C. t:

WLWi

f W W W f*" 1^ f"*

W^ '^

^mtr

.^Wf^

ii'*..j^i^. *

B^ m ^ i-

-■ ^^ «■

i I:

f- f f^ t^

M llliililMiiniii i i

FRAGILE

LiniHffia:; DO NOT

11 PHOTOCOPY

\^~

LE_

U. S. DEPARTMENT OF LABOR BUREAU OF IMMIGRATION

ANNUAL REPORT OF THE

COMMISSIONER GENERAL OF IMMIGRATION

TO THE SECRETARY OF LABOR

FISCAL YEAR ENDED JUNE 30

1914

WASHINGTON

GOVERNMENT PRINTING OFHCE

I9J5

U. S. DEPARTMENT OF LABOR

BUREAU OF IMMIGRATION

ANNUAL REPORT OF THE

COMMISSIONER GENERAL OF IMMIGRATION

TO THE SECRETARY OF LABOR

^

FISCAL YEAR ENDED JUNE 30

1914

WASHINGTON

GOVERNMENT PRINTING OFFICE

1915

A

REPORT

COMMISSIONER GENERAL OF IMMIGRATION.

U. S. Department of Labor,

Bureau of Immigration,

Washington, July 1, 1914. Sir : There is herewith submitted the annual report of the Bureau of Immigration for the fiscal year ending June 30, 1914. The detailed tables and data, including the reports of commissioners and inspectors in charge of the several immigration districts, are annexed hereto. In addition wiU be found the report of ex-Commissioner General T. V. Powderly, now Chief of the Division of Information; that of Mrs. Kate Waller Barrett, special agent of the bureau, coverhig special investigations in Europe; and a report filed by Mr. W. W. Husband, special immigrant inspector, regarding immigration from eastern Europe, each document containing important information and valuable suggestions on the subjects treated. The reports of the commissioners and inspectors in charge, as well as those made by Mr. Powdeily, Mrs. Barrett, and Mr. Husband, are inserted for general information.

ADMISSIONS AND REJECTIONS.

Immigration, judged from the results of the year, has apparently reached the million mark permanently, and unless some affirmative action is taken by the Federal Government to restrict it, or steps are taken by European and other nations to reduce the steady stream of persons leaving the various countries of the Old World, we need hardly expect that the number annually entering the United States wiU hereafter fall far below 1,000,000. During the last fiscal year 1,218,480 souls have immigrated to the United States, 20,588 more than were shown for the previous year and only 66,869 less than the total shown for 1907, the banner year in immigi^ation. Comparison of the record of emigrating aliens with that of immigrating aliens shows that 633,805 left the United States, so that the net increase in population by the immigration was 769,276. It was 815,303 in 1913 and 401,863 in 1912.

the immigrant fund.

I discussed the "Immigrant fund" in some detail in my report for 1913 (pp. 30-44), and need not dwell upon the matter here further than to reiterate what was then said and again to suggest that the money collected from the ahens as head tax should be used (1) to protect the people of the United States from the evils of unregulated or insufficiently regulated immigration; (2) to provide protection and

3

4 REPORT OF THE COMMISSIONER GENERAL OF IMMIGRATION.

comfort for alien immigrants; and (3) to relieve the various States of the burden of maintaining aliens in their public institutions and the communities of the menace of having in their midst the criminal and immoral classes. The immigration act of 1907, like all previous immigration laws, contemplated that the funds collected as head tax on aliens should be kept intact and used in the enforcement of the law. In Ime with this policy — adherence to which is recommended — moneys collected from immigrants have by direction of the legislative branch of the Federal Government been employed in enforcing Chi- nese and other exclusion laws and agreements. Formerly, however, Congress made annual appropriations up to $500,000 for the enforce- ment of the Chinese-exclusion laws, but it later concluded that those expenses should be drawn from the immigrant fund, and still later, when that fund was abolished, the annual appropriation for the gen- eral support of the Immigration Service was drawn upon and still continues to meet this expense. The consequence is that the Chinese and other exclusion laws and agreements, as well as the general immi- gration act, are not being enforced to the extent they should be in order to accomplish the objects in view when the same were enacted and agreed upon by the law-making power.

There may be no objection, of course, to the payment of the ex- penses of enforcing the exclusion laws out of the immigration appro- priation, but the one appropriation should be made large enough to meet the purposes in view from the standpoint of aU the laws govern- ing this bureau in order to fully meet all conditions that may arise. Sufficient flexibility should exist in such appropriation laws to aUow the bureau to meet emergencies constantly arising and to use its funds to the best and most economical ends.

As to the effectiveness of the law in selecting immigrants, it should be observed that the bureau was able, even with the equipment at hand, to exclude from the country 33,041 ahens, wliich was 2.3 per cent of the number (1,436,122) applying for admission; in other words, the debarments are 6G§ per cent greater for 1914 than for 1913. These w^ere excluded mainly on the following grounds: Likely to become a public charge, 15,745; afflicted with physical or mental defects affectmg abihty to earn a living, 6,537; afnicted with tuberculosis or with contagious diseases, 3,257; afflicted with serious mental defects, 1,274; and contract laborers, 2,793.

To do the work represented by the results above briefly indicated and shown in more detail hereinafter, and in addition enforce the Chinese and other exclusion laws, which without doubt are among the most difficult statutes to enforce with even a reasonable degree of effectiveness, the bureau was allowed appropriations aggregating $2,645,000. It has been possible to accomplish so much as has been done oifly because the employees of the bureau at Washington and throughout the country have been working constantly and earnestly for the thorough administration of the bureau's affairs. The strain to which a large number of our officers have been subjected, with hard work and long hours, has been so great at timer, as to be almost unbearable, service extending with many officers quite often on an average of 12 to 14 hours and on some occasions even more per day, and it is only a question of a short time, if present conditions continue, when the service wtlU suft'er the great loss that must result from the breaking down of its force. The Government of the United States

REPOET OF THE COMMISSIONER GENERAL OF IMMIGRATION. 5

should set the example in the treatment of its employees, both with respect to wages and hours of labor. The force should be reorgan- ized and graded, and no employee should be requii^ed to work more than six days in a week.

But all the efforts that are being made to secure a reasonable enforcement of the law are not producing the desired results. This must be obvious to all who will study the statistics and observe the ahens now entering at our ports. Even the existing law, inadequate and cumbersome as it is in many respects, could and should be made to exclude many more than 2.3 per cent of such aliens as are now com- ing to our shores. As a matter of fact, the country is not obtaining the results that should follow from a reasonable and just administra- tion of our laws; not because strenuous efforts to that end are not being made, but because the funds and men available are wholly insufficient to meet the situation. If the money for the enforce- ment of these laws was being drawn from the general fund of the Treasury and the taxpayers of the country burdened thereby so that the plea of economy might with some show of reason be raised in this connection, there might then be some excuse for limiting appropria- tions for this bureau to the extent lately practiced. But every penny spent for the support of the Immigration Service comes out of the pockets of the immigrants, and there is now accumulated in the Treasury (or ought to be if it has not been used for purposes other than that for which collected) about $10,700,000, some of which should be used to bring about a proper enforcement of the law in the future.

DIVERSION OF FUNDS TO RELIEVE INDUSTRIAL CENTERS.

If any diversion of the fund constituted of the head tax collected is permitted, it might be in the direction of protection to the immigrants after landing and in the efl'ort to relieve industrial centers by secur- ing emplojTiient for the surplus labor found therein, whether native or foreign, either on farms or in other rural occupations or in set- thng people on lands. The disposition of any part of the fund per- mitted by law for this j3urpose with authority to loan or advance or use the same, under such restrictions as Congress may provide, could be confided to the board proposed in connection with farm loans, reference to which is made hereinafter. As suggested in my last report, this use of the funds could be justified on the ground that congested conditions in our cities and in industrial centers are the result of the concentration therein of our own people from the in- terior sections of our country and of numerous aliens who come from foreign lands. Thus any relief secured would be for the mutual benefit of all, and as the movement progressed the result would be greater care in avoiding renewal of congested conditions and greater efforts to provide immediate measures to remove the causes therefor, whether consisting of domestic conditions or of the influx of laborers from abroad.

DEFECTIVE ALIENS.

The defects for which aliens are excluded under the law fall into three classes — the physical, mcluding loathsome and dangerous con- tagious diseases and all ailments and deformities that may affect

6 REPORT OF THE COMMISSIONER GENERAL OF IMMIGRATION.

earning capacity; the mental, including insanity, idiocy, imbecility, feeble-mindedness, epilepsy, and all mental defects that may have like effect; and the moral, including sexual immorality, crimi- nality, and anarchism. Whatever views may be entertained regard- ing necessity for a more restrictive law, hardly anyone would con- tend that the law should be made any less strict than it is con- cerning the exclusion of defective aliens or should be given any less rigid application to concrete cases; practically all are agreed on the desirability of the strict exclusion of defective ahens. Of special and general interest, therefore, are the figures showing what has been accomplished toward the keeping out or putting out of the country of aliens who fall below the standards set in the law.

During the past year 14,582 such aliens have been returned to the country of origin, 12,494 of whom were debarred from entering and 2,088 of whom were arrested and expelled from the country. Those debarred were divided into 3,257 with grave physical defects, 1,274 with grave mental defects, 6,537 with physical or mental defects not so serious but affecting abihty to earn a living, and 1,426 morally defective. Those arrested and deported were divided into 355 physically, 871 mentally, and 862 moraUy defective. (See Tables XVII and XVIII, pp . 1 04 and 110.) These results should be compared with the figures for the previous year, during which 10,629 aliens phys- icaUy, mentally, or morall}?^ below the legal standard were returned to the country of origin, 8,999 of whom were excluded at the ports and 1,630 of whom were arrested and expelled. The 12,494 rejected in the past year constituted about 38 per cent of the total number debarred, while the 8,999 rejected in 1913 constituted 45 per cent of the total number debarred in that year. The 2,088 arrested and deported during the past year on grounds of defectiveness constituted 45 per cent of the total expulsions, while the 1,630 arrested and deported on such grounds in 1913 were about 47 per cent of the total expulsions for that year.

It is important to exclude or expel the physicaUy defective, still more important that those mentally below the standard shall be kept out, and of paramount importance that the morally degenerate shall not be permitted to lower American standards of life. It is well, therefore, to give some special consideration to the showing made during the year with regard to the mental and moral defectives.

During the past fiscal year 1,274 aliens suffering from serious mental defects were debarred at the ports. Of these, 14 were idiots, 172 insane, 68 imbeciles, 25 epileptics, and 995 feeble-minded. In the preceding year 753 aliens with serious mental defects were debarred — 18 idiots, 175 insane, 54 imbeciles, 23 epileptics, and 483 feeble-minded. It will be observed that there was a very marked increase in the number of feeble-minded excluded. And there were expelled from the country during the year 871 aliens suffering with serious mental defects, 91 of whom it was found had been so affected at the time of entry, divided into 62 insane, 4 imbeciles, 16 epileptics, and 9 feeble-minded; and 780 of the 871 deported became public charges within three years after entry by reason of the development of such deficiencies the underlying causes of which existed prior to entry, divided into 737 who became insane and 43 whose public- charge status was due to other similar causes. The corresponding

REPOET OF THE COMMISSIONER GENERAL OF IMMIGRATION. 7

figures for 1913 were 113 insane, 12 epileptics, 3 imbeciles, 15 feeble- minded, 514 who became insane, and 19 who became otherwise mentally defective from existing causes — a total of 676 expulsions on mental grounds. Medical science has demonstrated that many, if not all, of these serious deficiencies are handed down from generation to generation, with steady increase in the strain; so that the impor- tance of rejecting and expelhng aliens of this class, even to the extent shown to have occurred, can hardly be overstated. The law on this subject should be even more strict; and the bureau urgently recom- mends that legislation supplementary to the excellent provisions of the existing law be enacted at an early date, so that the people of this country may be fully protected against the introduction here from abroad of additional strains of latent but none the less dangerous cerebral deficiencies, as well as against the introduction of such strains actually developed into acute stages. Why should our difficulties on this score, already sufficiently great, be increased by immigration ?

In connection with the foregoing, attention should be directed to the amount of the fines collected from the steamship companies under section 9 of the law for bringing to our ports aliens afflicted with loathsome or dangerous contagious diseases, tuberculosis, or certain mental defects (idiocy, imbecility, or epilepsy). Fines have been assessed in 366 cases in the past year, the amount collected being $36,600.

It has already been remarked that the exclusion and expulsion of the mentally defective is of paramount importance. The detection of these classes is also most difficult. Wise, therefore, is the provision of the law that allows the sexually immoral to be deported without time hmit, and the law should be the same with regard to criminals and anarchists. There should be no room in this country for the moral degenerates of foreign lands. The bureau has been exerting special efforts to carry out the law concerning these classes, and feels that the officers in the service are entitled to commendation for the results achieved, when due allowance is made for the inadequacy of the means afforded it with which to enforce the law. Reference to Tables XVII and XVIII (pp. 104 and 110) shows that 380 immoral women, 254 procurers, 5 persons supported by the proceeds of prostitution, 755 criminals, 31 polygamists, and 1 anarchist were rejected at the ports, and 392 immoral women, 154 procurers, 155 persons supported by the proceeds of prostitution, 157 criminals, 1 polygamist, and 3 anarch- ists were expelled from the country — a total of 2,288, divided into 1,340 sexually immoral, 912 criminals, 32 polygamists, and 4 anarch- ists. The corresponding figures for 1913 were 367 immoral women, 253 procurers, 4 persons supported by the proceeds of prostitution, 808 criminals, 40 polygamists, and 2 anarchists were debarred; 330 immoral women, 121 procurers, 100 persons supported by the pro- ceeds of prostitution, 124 criminals, 2 polygamists, and 4 anarchists were expelled — a total of 2,155 aliens, divided into 1,175 sexually immoral, 932 criminals, 42 polygamists, and 6 anarchists. It is hardly necessary to say, so obvious is the fact, that these figures, notwithstanding they show an increase over the work along these fines done in the preceding year, really cover no more than a mere ''scratching of the surface so far as the sexually immoral classes are concerned.

8 REPORT OF THE COMMISSIONER GENERAL OF IMMIGRATION.

The best the bureau could do with the money and men availa])lo for the purpose was to cause the arrest to be made in many cases dis- co verea by or disclosed to it in the regular course of business, without putting forth any special efforts to ''clean up" the country or even sections thereof. I estimate, and in so doing consider myself exceed- ingly conservative, that $1,000,000 could be spent in ridding the country of sexually immoral aliens, and that even after a judicious expenditure of that amount there would still be some work to do along the same line. And how could that much of the $10,700,000 now accumulated in the Treasury from immigration revenues be more use- fully spent than in ridding the country of these classes ? Not only the citizenry, but the aliens of correct life and principles, so many of whom are yearly coming into our midst, would immeasureably benefit. Emi- nently fitting would it be to spend some of the money contributed by admitted ahens in making the country a better place of residence for all now here, native and foreign, and for the countrymen of the latter who may follow them in seeking the El Dorado of their hopes.

One of the best means of breaking up the entry to the United States of the sexually immoral classes, so far as such entry partakes of the cornmercial elements of the so-called white-slave traffic, is the prose- cution of the importers. This has been done at the instance of the bureau during the past year in 44 such cases, in 29 of which conviction occurred. For more particulars regarding these prosecutions, see the reports of the various commissioners and inspectors in charge (pp. 189-355).

This subject, so far as it affects the treatment and arrest and depor- tation of women and girls sometimes the prey of importers, is dealt with elsewhere in this report.

ALIENS EXCLUDABLE OR SUBJECT TO DEPORTATION ON ECONOMIC

GROUNDS.

Economic conditions and safeguards are responsible for the exist- ence in the law of the provisions requiring the exclusion and expulsion of paupers, persons likely to become a public charge, contract laoorers, induced immigrants, and assisted immigrants. It has been con- sidered that a sound economic poficy in the interest of the public demands that the taxpayers of the United States shall be saved the expense of maintaining the indigent of other countries whose indi- gency is in no sense chargeable to conditions existing here ; hence the provision that paupers and those likely to become such shall be excluded and that those who become pubhc charges from prior existing causes within three years after entry shall be sent back to the countries directly or indirectly responsible for them. A sound poUcy also requires that the American standard of living and wages shall be maintained ; hence the provisions regarding the exclusion and expulsion of contract laborers and induced and assisted immigrants.

The time limit in these cases should be extended to at least five years, as contemplated by the measure now pending before the Senate. While there may be a difference of opinion on the question of entirely removing the limit from the statute, three years is too short a period in which to allow the removal from the country of these economically undesirable classes.

REPORT OP THE COMMISSIONER GENERAL OF IMMIGRATION." 9 ALIENS LIKELY TO BECOME PUBLIC CHARGES.

About 48 per cent of all the aliens rejected at our ports during the past year, or 15,745, were debarred because deemed likely to become pubUc charges. Moreover, during the past year 1,091 aliens — public charges — were expelled under deportation proceedings, while 1 ,356 others were so expelled because it was found that at the time of entry they were likely to become inmates of public institu- tions— a total of 2,447 (Table XVIII, p. 110). The corresponding statistics for the previous year were: Debarred, 7,941 (40 per cent of aU rejected); expelled 1,976, divided into 714 who had become public charges and 1,262 who were Hkely to become such at time of entry. It wiU be noted that the debarments on this ground increased about 98 per cent and the expulsions about 24 per cent.

ALIEN CONTRACT LABORERS.

The most important §ingle event of the year with resj^ect to tliis subject was the handing down by the Supreme Court of its decision (232 U. S., 647) upholding the law and sustaining the cu-cuit court of appeals in the assessment of a fine of $45,000 against Grant Bros. Construction Co., a concern which attempted to supply itself with 45 needed laborers by importing them from Mexico. This case had been bitterly contested, and the decision is a distinct victory for the bureau and the law with the enforcement of which it is charged.

Another famous case disposed of during the year by compromise was that against the Dwight Manufacturing Co., of Boston and Chicopee Falls, Mass., and Alabama City, Ala., which was settled on the basis of the payment by the company of $50,000. These two cases alone brought into the United States Treasury almost twice the sum annually set aside, under section 24 of the law, for the em- ployment of special officers to enforce the afien contract-labor pro- visions. In numerous other cases smaller sums were collected either by fine or compromise, so that it may be safely asserted that, even aside from the fact that these provisions, like all the others of the statute, are enforced with money collected as head tax from admit- ted aliens, the alien contract-labor law is self-supporting through the fines which persistency in enforcing the law results in collecting, although, with a more adequate appropriation, work of a preventive nature would ultimately reduce violations thereof, so that the amount of fines collected would be diminished.

Of course the work of excluding and expelling contract laborers, as weU as that of bringing to punishment violators of the law, has gone on as usual. Thus 2,793 aliens were excluded and 51 expelled during the year (Tables XVII and XVIII, pp. 104 and 110), com- pared with 1,624 excluded and 54 expelled in the preceding year. But a few examples like the Grant Bros, and the Dwight Manufac- turing Co. cases will do more to break up violations of the law than any number of exclusions and expulsions could be expected to accomplish in that direction; therefore the bureau is always espe- cially anxious to have guilty parties convicted, and congratulates the force assigned to such work whenever some prominent violator is brought to a deserved punishment.

10 REPORT OF THE COMMISSIONER GENERAL OF IMMIGRATION. INDUCED AND ASSISTED IMMIGRATION.

These classes to a certain extent overlap those of contract laborers and those likely to become a public charge. The policy of the law is opposed to induced immigration, and any alien actually assisted to migrate is put under the burden of showing affirmatively and satis- factorily that he does not belong to one of the directly excluded classes. Many of the 15,745 excluded as likely to become a public charge and of the 2,79-3 excluded as contract laborers (Table XVII) belonged to the induced and assisted classes. Doubtless many others who were admitted ought to have been excluded on one ground or another because members of such classes; but it is not an easy matter to ascertain that inducements have been held out and assist- ance rendered, coaching on these points being readily and frequently availed of to circumvent the law and defeat our officers. Immigra- tion, to be healthful in the full sense, should be voluntary — should neither be induced nor assisted. One of the most difficult as well as important tasks confronting the bureau is the carrying out of the spirit of the law in this regard, for the procurement of tangible evi- dence, however suspicious cases may appear, is often practically impossible. As to the amount of assistance prevailing in our immi- gration, see Table XVII (p. 104), and comment thereon (p. 30).

IMMIGRATION FROM THE FAR EAST.

I believe it is quite generally conceded that immigration from the Far East is detrimental to the welfare of the United States; not because it has heretofore been so extensive in numbers, but because of its peculiar effect upon the economic conditions and the possi- bilities of an almost unlimited increase in volume if left unregulated and unchecked. Our oriental-immigration problem, arising more than a quarter of a century ago, has never been satisfactorily solved ; the exclusion laws need many amendments, not in purpose but in prescribed method. The Hindu propaganda, as yet in its infancy, is calculated to give much trouble unless promptly met with measures based upon and modeled to take advantage of our past experience in trying to arrange practicable and thorough but at the same time unobjectionable plans for the protection of the country agamst an influx of aliens who can not be readily and healthfully assimilated by our body politic. Moreover, other possibilities in this dnection exist, and it would be the part of wisdom for us to meet them in advance, so as to avoid many of the difficulties and embarrassments that have arisen in controlling oriental immigration so far as such immigration has developed. It is only necessary to consider the history of immi- gration from Europe to realize how extensively Asiatic immigration may be cultivated and exploited, and what a menace to our economic conditions these possibilities may become.

IMMIGRATION FROM THE NEAR EAST.

Immigration from the Near East has not as yet attracted much attention, largely because it has merged into European immigration and has developed along somewhat similar lines. It may reasonably be expected that western Asia will be developed and exploited more

KEPOET OF THE COMMISSIONER GENERAL OF IMMIGRATION. 11

and more completely by transportation companies whose business ])rofits are dependent to a considerable extent upon filling the steerage quarters of their ships. (See in this connection report of W. W. Hus- band, given in Appendix V, particularly that part appearing at p. 400.)

ALIENS EMPLOYED ON VESSELS.

This matter was discussed in considerable detail in the report for 1913 (pp. 26-29), and it is not necessary to again go over the same ground. Another year's experience only emphasizes the necessity for legislation to cover this loophole in our immigration safeguards, and the bureau hopes that the legislation pending in Congress affecting this subject may be enacted, as it will materially aid in the enforce- ment of our immigration laws and bring relief long desii'ed.^

IMMIGRATION FROM INSULAR UNITED STATES.

Separate statistics are presented on this subject this year for the first time. They have been collected since the taking effect of the act of February 20, 1907. (See Tables XXIV to XXVII, pp. 132- 140.) Within the term "insular United States" as used in the above-mentioned tables and in this section of the report are in- cluded the Territory of Hawaii and the possessions of Porto Rico and the Philippine Islands. It will be observed that 15,512 aliens came to continental from insular United States during the seven years covered — 10,948 from Hawaii, 3,950 from Porto Rico, and 614 from the Philippines — and that of these, 10,740 landed at San Francisco, 3,910 at New York, and 631 at Seattle, corresponding approximately with the numbers from the said three divisions of insular United States (Table XXIV). Until the annexation of Hawaii, admitted as a Territory in 1898, the United States was all con- tinental, such islands as were included in the domains being so close to the mainland as to be considered to all intents and purposes as a part thereof. From the fu-st it has been recognized that the addition to to our country of territory purely insular introduced new elements into the immigration problem, and with regard to all except Porto Rico special provisions have been placed m our laws with the intent to safeguard the mainland against the islands being used as a "stepping- stone" thereto. Porto Rico, being already weU populated with a people indigenous to the soil and needing only to be given oppor- tunities for development, has caused less trouble than the other islands from an unmioTation standpoint, though representations have been made that owing to local conditions certain immigration thereto from adjacent islands and elsewhere should be proliibited or made subject to strict regulation. Aliens coming from Porto Rico have been handled with a fan- degree of success imder rule 14, but those coming from Ha- waii and the Philippines have given the service a great deal of trouble, the former with regard to the admission of aliens to the Territory and their subsequent migration to the continent, and the latter with respect to the coming of aliens to the mainland from the Philip- pines only, the Immigration Service having nothing to do with respect to the admission of aUens to these possessions.

' See also comment on Tables XX and XXI, p. 30, and reports of commissioners at Boston, New York Philadelphia, Baltimore, Seattle, and San Francisco, pp. 212, 223, 234, 247, 299, 317.

12 REPOET OF THE COMMISSIONER GENERAL OF IMMIGRATION.

It has been regarded as desirable in the past to encourage the set- tlement in Hawaii of European ahens and correspondingly to dis- courage the settlement there of aliens from the Orient, the idea being that the former does and the latter does not tend toward the "Ameri- canization" of the Territoiy, which already has a large Asiatic popu- lation. Under this poHcy, availing themselves of the exception in favor of States and Territories to the "induced immigration" clauses of the law contained m section 6 of the act of 1907, the board of immigration of Hawaii has induced many Europeans, especially Spaniards, Portuguese, and Russians, to migrate to the Territory. During the said period, however, many of these have left Hawaii and come to the mainland — 2,860 Spaniards, 2,414 Portuguese, and 1,010 Russians (Table XXV), or about 57 per cent of the number immi- grating. This failure to retain their immigrants secured through the exercise by the Federal Government of a very liberal pohcy is believed to be due to the fact that the conditions of work and labor are unsatis- factory and the standard of Wages too low. As soon as these Euro- peans learn that much better conditions prevail on the continent they exercise the privilege, which can not be denied them under the existing law, of moving thereto. AUen laborers from China and Japan settled or settling in Hawaii have no such privilege, the Chinese-exclusion laws and the Japanese provisions of the immigra- tion act of 1907 regarding laborers with hmited passports being directed against their doing so. It is worthy to be seriously noted, however, that with respect to other Asiatics the law contains no such provisions, so that Hindus, Lascars, and others may soon commence if they please to use Hawaii as a stepping-stone to the continent. This should be remedied without delay, not only by placmg them in the same category as the laborers above mentioned but also by prohibiting their landing in that Territory.

The thorough "Americanization" of Hawaii is a matter which demands serious consideration and careful and prompt action. It never will be accompHshed, in my judgment, under the present incomplete, haphazard methods. Conditions should be made such as to invite the proper kind of laborers to go to Hawaii from our own country if possible, and laws should be enacted that would induce them to remam there as part of a happy and contented population; anything less than tliis is not fair to Hawaii or to the mauiland, especially so much of the latter as is nearest to that Territory. In this connection attention is called to the fact that of the 15,512 ahens shown to have come from insular United States to the main- land during the past seven years, 8,867 gave their final destination on the continent as Cahfornia (Table XXVII). Incidentally it might be noted that 2,360 gave their destination as New York, another State which receives under existmg conditions extensive immigration directly from foreign countries.

The Philippines are too distant to be used with the same facility and frequency as Porto Rico and Hawaii as stepping-stones to the United States. Hence although only 014 aliens are shown (Table XXIV) to have come thence during the past seven years, 551 of whom landed at Seattle, nevertheless the PhiUppines are open to be used (and the attempt has already been seriously made so to use them) by aliens who would be excluded at our home ports as Ukely to become public charges to gain the advantage of being examined

REPORT OF THE COMMISSIONER GENERAL OF IMMIGRATION. 13

at a port where, on the assumption that they entered — as they usu- ally do not — to remain in the PhiUppines, they will not be so closely scrutinized or required to come up to so high a standard as would be the case were they applying at a mainland port. For example, the Hindus, having shown a decided inchnation to come to our countiy, were imitating in many ways the wily methods of some Chinese to gain admission. For economic reasons, and because of these rea- sons, the same if not greater objection has been made to their coming than was raised against their Chinese neighbors on the north. On this account the Immigration Service undertook to the fullest extent the enforcement of the laws so as to exclude, as likely to become public charges or on other grounds when shown to exist, those of this race who came under the objections raised. This action deflected them to the Philippine Islands in their efforts to break into continental United States. .

Ascertaining that passage had been engaged for many of these people for the Pacific Coast States and for States as far east as Min- nesota, steps were taken, by the adoption of new rules governing the admission of aliens coming from the Philippines and by other methods, to protect the country from what appeared then to be a determina- tion to introduce another race agitation on the Pacific coast by the influx, miless checked, of great numbers of these people. The sub- sequent attitude of their leaders in British Columbia and in the United States, and their ready ability to raise any amount of money required to litigate with the Government, confirms this belief. It was a fortimate circumstance that the courts sustained the bureau in its contention, and further good fortune — as with all the efforts put forth under the law only about 50 per cent of those applying could be denied admission — was found in the readiness of all steamsliip companies plying between oriental and PhiUppine ports and the Pacific ports of the United States and British Columbia not to engage in the traffic pending consideration of exclusion measures in Congress. They have kept the faith and are entitled to credit therefor. I cheer- fully concede it and am anxious that the record shall bear evidence of the value of their work, for the West would now be engaged in another race problem had not these great aids come at the oppor- tune moment. This situation has given and still gives the bureau serious concern, for — ^while so far the department has been sustained by the courts in ordering such Hindus deported to the country of origin on the ground that they were likely to become public charges at the time of entering the Phihppines — should they come to the United States it remains to be seen whether the higher courts will uphold the lower on the points in dispute, and if it should finally be held that admission to the Phihppines is a bar to action excluding them therefrom on the ground stated the situation will be revived in most of its serious aspects.

As both the Philippines and Porto Rico are merely insular posses- sions of the United States, and wliile their citizens are not citizens of the United States nor yet aliens within the meaning of our immigra- tion laws (Gonzales v. Wilhams, 192 U. S., 1), there can be no«doubt of the constitutional right of the Government to prohibit the emi- gration thence to the mainland of ahens admitted thereto; and Hawaii, although it is a Territory and its citizens are citizens of the United States, has been regarded by Congress when passmg the

14 REPORT OF THE COMMISSIONER GENERAL OF IMMIGRATION.

Chinese-exclusion laws and the provision of the immigration law regarding laborers' limited passports as in the same category as the Philippines and Porto Rico. This entire subject of continental immi- gration from insular United States is subject to control by Congress, which in my judgment should at a very early date proceed to its regu- lation if the situation herein but very briefly and inadequately por- trayed is to be satisfactorily met and adjusted.

The foregoing constitutes but a resume of the year's work, mainly in the nature of an explanation of the statistical and other matter presented in connection with this report, with recommendations and such comments here and there as were warranted by the importance of the subjects considered. As most of these were discussed in last year's report, and as it is my purpose to present at this time for your consideration certain new proposals which are of special importance, I shall content myseK for the present with reference to and reiteration of the suggestions made therein and the views then expressed.

PROPOSED PLAN FOR TREATMENT, ARREST, AND RETURN TO THEIR NATIVE COUNTRIES OF WOMEN AND GIRLS EXCLUDED OR ORDERED DEPORTED.

Learning that Mrs. Kate Waller Barrett, M. D., D. Sc, president of the National Council of Women and the National Florence Crittenton Missions, was to visit Europe m May and June this year to attend, at Rome, Italy, the quinquennial session of the International Council of Women, of the press committee of which she is chairman, I requested the department to commission her to represent the bureau in said council. As she proposed to have certain conferences with European organizations of women similar to those over which she presides in this country regarding the enforcement of the international agreement — to which this Government and most of the nations of Europe are signa- tories— concerning the arrest and return to the country whence they came of persons, including women and girls, guilty of certain immoral acts, she was also authorized to represent the bureau in those confer- ences. The appointment was promptly made, and the department has at all times not only evinced great interest in the labors assigned to this distinguished lady, but offered every faciUty for conducting this important investigation. Mrs. Barrett's report is published as Appen- dix IV, to which special attention is requested, particularly to the recommendations therein contained.

It was fortunate for our country that the services of Mrs. Barrett were enlisted in the study and consideration of questions among the most important of those to which the attention of the department and bureau is constantly directed, as she, by virtue of her many gifts and her labors in humanity's cause, occupies a leading place among the world's greatest benefactors.

From a study of the subject, the experience of the bureau in the past, and application thereto of the views set forth in said report, it is recommended that in the treatment, arrest, and return to the country whence they came of women and girls guilty of immoral acts changes be made so as to accomplish: (1) A more kindly and con- siderate handling of the cases than has been practicable by a system under which sucli cases were handled in the main like other deporta- tions; (2) the avoidance to the fullest extent possible of the incarcera-

REPORT OF THE COMMISSIONER GENERAL OF IMMIGRATION. 15

tion of women and girls in jails or other similar places and the holding of them, where suitable immigration stations are not available, in the houses of philanthropic and rehgious societies, preferably of the nationality or religious sect of the alien; (3) the return of the aliens to their native country at times and under circumstances which will make it possible, either directly or through societies in this country in constant communication with related or similar societies abroad, to see that the women and girls are brought under proper surveillance and influence when landed on the other side. This in order that, to the fullest extent practicable, deportation shall result, not in afford- ing means for further degradation of the alien, but rather in at least placing her in the way of opportunities for reformation.

Until this plan is fully worked out in all its details it is desirable that all officers in charge shall give their personal attention thereto. Some qualified woman among the employees of each station should be selected to look after the welfare of such women and girls of the character above mentioned as may be in detention or under examina- tion in warrant proceedings. Female employees so selected should be required to submit reports to the bureau periodically. The incar- ceration in jail of women and girls charged with immorality should be discontinued unless authorized by the bureau as a result of a report as to the circumstances of each case. "WTien at our stations or other places under the jurisdiction of the bureau their custody should be confided exclusively to female employees.

Timely and wise suggestions are made by Mrs. Barrett that "pending investigation and deportation such women and girls be placed in the hands of some private philanthropy which has given assurance to the bureau of its practical value as a cooperative agency, such organiza- tion to be of the nationality and religion of the alien if possible, and full particulars of the case and such data as to character and ante- cedents of the woman or girl as can be gathered to be at once sent to the Commissioner General, who shall take up directly the corre- spondence with the national committee in the country to which the woman or girl belongs.

"The national committee, of course, should be furnished with all the facts in regard to such a case, so that it may investigate the condi- tions under which the woman or girl will be forced to live after her return. If this were done the Commissioner General would have information that would enable him to decide what is the best dispo- sition to be made of the case.

"If the woman or girl is detained at an immigration station at which there are no women employees, the commissioner in charge of the station could at once place himself in communication with some private organization, preferably of the same nationality and religion as the woman or girl, such organization to be asked to take charge of