. European history has proved that the Hebrew race resists assimilation to an extraordinary degree and rather prides itself oil this fact. Ghettos have existed wherever the Jews have gone and the theory that this is due to persecution alone or even principally, in modern limes at least, is not tenable. The same objection that obtains to allowing the further increase of the already too extensive colonies of Jews in our large American cities holds, although in probably less degree as to the colonies of other alien races, such as the Italians, Slovaks, and Magyars, and in framing the restrictive immigration legislation which is sure to be necessary in the near future, whether the Johnson bill is passed or not, this aspect of the problem is entitled to quite as serious consideration as the purely economic one. WTiat can be more important to the future of the United States than "a good and vig- orous stock composed only of those elements which go to make up the man, who is at least equal to the average native American of the last century? Second_ onlv in importance to the maintenance of this ethnic standard is, so far as irnmigration is concerned, the admission only into the coujitry of such newcomers as will readily assimilate themselves to American life and institutions and to American conce])tions of Government. The country is on the threshold of a new era so far as immigration is concerned. As has been pointed out by able experts on the question, such as Mr. 'William Williams, former commissioner of immigration at New York, and the ])resent commissioner general, there was a great change in our immigration between the jn'riod i)receeding 1880 and the period between that year and the Great War — a change from the immi- gration from northern Europe, which was closely related in blood to the bulk of the original settlers, to the subsequent tide, principally from southeastern Europe', which was ethnically much less closely related. The Great War caused political and eco- nomic changes in ICurope so vast in extent and nature that the probabilities are we shall see further great changes in the immigration of the future. These changes unciuestion- ably call for the exercise of the highest wisdom and i)atriotism on the part of our National Legislature. The writer, for one, has not the slightest doubt but that it will riso to the needs of the country on this occasion as in the past. Respectfully submitted. Fr.wci.s U. Kixmcutt. The C0.\IMITTEE ON Im.mighatiox, United Stales Senate. EMERGENCY IMMIGRATION LEGISLATION. 679 DR. CHARLES B. DAVENPORT. A memorandum from Dr. Charles B. Davenport, director of the eugenics record office of the Carnegie Institution of Washington, D. C, in re vise system, etc., furnished by Mr. Madison Grant, of New York, is herewith printed in full, as follows: Memorandum to Mr. Madison Grant: The Commissioner of Immigration favors (Annual Report, 1919, pp. 66-67) the con- tinuance as an immi^jration measure of the principle involved in the vise svstem, whether passports are used or not. "This system has made possible and at least fairly comT)lete inquiry with regard to the character and antecedents of every alien ^^ho was seeking to come to this country, as \\ ell as the discovery, usually in most minute detail, of his purpose in com.ing. Incidentally, but nevertheless in very valuable and rather extensive ways, this vise-of-passports system placed upon immigration to the United States a safeguard uhich, simply from the point of view of the adequate protection of the country against undesirable" or undue immigration * * * was of most distinct value." As an example of the fatefulness to the population of the immigration of even a single person whose germ plasm carries a severe inheritable defect may be mentioned the case of Huntington's Chorea, reported in Bulletin No. 17 of the eugenics record office. An investigator from that office found a total of 962 cases of this truly terrible disease, which is often accompanied by insanity and usually by loss of self-control. These 902 cases were traced back to four families, of whom three were immigrants of the sarne name who came to this country in the seventeenth century. One of these settled in New Haven, another in Easthampton, a third in C4reen'.vich, and formed in these towns centers of this inheritable disease which are marked even to the present day. Field studies show that recent immigrants have brought in cases of this disease, and it is not unlikely that one or more of them will each become the progenitor of hundreds of affected descendants. • Another illustration is that of the M family of "bleeders," the ancestor of the line of bleeders apparently having come to this country in the middle of the eighteenth century. Scores of the descendants of one or more of these ancestors have lacked the ordinary property of coagulation of the blood. Consequently, many of the children have died in early infancy, and others have been repeatedly during life threatened with death, which it was possible to avoid only by extraordinary care. It is not known whether the family (or rather the ancestor who brought in the bleeding tendency) came from Switzerland, but it is known that certain cantons of that country are characterized by a high incidence of this trait. The point is that a proper immigration agent located in the different countries of Europe, and examining into the family history of each immigrant, would have been able to have detected the presence of" hereditary chorea in the family of the immi- grants referred to in the second paragraph and to have detected the presence of a tendency toward hiemophilia in the family mentioned in the preceding paragraph. These are illustrations only, and could be multiplied ten thousand times. Every day there pass through the portals of Ellis Island persons who pass the superficial examination but who'bear in their germ plasm family defects winch will recur again and again in their descendants. The only way to detect these family defects is to know something about the family from which the immigrant comes. Charles B. Davenport. MR. T. V. POWDERLY. A copy of a letter embodving certain suggestions for regulating immigration, written to the late President Roosevelt by Mr. T. \ . Powderly, Chief of the Division of Information, Bureau of Immi- gration, Department of Labor, is herewith printed in full, together with a communication transmitting the same, as follows: United States Department of Labor, Bureau of Immigration, Division of Information. Washington, January 6, 1921. Hon. UeBaron B. Colt, Chairman Immigration Committee, United States Senate, Washington. D. C. Dear Sir: Yesterday afternoon, at the adjournment of the Senate Committee on Immigration, you courteously suggested to those who could not be heard by the com- mittee that they might present their \'iews in writing. 680 EMEIIGENCY IMMIGRATION LEGISLATION. Takinj? advantage of that offer. I am layins; before you a copy of a letter handed by mo to President Roosevelt in Deeeml)er. 1906. It embodies some suggestions for the betterment of our system of regulating immi- gration. Among these is one dealing with inspection abroad, a subject touched upon by Commissioner Wallis in giving his testimony. I was present during the time Mr. ^^'allis was on the stand and was much impressed by the line of questions put to him as well as his answers thereto. I left a copy of my letter to the President with Senator Johnson, to whom I promised it the day before. In presuming to submit this document let me say that I have had many oppor- tunities for studving immigration, and its effects, here and in Europe. I was actively interested in the passage of our immigration and alien contract labor laws. I was Commissioner-General of Immigration during the administration of President Mc Kin ley. At the request of President RooseA'elt. I spent the summer and fall of 1906 in Eiu'ope investigating the '"caxisesof emigration to the United States." The memor- randum herewith resulted from that experience. From a stiidy of emigration and immigration, here and in Europe. I am convinced that the place to take the initial step in regulating immigration is where the immi- grant start.^ from . In addition to the copy of my letter to President RooseA'elt. I am la>dng before you a copy of my last report as Chief of the Division of Information. Avith certain parts marked for the use of the committee if they wish to look them over. I direct your attention particularly to the memorandum to the Secretaiy. page 4. Expressing the hope that what I lay before you may be of interest to the com- mittee. I am. Very truly, yours. T. V. POWDERLY. , COPY OF A LETTER TO PRESIDENT ROOSEVELT. Washington, D. C, Decembers, 1906. My Dear Mr. President: As requested by you at our last interA^ew, I am pre- sent! rv herewith, in substance, the suggestions made l)y me dining our talk. During the investigation of the "causes of emigration to the United States" made by me under your instructions last summer, I became couA-inced that at least three things are necessary to a proper regulation of immigration: First. Selection of intended emigrants in their own countries some little time before date of departure for the United States. Second. The placing of representatives of the Immigration Ser\dce on ships carry- ing immigrants to tlie United States. Third. Proper distribution of immigrants who come to the United States. Wliile no statute can be framed to make men better than God intended them to be, we can go far toward causing aliens to fit into our American life with less of disturb- ance to our economic conditions and more of safety to our national institutions if we give heed to selection abroad, instruction on shipboard and at immigrant stations, and proper and l)enef!cial distribution throughout the United States. As to selection abroad, in each of the countries from which emigrants come to us there should l)e stationed, at suitalile places, representatives of the United States Immigration SerA-ice. Of course, the consent of foreign Governments would have to be obtained before this could be done. The duty of these representatives should be to pass upon the qualifications of those intending to emigrate to the United States. Every such person should first apply either in person, by proxy, or by mail to the United States Immigration official ha\ing jurisdiction over the territory the intending emigrant resides in. The applic-ation should contain full information concerning the j^erson or persons it relates to. I need not enter into detail as to what this information should be. Suffice it to say here that every ascertainable fact in relation to the intending emigrant should be fully .set forth. All apj)lications should be made to the immigration o^icial at least six weeks before the time of departure from home of the intending emiirraiit, this in order to afford time for in ve litigation of the record, standing, healtli. and reputation of the applicant. I know of two i)ersons who were admitteil at Ellis Island while 1 was commissioner general who formed their resolution to come to the United States and actually started from laome '"between two davs," as we say. They were criminals of the worst tvpe who. in order to escape punishment, fled from home immediately after the commission of a crime. EMERGEXCY IMMIGRATION LEGISLATION. 681 Proper information and instniotion should be imparted to the intending emigrants before departure from home so that they would know just what to face on landing in this country. It is positively cruel to tell a man coming up from the steerage that he must be deported '"to the country whence he came" after he has severed home ties, parted with all his European holdings, and practically turned his back forever on the land of his ))irth. I ha\e witnessed so many heart-rending scenes at our immigrant sta- tions when poor, forlorn creatures were told they must go back that 1 felt like execrat- ing the law which occasioned such thinars of pig iron, bales of cotton. l)oUs of silk, or crates of chiuaware might receive first consideration from them. No; leave the matter of oassing upon humanity itself to men and women of abilit^', ex]>erience. and good judgment. The work of making judicious selection of intending emigrants should be carefully done. It should not he intrusted to politicians, political favorites, creatures of cor- porate interests, or those who oppose or favor immigration. INSTRUCTIONS. On board ship literature printed in foreign langx:ages by the United States Govern- ment should be placed in the hands of aliens destined to this country by representa- tives of the Immigiation Ser\dce. These representatives should be of both sexes and should be qualified to explain anything obscure or uncertain on the printed page. Above all things, the difference between our form of government and that of their o\\ix land should be carefully dealt vrith. Our flag, our institutions, and what they stand for should be carefully explained and the duty to uphold them should be fidly im- pressed on the men, women, and the children of the steerage. It should not be left to the demagogue, the self-seeker, or exploiter to misinform these people after landing when we can accurately inform them before they land. Having respect for govern- mental authority, they will pay heed to what Government officials tell them and will will not be so apt to fall a prev to men and women having designs upon them. Through proper selection abroad and instruction aboard ship the opportunities of the seller of steamship tickets to stimulate emigration from Europe and practically sell poor, unsophisticated people to employers in the way I told you about would be kept down to the minimum, and as the new system became known abroad abolished entirely. The instruction a1)oard ship .*hbuld be preliminary to that imparted at our immigrant stations and should consist of information concerning places the immigrant should not go as well as where to go. To illustrate: Gallon, Ohio, may need workers of a cer- tain kind, ( incinnati may have enough of that kind of labor. Cincinnati is on the map in Europe, but Gallon is unknown there. This I find to be true of large and small to\vns in the United States. They know about our large cities but are woefully Ignorant about our small towns. Again let me illustrate: I'udapest, Hungary, is about 250 miles from Fiume, the only seaport in Hungary. That is considered a long trip to take over there. When considering traveling inland in America they are apt to look on New York ("ity and St. Louis, Chicago, or Denver ps being no farther apart than Budapest and Fiume. The minds of intending emierants can be disabused of false impressions concerning distances and that is only one of many things foreign people need light on comi'rning this country. The hungry man is apt to eat too much and in doing so makes a mistake; a man who eats too much is a fool, whether he is hungry or not. As a Nation we may make mis- takes and play fool with immigration. We are apt to do this to our detriment and that of the emigrant in allowing the stream of immigration to become a flood. Through a governmental agency the exact industrial C( nditicn of every town in the United States should be and can be ascertained every week, or at most every two weeks. This will entail expense, of course, but the "head tax" of the immigrant will pay it, while our present slipshod way of allowing the tide of inunigration to flow where it lists is far more expensive, and we pay the bill. In addition to that it is hurtful and in time may become dangerous. It should be easy to gather this infor- mation and impart it to the newly landed immigrants as well as to cur own jieople. 26911— 21— IT 14 3 682 EMERGENCY IMMIGRATION LEGISLATION. Consider this: The Weather Bureau is prepared every morning to tell us what the weather is doing in every part of the United States; it is doing more than that; it is prepared to tell how the ocean is behaving along our seaVjoard. Ships are safely directed, commerce is ])rotoeted, and crops safeguarded Ijy our Weather Bureau. ^^^ly not safeguard humanity by ])romptly, ])roperly, and accurately informing it where it may go with fair opportunity to do the best for itself and our country? You and I have to pay taxes to maintain the Weather Bureau; the immigrant would pay for his own protection and oiirs too. Phonographs speaking all things necessary to inform immigrants in all languages, lantern-slide lectures and verbal instructions on all pertinent subjects should greet the immigrant on being admitted at an immigrant station. Of course these things will require time for preparation and formulation. I make no attempt at detail, for the cooperation of States, Territories, and municipalities will all be of use in this great and necessary work, and consultation with their chosen representatives should precede action. I am mindful of your intimation to make this memorandum as long as I please, but notwithstanding that and your suggestion that you would "take a day off to read it," I feel that I have said enough to give a fair idea of what I was aiming at during our interview. As you know, I shall be glad to act on your advice to discuss this matter with the gentlemen you named. As I told you, there are those who look wdth suspicion on anything proposed by a labor man, and since I am a labor man I shall esteem it a favor if you will adopt my suggestion as your own, or else conceal the identity of the author. Assuring you that I fully appreciate the confidence reposed in me when you directed that I be assigned to duty in Europe, as well as for calling me into counsel on this matter, I am, Very truly, yours, T. V. POWDERLY. MR. W. A. RYAN. A brief setting forth a suggestion as to amending section 4 of the bill, submitted by Mr. W. A. Ryan, New York, is herewith printed in full, as follows : To the honorable the Comjiittee on Immigration op the United States Senate. Mr. Chairman and Gentlemen: In support of my request that section 4 of the Johnson bill be amended so as to admit to the United States under certain conditions certain otherwise inadmissable persons, the blood relatives of citizens of the United States, I submit the following statement of facts: 1. Thirty years ago, at the age of 17, Mr. William S came to the United States from Bodigheira, Baden, Germany. In 1900 he became a citizen of the United States, being admitted in the United States District Court in New York City, N. Y. He has resided continuously in New York City since coming to the United States. 2. When he left his home in Germany there remained in his native Adllage with his parents four sisters, one older and three younger than he. Subsequently the parents died and the support of his sisters devolved upon him. One of the sisters came to this country and became his associate in business. Two of those who remained behind were inadmissable to the United States by reason of slight mental defect, the result of physical disability which prevented proper organic functioning and arrested their mental development. They remained as children and never acquired the ability either to read or write. Both are, however, able to converse, and their aberration is wholly harmless. One is now 43 and the other 52 years of age. The Eersonal care of these sisters has devolved upon the third sister, 38 years old. They ave never been under restraint and are known to and beloved by all in their native village, by whom their inlirinities are looked u])on with pity, but without rejjugnance. The third sister, in every way normal, has devoted her life to their care. Once each year previous to August 1, 1914, the brother or the sister (citizens of the United States) returned to the village to visit and relieve the younger sister temporarily of her bur- den of the care of them. But since that date this has been possible only once, after the armistice. During the interval the restraints and i)rivat]ons of war told heavily on the devoted sister and her charges. 3. It is now the desire ot the brother to bring the three sisters to the United States, where the two requiring it may have the benefit of the best medical treatment obtain- able and where the personal care of the two unfortunate ones may be shared by himself EMERGENCY IMMIGRATION LEGISLATION. 683 and his two normal sisters. He is able financially not only to provide for them in comfort but in luxury and is able and \\'illing to furnish a bond to tlie United States in sufficient sum to insui-e against their ever becoming a public charge. Furthermore, as an additional surety, he is willing to establish a fund in trust for the remainder of their lives, to provide amply for their care, maintenance, and medical treatment. Aside from the minor mental" affliction, these women are free from disease; they have no communicable contagious, infectious, or loathsome disease. There is no pro- vision of present law under which they may be admitted except temporarily for hospital treatment. Their age and the physical derangement which stunted their mental growth render the contingency of motherhood an impossibility and so dispose of that objection. The contingency of their ever becoming a charge upon the public -will be amply provided against l)y the trust. There remains, therefore, no valid reason why tliis brother should be deprived of the joy of fulfilling his duty toward his unfortunate sisters. Every humane consideration, therefore, favors the admission of these women. 4. He therefore respectfully urges upon your committee that some pro\'ision of law be made, either in the form of the suggested amendment or by some similar provision whereby he may fulfill what he conceives to be his duty. Respectfully submitted. W. A. Ryan. Attached is a copy of the suggested amendment. Amend section 4 by adding, after line 7, page 7, the following: "Or in like manner may apply to him for permission to luring into the United States any such above- named relative, liable to be excluded because of harmless mental defect, but free from communicable disease, and such permission shall be granted only if the applicant shall furnish bond as required in section 21 of the immigration laws and shall further provide by a trust fund of such amount and conditions as the Secretary of Labor may prescribe for the care, maintenance, and medical treatment thereof during the life of such relative." CONGRESSMAN JOHN C. BOX. "^ A supplementary statement by Hon. John C. Box, Representative second Texas district, and member of the House Committee on Immigration and NaturaUzation, is herewith printed in full, together with a letter from Mr. Box transmitting the same, as follows: House of Representatives, Committee on Immigration and Naturalization, Washington, D. C, January 26, 1921. Senator LeBaron B. Colt, Chairman Senate Committee on Immigration, Senate Office Building, Washington, D. C. My Dear Mr. Chairman: I appeared before the Senate Committee on Immigration some days ago at the request of the House Committee, and made a statement in oppo- sition to any amendment to the immigration laws which would suspend the literacy test, head tax, and contract labor proWsions thereof, to permit the admission of illiterate Mexican and other alien contract laborers. 1 am informed that statements made by me before the Senate Committee in support of my position have been challenged, and on yesterday I filed with the secretary of your committee a supplementary statement, amplif^-ing and proving by eAidence from official sources the statements which according to my information have been con- troverted since I made them. Mr. Barry, your secretary, said that my supplementary statement would be inserted in the record, and has doubtless called it to your attention. I will thank you to take ■whatever action will insure the insertion of this matter in the report of your hearings. I am anxious to have this done, because of the information it contains aiad as a matter of truth, as well as justice tome. Sincerely and cordially, yours, John C. Box, The supplementary statement by Mr. Box follows: Recently I appeared before the Senate Committee on Immigration at the request of the House Committee, in oppo.-ition to a proposed amendment of the Johnson bill now pending before the Senate, by which amendment the provisions of the literacy test, 684 KMEllCKNCY IMMICiRATIOX LHCISI.ATIOX. the contract labor laws, and the head tax would l)e suspended, for the purpose of admitting Mexiran and other alien lahororn whose entrance is now forbidden by those provisions. In my !-tatement before the Senate (Committee I stated that Mexicans admitted under the suspension of the restrictions have been subjected to a control or custody which amounted to peonage or something close akin to it, and that a con- tinuance of this })olicy under suspension of these restrictions, or under a provision similar to the llainey amendment, would involve a continuance of this peonage or semipeonage system. I also stated that many illiterate Mexicans vote in some portions of Texa^', that they often do so illegally, and that alien Mexicans do so without even having declared their intention to become citizens, the effect being to corrupt elections. I am informed that hoth. of these statements liave been challenged, and as I did not incorporate the official documents which I mentioned in my statement to the Senate Committee, I beg to submit this supplementary statement, and to include in it brief excerpts from official records which I make for the purpose of collecting and condensing the matter so as to avoid burdening the hearings unduly. First I shall address myself to the first statement, IS THE ALIEN LABOR ADMITTED UNDER THIS SYSTEM FREE. I quote from the testimony of Mr. W. H. Knox, Avho appeared before the House committee during its hearings on the subject during 1920. Jlr. Knox appears to be thoroughly familiar with the system, and favorable to it. These extracts from his testimony, which will be found in full of pages 182 to 203 on hearings before the House committee, are confined as nearly as possible to this particular point, and answer the question propounded: "Mr. Knox. I represent the Arizona Cotton Growers' Association, which is an organization of some 2,000 farmers. We have members owning all the way from 10 acres up to 2,000 or 3,000 acres, the bulk of the acreage running probably from 50 to 100 acres. We are banded together for the pvupose of obtaining labor and to look after the general welfare of the long staple cotton industry.' On page 184 the following appears in his testimony: "Mr. Raker. They were apprehended, then? I will put it that way. 1 want to find out if their physical person was not taken charge of. "Mr. Knox. They were brought down to the office, and in accordance with our agreement with the United States Government, they were returned to the place from whence they came. "Mr. Raker. Were their physical persons taken charge of? "Mr. Knox. To that extent.* They were brought in the office, and we said, 'Here, now, your agi'eement was to work at agricultural work." "Mr. Raker. Did an officer take charge of them? "Mr. Knox. No, sir. "Mr. Raker. They just came in voluntarily? "Mr. Knox. We went out ourselves and brought them in, or else talked to them on the ranch, wherever we found them. That proposition was put up to them, 'You can either retiu'ii to agricultural labor on the farm, as you agreed to, or under our agreement with the Government we will give you your transportation and you can go back to Mexico.' "Mr. Raker. AVere there any that did not agree to return that were a])prehended? "Mr. Knox. Probably; yes, sir. Up to the present time we have imported some- thing like 12,000 or 14,000. There have been perhaps 20 cases where they have been picked up, for instance, in Los Angeles or in San t>ancisco by the immigra- tion oihcers on departmental warrant. "Mr. Raker. If a man went to work in Phoenix, Ariz., in the cotton fields and then clianged his mind and decided that he wanted to go to San Jose to work in a garden, where he could get better wages, he would be notified that he would be apprehended and sent to Mexico? "Mr. Knox. Yes, sir." The following appears on page 185 of the same testimony: ■'The Chairman. They did come, and came to work under contract in the cotton fields in Arizona or Texas. But if a man changed his mind and said, 'I have a little ahead now, and 1 am going into Phoenix and live there and work my garden, or milk some cows,' he would li)e violating that bond and agreement. ■'Mr. Knox. lie would be violating his agreement with us and we would be violating our agreement with the L'nited States (iovernment. "The Chairman. And he would have to be apprehended and sent back to Mexico? EMERGENCY IMMIGKATIOX LEGISLATIOX. (jb5 "Mr. Knox. He would be told either to return to the farm and them there at night, so that they could not get away? "Mr. Knox. No, sir. "Mr. Box. You heard the gentleman testify here before this committee that he did that? "Mr. Knox. Yes, sir. "The Chaiuman. llow far is your district from the district of the gentleman who said that he had to put that plan into effect? "ilr. Knox. Twelve or thirteen himdred miles. "The Chairman. And in another State? "Mr. Knox. Yes, sir." On pages 106 and 197 will be found the following: "Mr. Box. Now, with reference to the taking of these men into custody for depor- tation, which you spoke of awhile ago and which I did not hear, largely through my own fault, I understood you to explain to the chairman that that was because those men made a contract to go there and do a certain thing and they broke it? "Mr. Knox. Yes, sir. "Mr. Box. Why did vou not treat these west Texans that wav when thev got there? "Mr. Knox. If we could have done that, we might have gotten somewhere. The difference between the two was, that in bringing in the Mexicans we were working under a special dispensation of the immigration act "^ir. Box. And you understood that that gave you the right to arrest a man for breaking his contract? "Mr. Knox. We did not arrest him. "Mr. Box. You did not let him go where he pleased. What do you call it, if you take a man into custody and send him away? "Mr. Knox. He is not put in jail. He is simply taken up and given his return transportation, at our expense, and put back where he came from. "Mr. Box. Put back on the train to go back where he came from? "Mr. Knox. No, sir. "Mr. Box. Somebody went with him? "Mr. Knox. Y'es, sir. "Mr. Box. Why did he not stop off. at the first station after he passed there? "Mr. Knox. Because the immigration officials, backed by the immigration laws, compelled us to return that man to the point from which he came. "Mr. Box. They went along to see that he did not get off the train, any more than a convict would get off the train after he started for the penitentiary. That Avas the purpose, was it not? "Mr. Knox. The purpose was to see that he got off at the point from which we shipped him into this country. "Mr. Box. And not get off anywhere else? "Mr. Knox. Y^es, sir. "Mr. Box. If you were traveling on the train, and started from one countr\- to another, and every time you tried to get off at any station they stopped you there and put you back on, would you think yoii were a free man? "Mr. Knox. Possiblv not. "Mr. Box. That is ail. "The Chairman. Would you have any doubts about it at all? "Mr. Knox. I would not. "ilr. Raker. Then your answer, in cold-blooded language, means that these pefjple were under sur\'eillance and could not get off wherever they pleased, because they were not free agents? "Mr. Knox. They had broken their contracts, and they were in the same positif>n as anybody else who has broken his contract. "!Mr. Box. Do we put other men in jail or arrest them for breaking tlieir contracts? "Mr. Knox. They were not put in jail. Their agreement contemplated one of two things: They were to go to work, in agricultural work, or they were to return to Mexico. "Mr. Box. Yes. 68 3 EMERGENCY IMMIGRATION LEGISLATION. "'Sir. Knox. Our contract with the United States Government was to see that they were returned. "Mr. Box. But you had a contract with these Texans that were mentioned a while ago. I am not going to claim kin with them. They may be some of the so- called 'poor white trash' that we have heard mentioned during this hearing. I am not going to claim them. But these Texans who had made a contract with you were not guarded. None of them were arrested. Tliey were not guarded out of the country, were tliey? "Mr. Knox. No, sir. "Mr. Box. That is all." In speaking of a system recognized by the Mexican Government, under which this labor was handled, which was different from his method of helping to smuggle this peon labor into the country, ^Ir. Fred Roberts of Texas said: "]\Ir. Davis. Ask him about the concessionaires on the other side and explain the whole thing that way. "Mr. Roberts. Mr. Chairman, in Mexico, like in cities when they have a picnic, they sell a man a concession to go and sell labor, we will say, to deal in lal)or. All right. Pennsylvania R^ailroad Co. or the Unifn Pacific, for instance. I go to thLs fellow that has got this concession and I give him what he asks. With the consent of tlie Mexican Government, we Avill go away down in that country and load up enough of them. Supposing I get 500 Mexicans in the train at one time and ship them up here. "Mr. Welty. I understand these concessions are granted by the Mexican Govern- ment? "Mr. Roberts. To individuals to make money out of the proposition. They are his cattle. He does not call them human beings. All right. I go acn ss there and have a contract to meet the Mexicans, and he might get the officials over there at his dictation to arrest me and put me into jail, and I can not do that thing because I have not the concession for it. "The Chairman. You are interfering with his concession? "Mr. Roberts. Interfering with his business." In telling how he handled them (that is, those he helped sumggle in or those he bought from others who had smuggled them in), Mr. Roberts said, in part: "Mr. Raker. Tell us how you protect yourself. "Mr. Roberts. I will tell you what I have heard in the ancient days. I have seen them unload parties at the tents, and some fellows would borrow the Mexican's shoes and pants till morning. ^Ir. Chairman, it is just a question of self-defense. Go to the border and bring 50 Mexicans and it will cost you 8600. Ihat is not unusual . You have S600 invested. You have got 200 bales of cotton worth S200 a bale, and you owe the banker. The bankers are the only people we can owe down there; the merchants do not do a credit business. You owe the banker. You want to buy a good automobile. You need a lot of things. That is how it works. In out countrj' cotton is made within a period of four or five days; whenever it matures, it opens in the same time. You have got to hold 50 or 75 ^fexicans, costing you SfiOO to hold them over from week to week. WTiat would you do? Just eacxtly what we do. You would have somebody there who would not sleep. You would not let the Mex- icans leave."" I refer to statement on page 401 of the report of the Commis.sioner General of Immi- gration for the year 1919, showing that 6,262 of these "free"' men "deserted," and to page 431 of the report of the Commissioner General of Immigration for the year 1920, showing that 10,691 had "deserted" up to that time. If they were free, why are they officially reported as ha\dng ' ' deserted, ' " when they leave the employ or custody of an employer or group of employers? DO LARGE numbers OF MEXICANS VOTE ILLEGALLY IN TEXAS, AND DOES THEIR VOTE TEND TO CORRUPT THE ELECTORATE? I quote from the Journal of the Senate of the Thirty -sixth Legislature of Texas, in which is embodied the report of a typical election contest from a region where great numbers of these people vote. I read from page 402, the testimony of a Mexican: "Q. Are you an American citizen by birth? — A. No. ******** "Q. Have you, at anv time or place, seemed your final papers as an American citizen? — A. No; my father never took out his papers. * * * * * * * "Q. Did vou vote in the D(>mocratic primaries held in Countv on July 27, 1918?— A. Yes. EMERGENCY IMMIGRATION LEGISLATION. 687 "Q. Have you ever declared your intention of becoming an American citizen? — A. No." That is on page 402. Another Mexican, page 496: "Q. Are you an American citizen by birth? — A. No. * Mr * * * * * "Q. Have you ever declared vour intention of becoming an American citizen? — A. No. ******* "Q. Did you vote on November 5. 1918, in County? — A. Yes." This is another Mexican, page 3496: "Q. Are you an American citizen by birth? — A. No. * " * * * * * * "Q. Have you ever declared your intention of becoming an American citizen? — A. No. ***** * * "Q. Did you vote on November 5, 1918, in County? — A. No; I only voted in the primaries." Page 497, another Mexican: "Q. Are you an American citizen by birth? — A. No. ******* "Q. Have you ever declared voiir intention of becoming an American citizen? — A. No. ******* "Q. Did yoii vote on November 5, 1918, in County? — A. Yes." Another Mexican, same page: "Q. Are you an American citizen by birth? — A. No. ******* "Q. Have you ever declared your intention of becoming an American citizen? — A. Never have. ******* "Q. Did you vote on November 5, 1918, in County? — A. Yes." ******* I omit the names of persons and counties, to avoid reflections on indiAdduals and communities. Now, this is an examination conducted by attorneys in an election contest in Texas [reading from Supplement of the Senate Journal, p. 158]: "Q. ^Mio is in control of the politics of the county — of the ofiices? — A. Mr. . " Q. How is he in that control? — A. By the Mexican vote. "Q. Through that Mexican vote does he control the officers in the county? — A. Ves, sir. •'Q. The county judge ?^ — A. Yes, sir. '■Q. Sheriff? — A. Yes, sir. "Q. Commissioners court? — A. Yes, sir. "Q. And the other officers? — A. Yes, sir. "Q. And the finances of the county? — A. Yes, sir. "Q. Well, how is that Mexican vote handled? Is it an intelligent Mexican vote or an illiterate Mexican vote?— A. Well, it is mixed. There's some very intelligent Mexicans and then there's lots of them are illiterate. ■Q. Does Mr. ■ control the ap])ointment of the people who hold the elections in that county? — A. That's the way 1 understand it." Pages 760 and 761 show the testimony of a member of the Texas Legislature, a man who had been for several terms, about conditions down there. I believe I will not give his name: "A. I was a representative; yes, sir. "Q. Of what counties? — A. Well, when I came to the legislature in 1911, I was elected in 1910, came in 1911, and I represented - — — . ■ , — , and Counties, I think was my district at that time. At a called session of that legislature, the legislature redistricted the representative districts and changed it until it is now — and — — — and — Counties. ******* '•Q. What legislatures were you a member of? — A. I was a member of the thirty- second, thirty-third, and thirty- fourth." Now, 1 will skip a number of in<|uiries that throw but little light on this question. "Q. Was there at that time a discussion of the illiterate Mexican vote along the border, in the legislature? — A. There wasnt as great a discussion as there has been 688 EMERGENCY IMMIGRATION LEGISLATION. this time, but almost as great. There were charges and countercharges of men, different sides, each side charging the other %\ith having paid the poll taxes of the Mexicans. I don't know whether there was anything going on here — ." This testimony was liefore the Texas f^enate committee, ''but in the house of representatives they were in a turmoil about it. One man, they were asking lor a division of counties down there, making new counties and the people who wanted a new county, in County, alleged that one boss man down there, an anti ■ — man who was there, had paid enough poll taxes to control the election of the oflicers. Now, we had given thoj-e peoj)le a new county ; they had come to us complaining in the thirty-second legislature that they were under Mexican rule — that all the oificers down there were ilexicans. The legislature gave them a county, called County, and they were going ])ack there to get together and elect their officers and all that kind of doings. In the thirty-third legislature, those people come back and asked for a diWsion of ■ — — — County^ — " That is the new one. "on the ground that the big boss had gotten their poll taxe.= and put them in his safe and gotten Mexican officers and controlled eA'ery thing- everything of that kind — and in \-iew of that there was a great deal of discussion about the illiterate voters." I quote further from the Texas Senate Journal, page 838. In speaking of a contest between men for office before the election, the State Democratic chairman said: '"In the face of the evident frauds in the primary election in your senatorial district, as disclosed before the committee on credentials at Waco, and the action of the State Democratic convention in declaring ■ — to be the rightful nominee for senator, you are without doubt justiiied in asking the voters of that senatorial district to scratch the name of and write the name of on the ticket before casting the ballot in the XoA^ember election." I mention these things as showing the character that was given to the political con- test in certain localities. I do not exaggerate, gentlemen, when I tell you this entire large volume is full of that kind of stuff, which it took weeks to develop, and it would probably take weeks for you to hear it all. I read from page 62: "Q. Now, isn't it a fact that the way you got that ticket that the chairman of the pi-ecinct, Mr. , had a marked ticket' and showed it to you? — A. ^larked ticket? ''Q. Yes; and showed it to you, and you remembered the names? — -A. Well, he told me the way we ought to vote, you know, but he did not have a marked ticket. ******* "Q. WTiat did he say? — A. WTiy, he just stated he wanted to vote for these candi- dates, and I just said it was my opinion to vote for them too, myself. ******* "Q. Did you make out all of the tickets that you fixed that day the same way; for the same candidates? — A. For the fellows who didn't know how to make out their own tickets; yes. ■'Q. Made them all the same way? — A. Because I asked them who they wanted to vote for, and they said. We will do it the way you are going to vote, you know.' ''Q. They said, 'We Avill do it the way you are going to vote'? — A. Yes; and I voted it just the way I did my own. ******* "Q. And you made out about half of the tickets of that box? — -A. About half. " The following is from page 308 of the report of the hearings before the House com- mittee: •'Mr. Raker. In other words, the tickets are printed, and the man in charge can take the ticket and scratch it or write any man's name he desires and hand it to the judge of the election; the voter can vote for anyone; is not that the way? "Mr. Box. The names are printed on the ticket, and you have to scratch out those for whom yoxi do not vote and leave in those you do vote for. "Mr. Raker. And if you want to vote for somebody not on the ticket, then you write in the name? 'Mr. Box. Then you write in the name; yes, sir. "Mr. Raker. There is no official guarding the ticket or the ballot? "Mr. Box. There should be. The law provides one, but the law is not always carried out. "Mr. Kleczka. The law permits assistance? "Mr. Box. Yes. And, for- instance, if you had a box in which there were only one or two white men in' the whole region, and every man who held office in the- county, or every man who participated in the election was of this same class and had these same political ideas, and people who do not know, who do not even know what EMERGENCY IMMIGRATION LEGISLATION. 689 the Democratic Party is, do the voting — and it is, indeed, true they do not know what the Democratic Party is. They come out to vote and say, 'I vote for Mr. Democrata ' — — "Mr. Raker. This is the same thing that I have understood has occurred in many other districts where vvhole counties were disfranchised by virtue of selling their votes. It does not applv to Texas alone. "Mr. Box. This is only a spot and we do not want this spot to get any bigger. "Mr. Vaile. There are several counties in Colorado where each party has been accused in turn of voting the whole county, practically, and I guess this accusation could be sustained by a large preponderance of the evidence. "Mr. Sabatu. Why a few years ago entire counties and townships were indicted in Indiana and Iowa for selU-ng their votes at $5 and .filO apiece. "Mr. Vaile. But these counties in Texas are voted by the Mexicans. " The Chairman. And Judge Sabath -will always agree Cook County is always clean? " Mr. Sabath. I do not think it is any cleaner than your section. "The Chairman. Mine is clean. " Mr. Sab.ath. Ours is as clean as yours. I know on the Democratic side it is clean. "Mr. Box. There are bad spots enough in all of them, gentlemen; we do not want them, to get anv lugger, that is all. " I read again from the Texas Senate Journal, the record of the same election contest, page 641: "Q. You don't know who you voted for, do you? Could you give the name of anybody you voted for in the primary? — A. No, sir; I did not. He handed it to me and I put it there in the presence of the presiding judge. " Q. In the November election, you did the same thing, didn't you? — A. Yes, sir." Now, at pages G43 and 644; this is another Mexican testifying at page 643: "Q. When you got there in the November election, it was all ready for you then, too, wasn't it? — A. It was, certainly. * , * * * * * * "Q. Do you know who you voted for in the regular election for governor? — A. I do not, sir. " Q. Do you know who you voted for for State senator? — A. Voted for Mr. Democrata. " Q. For Mr. Democrata? — A. Yes, sir. "Q. Who was he? — A. I don't know him, sir. "Q. Have you ever met him? — A. No, sir. " Q. Where does he live? — A. I do not know where he is now. That's all he knows [this is the interpreter speaking], is Mr. Democrata. That's all he knows about it. ******* " Q. What was he running for? — A. I ignore everything, sir; I don't know anything about it; they never tell us anything. "Q. They never tell you anything? — A. They tell us to vote, that is all. " Q. They tell you to vote. And in the November election they had all the tickets readv there and you just come in and get a ticket and stick it in the box? — A. That is all; yes, sir." To avoid further burdening your record I will not quote more, though the amount of such matter is verv alumdant. tt has been stated l)y some Avho oppose my position that I am or have been an employer of this Mexican peon la])or. The statement is wholly untrue and wholly Immatr'rial. I have not had a Mexican in my employ for 10 years, and think I have never had. So far as I know, no one of my three or four farm tenants employs them nor has done so. I exercise no control over the employment of their help. An extract from a statement made by Congressman John C. Box, of Texas, before the House Committee on Immigration and Natural- ization, referred to by Mr. J. IT. Patten in liis testimony, is herewith printed, as follows: Mr. Box. I wisli to say before I read from an official document I have here, that I am going to eliminate names of counties and men and localities in order to eliminate any personal or offensive element from my statement, but the document I read from is the Official Journal of the Senate of Texas, and I will give you the book and page, as I go along. Before doing that I Avish to say that the de]>lorable conditions disclosed by this record in some localities are not to be charged to the best elements of men in east or Avest Texas, or any other section. There are always enough men who will do wrong in politics to use an ignorant herd to the hurt of the public. There are good and bad elements in every portion of Texas, and good and bad men in every sec- 690 EMERGENCY IMMIGRATION LEGISLATION. tion of Texas, and those of us who want the best thin<2;s in Texas and in American life do not want the forces of e\dl strenenavides. Wenceslao Guzman. Juan Leal. Foribio Rodriguez. F. Jesus Cantu. Martin Cavazos. Yida Leslie. H. \y. Leslie. Maximo Rodriguez. Apolinas Rodriguez, Ernesto Esparza. Esequiel Cavazos. Hasedonio Rodriguez. J. F. Moody. Rosalie Rodriguez. L. A. Schiceger. Mrs. L. A. Schiceger. Edward Schiceger. E. H. Agee. Aniseto Rodriguez. Elefonso Gallegos. Luis Aguire. Davi Kellos. Desiderio Yanes. Pablo Silvas. Rocindo Aguire. Desiderio Tribinio. R. G. Garza. Juan Ramos. Rafael L. Guerra. Evaristo Canas. Yplito Canales. Nestor Alcala. Jose Yanes. Susano Gonzales. Modesto Gonzales. A. E. Carmichail. Angel Ramos. Cliofas Gomez. Encarnacion Martinis. Antonio G. Cavazos. (leorge A. Fearnow. Mrs. George A. Fearnow. On page 273 will he found another full list and on pages 274, 275, 448, 58G, 587, 588, and tlie book, which is a large volume, is full of them. Their influence on elections is very bad. I am going to show how they vote and their effect. I am going to show before I get tlu-ough that others who were never naturalized and never applied for naturalization vote. Now, this is an examination conducted l)y attorneys in an election contest in Texas [reading from supplement of the Senate Journal, p. 158 1: 'Q. Who is in control of the politics of tlie county — of the offices? — A. ^Ir. •. "Q. How is he in that control? — A. By tlie Mexican vote. '■Q. Through that Mexican vote doe.s he control the officers in the county? — \. Yes, sir. "Q. The countv judge? — A. Yes, sir. "Q. Sheriff?— A. Yes, sir. '■Q. Commissioners court? — A. Yes, sir. "Q. And the other oflicers? — A. Yes, sir. '■Q. And the finances of the county? — .V. Yes, sir. EMERGENCY IMMIGRATION LEGISLATION. 691 "Q. Does Mr. control the appointment of the people who hold the elections in that county? — A. That's the way I understand it." Pages 7fiO and 761 show the testimony of a member of the Texas Legislature, a man wlio had known for several terms about conditions down there. I will not give his name: 'A.' I was a representativf ; yes, sir. "Q. Of what counties? — A. Well, when I came to the legislature, in 1911, I was elected in 1910, came in 1911, and I represented , , , and Counties, I think was my district at that time. At a called session of that legislature, the legislature redistricted the representative districts and changed it until it is now and and ■ Counties. * -x- * * * * * "Q. Wlmi legislatures were you a member of? — A. I was a member of the thirty- second, thirty-third, and thirty-fourth." Now, I will skip quite a number of questions that throw no light on this controversy. They do throw a little, but would take too much space: '■Q. Was there at that time a discussion of the illiterate Mexican vote along the border, in the legislature? — A. There wasn't as great a discussion as there has Ijeen this time, but almost as great. There were charges and countercharges of men, different sides, each side charging the other with having paid the poll taxes of the Mexicans. I don't know whether there was anything going on here — " That is the senate, you understand, ''but in the house of representatives they were in a tmmoil about it. One man, they were asking for a division of counties down there, making new counties and the people who wanted a new county, in County, alleged that one boss man down there, an anti man who was there had paid enough poll taxes to control the election of the officers. Now, we had given those people a new county; they had come to us complaining in the thirty-second legislatiu'e that they were under Mexican rule — that all the officers down there were Mexicans. The legislature gave them a county, called County, and they were going back there to get together and elect their officers and all that kind of doings. In the thirty-third legislatiu'e those people come back and asked for a division of County — " That is the new one. '"on the ground that the big boss had gotten their poll taxes and put them in his safe and gotten Mexican officers and controlled everything — everything of that kind — - and in \-iew of that there was a great deal of discussion about the illiterate voters." Mr. Raker. Is it not a crime to pay the poll tax of a man who must have paid his poll tax to secure the right to vote? Mr. Box. It is; but all criminal law is not enforced, especially where the local sentiment is against it and where there is a big degraded element that figures in it. Here is a letter from the State Democratic chairman of Texas relative to the situation there. I will just give the part of it on this situation. This is on page 838, in speaking of a contest between men for office before the election, and the State Demo- cratic chairman said : ■'In the face of the e\-ident frauds in the primary election in your senatorial dis- trict, as disclosed l)efore the committee on credentials at Waco, and the action of the State Democratic convention in declaring — — ■ — to be the rightful nominee for sena- tor, you are without doubt justified in asking the voters of that senatorial distiict to scratch the name of • — and write the name of on the ticket before casting the ballot in the November election." I mention these things as showing the character that was given to the political contest in certain localities. I do not exaggerate, gentlemen, when I tell you this entire large volume is full of that kind of stuff, which it took weeks to develop, and it would ])robably take weeks for you to hear it all. Mr. Ki,i;czK.\. When was that contest? Mr. Box. In 1919. The Ch.mkm.w. Is there any e^idence in there as to how they voted or may have voted as to their knowledge of the candidates? Mr. Box. That is my next point. They are very ignorant. I read from page 62 — Oh, no. As I stated a while ago, we have l)ad men enough and ignorant men enough^ too many everywhere, gentlemen. And — I do not want to "be misunderstood— I have been all over that coimtry, and there are as fine citizens down there as any- where in the world, and I know what lots of them think. This testimony disclosed it. You can get half a do/.en men in any county in America to ask for certain things, but that does not represent what the great mass" of the men and women of the United States think. 092 EMERGENCY JMMIGIiATlOX LEGISLATION. The Chairman. That is, asking for special privileges? Mr. Box. Yes. Mr. Kleczka. Can vou tell how the Texas delegation feels on this subject? Mr. Box. I do not feel like speaking for the Texas delegation, but I have •n-ritten in my statement here that only a few of the Texas delegation will, in my judgment, vote for it. Mr. Kleczka. There was no caucus? Mr. Box. Xo; and there have only been 4 out of the 18 Members to come before us. I read from page 62: "Q. Now, isn't it a fact that the way you got that ticket that the chairman of the prec-inct, Mr. , had a marked ticket and showed it to >ou? — A. Marked ticket? "Q. Yes; and showed it to you, and you remembered the names? — A. Well, he told me the way we ought to vote, you know, but he did not have a marked ticket. ******* "Q. What did he say? — A. Why, he just stated he wanted to vote for these candi- dates, and I just said it was my opinion to vote for them too, myself. ******* "Q. Did you make out all of the tickets that you fixed that day the same way, for the same candidates? — A. For the fellows who didn't know how to make out their own tickets, yes. "Q. Made them all the same way? — A. Because I asked them who they wanted ta A'ote for, and they said 'We will do it the way you are going to vote, you know.' "Q. They said, 'We will do it the way you are going to vote'? — A. Yes; and I voted it just the way I did my own. ******* " 0. And you made out about half of the tickets of that box? — A. About half." Mr. Raker. In other words, the tickets are printed, and the man in charge can take the ticket and scratch it or write any man's name he de=ii'es and hand it to the judge of the election; the voter can vote for anyone; is not that the wav? Mr. Box. The names are printed on the ticket, and you have to scratch out those for whom you do not vote and to leave in those you do vote for. Mr. Rakek. And if you want to vote for somebody not on the ticket, then you write in the name? Mr. Box. Then you write in the name; ye.s, sir. Mr. Raker. There is no official guarding the ricket or the ballot? Mr. Box. There should be. Thelaw pro^•ide? one. but the law is not always car- ried out. Mr. Kleczka. The law permits assistance? Mr. Box. Yes. And. for instance, if you had a box in which there were only one or two white men in the whole region, and every man who held office in the county, or every man who participated in the election was of this same class and had these same political ideas, and people who do not laiow, who do not know even what the Democratic Party is, do the voting — and it is, indeed, true, they do not know what the Democratic Party is. They come out to vote and say, "IvoteforMr. Democrata." On page 641 I will read one or two questions and answers of voters who testitied : "Q. You don't know who you voted for, do you? Could you give the name of anybody j^ou voted for in the primary? — A. No, sir; I did not." Mr. Vaile. "I could not," he meant? Mr. Box. That is what he meant, but the reporter has it ''I did not." The Chairman'. This is a Mexican who is testifying? Mr. Box. Yes; and he had to use an interpreter. The Chairman. He was not a naturalized American. Mr. Box. I did not see as to this one. I am going to give the names ofa good many, but I just give these to show the character of the vote. [Reading:] "He handed it to me and I put it there in the presence of the presiding judge. "Q. In the November election, you did the same thing, didn't you? — A. Yes, sir." Now. at pages 643 and 644: this is another Mexican testif>-ing. at page 643: "Q. When you got there in the November election, it was all ready for you then, too, wasn't it? — A. It was, certainly. ******* "Q. Do you know who you voted for in the regular election for governor? — A. I do not. sir. "Q. Do you know who you voted for for State senator? — A. Voted for Mr. Demo- crata. "Q. For Mr. Democrata? — A. Yes, sir. "Q. Who was he? — A. I don't know him. sir. EMERGENCY IMMIGEATIOX LEGISLATION. 693 "Q. Have you ever met him? — A. No, sir." f Laughter.] The Chatrmax. Mr. Democrata is a powerful indi\'idual in Texas, is he not? Mr. Box. Yes; he is a giant down there. But he does not have to have all these votes to win and we do not want him to win by that sort of votes. [Reading:] "Q. Have you ever met him? — A. No, sir. "Q. Where" does he live? — A. I do not know where he is now. That's all he knows [this is the interpreter speaking], is Mr. Democrata. That's all he knows about it. ******* "Q. What was he running for? — A. I ignore everything, sir; I don't know any- thing about it; they never tell us anything. "Q. They never'tell you anything? — A. They tell us to vote^that is all. "Q. They tell you to vote; and in the November election they had all the tickets ready there, and you just come in and get a ticket and stick it in the box? — A. That is all; yes, sir." ******* The Chairman. I think vou could go on with them almost indefinitely. Mr. Box. I could submit hundn>ds of such cases. The Chairman. You have submitted enough, I think. MR. J. H. PATTEN. A brief in favor of the numerical limitation of immigration and certain other data supplemental to the statement made on Wednes- day, January 19, 1921, by Mr. J. H. Patten, representing the Patriotic Order Sons of America, are herewith printed in full, as follows: BRIEF IN FAVOR OF THE NU.MERICAL LIMITATION OF IMMIGRATION. [Section 9 of H. R. 12320, introduced bv the chairman of the House Committee on Immigration Feb. 4, 1920.] The percentage, or numerical limitation proA isions of H. R. 12320 limits the number of aliens from any nation who may come in, during any year, to such percentage bet.xeen 20 and 50 of the number of males of such nationality naturalized in the United States at the date of the preceding census, as the Itr'ecretary of Labor may fix, having regard to labor conditions here. Aliens returning from a temporary visit abroad, aliens coming to join certain rela- tives, and certain classes of professioiial persons may enter in addition to the maximum fixed by the bill. The bill does not apply to nati^ es of the Western Hemisphere, and lea^■es oriental immigration to be regulated as at present. A. Further restriction of immigration both as to quantity and quality is essential to the preservation of American ideals and institutions. Prior to 1880 immigration was chiefly from races akin to the original settlers in race, institutions, and historical background. Since 1880 the opposite is the case. In 1 880. 65 per cent of the total immigration came from northern and western Eiu-ope. In 1914, the last year of large immigration before the v.ar, G8 per cent of the total immigration was of the Sla\ ic and 1 Ifcric races of eastern and southern Europe . ^^^lat- ever the merits of these latter races of immigrants, they are not familiar with demo- cratic institutions, are largely ignorant of the English language, and until the act of 1917 were more than one-third illiterate even as to their own language. As Crustav Le Ikin says, too large a preponderance of foreigners (meaning those foreign in ideas and customs) destroys that most ^ ital possession of a nation — its own soul. Tlie downfall of nearly every great civilization has l)een due in large part to the peaceful invasion of large numbers of persons ha\ing different aims and customs. B. Further restriction of immigraticm both as to quantity and (juality is essential to the Americanization of immigrants already here and those to be admitted hereafter. To attempt to assimilate the enormous immigrant population already here, to teach it our language and something of our history and go\ernmeut, above all, to imbue it with our traditions and ideals, in the face of an additional immigration of a million or more a year, is a hopeless task. It is like trying to keep a leaking boat dry without stoi)ping the leak. Acleciuate assimilation means not only great labor and expense, but it requires time. It requires something more than evening classes for adults and Hag exercises in the schools. Manv aliens are settled in communities where thev hear only their own 694 EMERGENCY IMMIGllATION LEGISLATION. lansuago, and read, if they are a])le to read, only newspapers in that language. The most potent aasiniilati%'e force is contact and exchange of ideas with the nati\e popu- lation. This requires time, even in the case of the children. Meanwhile we neetl elbowroom to make adequate progress with those already here. C. The preservation of American institutions and the a.ssimilation of immigrants demand that the bulk of further immigration should be of kindred races._ It is obviou.s that those whose home government, institutions, and habits, are more akin to our own will most easilv fit into our life here and be the easiest to assimilate socially, economically, and politically. D. The jiroposed bill operates along the same lines as the reading test in the act of 1917, but is needed to supplement that test. In the opinion of Government officials and expert students of the matter, the reading test has proved to be one of the most valuable features of the law. In 1917, the total number of illiterates* over 14 years of age admitted was 35,510; in 191S, the total number of illiterates admitted over 16 years of age, under the exceptions in the law, was 3,772; in 1919, 2,827. The reduction was effected chiefly in the aliens from southern and eastern Europe, where the rate of illitciracy is high. The reading test has also proved valuable in excluding feeble-minded and other defective persons who might not have been excluded without it. But the effect of the reading test will presently diminish; partly through the natural spreading of education to the countries backward in that respect, partly because those same countries will make special efforts to promote elementary educa- tion. This latter effect of the law is noticeable in Italy, where, since the passage of the test, preparations are being made to make reading available to all intending emigrants. The increase in popular education abroad is one of the beneficial results of our present immigration law. Therefore some measure operating along the same lines is needed to supplement the reading test before the latter begins to lose its effect. E. The proposed bill, while reducing the total volume of immigration, reduces it chiefly as to those countries of eastern and southern Europe whose emigrants are less easily assimilated here. As stated above under A and B, what is needed is that aliens shall not be allowed to come in faster than they can be assimilated. This implies a reduction of_ the total number from the million a year who came to us before the war; and especially a reduction in such a way that the bulk of immigration shall be of the kindred races of northern and western Europe. The proposed limitation, under its maximum provision of 50 per cent, would have had the following effect in a year of normally large immigration like 1914: Northern and western Europe, actually admitted, 189,177; admissible under bill, 1,090,500. Southern and eastern Europe, actually admitted, 945,288; admissible under bill, 279,288. In other words, the total European immigration would have been reduced to 4S per cent of the actual volume by reducing the immigration from southern and eastern Europe to 29 per cent of its actual A'olume. The proposed limitation, under its minimum provision of 20 per cent, would have had the following effect in 1914: Northern and western Europe, actually admitted, 189,177; admissible under bill, 436,200. Southern and eastern Europe, actually admitted, 945,288; admissible under bill, 111,715. In other words, the total European immigration would have been reduced to 26 per cent of its actual volume, by reducing the immigration from southern and eastern Europe to 12 per cent of its actual volume. It will be noticed that the number, admissible under the limitation, from northern and western I"]urope, is much larger than actually came in 1914, and than is likely to come in any future year. It is possible that some increase of these races might take place when they are no longer so subject to the overwhelming competition of the races from southern and eastern Europe. In the past, such competition has been a powerful factor in checking immigration from northern and western Euro)>e. But much increase is not likely and if it took place, being of kindred races it would be more e.isily assimilated. K. The proposed numerical limitation would discriminate against those less assimil- able. Most of the arguments in favor of the reading test (set forth in publications Nos. 56 and 63) support this proposal also. The races of eastern and southern Europe are relatively illiterate; and investigation has shown that illiteracy gops hand in hand with various other undesirable qualities which make assimilation difficult. EMERGENCY IMMIGRATION LEGISLATION. 695 The recent immigration, for example, does not distribute itself over the country to build up new communities, as did the earlier; but tends to congregate in certain States, in the large cities of those States, and in the congested districts of those cities. The census of 1910, Volume I. population, page 814, showed that the States of New York, New Jersey, and Pennsylvania contained 67.8 per cent of all the Rumanians in the United States: 64 per cent of all the Hungarians: 58.4 per cent of all the Ital- ians: and 55.7 per cent of all the Russians. This compares with 34.8 per cent of the English. 3.3.8 per cent of the French, 30.2 per cent of the Germans, and 13.2 per cent of the Swedes. Volume I, page 818, showed that 78.6 per cent of those from eastern and southern Europe live in cities as compared with 68.3 per cent of those from northern and west- ern Europe. Volume I, page 1273, shows that, of those unable to speak P^nglish, 69.2 per cent live in cities. In 1900, Chicago contained 91 per cent of all the Poles in Illinois, and 84 per cent of all the Italians. New York City contained 47 per cent of all the Poles in the State, 80 per cent of all the Italians, and 94 per cent of all the Russian Jews. The Seventh Special Report of the United States Commissioner of Labor (1894, p. 44) showed that natives of Austria-Hungary, Italy, Poland, and Russia constituted six times their normal proportion in the slums of Baltimore, seven times in Chicago, five times in New York and twenty-six times in Philadelphia. This tendency to slum life is largely due to ignorance of gainful trades, and in part to lack of savings. The report of the Industrial Commission showed that in 1900, while the British and Germans brought mth them .$30 to .$40 per capita, the southern Italians, Poles and Hebrews l)rought less than SIO. G. The basis of the proposed numerical limitation of annual immigration from 20 to 50 per cent of the males of any nationality naturalized at the date of the last census, is a sound one. The l)est test of assimilation and of the desire of those of any race to throw in their lot with us permanently is the degree to which they become naturalized. Races who do this are in general those most nearly kindred to us, as appears from the following table. The Census of 1910, Volume I, page 1072, gave the proportion of foreign-born males of voting age who were naturalized, for the nations specified, as follows: Northern and western Europe: I Eastern and southern Europe: Germany 69. 5 Turkey in Europe 43. Wales . .'. 69. 2 i Rumania 28. 8 Ireland 67. 8 Russia 26. 1 Sweden 62. 8 Portugal 24. 9 Austria 24. 6 Turkey in Asia 21.2 Italy 17.7 Spain 16. 4 Hungary 14. 3 Greece 6 6 Switzerland 61 Denmark 61. 6 Norwav 57. 1 Netherlands 56. 8 France 49. 6 Belgium 43. H. H. R. 12320 does not in any way repeal or modify the present laws excluding oriental immigration. It is entirely different from the so-called "Gulick" bill. Whatever the merits of the Chinese, Japanese, and Hindus may be, the public opinion of this country is entirely justified in demanding that they be substantially excluded, as at present, and not allowed to come into economic competition here \vith our manual workers. The Gulick bill rejieals all specific oriental exclusion aud retains as the only barrier a percentage limitation. Although the Gulick bill is also a numerical limitation plan, its basis for exclusion is different from that of H. R. 12320: and, in the opinion of experts, the Gulick plan might allow several million orientals to be here at the end of 50 years. We have had a troublesome experience with the African races, and we ought not to risk any repetition of this trouble with the Asiatic races. It may be noted that the exclusion of orientals from Australia, New Zealand, and Canada is rnuch more rigid than from the United States. H. R. 12320 should not be associated with the Gulick bill. They are entirely different propositions. I. The time to adopt adequate measures of restriction is now. The war acted for several years as the st rongest kind of a check upon all immigration . The best expert opinion is that immigration will increase very rapidly from now on. For some years to come, work of reconstruction may tend to keep at home the better sorts of workingmen in northwestern Europe. On the other hand, the disturbed 696 emergexc;y immigration legislatiox. political conditions in eastern Europe, and the destruction of many homes, will tend to uproot many families and make them more ready to try life on another continent. The steamship com])anie8, who know that immigjants are the most profitable cargo they can carry, will be ea>?er to turn this feelinj,' of unsettlement to their profit by inducing as many as possible to come hither. Those having the least stake in their own country, and those not likely to have a large interest in any country are the easiest to persuade. We should therefore be prepared for a largely increased immigration, probably of a lower grade than heretofore. Copy of order issued by .Secretary W. B. Wilson, February 12, 1920: Department of Labor, Office of Secretary, Wa-shhigton, February 12, 1920. To the CoMMLssioNER General of Immigration: Pending action by Congress on proposed legislation in re admission of laborers for agricultural pursuits to meet conditions such as are claimed to exist in States on the northern and southern borders and in the State of Florida, you are hereby directed, until further instructed, to put in force in States on said borders and in the State of Florida the regulations existing January 1, 1920, relating to the admission of laborers in States on the southern border and in Florida. W. B. Wilson, Secretary. United States Department of labor. Bureau of Immigration, Washington, February 6, 1920. Hon. Albert Johnson, M. C, Chairman Committee on Immigration and Naturalization, House of Representatives, Washington, D. C. My Dear Mr. Johnson: Inclosed please find the form which you have requested. I believe that some changes were made in this form after this was sent out; hence, the statement in recent communications from the department to you that it had wired to El Paso for the copy that has been used lately. I do not think that any substantial changes were made in this form. As soon as I receive the copy from El Paso 1 will transmit that also. \'ery truly, yours, A. Caminetti, Commissioner General. FORM OF CONTRACT. This agreement or undertaking entered into by of ^vith the United States of America, for the consideration hereinafter expressed, having for its purpose, among others, the importation, for employment in agricultural jiursuits only, of alien laborers from the Republic of Mexico under the terms of the luitcd States Depart- ment of Labor circular of April 12, 1918, and regulations thereunder of April 12, 1918, and May 10, 1918, issued by the Commissioner General of Immigration, and such regulations as may hereafter issue, excepting from the contract labor, head tax, and illiteracy test provisions of t>he immigration act of February 5, J917, alien agricultural laborers imported from Mexico, witnesseth* 1. (a) That — [If the signer of this contract is a firm, aissociation, or corporation, state which and how created.]. (6) That [State location and nature of business in any event.]. (c) That [State whether importer owns land to be cultivated, or is a lessee; also whether importer leases to tenants on any basis, and if so. what basis.]. (d) That [State whether aliens are to be employed directly or indirectly by importer, and if indirectly, in what manner; also, character of work imported laborers are to perform.]. 2. That the duration of employment of said alien agricultural laliorers shall be for a period of time not to exceed six months, unless the period lie extended l)y the inspector in charge United States Immigration Service at the port where said aliens entered; said extension to be subject to the apjiroval in writing of the appropriate United States employment agent nearest to the site of employment. EMERGENCY IMMIGRATIOlSr LEGISLATION. 697 Further, tliat in order to conform in every respect to the reguhitions prescribed by the Commissioner General of Immigration, the undersigned obligates as follows: That, in consideration of the consent of the United States of America to the importa- tion of such alien laborers, and their exception, as hereinbefore referred to. from the operation of the contract labor, head tax, and illiteracy provisions of the immigration act of February 5, 1917, the undersigned [Insert "jointly and severally" where more than one principal is signatory to the agreement] undertake • and agree — with the United States of America, that any alien laborers imported by the undersigned from Mexico, pursuant to the terms of this agreement will be em- ployed exclusively in agricultural pursuits; that three unmounted and unretouched photographs and a like number of an a])propriate form of identification card will be furnisiied as to each of such aliens; that at the final termination of the authorized stay in the United States of alien laborers imported hereunder, they will be returned by the undersigned without expense to the United States, and delivered to the im- migration officer, or officers, at the port through which they entered; that monthly reports will be made on or before the 15th day of each month by the undersigned to the officers of the Immigration Service at the port where entry is effected, and to the appropriate immigration officer at or nearest the place of employment, showing by identification card number, the name, location, and character of employment of each such alien, and the name of the employer on the last day of the preceding month; that the undersigned will immediately report all desertions and other failure of aliens to comply with the conditions of their admission, to the immigration officer in charge at the port of entry, and to the immigration officer nearest to the point where the said aliens are located or where desertion occurs, including in such reports all the facts in connection with said desertion, so far as the same can be gathered, and all the informa- tion which can be obtained concerning the reasons for such desertion, the location of the aliens, the nature of their subsequent employment, what steps were taken to prevent their desertion, and what steps are being taken to effect a return of the aliens to their work or to the port of entry; that the undersigned will use every reasonable means to prevent such desertions by insisting upon proper living conditions, including proper housing, proper feeding, and proper care for the welfare generally of such aliens; that with respect to housing and sanitation the laws and rules of the States in idiieh the laborers are employed will be observed by the undersigned, and if the States in which such laborers are employed have no laws mth respect to housing and sanitation, then conditions of housing and sanitation will be maintained at all times by the under- signed in a manner satisfactory to the Secretary of Labor, it being understood, however, that such aliens may feed or house themselves if they so elect; that the undersigned will endeavor by every lawful means at command, and without expense to the United States, to return to the port of entry all such aliens as persist in engaging in pursuits other than agricultural, and where such removal to the port of entry is resisted, will present the facts to the nearest immigration officer for appropriate action; that "where the Department of Labor considers it necessary to deport any agricultural laborer imported under the terms of this agreement, all expenses in connection M'ith the arrest, detention, and deportation will be borne by the Government, or the im- porter, or the alien, in the discretion of the Secretary of Labor. That the undersigned will see to it that all aliens imported hereunder are paid the current rate of wages prevailing for similar labor in the community where they are employed, in no event, however, to be less than S per day per man and ' ' found, ' ' or § per day per man as to those aliens who subsist themselves. [Strike out inappropriate clause.] That no transfer of anj' such laborers from one State to another will he made by the undersigned without the prior written consent of the appropriate X'nited States em- ployment agent in the State to which said transfer is contemplated, and, tliatin the event of the transfer of any such laborers from one State to another or from one point to another within a State, the undersigned will, before audi transfer is made or imme- diately thereafter, fully advise the immigi-ation officers at or nearest the place from which transfer is made or contemplated of the changes made or contemplated to be made, furnishing such offiers, and the name and location of their new employer; a copy of such statement will in every case be likewise furnished to the inspector in charge of the Immigration Service at the port through which the aliens transferred or to be transferred entered the LTnited States. That all alien laborers imported hereunder will be brought tln-ough a designated immigration port of entry and there presented by the undersigned, or duly authorized agent or agents, to the immigration officers for proper medical and civil inspection, as well as registration. 26911— 21— PT 14 4 698 k.mkij(;kxcy immigration legislation. That the undersigned herel)y undertakes in tlie hiKhest good faith, and to the ut- most of his ability, to conform to all the conditions imposed by the United States of America in this connection: and it is further understood and agreed that in view of the mutual considerations hereinl)cfore expressed, failure of the iindersigned to al)ide by or fulfill any one of the conditions undertaken by herein will be Bufhcient caiise for tiie Secretary of Labor, in his discretion, to direct that any or ail of the aliens imported hereunder l)e returned by the undersigned immediately to the port or ports of entry, without expense to the f Jovernment, for their return to Mexico, and to deny to the undersigned the privilege of importing any other laborers under the Department of Labor "s exceptions aforesaid: and the undersigned agree that for the consideration hereinbefore expressed will, in tlie event of such forfeiture, cause any such alien or aliens as may be designated by the Secretary of Labor for that purpose, to be returned to the port or ports of entry, without expense to the Government; and it is further understood and agreed that waiver of forfeiture in any specific instance will not prejudice the future rights of the United States of America in that respect. In witness whereof, the said execute these presents by signing and sealing the same at this day of , ]92 — . Witnesses (two as to each signer): — , address , address Signature [.seal.] At , — , 192—. The undersigned hereby authorize as agent to do and perform all manner of things which as principal might properly do under the terms of a contract entered into with the United States of America dated at — on the day of — ; — r- — 192 — , having for its purpose the importation from Mexico of alien agiicultural lal)orers. IN.STRUCTIONS TO COMMI.SSIONERS OF IMMICtRATIOX CONCERNIN'G .SL'.SPEN.'ION OF certain provisions. Departme.nt of Labor, Office of the Secretary, Washington, May 2.3, 1917. Commissioners of immigration, inspectors in charge, and others concerned: The ninth proviso to section 3 of the immigration act of February 5, 1917, reads: "Provided further, That the Commissioner General of Immigration with the approval of the Secretary of Labor shall issue rules and prescribe conditions, including exaction of such bonds as may be necessary-, to control and regulate the admsision and return of otherwise inadmissible aliens applying for temporary admission." "^Tiile, obvi- ously, this special exception to general provisions of law should be construed strictly and should not be resorted to except with the object of meeting extraordinary situ- ations or conditions, it can be and should be availed of whenever an emergent con- dition arises. With agricultural pursuits such a condition now exists in certain sections of the country and is likely to arise in other sections during the continuance of the war. The department therefore issues the following instructions for the infor- mation and guidance of all concerned: Not'ttdthstanding the provisions of section 3 of the immigration act excluding aliens who, (a) being over IG years of age and physically capable of reading, "can not read the English language, or some other language or dialect," (the "illiteracy test"), or (6) "who have been induced, assisted, encouraged, or solicited to migrate to this country by offers or promises of employment * * * or in consequence of agree- ments, oral, written or printed, express or implied, to perform labor in this country of any kind, skilled or unskilled" (the "contract labor clause"), aliens who in all other respects are admissible under said law and who are^]lown to be coming to the United States for the puri)ose of accepting employment in agricultural pursuits, shall be admitted upon the conditions hereinafter specified. The alien applying for admission or someone in his behalf shall furnish two un- mounted photographs (jf the applicant, and a complete personal description of such applicant shall be taken; these shall be used in jireparing, in duplicate, an identifi. EMERGENCY IMMIGRATION LEGISLATION. ' 699 calioii card corresponding in a general way to the identification card prescribed by 8nl)division 9 of rule 12 of the immis-ration regulations for the use of aliens who habitu- al) \- cross and recross the land boundaries. The blank form of card used in connection with said subdivision may be arlapted to this purpose, an ajtpropriate notation being placed thereon to show that the holder is temporarily admitted to the United States under the terms of this circular to engage in agricultural labor. The original of the card shall be given the admitted alieri; the duplicate shall be properly filed and indexed. Aliens admitted under the provisions hereof are allowed to enter temporarily upon the understanding that they will engage in no other than agricultural labor: and any who fail to accept or after acceptance abandon em.ployment of that kind and engage in the performance of labor in connection with other industries, shall be promptly arrested and deported to the country whence they came. In cases arising under this circular, the aliens involved shall be admitted without the payment of head tax. The foregoing shall apply, until further orders, only to agricultural laborers from Mexico. W. B. Wilson, Secretary. Departmental Order ok April 12, 1918, Concernino Admission of Agricultural Laborers. United States Department of Labor. Bureau of Immigration, No. 542(il/202. Washington, April, 12, 1918. To commissioners of immigration, inspectors in charge, Immigration Service, and others con rem ed: In connection with circular letter of even date herewith, concerning the temporary admis.«ion of agricultural laborers from Mexico and Canada, the following detailed instructions are promulgated for the guidance of all concerned, viz: 1. The temporary admissions under the circular shall be for periods not exceeding six months; and if, in any instance, an extension of time is de.sired, the necessity therefor must be clearly shown in the application tiled by the party desiring to con- tinue the services of the laborers for a further period, not exceedingsbcjnonths, and the application shall be concurred in by the aliens involved. ' 2. Emphasis is placed upon the fact that the circular provides for the temporary admission, under the circumstances stated and conditions prescribed, of "aliens who in all other respects" would be ''admissible under said law" if they were entering for permanent purposes. The indidgence extends only to the illiteracy and contract- labor features of the law, and then only if the other conditions are satisfactorily estab- lished. 3. As admission imder the circular is ,to be temporary only, and as the circular prescribes that all aliens who violate the conditions exacted shall be immediately deported, of course no alien should be admitted from either Mexico or Canada who can not be returned thither immediately that necessity arises or eventually, at any rate. This indicates the necessity for caution in admitting alien residents of either country whose return may be barred by the laws of such country. 4. As to be admissible under the circular the aliens must be coming "for the pur- pose of accepting employment in agricultural pursuits" ''for which reason the "con- tract-labor" as well as the "illiteracy-test" provisions are mentioned in the circular), prearrangement for the employment of all admitted is contemplated. In other words, those who desire to avail themselves of this opportunity, afforded to meet emergency agricultural conditions, must send for or come to the boundaries to get the aliens, and the aliens must net be temporarily admitted until arrangements for their employ- ment in agricultural work have been perfected. 5. Anyone availing himself of the opportunity afforded by the circular to obtain farm laborers shall be required, as a condition precedent to the temporary admission of the aliens to whom he proposes to give emplo>'ment, to disclose to the imriiigration officer in charge at the port of entry his plans with respect to the employmenv of such aliens in their entirety, including the wages, housing conditions, and duration of employment, and to give his written promise and stipulation to the following effect, viz : («) That with respect to housing and sanitation the laws and rules of the States in which the laborers are employed shall be oliser\ed and followed by the employers. (b) That the employer will keep the otlicer in charge at the port of entry ad\ised promptly of any change made in his plans as originally disclosed with respect to the place, duration, or character of the employment of the aliens by him. 700 EMERGENCY IMMIGRATION LEGISLATION. (c) That tho cmployor will notify siuh ofTicor immediately upon learning that any one of the aliens admitted to him proposes to leave his em])loy, and furnish sueh information as he can secure with respect to the place to which the alien is going and what he expects to do at such place. (d) That the employer ^\-ill promptly notify such office whenever any alien admitted to him has left his employ (without his previous knowledge of the alien's intent to do so) and will furnish all possiMe information to assist inimigration officers in ascer- taining whether or not the alien has ent-^red nonagricultural employment. (e) That the employer ^vill complv Avith the terms of p iragraph 8 hereof. (/) That the employer will pay the current rates of wages for similar labor in the community in which the admittrd aliens are to 1)e employed. T). The commissioner of immij;,Tation at Montreal, the commissioner of iinmigration at S< attlo, and th(> supervising inspector at El Paso (heing the officers in charge of border districts) shall, respectivelv, designate sueh officers as necessary at each sta- tion to give attention to the details of keeping in touch with aliens temporarily ad- mitted under the provisions of the circular, and it shall he the especial duty of the officers so designated to see that the temporarily admitted aliens do not remain per- manently in the United States and do not, while here, engage in other than farm work. Officers will he designate d to follow up aliens admitted hereunder, and employers to whom such aliens have been admitted Avill be called upon to assist such officers in enforcing these rules, including the arrest and deportation in proper cases. 7. Any doubt which mav arise as to the abilitx- of the United States Employment Serxice to meet the needs in a particular case shall be taken as a reason to ^vithhold granting permission to import agricultural lal jorers until such doul t can be cleared up. _ 8. As an additional means of insuring that admitted agricultural laborers vdW con- tinue in such pursiits and eventually return in accordance with the t«rms governing their admission for temporarv residence, the prospective employer and the alien him- self shall mutually agree to the following conditions, viz: (a) The emplover Avill withhold from the alien's wages 20 per cent during the first two months: b"i per cent during the second two months: and 10 per cent during the third two months that such alirn is ^vithin the United States. (h) Th? omplover -will deposit the monev so withheld to the credit of the alien, in the United States Postal Savings Bank, with the understanding that the sum will so remain on deposit until the alien is about to leave the United States and return to the country whence he came, whereupon the postal savings certificates shall be con- verted into a postal money order pavable to the alien, such money order to be trans- mitted by mail to the immigration officer at the port of exit, for redemption into money at the time of the alien's departure. (c) If the alien returns to the foreign country after haA'ing continuously followed agricultural pursuits for six months, of if, ha^•ing done so, his cervices in the same line are required for another like period of time, the money accimaulated during the first six-month period shall be paid him by redemption of the postal saA-ings certificates, with accumulated interest; the arrangements for withholding of percentages of his wag^s to T)e recommenced for the second six-month pericd. (d) During the period of sa\dngs accumulation no withdrawal of postal sa^•ings shall lie allowed, except at theport of exit from the United States in the manner prescribed in paragraph 8 (b), and if permission to remain is extended 1 eyond the initial six- month period, the su.ms accumulating shall not be redeemed to the alien v.-ithout the prior written consent of a United States imm.igration officer, either at or near the place of emplovment, or at the original port through which the alien entered the United States. 9. In the event that the employer is represented by an agent, or l)y an association through its agent, in securing agricultural laborers, the authority of the agent or association to act for such employer should l)e fully established, and in every such instance the employer should be required to execute and forward as soon as possible to the officer in charge at the port of entry the agreement specified in paragraph 5 of these instructions. 10. Where the States into which the laborers are taken have no laws with respect to housing and .sanitation, the conditions concerning same maintained by the employ- ers must be satisfactory to the Secretary of Labor: otherwise the alieu£ will be returned to the country whence they came. A. Caminetti, Commhsicncr General. Approved: W. B. \Vii..so\. Srcrctar)/. EMERGENCY IMMIGRATION LEGISLATION. 701 Department of Labor, Office of the Secretary, Washington, April 12, 1918. To the commissioners of immigration, inspectors in charge, Immigration Service, and others concerned: The following circular and instructions are promulgated to supersede and replace department circular letters of May 23 and 26, 1917, and detailed instructions of June 6, 1017, which had reference to the same subject, viz: The ninth proviso to section 3 of the immigration act of F'ebruary 5, 1917, reads: "Provided further. That the Commissioner General of Immigrati(jn, with the approval of the Secretary of Labor, shall issue rules amrprescribe conditions, including exaction of such bonds as may be necessary, to control and regulate the admission and n turn of otherwise.inadmissible aliens appl> ing for temporary admission . " While obviously this special exemption to general provisions of law should be construed strictly and should not be resorted to except with the object of meeting extraordinary situations or conditions, it can be and should be availed of whenever an emergent condition arises. With agricultural pursuits such a condition now exists in certain sections of the country, and is likely to arise in other sections during the continuance of the war. The department therefore issues the following instructions for the information and guidance of all concerned: Notwithstanding the provisions of section 3 of the immigration act excluding aliens who (a) being over 16 years of age and jihysically capable of reading "can not read the English language, or some other language or dialect" Cthe "illiteracy test") or" (b) "who have been induced, assisted, encouraged, or solicited to migrate to this country by offers or promises of employment * * * or in consequence of agree- ments, oral, written, or printed, express or implied, to perform labor in this country of any kind, skilled or unskilled " (the "contract-labor clause"), aliens who in all other respects are admis,silile under said law and who are shown to be coming to the United h tates for the purpose of accepting employ ment in agricultural pursuits shall be admitted upon the conditions hereinafter specified. As a condition precedent to entertaining any ap])lication for permission to import or bring in agiicultural laborers it shall be shown that the prospective employer has first applied to the United Ftates Employment Service at its oflice most convenient to the place of proposed employment, and written evidence must be produced fi-om the appropriate officer of the United States Employment Service to the effect that the supply of labor, either locally or at a reasonable distance from the site of the work, is in.sufiicient to meet the demand; or, if the local supply is partially sufficient, the application for pernis.don to import or bring in agricultural laborers shall only be acted upon to the extent of meeting the deficiency between the demand and the local supply. The alien applying for admission, or some one in his behalf, shall furnish two un- mounted photographs of the applicant, and a complete personal desciiption of such applicant shall be taken: these shall b(^ used in preparing, in duplicate, an identifica- tion card corresponding in general to the identification card prescribed by subdivision 9 of rule 12 of the immigration regulations for the use of aliens who habitually cross and recross the land boundaries. The blank form of card (Foim 687 ) may be adapted to this purpose, an appropriate notation being placed thereon to show that the holder is temporarily admitted to the United States under the terms of this circular to engage in agricultural labor. The original of the card shall be delivered to the admitted alien; the duplicate shall be properlv filed and indexed. Aliens admitted under the provisions hereof are allowed to enter temporarily upon the understanding that they will engage in none other than agiicultural lalwr: and an\' who fail to acce])t. or, after acceptance, abandon employment of that kind and engage in the performance of labor incident to other industiies shall be promptly arrested and deported to the country whence they came, under the regular immigra- tion warrant procedure. In cases aiising under this circular the aliens involved shall be admitted v\ithout the payment of head tax. The f(jreg(nng shall, until further orders, apply only to agricultural laborers from Mexico and Canada. In the event of extension being requested on behalf of aliens previouslv admitted under instructions of June 6, 1917, such extension shall nnlv be granted in" pursuance of and upon compliance with this cii-cular and the detailed instructions in and here- under. In executing the terms of this circular, see detailed instructions of even date here- with for the guidance of all concerned. W. B. Wilson, Secretary. 702 EMEKGENCi' IMMIGUATION LE(J1SLAT1()N. Circular of May 10, 191S, and Dkpahtmental Order of June 12, 1918, Co>f- CERNiNO Amended and Revised Rules for the Admission of Agricultural AND Other Lahouers. No. 51261/202. U. S. Department of Labor, Bureau of Immigration, Wasliington, May 10, 1918. Tn commissioner of immigration, inspectors in charge. Immigration Service, and others concerned: Bureau circular of April 12, 1918, ])oaring the above number, i.s here])y amended to read as follows: "In connection with circular letter of even date herewith, concernins; the temporary admission oi agricultural laliorers from Mexico and Canada, the following detailed instructions are promulgated fur the guidance of all concerned, viz: "(1) The tem])orary admissions under the circulars shall be for periods not exceeding six months; and if in any instance an extension of time is desired the necessity there- for niTist 1)6 clearly shown in the ap])licati'in filed by the party desiring to continue the services of the laborers for a further period, not exceeding six montlis, and the application shall be concurred in by the aliens involved. "(2) Emphasis is placed upon the fact that the circular proAddes for the temporary admission, under the circumstances stated and conditions presoribed, of 'aliens who in all other respects' would be 'admissible under said law' if tliey were entering for permanent puri^oses. The indulgence extends only to the illiteracy and contract- labor features of the law, and then only if the other conditions are satisfactorily estab- lished "(3) As admission under the circular is to be temporary only, and as the circulars prescribe that all aliens who violate the conditions exacted shall be immediately deported, of course no alien should be admitted from either Mexico or Canada who can not be returned thitlier immediately that necessity arises, or eventually at any rate. This indicates the necessity for caution in admitting alien residents of either country whose return may be barred by the laws of such country. "(4) As to be admissible under the circidar the aliens must be coming 'for the purpose of accepting employment in agricultural ])ursuits' (for which reason the 'contract-labor' as well as the 'illiteracy test' provisions are mentioned in the cir- cular), prearrangement for the employment of all admitted is contemplated. In other Words, those who desire to avail themselves of this opportunity, afforded to meet emergent agricultural conditions, must send for or come to the boundaries to get the aliens, and the aliens must not be temporarily admitted until arrangements for their employment in agricultiu-al work have been perfected. "(5) Anyone availing himself of the opportunity afforded by the circular to obtain farm laborers shall 1)e required, as a conditit)n precedent to the temporary admission of the aliens to whom he proposes to giye employment, to disclose to the immigration officer in charge at the port of entr>' his plans with respect to the employment of such aliens in their entirety, including the wages, h"ii^ing conditions, and duration of employment, and to give his written promise and stipulation to the following effect, viz : "(a) That with respect to housing and sanitation, the laws and rules of the State in which the laborers are emploved shall be observed and followed by the emplo^-ers. ''(b) That the emplover will keep the otiicer in charge at the ix^rt of entry advised prompt! v of anv change made in his ])lans as originally disclosed with respect to the place, duration, or character of the eni])lovment of the aliens by him. ■'((?) That the emplover will uotifv such ollicer immediately ui)on learning that any one of the aliens admitted to hiiu ])ro])oses to leave his eniplov, and furnish such in- formation as he can secui-e with respect to the ])lace to which the alien is going and what he ex})ects to do at such place. "(rf) That the employer will prom])tly notifv such oflicer whenever any alien admitted to him has left his em])lov (without his previous knowledge of the alien's intent to do so) and will furnish all ])o.ssible infornuition to assist immigration offi- cers in ascertaining whether or not the alien has entered noimgiicultural employ- ment, or whether or not the conditions of this circular and the d(']):irt!iient circular of A])ril 12, 1918, heroin mentioned, are being observed if the new em])loyuienl is agricultural. "(f) That the employer will comply with the terms of paragraph 8 hereof. "(/) That tho em])Ioyer will pay the current rates of wages for similar labor in the community in which the admitted aliens aie to be employed. "(gr) That if it becomes necessary to deport any alien admitted in pursuance of this circular and the de])artment circidar of April 12 because of a violation of or fail- EMERGENCY IMMIGRATION LEGISLATIOX. 703 lire to observe the conditions specified, the expense of the removal of the alien from the place apprehended to the boundary shall be borne by the importer. "(/«) That within a reasonable time after each pay day the employer shall notify the immigration officer in charge at the border port throvgh which the aliens in his employ were admitted that the money retained from their wages under the terms of paragraph (8-a) hereof has Ijeen deposited, giving the name of the alien and the number of the postal savings bank. "(8) The commissioner of immigration at Montreal, the commissioner of inimigra- ti.on at Seattle, and the supervising inspector at El Paso (being the officers in charge of border districts) shall respectfully designate su.ch officers as necessary at each station to give attention to the detail of keeping in touch with aliens temporarily admitted under the provisions of the circular, and it shall be the especial duty of the officers so designated to see that the temporarily admitted aliens do not remain per- manently in the I'nited .States and do not while here engage in other than farm work, or in farm work otherwise than in accordance with the terms hereof. Officers will be designated to follow up aliens admitted hereunder, and employers to whom such aliens have been admitted will be expected and called uj^on to assist such officers in enforcing these rules, including the arrest and deportation in proper cases. ' \7) Anv doubt which may arise as to the ability of the United States Employ- ment Service to meet the needs in a paiticular case shall be taken as a reason to with- hold granting permission to impoit agiicultural laborers until such doubt can be cleared up. "(8) As an additional means of insuiing that admitted agdcultural laborers vvill continue in such pursuits and eventually return in accordance with the terms gov- erning their admission for temporary residence, ilie prospective employer and the alien liimself shall mutually agree to the following conditions, viz: ■'(«) The employer will withhold from the alien's wages twenty-five (25) cents per day duiing the period for which the alien is admitted, and thereafter if the period of adiuis4on is extended, until the money so retained amounts to fifty (50) dollars, whereupon such retention of wages shall cease. "{h) The employer v\ill deposit the monev so withheld to the credit of the alien in the I'nited htites Postal Savings IJank, with the understanding that the sum will so remain on deposit until the alien is about to leave the United States and return to the country whence he came, whereupon the postal-savings certificates and in- terest accumulated thereon shall be converted into a postal-money order payable to the alien, such money order to be trans^mitted by mail to the immigration officer at the port of exit, for redemption into money at the time of the alien's departure. ■'(o) If in the case of any such alien his services in agricultural pursuits are required for another six-month period of time and an application ior extension of time is granted in accordance with paragraph (1) hereof, the amount accumulated during the first six-month period, or the entire amount of fifty (50) dollars if an extension occurs, shall remain on deposit in the postal-savings bank until he leaves the United States under the extension, and shall then be paid him, vvith the accumulated in- terest in the manner prescibed in paragraph (8b) hereof. '"(d) During the i^eriod of savings accumulation no withdrawal of po.?tal savings sliall be allowed, except that if the alien leaves the United States at any time such sum as may have accumulated shall be turned over to him in the manner prescribed in paragra])h (8b) hereof. "(9) In the event that the employer is represented by an agent or by an associa- tion through its agent in securing agricultural laborers, the authority of the agent or association to act for such employer should be fully established, and in every such instance the employer should be required to execute and forward as soon as possible to the officer in charge at the port of entry the agreement specified in paragraph (5) of the^e in-:tructions. "(10) Where the States into which the laborers are taken have no laws with re- spect to housing and sanitation, the conditions concerning same maintained by the employers must be satisfactory to the Secretary of Labor; otherwise the aliens will be returned to the country whence they come. " (Signed) A. Caminetti, Commissioner General. Approved: (Signed) \V. B. Wilson, Secretary. 704 EMERGENCY IMMIGRATION LEGISLATION. No. 54261/202. June 12, 1918. Departmental Order. Whereas the ninth proviso to seotion 3 of the immigration aft of February 5, 1917, provides "That the Commissioner General of Immigration, with the a{)proval of the Secretary of Labor, shall issue rules and prescril)e conditions, including exaction of such bonds as may be necessary, to control and regulate the admission and return of otherwise inadmissible aliens appljdng for temporary admission; "'and Whereas in agricultural pursuits, in the maintenance of way on railroads, and in certain lignite coal mining enterprises in which Mexican laborers have heretofore been customarily employed, an emergent condition, caused by the war, now exists in the United States, and, while obviously said spe'^ial exceptiim to general pro- visions of law shoidd be construed strictly and should not l)e resorted to except with the ol)ject of meeting extraordinary situations or conditif)ns, it can be and should be availed of whenever an emergent condition arises: Therefore, the following circular ])roviding for the temporary admission of cer- tain alien laborers from Mexico is hereby promulgated by the department to super- sede department circular of April 12, 1918, and regulations of the Bureau of Immi- gration issued thereunder on the same date, as amended May 10, 1918: SECTION I. Notwithstanding the pro\T.sions of section 3 of the immigration act excluding aliens who, being over 16 years of age and physically ca])able of reading, "can not read the English language, or some otlier language or dialect' (the "illiteracy test"'), or aliens "who have been induced, assisted, encouraged, or solicited to migrate to this coun- try by offers or promises of employment * * * or in consequence of agreements, oral, written, or printed, express or implied, to perform la1)or in this country of any kind, skilled or unskilled" (the "contract-labor clause"), and notwithstanding the provisions of section 2 of said act assessing a head tax on acrount of aliens entering permanently, aliens residing in Mexico who in all other than the respects above mentioned are admissible under the laws of the United States, and who are shown to be coming from Mexico to the United States for the purpose of accepting em- ployment, may be temporarily admitted without exacting head tax, upon the con- ditions hereinafter specified, for periods in no instance exceeding the duration of the war. SECTION II. (a) As to be admissible under the terms of this circular the alien must be coming "for the purpose of accepting employment" (for which reason the "contract labor" as well as the "illiteracy test" proAdsions are mentioned above), those who desire to avail themselves of this opportunity, afforded to meet emergent conditions in the United States, may come to or be represented at the boundary to confer with any alien, and such alien must not be temporarily admitted until arrangements for liis employment have been perfected. (b) A prospective employer may initiate an application for permission to import laborers under the provisions hereof by filing such application with either a United States immigration or a Ignited States employment official, setting forth the number of laborers desired, class of work, wages offered, and place of fTi'oposed employment, and stating that he will comply with all provisions of tliis circvdar witli respect to any alien admitted to him. Upon the approval in writing of any such application by a United States employment officer detailed to a IMexican border port in accordance, with Section X hereof or by the United States employment officer stationed in the vicinity of the place of proposed employment, the immigration officer in charge at such port shall proceed to admit the alien involved in accordance with the provisions hereof. SECTION III. Emphasis is placed upon the fact that tais circular pro^^des for the temporary admis- sion, under the circumstances stated and conditions ])rescri])ed. of an alien who in all other respects would be admissil)le under the laws of the United States if he were entering for permanent purposes. The indulgence extends only to the illiteracy, contract-labor, and head-tax features of the immigration act, and then only if the other conditions are satisfactorily established. SECTION IV. As admission is to be temporary only and as it is provided that an alien who \*iolates the conditions exacted shall be immediately deported, of course none should be admitted who can not l)e returned immediately that necessity arises. EMERGENCY IMMIGEATION LEGISLATION. 705 SECTION V. (a) Two unmounted photographs of each applicant for admission under the provi- sions hereof shall be furnished. A complete personal description of such applicant, and of accompanying members of his family over 16 years of age, if any, shall be taken. These shall be used in preparing, in duplicate, an identification card corresponding in general to that prescribed by subdivision 9 of rule 12 of the immigration regulations for the use of an alien who habitually crosses and recrosses the land boundaries. (b) The blank form of said card (Form 687) may be adapted to this purpose until a more suitable card is devised and printed, an appropriate notation being placed thereon to show that the holder is temporaiily admitted to the United States under the terms of this circular, to engage in labor of one of the tliree kinds herein specified. The original of the card shall be delivered to the admitted alien; the duplicate, on which a record will be kept of changes of employment, of employers, or of address, as hereinafter provided, shall be properly filed and indexed. When any alien admitted hereunder is deported or departs the card shall be taken up. (c) All mem])ers of families 16 years of age and over sha.l be given such cards; those under 16 shall be recorded, giving name, age, and description. (f/) On the departure or deportation of an alien accompanied by members of his family when admitted, such accompanying members must also depart or be deported, as the case may be. SECTION VI. (a) An alien admitted under the provisions hereof is allowed to enter temporarily upon the understanding that he lias secured employment in the United States, and that ho will work only in agricultural pursuits, maintenance of way on railroads, or lignite coal mining as herein described. Therefore, if alien fails, after admission, to accept such agreed employment, or, after acceptance and entry thereon, abandons same to accept employment of any other nature, or to accept any employment with an employer who has not complied with the conditions of this circular, or discontinues laboring and remains idle for as long as two weeks unless by reason of illness of him- self or of a member of his family or other disability, such alien shall be immediately arrested and deported under the regular warrant procedure. (6) An employer of such an alien other than the importing employer must on hiring any such alien comply with the terms of this circular in the same manner substantially and with the same effect as an importing employer. Not later than 10 days after the date of such employment he must notify the inspector in charge of the Immigiation Service at the place where alien entered of the fact of such employment, gi^'ing name, place of intended employment, and name and post-office address of himself and of his employee. (c) An employer who, haAing hired any such alien, desires to relinquish his serAdces, shall notify the inspector in charge of the Immigration SerA"ice at the place of entry of such intention: such notice shall specify the name of the alien, probable date of cessa- tion of work, and post-office address of employer and of such alien. (d) Au alien admitted under the provisions of this circular, or whose admission under the circulars superseded hereby is renewed under this circular, must follow none but laboring pursuits of the nature prescribed herein. "\Mien any such lien is without employment, unless he immediately returns to Mexico through the port of entry, he shall apply to the inspector in charge of the Immigiation Ser\'ice at the place where he was admitted or to the nearest United States immigration or United States employ- ment officer, ad^ising him that he no longer has work, and asking for employment and for the priAilege of remaining in the United States for an additional period. There- upon, if the application is to the immigi-ation officer, the said officer shall communicate with the appropriate director of the United States Employment Ser^ice, and ascertain whether or not work can be secured for such alien: if to an employment officer, such officer shall forward the application to the nearest immigiation officer for decision. If work is secured, in either manner indicated, an extension of time may be granted the alien on condition that he accept the reemployment. If the alien fails or refuses to accept reemployment under these conditions, deportation shall immediately be effected. (e) Failure on the part of the employer or alien to give any notice required by this section shall subject such alien to deportation. SECTION VII. A prospective employer shall be required, as a condition precedent to the temporary admission hereunder of any alien, fully to disclose to the immigration officer in charge at the port of entry his plans with respect to the employment of such alien, including 70() EMEllGE2s'CY IMMIGRATION LEGISLATION. the wa.tjoa, how often paid ('giving dates'), hoiipinp: conditions, and duration of employ- ment, also to pive his Avritten promise and stipuhition to the following effect, viz: (a) That the employer will abide by and comply ^nth all the terms of this circular. (b) That the employer will ]iay the current rate of wages for similar lal)or in the community in which the admitted alien is to he emi)loyed. (r) That with respect to housing and sanitation the laws and rules of the !^tate in whicli the laborer is to be employed will be observed by the employer. If employed in a State that has no law on said subject, such conditions must be satisfactory to the Secretary of Labor. {(i) That the employer will keep the ofhcer in charge at the port of entry adA-ised promptly of any change made in his plans as originally disclosed with respect to the place, duration, or character of the employment of the alien by him, and wages and times of payment thereof. (f ) That the employer will notify such officer immediately upon learning tha.t any alien admitted to liini purposes to leave liis employ, and furnish such information as he can secure with respect to the place to which the alien is going and the name of the party for whom such alien is to work. (J) That the employer will promptly notify such ofBcer whenever any alien admitted to him has loft his employ (without his pre^■ious knowledge of the alien's intent to do so), and will furnish all possible information to assist immigration officers in ascer- taining whether or not the alien has entered other employment, or whether or not the conditions of this circular are being observed. (g) That 15 days before the expiration of the period for which the alien is admitted to him the employer will advise the inspector in charge at the port of entrv whether or not it is his and ihc alien's desire that the latter shall remain mth the former for an additional period of emplojident. (h) That if it becomes necessary to deport any alien (or any alien family) admitted in pursuance of this circular because of a violation of. or failure to observe, the condi- tions specified herein the expenses of removal of the alien from the place where appre- hended to the boundary shall be borne by the importer; provided that \yh"n the cause of dep3rtation arises while alien is employed by a person other than the importer vriih- out the consent of the latter, then such" expense shall be borne hy s;ich subseepient employer. (i) that the employer shall retain from the admitted alien's wages the sums named in Section VIII hereof and transmit same for deposit in the postal saA'ings bank in the manner therein specified. SECTION VIII. As additional means of insuring that an alien admitted under the provisions of this circular will eventually leave the United States, the following conditions shall be observed: (n) Each such alien shall at the time of admission (-with the assistance of United States immigration or United States employment oflficers) apply for permission to open an account in the postal sa-dngs bank at the port of entry, on which deposits to each alien's credit will later be made in the manner hereinafter proA-ided. (h) The employer shall withhold from the alien's wages 25 cents for each day's service such alien renders while he continues in the employ of such employer, until the money so withheld aggregates $100. If the alien cltanges employers in accordance with the provisions of this circular before the money so ri'tuined aggregates >; 100. those employing him sul)sequently to the original importer shall continue withholding 25 cents per day from his wagers until the amount withhcdd, added to that withheld by previous employer or employers, aggregates §100. The same arrangement shall apply in cases in which the original admission was for a period not sufficient to produce the $100 and in which a renewal of the period of admission is granted by the immigration officers. (c) On each pay day the employer shall transmit to the inspector in charge of the Immigration Service at the place'of the alien's entry the money withheld from the alien's wairse remit- tances. Said officer shall deposit the money order in the local ])ostal savings bank to the credit of the alien from whose wages the sum represented has been withheld, retaining in his possession the receipt for such deposit. The funds so depositi-d will remain in the postal sa\ings bank until the alien leaves the United States, where- upon said officer shall arrange for the delivery to the alien of the money so saved and the interest, if any. accrued thereon. If the alien leaves the rnited States before he has worked a sufficient period for the amounts retained to aggregate $100. the total amount so retained, with accrued interest, if any. shall be returned to him in like manner. EMERGENCY IMMIGRATION LEGISLATION. 707 {(I) After the sums withheld, transmitted, and deposited in accordance with the preceding two paragraphs have aggregated $100, the sum of $1 per month shall be mthheld from the laborer's wages, transmitted to the inspector in charge at the port of entry, and deposited in similar manner; the withholding of this amoimt monthly to contimie as long as the alien remains in the United States, and the funds so accumu- lated to be withdrawn from the postal sa^-ings bank and retiirned to alien at the time of his departure, under the supervision of the inspector in charge at port of entry. This pro^dsion shall be applied to both original and subsequent employers. (e) If the emergent conditions mentioned herein still exist at the end of any period of admission under the terms of this circular, then, upon the joint application of any such alien and his emplovor showing the necessity for alien's serAice for a further term , the immigration office at the port of admission is authorized to extend the temporary admission of such alien for a period not exceeding the duration of the war. If the sums withheld have not aggregated §100, the withholding thereof shall continue imtil such amount has accumulated to alien's credit. The withholding of $1 per month as provided in paragraph (c) above will thereafter be commenced or continued as circum- tances reqiiire. (f) If such emergent conditions still exist at the end of any such period of admission under the circulars superseded hereby, then, upon the joint aj)]ilication of any such alien and his employer showing the necessity for alien's service for a further term, the immigration officer at the port of admission is authorized to extend the temporary' admission of such alien for a ])eriod not exceeding the duration of the war; provided the alien {vAXh the assistance of his emplpyer, or, if he is simultaneously changing his place of employment, of the nearest I'jiited States immigration or I'nited States em- plov'ment officer) shall apply to the local postmaster for jjermission to open an account in the postal saWngs bank at the border port tJirough which he entered the United States, and both the alien and liis employer shall agi'ee to comply then and thereafter with all applicable provisions of this circular, it being intended that such cases shall, to the fullest extent ])racticable, be placed ui^on the same basis as those arising under this circular. Failure or refusal to observe this requirement will result in alien's deporta- tion. ('7) All information reaching the border ports of entry, as the result of the making of deposits or otherwise, with respect to changes in the location or employment of any laborer admitted hereunder shall be noted on the duplicate of such laborer's identit.- cation card. SECTION IX. The supervising inspector at Kl Paso shall designate such officers as may be necessani^ at each station to give attention to tlie details of kee]nng in touch v^'ith aliens teraj:o- rarily admitted under the pro\isions of this circxdar or of those superseded hereby: and it shall be the especial duty of the ofhcers so designated to see that the temporarily admitted aliens do not remain ]iermanently in the Ignited States and do not violate the terms of this circular by enga,2ring in other than specified laboring jiursuits, or other- wise. Officers will be designated to follow up aliens admitted hereunder, and employ- ers to whom such aliens have been admitted or for whom they may be laborintr, will be expected and called ujion to assist such officers in enforcing this circular, including arrest and deportation of aliens in proper cases. Officers of the United States Employ- ment SerWce shall cooperate with officers of the Immigration Service in the enforce- ment of this section, also in supplying information to the inspector in charge at port of entry regarding changes in location or emj^loyment of aliens admitted hereunder. SECTION X. At each of the ])rincipa^ ^.fexican border ports of entry officers of the I'nited States Em})loyment Service shall be detailed to assist the immigration officers in the adminis- tration of this circular. In the event that the employer is represented by an agent, or by an association through its agent, or by an officer detailed as hereinafter ])rovicled. in secur-ng laborers, the authorit}- of the agent or association to act for such em])loyer 'should be fully established in writing, and in every instance the employer shall be required to execute and forward as soon as jiossible to the officer in charge at the i^ort of entry the agreement s]>ecified in Section VII of this circular. It shall be competent for the officers of the Immigration Service to act with any officer detailed b>- the National Council of Defense, the United States Food Administration, the United States Employment Ser\ice, or any State organization of either, or any other organi- zation, public or private, authoritatively representing the industries herein .specifie'l. 708 EMERGENCY IMMIGRATION LEGISLATION. SECTIOM XI. The Coinniissionor (lo.neral of Ininiitjmtion is hereby direeled to enforce and ad- minister the ])rovisions of tliis circular, which shall become effective on and after June 20, i;)18. W. B. Wilson, Secretary of Labor. Departmental Order of July 10, 1918, Further Amending Previous Orders Relative to Mexican Farm and Other Laborers. Department of Labor, Office of the Secretary, Washington, July 10, 19 IS. No. 54261/202. departmental order. The provisions of departmental order of June 12, 1918, are hereby extended to include (in addition to laborers coming from Mexico to perform work in agi'icultural pursuits, in the maintenance of w^ay on railroads, and in certain lignite coal mining enterpi'ises) laborers coming from Mexico to engage in mining of any and all kinds or to be employed in the performance of common labor in connection with construction work being done by or for the Government iA the erection of buildings in the State of Texas, and also in the jurisdiction of Immigration District Xo. 23, adjacent to the Mexican border, within the States of New Mexico, Arizona, and California. The Commissioner General of Immigration is hereby directed to enforce and ad- minister the provisions of this circular, which shall become effective on and after July 25, 1918. W. B. Wilson, Secretary of Labor. The proposed departmental order amending the provisions of the departmental order of June 12, 1918, is hereby approved. In addition we will discontinue the practice of deducting a portion of the wages of Mexican laborers entering the L^nited States under this order. The rule will be changed accordingly. W. B. Wilson, Secretary of Labor. Circular of October 7, 1918, Concerning Mexican Laborers. Department op Labor, Bureau of -Immigration, Washington, October 7, 1918. Commissioners of immigration and inspectors in charge: A memorandum recently submitted to the Secretary jointly by the Director General of the United States Employment Service and the Commissioner General of Immi- gration, contemplating the issuance of instructions to the following effect, has been approved by the Secretary, and immigration officials will be guided accordinglj': 1. The functions, and method of exercising same, of the Immigration Service and the Employment Service, respectively, in the matter of enforcing the departmental orders regarding temporary admission of Mexican laborers will be understood to be: (a) Immigration officers will attend to the admission of alien laborers, the procure- ment and recording of the necessary data regarding them, and eventually will see to the removal of the aliens from the country. (6) Em])loyment officers will attend to the distribution of admitted laborers, ascer- taining first, of course, if and where such laborers are needed, and in every instance ■whether the laborers are of the kind suited properly to I ill the positions involved and that the wages offered are those prevailing in the vicinity; will see that laborers prop- erly qualified are sent where a sufficient supply is not available and that none are sent to places w'here there is already a sufficiency of similar labor unemployed; will assist, in order to expedite the handling of business, in the procurement from pros- pective employers of the agreements required under departmental orders; and will cooperate with immigration officials in keeping track of laborers after they are ad- mitted and in establishing and enforcing a follow-up system, to insure, as far as possible, the eventual return to Mexico of those admitted. EMERGENCY IMMIGEATIOIT LEGISLATIOX. 709 2. Mexican laborers entering the United States in pursuance of the departmental orders will be regarded as falling into two classes, to wit: (a) Those destined to an employer who is responsible for their importation and entitled under the departmental orders to import and receive them: and (b) Those who arrive at the ports and apply for admission without having the em- plovment actually arranged or in sight. 3". Class (a) mentioned in the preceding paragraph will be admitted im.mediately after passing inspection under the g^eral provisions of the law, and allowed to pro- ceed to their employers, the Empio\-ment Service obtaining and keeping a proper record with regard to their names, etc., and the Immigration Service issuing cards of identitv to them and retaining duplicates thereof as the immigration record in the premises. 4. Class (b) mentioned in paragraph 2 hereof, immediately upon being admitted, recorded, and furnished with identity cards, will be turned over to the officers of the Employment Service so that they can be placed in appropriate emplojTnent to the best ad>antage possible. 5. With respect to both classes (a) and (b), the aliens will be regarded, after passing through the immigration stations, as within the control and direction of the Employ- ment Service, which will furnish the Immi.gration Service with a report showing where the alien laborers are placed, and will thereafter furnish similar reports on every occasion when any of the laborers are moved from one locality to another. To aid in doing this, the laborers will, so far as practicable, be placed and ke])t in groups. 6. Officers and employees of the Employment Ser^-ice will, upon every occasion when they find a Mexican laborer admitted in pursuance of the departmental orders who refuses to engage regularly and continuously in one of the orcupations permitted by the said orders, report the case to the nearest immigi'ation officer so that deporta- tion proceedings may be instituted. However, deportation will not be effected in such cases, or in any cases of Mexican laborers in wlrch the aliens are not, tlu-ough criminality, mentalor physical disability, or otherwise, seriously objectionable from an immigi-ation point of vieAV, if the immigi-ation officers learning of such cases can, through the nearest Employment Service officials, have the liiborers placed in suit- able emplo\Tnent in consonance with the spirit and intent of the department orders. 7. The privilege of importing Mexican laborers under the departmental orders will not be extended to agents or agencies that operate on a fee basis, nor to employers who make use of the services of agents or agencies operating on such a basis; and the immigi-ation and employment officials will cooperate to prevent this. A. Camin'Etti, Comnmsioner General. Departmental Order of Jaxuary 2, 1919, Concerning Laborers from Mexico FOR Sugar-Beet Production. In the matter of modification of the oi^er of this department made on December 15, 1918, vacating departmental orders of June 12 and July 10, 1918, relating to the admission of laborers from Mexico and elsewhere, Senators Phelan, Smoot, Shafroth, Kendrick, King, and Borah, and Congi-essmen Raker, Kalin, Hayes, and Curry have requested consideration of sue h a modification in behalf of the sugar-beet growers, and Senator Johnson has referred to the department telegiams from other parties interested in the, subject. Communications and telegrams from other sources have also been filed, as shown by the record; the United States Sugar Manufacturers' Association, through Truman G. Palmer, executive secretary, and Henry T. Oxnard, member committee on national affairs, has also filed^an appeal bearing on the subject. In view of the representations made in behalf of the sugar-beet gi-owers, as above stated, that the enforcement of said order of December 15, 1918, would seriously im- pair the supply of sugar depended upon for the coming season, and. moreover, in view of the statement of Senator. Phelan, con-oborated by the appeal of the Sugar Manufacturers' Association, that extensive additions in acreage have been made for the coming crop, at the urgent request of the Food Administration, the benefit of which increased production would be lost, as well as considerable individual losses to the gi'owers entailed, it is ordered that the instruction of Deceml^er 15 last, va- cating departmental orders of June 12 and July 10, 1918, be, and it is hereby modified so as to permit laborers from Mexico to be admitted .solely for the purpose of working in sugar-beet production, under the same terms and conditions pro^dded in the last named orders, imtil and including the 30th day of June, 1919. The Commissioner General of Immigration will take necessary steps to give effect to this modifying order. "W. B. Wilson, Secretary. 710 EMERGENCY IMMIGRATION LEGISLATION. Note. — The ahovt- orck'i- was, on January 215, li)19, extcudcd l)y virtue of telegraphic iustrurtions to the sui)erviKinj^ inspeetor iaeharfj;e of the Imniijiration Service on the Mexican border, ''to include laborers for farm work in Rio (irande \'alley, Texas, effective until June 'M), 19!!)"; and under dat(^ of July 9, J!)li», by teletcraphic instruc- tions to the same oflicial, the orders so continued in force were further modified as follows; '•The special arrangement with regard to admission of Mexican laborers shall con- tinue in forc;e until the ratification of the treaty of peace, but not later than January 1, l!t20, and Mexit.-an laborers will be admitted for the performance of all kinds of agricultural work, including stock raising; the territory affected being cot ton -growing sections on 1\-." United States Department of Labor, Bureau ok Immigration, Washimjton, February 9, 1920. Hon. Albert Johnson, Chairman House Committee on Immigration and Naturalization, House oj Representatives, Washington, D. C. Dear Mr. Johnson: Agreeable to your request of this morning, I send you the figures (immigrant and emigrant) for the first six months of the present fiscal year. Very sincerely, yours, A. Caminetti, Commissioner General. Immigrant alieas admitted to and emigrant aliens departed from the United States since July 1, 1919, by months. Month. Immi- grant. July 18, 152 August 20, 597 September 26, 584 October 32, 418 Emi- grant. 25, 757 28, 934 27, 770 25, 447 Month. Immi- grant. November ' 27, 219 December i j 24, 438 Total 149,^ Emi- grant. 26,977 26,977 161,862 ' Number of immigrants for December and emigrants for both November and December are not yet comi)Iete. Thefigmes above given for these two months are estimated as the average of the first four months. Excerpts from a statement made before the House Committee on Immigration and Naturalization by Mr. Fred Roberts, of Corpus Christi, Tex., referred to bj^ Mr. Patten in his testimony, are here- with printed as follows: "I am going to give you just what happens when the cotton gets up about that high [indicating]. Then we have to get the cotton chopped. If that bill stands as it is, there is just one of two things that is going to happen. We will either swim the river and ^•iolate the law and bring in this Mexican labor "wet-backs" as we call them or else we are not going to get our cotton chopped * * *. "The Chairman. You say you go down to get these Mexicans? "Mr. Roberts. Yes, sir; and I get them. "The Chairman. Do you pay their expenses to your place? "Mr. Roberts. Yes, sir. And it costs us an average of about $15 i>er Mexican. "The Chairman. When you say Mexican, you mean men with families? "Mr. Roberts. Anyone who can pick cotton. , "The Chaih.man. ?i5 per person? "Mr. Roberts. It will run that. Sometimes we can get them cheaper. Last year I made an arrangement with a man that he would get them for $3. He made that proposition and that he would take them, haul them uj) the railroad to a station 18 miles away for *!, making it cost me $4. When we get them there, then we have to get them on^the railroad. "The Chair.mak. Eighteen.miles which way? "Mr. Roberts. They cross at night and bring them up to the next station. We do not care how they get them there, as long as they get them there. He put 57 there at $4 a head. Then he was paid. I paid the Texas-Mexiam Railroail 2 cents EMERGENCY IMMIGRATION LEGISLATION. 711 a mile each, $2.55, to haul the Mexicans. When we got the Mexicans to the farm the first thing I had to do was to go to the commissary — thkt is on my farm, but it is operated for my convenience. We had to let these Mexicans have from $2 to $3.50 per head worth of goods out of the commissary — provisions, beans, bacon, pots and pans, and things that were necessary for them to go to the camp. These are houses — shacks. "The Chairman. That is your camp? "Mr. Roberts. My shacks; yes, sir. "By the time we get them to work, the average Mexican, from 17 years old up, has cost anywhere from .? 10 to $15 per head, which we have put up in advance. We intend to get that back. Now, unless you wateh them very close, 80 per cent of those Mexicans that you brought across will be gone next morning. * * * "Mr. Wilson. One statement you made a while ago was very interesting on account of certain information I had about the Mexican labor. I have been told if you get Mexican labor, contract to bring to your plantation a hundred Mexicans to work and you paid their expenses over, Avhen they got there they were very scrupulous about leaving under their contract but stay there and discharge the obligation. "Mr. Roberts. That does not apply in our own country. "Mr. Wilson. I note you state if they had opportunity to go that over 80 per cent of them would be gone next morning. "Mr. Roberts. I have seen 100 per cent of them gone the next morning. "Mr. Wilson. How do you protect vourself against that? "ilr. Roberts. I am not under oath. "The Chairman. No; but you are doing well for a man not under oath. "Mr. Wilson. But when vou do that, whenever you bring them over and pay them, you do take big chances of losing them? "Mr. Roberts. Of course, we take a chance. I protect myself the best I can. "Mr. Raker. Tell us how you protect yourself. "Mr. Roberts. I will tell what I have heard in the ancient days. I have seen them unload parties at the tents, and some fellows would borrow the Mexican's shoes and pants until morning. Mr. Chairman, it is just a question of self-defense. Go to the border and bring 50 Mexicans, and it %vill cost you $600. That is not unusual. You have $600 invested. You have got 200 bales of cotton worth $200 a bale, and you owe the banker. The bankers are the only people we can owe down there; the mer- chants do not do a credit business. You owe the banker. You want to buy a good automobile. You need a lot of things. That is how it works. In our country cotton is made A\dthin a period of four or five days; whenever it matures, it opens in the same time. You have got to hold 50 or 75 Mexicans, costing you $600, to hold them over from week to week. What would you do? Just exactly what we do. You would have somebody there who v/ould not sleep. You vrould not let the Mexicans leave. * * * "The Chairman. Does that indicate that the Mexican Government is opposing this temporary transfer of Mexicans into the United States? "Mr. Roberts. No, sir. " The Chairman. It is a local proposition? "Mr. Roberts. It is just a graft. "Mr. Davis. Ask him about the concessionaires on the other side and explain the whole thing that •waA'. "Mr. Roberts. ]Mr. ( hairman, in Mexico, like in cities when they have a picnic, they sell a man a concession to go and sell labor, we ^^'ill say, to deal in labor. All right. Pennsylvania Railroad Co. or the Union Pacific, for instance. I go to this fellow that has got this concession and I give him what he asks. With the consent of the Mexican (jovernment, we \^dl\ go away down in that country and load up enough of them. Suppo.'^ing I get 500 Mexicans in the train at one time and ship them up here "Mr. Welty. I understand these concessions are granted by the Mexican Government? "Mr. Roberts. To individuals to make money out of the proposition. They are his cattle. He does not call them human beings. All right. I go across there and have a contract to meet the Mexicans, and he might get the officials over there at his dictation to arrest me and put me into jail, and I can not do that thing because I have not the concession for it. " The Chairman. You are interfering with his concession? "Mr. Roberts. Interfering %vith his business. "The Chairman. Now, as to the proposed legislation. If something like the sub- stitute is considered you are open for that very thing? "Mr. Roberts. Yes, sir. 712 KMErvGENCY IMMIGRATION LEGISLATION. •'Tho riiAiRMAN. Thoy want railrna'l laliorers in Oklahoma, Kansas, and Missouri, and that will incioase th?> l)nn,ii;in<^ of those ocross thp lino. •'Mr. RoBKRTs. There are plenty of lal)orers there for all of us; they are not letting them come across. •'The Chaiumax. You think they should come freely? "Mr. Roberts. Yes, sir; I do. "The Chairman. What is your information generally in regard to immigration? "Mr. RoRERTS. I would admit Mexicans and Canadians, excluding the others, if I were making the law." ' FRED ff. LYSONS. A statement by Fred H. Lysons, Esq., an attorney of Seattle, Wash., setting forth views as to the effect of the Johnson bill upon trade with China, is herewith printed in full, together with a letter from Senator Wesley L. Jones, of Washington, transmitting the same: United States Senate, CoMMI'lTEE ON COMMERCE, December 24, 1920. Hon. L. B. Colt, United States Senate. My Dear Senator: I inclose you copy of a letter which I have just received from a gentleman in Seattle with reference to the Johnson inimigration \,\\\. and especially as it affects Chinese. It strikes me tliere is a great deal of force in the position he takes and much merit in the suggestion he makes. I have kn(