    [Twelfth Annual Report of the Secretary of Labor for the Fiscal Year Ended June 30, 1924]
    [From the U.S. Government Publishing Office, www.gpo.gov]

    ﻿L-b/
    ANNUAL REPORT OF THE SECRETARY OF LABOR
    FOR FISCAL YEAR ENDED JUNE 30,1924

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    CONTENTS
    Part I
    Pape
    Office of the Secretary-------------------------------------------------- 1
    Assistant Secretaries________________________________________________ 2
    Solicitor____________________________________________________________ 2
    Chief clerk__________________________________________________________ 3
    Department quarters______________________________________________ 3
    Personnel________________________________________________________ 3
    Disbursing clerk_________________________________________________ 6
    Publications and supplies--------------------------------------- 11
    Department library______________________________________________ 14
    Conciliation service________________________________________________ 15
    United States Employment Service____________________________________ 36
    United States Housing Corporation___________________________________ 42
    Industrial and economic conditions in the Virgin Islands____________ 47
    Immigration_____________________________________________________________ 50
    The per centum limit act of 1921____________________________________ 50
    Immigration act of 1924_____________________________________________ 51
    New legislation----------------------------------------------------- 52
    Oriental immigration________________________________________________ 56
    Alien seamen________________________________________________________ 57
    Deportation of aliens_______________________________________________ 58
    Debarment of aliens------------------------------------------------- 60
    Smuggling of aliens_________________________________________________ 60
    The Gottlieb decision_______________________________________________ 61
    Miscellaneous tables________________________________________________ 63
    Financial statement_________________________________________________ 67
    Remodeling Ellis Island_____________________________________________ 68
    Ferry dock immigration station______________________________________ 69
    Emigration conditions in Europe_____________________________________ 69
    International conference in Rome____________________________________ 97
    Bureau of Labor Statistics_____________________________________________ 109
    Historical_________________________________________________________ 109
    The Monthly Labor Review___________________________________________ 109
    Other publications------------------------------------------------- 110
    Reports transmitted but not published______________________________ 112
    Studies in process_________________________________________________ 113
    Children’s Bureau______________________________________________________ 117
    Maternal and infant mortality______________________________________ 117
    Administration of the maternity and infancy act____________________ 117
    Child labor________________________________________________________ 121
    Juvenile and family courts_________________________________________ 123
    Care of children born out of wedlock_______________________________ 124
    Public aid to dependent children___________________________________ 124
    Studies of child dependency________________________________________ 124
    Study of dependent wards of the State of Wisconsin___=.____________ 125
    IV
    CONTENTS
    Children’s Bureau—Continued.	Page
    Legal protection for children in need of special care------------ 125
    Films and exhibits----------------------------------------------- 125
    Publications_____________________________________________________ 126
    Bureau of Naturalization____________________________________________  127
    Citizenship training_____________________________________________ 130
    Women’s Bureau_______________________________________________________ 132
    Type of work done________________________________________________ 132
    State studies____________________________________________________ 133
    Cooperation with State departments of labor---------------------- 133
    Special studies-------------------------------------------------- 133
    Research and educational	work___________________________________ 135
    The coming year-------------------------------------------------- 137
    Paet II
    Comment and recommendations------------------------------------------ 141
    Introduction____________________________________________________  141
    Department quarters---------------------------------------------- 145
    Retirements—annuities____________________________________________ 146
    Printing and binding--------------------------------------------- 146
    Conciliation service--------------------------------------------- 147
    Employment Service----------------------------------------------- 149
    Housing Corporation______________________________________________ 150
    Bureau of Labor Statistics--------------------------------------- 151
    Immigration Service---------------------------------------------- 156
    Children’s Bureau------------------------------------------------ 176
    Bureau of Naturalization----------------------------------------- 182
    Women’s Bureau___________________________________________________ 189
    Summary of recommendations_______________________________________ 192
    Appendixes:
    Appendix I. Act creating the Department of Labor----------------- 197
    Appendix II. Abstract of naturalization laws of the world-------- 201
    TWELFTH ANNUAL REPORT OF SECRETARY OF LABOR
    Department of Labor,
    Office of the Secretary, Washington, October 24, 1924.
    To the Congress of the United States:
    It is my privilege to transmit to you herewith my annual report for the fiscal year ended June 30, 1924. This is the fourth report rendered during my administration and covers the third complete year ef activities of this department since my assumption of office.
    During the period covered by this report a number of very important events have taken place, particularly affecting the immigration to and residence in the United States of aliens. The period covered, also, is for the last complete fiscal year of this administrative term, and for that reason I have taken special pains to make a summary of conclusions and recommendations to which I desire to call your attention. They will be found in the second section of this report.
    Respectfully submitted.
    James J. Davis,
    Secretary of Labor.
    V

    TWELFTH ANNUAL REPORT
    OF THE
    SECRETARY OF LABOR
    PART I
    The Department of Labor consists of the Office of the Secretary, with its nine subdivisions, and the Bureau of Labor Statistics, Bureau of Immigration, Children’s Bureau, Bureau of Naturalization, and Women’s Bureau.
    The fundamental act creating the Department of Labor primarily requires this department “to foster, promote, and develop the welfare of the wage earners of the United States, to improve their working conditions, and to advance their opportunities for profitable employment.” By this same act the Bureau of Labor Statistics, the Bureau of Immigration, the Children’s Bureau, the Bureau of Naturalization, the Division of Conciliation, and later the United States Employment Service, the Women’s Bureau, and the Bureau of Industrial Housing and Transportation (United States Housing Corporation) were placed under the jurisdiction of this department. Therefore, either accidentally or by design, the Department of Labor has control of matters involving solely and exclusively personal or human rights, affecting the welfare and happiness of men, women, and children everywhere. Its responsibilities are measured by its opportunities for good or evil, and the Secretary and the Assistant Secretaries, who act for and in his behalf, are called upon to decide personally and promptly great and momentous questions without the power to delegate the authority. The time of the Second Assistant Secretary is devoted almost exclusively to immigration matters, while the Secretary and First Assistant are employed in the solution of problems equally as perplexing and equally as important arising in connection with the other activities of the department.
    OFFICE OF THE SECRETARY
    The Office of the Secretary includes the Secretary of Labor, the Assistant Secretary, the Second Assistant Secretary, the solicitor, the chief clerk, the disbursing clerk, the appointment clerk, the Division of Publications and Supplies, the department library, the
    1
    2	ANNUAL REPORT SECRETARY OF LABOR
    Division of Conciliation, the United States Employment Service, and the Bureau of Industrial Housing and Transportation (United States Housing Corporation).
    While the department library, the Division of Conciliation, the United States Employment Service, and the Bureau of Industrial Housing are officially divisions in the Office of the Secretary, each of these rises to the importance of a bureau in the magnitude of its operations and the importance of the service therein performed. The department library is perhaps the most important and extensive collection of literature dealing with industrial relations in the world. The Division of Conciliation performs a service second to none in the Government in its far-reaching effect on industrial relations and industrial peace. From every standpoint it has assumed the dignity of a bureau. The United States Employment Service is more extensive in its operations and in personnel than some bureaus, and also is entitled to the standing of a bureau. The Bureau of Industrial Housing is presumed to be a dying branch, and it is my hope that it may be finally wound up at an early day. However, the magnitude of property values handled by it and the necessity for operating certain enterprises does not promise early termination. The work of the Secretary and of his responsible assistants is greatly added to by the fact that these vast and important activities are merely divisions in the Office of the Secretary instead of bureaus in the department.
    ASSISTANT SECRETARIES
    The Assistant Secretary and the Second Assistant Secretary perform the duties assigned them by statute and such other duties as may be delegated to them by the Secretary.
    SOLICITOR
    While the solicitor is an officer of the Department of Justice, he has his office with the Department of Labor and his work is devoted entirely to matters of law arising in this department. Details of the work performed by the office of the solicitor for the fiscal year ended June 30, 1924, are as follows:
    Legal opinions rendered, formal__________________________________________ 98
    Contracts and leases examined, approved or disapproved------------------- 234
    Contracts, leases, forms of bonds, etc., drafted, redrafted, or modified-	4
    Bonds on contracts examined, approved or disapproved--------------------- 30
    Bonds, alien immigrants, examined, approved or disapproved---------------4, 826
    Bonds, official, examined, approved or disapprvoed----------------------- 4
    Bills drafted and redrafted______________________________________________ 9
    Miscellaneous matters embracing everything submitted for advice or suggestion of the solicitor or for the formulation of departmental action, not included in the foregoing________________________________________ 458
    Total____________________________________________________________5,663
    ANNUAL REPORT SECRETARY OF LABOR
    3
    CHIEF CLERK
    Under the direction of the Secretary, the chief clerk has direct charge of the various divisions of the Office of the Secretary, and performs such duties as are usually performed by similar officers in all of the executive departments.
    Department quarters.
    At the present time the department has under lease the building 1712-22 G Street NW., which is a modern 9-story and basement fireproof building, containing 84,981 square feet of floor space with a net available office space of 63,994 square feet. This building houses the Office of the Secretary, Bureau of Labor Statistics, Bureau of Immigration, Bureau of Naturalization, and the greater part of the United States Employment Service. The Children’s Bureau occupies 17,593 square feet, the Women’s Bureau, 6,500 square feet, and a part of the United States Employment Service, 2,430 square feet in Tempo Building No. 4, making a total of 26,523 square feet of space occupied by branches of the department in that building. The Bureau of Industrial Housing and Transportation occupies 4,634 square feet of space in the Maltby Building, 200 New Jersey Avenue NW.
    Attention is particularly directed to the recommendations regarding quarters contained in Part II of this report.
    Personnel.
    Officials and employees.—There was an increase of 223 employees - in the department at the close of June 30, 1924, as compared with the number of employees on the same date of the previous year. The Bureau of Immigration and Immigration Service had 221 additions; Bureau of Naturalization, 31; Children’s Bureau, 39; Office of the Secretary, 17; and the Division of Conciliation, 8. The United States Employment Service had a decrease of 77 and the Bureau of Labor Statistics a decrease of 16. The increase in the Office of the Secretary was caused by the transfer of 17 employees who had been on detail to that office from the various bureaus, and who were transferred thereto by the appropriation act of May 28, 1924.
    Under the recent act of Congress statutory positions have been eliminated, and the table shows figures for employees in the District of Columbia and outside the District of Columbia.
    The main increase in the number of employees in the department was in the field service.
    There are at present 395 persons holding appointments in the department at a nominal compensation of $1 per annum. Of these, 269 are employed in the United States Employment Service in the cooperation work carried on by this service with the State and
    4
    ANNUAL REPORT SECRETARY OF LABOR
    municipal employment organizations. The Children’s Bureau has 69 employees in this class; the Division of Conciliation, 30; and the Immigration Service, 21. In the District of Columbia there are 2 in the Division of Conciliation, 2 in the Bureau of Immigration, 1 in the Bureau of Naturalization, and 1 in the Bureau of Labor Statistics.
    Number of officials and employees of the Department of Labor, July 1, 1924, as compared with July 1, 1923
    Bureau or office	July 1, 1924			July 1, 1923	Increase (+) or decrease (-)
    	In District of Columbia	Outside District of Columbia	Total
    Office of the Secretary			98		98	81	+17
    Commissioners of conciliation		4 7	275	82	74	+8
    Bureau of Labor Statistics		114	3 16	130	146	-16
    Children’s Bureau		153	4 127	280	241	+39
    Immigration 		« 80	0 1,988	2,068	1,847	+221
    Naturalization			7 101	218	319	288	+31
    United States Employment Service	_ 		20	«413	433	510	-77
    Women’s Bureau		 		47		47	47
    Total	-	-		620	2,837	3,457	3,234	+223
    United States Housing Corporation		375	14	389	481	-92
    1 Of this number 2 are employed at the nominal sum of $1 per annum.
    2 Of this number 30 are employed at the nominal sum of $1 per annum.
    3 Of this number 1 is employed at the nominal sum of $1 per annum.
    4 Of this number 69 are employed at the nominal sum of $1 per annum.
    s Of this number 2 are employed at the nominal sum of $1 per annum and 7 are appointed under sec. 24 of immigration act.	...	.
    e Of this number 21 are employed at the nominal sum of $1 per annum and 41 are appointed under sec. 24 of immigration act.
    7 Of this number 1 is employed at the nominal sum of $1 per annum.
    ’ Of this number 269 are employed at the nominal sum of $1 per annum.
    Changes in personnel.—The following table indicates the changes in personnel throughout the executive offices and bureaus of the department during the fiscal year ended June 30, 1924:
    Appointments, separations, and miscellaneous changes in personnel of Department of Labor during fiscal year ended June 30, 1924
    Bureau or office	Appointments				Separations						Miscellaneous changes
    	Permanent			Temporary	Total	From permanent			Temporary	Total
    	Competitive	Excepted.	Unclassified			Competitive	Excepted	Unclassified
    Office of the Secretary	7	4			11	11	6	4	1	22	13
    Commissioner of conciliation		12			12		21			21	25
    Labor Statistics	27			13	40	27			21	48	76
    Children’s Bureau	22	21		105	148	23	6		124	153	2 7
    Immigration		336	92	4	141	573	218	47	3	103	371	1,513
    N aturalization	52	2		53	107	42			37	79	307
    United States Employment
    Service	1	169		46	216	3	193		11	207	359
    Women’s Bureau	4			11	15	7	1		7	15	35

    Total				449	300	4	369	1,122	331	274	7	304	916	2,535
    ANNUAL REPORT SECRETARY OF LABOR
    5
    There was a total of 1,122 appointments, 916 separations, and 2,535 miscellaneous changes during the year. There were 369 appointments to and 304 separations from temporary positions, 449 appointments to and 331 separations from competitive positions, 300 appointments to and 274 separations from excepted positions, and 4 appointments to and 7 separations from unclassified positions.
    Transfers.—There were some slight changes in the personnel caused by transfers to and from the department, a total of 55 coming in from the various departments and 14 being transferred out. This does not, however, show the number of employees who were appointed under the civil-service rules and who were nominally reinstated in this department for the purpose of immediate transfer to other departments. The following table shows the number of transfers to and from the department during the year:
    Comparative statement.—The following table shows the number of persons employed in the Department of Labor at the close of June 30, 1924, and the number on the rolls on July 1, 1924. These changes come about mainly by change in appropriations. The statement shows an increase of 100 employees between the close of June 30, the end of the fiscal year, and July 1, the beginning of the next fiscal year. An increase of 34 employees is shown in the .District of Columbia and 66 in the field service.
    6
    ANNUAL REPORT SECRETARY OF LABOR
    Comparative statement of the number of employees of the Department of Labor June SO, 1924, and July 1, 1924
    June 30, 1924
    July 1,1924
    Bureau or office	In District of Columbia	Field	Total	In District of Columbia	Field	Total
    Office of the Secretary		81		81	98		98
    Commissioners of conciliation		7	74	81	7	75	82'
    Bureau of Labor Statistics		112	16	128	114	16	130
    Children’s Bureau		152	127	279	153	127	280'
    Immigration			54	1, 968	2,022	80	1, 988	2,068
    Naturalization		101	217	318	101	218	319-
    United States Employment Service		134	369	403	20	413	433
    Women’s Bureau				45	—	45	47	—	47
    Total				586	2,771	3,357	620	2,837	3,457
    1 Includes 14 employees detailed to other bureaus in the department.
    Retirements.—The retirement law, act of May 22, 1920, which became effective on August 1, 1920, has been working very satisfactorily in this department, through a complete understanding with the retirement division of the Pension Bureau. Certain methods of keeping records have been adopted which it is hoped will in later years be of invaluable worth to those handling the work. Since the retirement act became effective there have been 62 employees retired on annuities, and in the same period 42 extensions based on value of the services of the individuals so retained. There have been 778 applications for refund of deductions approved and paid. The following table gives figures by years:
    Retirements, extensions, and refunds for the period August 1, 1920, to June 30.
    1924
    		1921	1922	1923	1924	Total
    Employees retired	 Extensions	 Applications for refund Total			—	25 20 163	13 5 209	14 12 231	10 5 175	62 42 778
    	—	208	227	257	190	882
    Disbursing clerk.
    Functions.—The disbursing clerk prepares requisitions for public funds from appropriations for the department. He also pays its obligations and does the general accounting of the department. Naturalization fees and moneys received from aliens in lieu of bond are accounted for by him.
    Appropriations.—For the fiscal year ended June 30, 1924, the appropriations by Congress to the department and its services were as follows:
    ANNUAL REPORT SECRETARY OF LABOR
    7
    Salaries, Office of the Secretary of’Labor___________________ $147,480.00
    Salaries and expenses, commissioners of conciliation_________ 200, 000. 00
    'Contingent expenses_________________________________________ 50, 000. 00
    Increase of compensation_____________________________________ 566, 640. 00
    Rent--------------------------------------------------------- 24,000. 00
    Printing and binding_________________________________________ 215,000.00
    Salaries, Bureau of Labor Statistics_________________________ 172, 960. 00
    .Miscellaneous expenses, Bureau of Labor Statistics__________ 69, 000. 00
    Library, Bureau of Labor Statistics__________________________ 300. 00
    Salaries, Bureau of Immigration______________________________ 74, 200. 00
    Expenses of regulating immigration___________________________ 3, 300, 000. 00
    Expenses of regulating immigration, 1924-25__________________ 100, 000. 00
    Refund to Furness, Withy & Co________________________________ 300. 00
    Refund to Toyo Risen Kaisha__________________________________ 2, 000. 00
    Refund to Canadian Pacific Steamship Co. (Ltd.)_r____________ 200.00
    Refund to collector of customs, Los Angeles, Calif___________ 66. 00
    Refund to French Line________________________________________ 200. 00
    Refund to Cunard Steamship Co. (Ltd.)________________________ 225.00
    Refund to East Asiatic Co. (Inc.)____________________________ 430. 00
    •Claims for damages, act December 28, 1922___________________ 1, 000. 00
    Immigrant stations___________________________________________ 100, 000. 00
    Immigrant station, Ellis Island, N. Y________________________ 326, 000. 00
    Salaries, Bureau of Naturalization___________________________ 97,010.00
    Miscellaneous expenses, Bureau of Naturalization_____________ 600, 000. 00
    Salaries, Children’s Bureau__________________________________ 106, 040. 00
    Investigation of child welfare, Children’s Bureau____________ 120, 000. 00
    General expenses. Children’s Bureau__________________________ 85, 000. 00
    Promotion of welfare of hygiene of maternity and infancy_____ 1,190, 000. 00
    Administrative expenses, welfare and hygiene of maternity and infancy------------------------------------------------------ 50, 000. 00
    Salaries and expenses, Women’s Bureau________________________ 105, 000. 00
    Employment Service___________________________________________ 210, 000. 00
    Total-------------------------------------------------- 7, 913, 051. 00
    Under the provisions of the act approved May 22, 1920 (41 Stat. L. 614), the following amounts were deducted from the appropriations for the Department of Labor and placed to the credit of the •civil-service retirement and disability fund in the Treasury Department :
    Salaries, Office of the Secretary______________________________ $2,309. 25
    Salaries and expenses, commissioners of conciliation___________ 366. 63
    Salaries, Bureau of Laboi’ Statistics__________________________ 4,199. 00
    Miscellaneous expenses, Bureau of Labor Statistics_____________ 500. 00
    Salaries, Bureau of Immigration________________________________ 1, 685. 00
    Expenses of regulating immigration_____________________________ 59, 400. 00
    Salaries, Bureau of Naturalization.____________________________ 2, 425. 00
    Miscellaneous expenses, Bureau of Naturalization_______________ 11,300.25
    Salaries, Children’s Bureau____________________________________ 2, 488. 50
    General expenses, Children’s Bureau____________________________ 56. 88
    Investigation of child welfare, Children’s Bureau______________ 2, 375. 52
    Administrative expenses, welfare and hygiene of maternity and infancy---------------------------------------------------------------- 372.	50
    Employment Service_____________________________________________________ 685.	00
    Salaries and expenses, Women’s Bureau_______________________________ 1,844.20
    Total deductions.
    90, 007. 73
    8
    ANNUAL REPORT SECRETARY OF LABOR
    Expenditures.—The expenditures, arranged according to items of appropriation, were as follows:
    Office of the Secretary:
    Salaries, Office of the Secretary, 1923----------------- $5, 823.14
    Salaries, Office of the Secretary, 1924----------------- 115,907.84
    Contingent expenses, 1922_______________________________ . 50
    Contingent expenses, 1923_______________________________ 19,136. 76
    Contingent expenses, 1924_______________________________ 34, 485. 27
    Salaries and expenses, commissioners of conciliation, 1923—	13,980. 33
    Salaries and expenses, commissioners of conciliation, 1924—	182,079. 85
    Increase of compensation, 1922-------------------------- 10. 00
    Increase of compensation, 1923-------------------------- 24, 050. 75
    Increase of compensation, 1924____________________________	523, 641. 38
    Rent, 1923______________________________________________ 2, 000. 00
    Rent, 1924______________________________________________ 22, 000. 00
    Printing and binding, 1923------------------------------ 49, 981. 69
    Printing and binding, 1924------------------------------ 128, 213. 73
    1,121, 311. 24 Recoveries:
    Salaries and expenses, commissioners of conciliation,
    1920____________________________________________$3.02
    Salaries and expenses, commissioners of conciliation,
    1921____________________________________________ 1.13
    Salaries and expenses, commissioners of conciliation,
    1922____________________________________________ .16
    4.31
    Bureau of Labor Statistics:
    Salaries, Bureau of Labor Statistics, 1923______________________ 6, 775. 70
    Salaries, Bureau of Labor Statistics, 1924______________________-	157, 995. 47
    Miscellaneous expenses, Bureau of Labor Statistics, 1923________ 8, 292. 23
    Miscellaneous expenses, Bureau of Labor Statistics, 1924-------- 63, 307. 44
    Library, Bureau of Labor Statistics, 1922_______________________. 65
    Library, Bureau of Labor Statistics, 1924----------------------- 299. 00
    236, 670. 58 Recoveries:
    Miscellaneous expenses, Bureau of Labor Statistics, 1922__ 7. 62
    Net expenditures________________________________________ 236, 662. 96
    Bureau of Immigration:
    Salaries, Bureau of Immigration, 1923___________________ 2, 857. 09
    Salaries, Bureau of Immigration, 1924___________________ 69, 393. 58
    Expenses of regulating immigration, 1921 (deficiency)___	33.48
    Expenses of regulating	immigration,	1922_____________ 2,	405.19
    Expenses of regulating	immigration, 1923________________ 336,	719. 80
    Expenses of regulating	immigration, 1924_____________ 3,178, 900. 94
    Expenses of regulating	immigration, 1924-25__________________ 3,	452. 80
    Immigration station, Ellis Island, N. Y., 1923__________ 59, 855. 30
    Immigration station, Ellis Island, N. Y., 1924__________ 1, 019. 40
    Immigrant stations, 1924-------------------------------- 58. 932. 76-
    ANNUAL REPORT SECRETARY OF LABOR
    9
    Refunds to:
    Furness, Withy & Co----------------------------------- $300. 00
    Toyo Kisen Kaisha------------------------------------- 2, 000. 00
    Canadian Pacific Steamship Co_________________________ 200. 00
    Charles Martin & Co___________________________________ 20. 00
    Whitman & Crane________________----------------------- 100. 00
    East Asiatic Co_______________________________________ 430. 00
    Cunard Steamship Co___________________________________ 225. 00
    French Line_________■-------------,--------------------	200. 00
    Claims for damages____________________________________ 1, 000. 00
    3, 718, 045. 94 Recoveries:
    Enforcement of laws against alien anarchists, 1921_$4. 00
    Expenses of deporting aliens, 1921----------------- 7. 52
    Total credits_________________________________________________ 11- 52
    Children’s Bureau:
    Salaries, Children’s Bureau, 1923---------------------------- 3, 805. 09
    Salaries, Children’s Bureau, 1924---------------------------- 92, 070. 05
    General expenses, Childrens’ Bureau, 1922-------------------- 8. 44
    General expenses, Children’s Bureau,	1923--------------------- 14,	877.	59
    General expenses, Children’s Bureau,	1924--------------------- 52,	586.	99
    Investigation, child welfare, 1923-------------------------------- 9,	222.	95
    Investigation, child welfare, 1924------------------------------ 105,	475.	68
    Administrative expenses, welfare and hygiene of maternity and infancy----------------------------------------:--------- 45, 830. 57
    323, 877. 36
    Recovery:
    Investigation, child welfare, 1922--------------------------- 1. 08
    Net expenditures---------------------------------------- 323, 876. 28
    Bureau of Naturalization:
    Salaries, Bureau of Naturalization, 1923------------------------- 3,	765. 54
    Salaries, Bureau of Naturalization, 1924------------------------ 85,	866. 06
    Miscellaneous expenses, Bureau of Naturalization,	1922—	1, 457. 08
    Miscellaneous Expenses, Bureau of Naturalization,	1923—	49, 008.17
    Miscellaneous Expenses, Bureau of Naturalization,	1924_____ 553,	429. 67
    693, 526. 52
    Recoveries:
    Miscellaneous expenses, Bureau of Naturalization, 1918-19_______________________________________________$0.25
    Miscellaneous expenses, Bureau of Naturalization, 1921_______________________________1__________________ 3. 40
    3. 65
    Women’s Bureau:
    Salaries and expenses, Women’s Bureau, 1923----------------- 6, 662. 76
    Salaries and expenses, Women’s Bureau, 1924----------------- 98, 798. 03
    105, 460. 79
    10	ANNUAL REPORT SECRETARY OF LABOR
    Recoveries:
    Salaries and expenses, Women's Bureau, 1922------------- $1. 45
    Women in industry, 1919-1921----------------------$0. 25
    Net expenditures______________________________________ 105,459. 34
    United States Employment Service:
    United States Employment Service, 1920 (deficiency)____	123.77
    United States Employment Service, 1922_________________ 7. 01
    United States Employment Service, 1923------1----------	13, 625. 24
    United States Employment Service, 1924----------------- 189, 095. 75
    202, 851. 77 Recovery:
    Employment service, 1920__________________________$0. 93
    Grand total__________________________________________ 6, 401, 734. 05
    In addition to disbursements by the disbursing clerk, the following expenditures on behalf of the department were specifically made:
    By special disbursing agents for—
    Immigration Service (estimated)____________________________$42,800.00
    Children’s Bureau__________________________________________ 107. 58
    Claims settled by the General Accounting Office of the Comptroller
    General----------------------------------------------------- 70, 702. 97
    Total----------------------------------------------------113,610.55
    Miscellaneous receipts.—The following receipts from miscellaneous sources have been recorded during the year:
    Bureau of Immigration:
    Head tax (estimated)___________________________________$5,545,880.00
    Fines (estimated)-------------------------------------- 363,336.66
    Forfeiture of bonds____________________________________ 124, 723. 97
    Rentals and sale of exclusive privileges_______________ 2,159.40
    Telephone service______________________________________ 314. 58
    Sale of Government property____________________________ 3,129.92
    Miscellaneous collections______________________________ 10.00
    Care and treatment of aliens at Ellis Island Hospital, Public
    Health Service (estimated)_____________________________ 238,521.50
    6, 278, 076. 03
    Bureau of Naturalization:
    Naturalization fees____________________________________ 481, 033. 50
    Nunc pro tunc examination head tax_____________________ 21, 839. 26
    502, 872. 76 Miscellaneous:
    Miscellaneous receipts_________________________________ 288.81
    Proceeds of sales of Government property_______________ 34.17
    Total receipts_______________________________________ 6, 781, 271. 77
    Unexpended balances.—In accordance with the act of Congress of June 20, 1874 (18 Stat. L. 110, 111), the following unexpended balances of appropriations and repayments thereto were covered into the surplus fund of the Treasury Department June 30, 1924:
    ANNUAL REPORT SECRETARY OF LABOR
    11
    Contingent expenses, 1922___________________________________________ $526.	56
    Employment Service, 1922_____________________________________________ 145.	01
    Expenses of regulating immigration, 1921_____________________________ 392.	75
    Expenses of regulating immigration, 1922_____________________________ 148.	31
    Miscellaneous expenses, Bureau of Naturalization, 1922________________ 99.	70
    General expenses, Children’s Bureau, 1922_____________________________ 36.	38
    Refund to collector of customs. Los Angeles, Calif____________________ 66.	00
    Total---------,----------------------------------- 1, 414. 71
    Publications and supplies.
    Printing and binding.—The act making appropriations for the Departments of Commerce and Labor for 1924 provided for printing and binding for the Department of Labor the sum of $215,000, which was apportioned by the Secretary as follows :
    Office of the Secretary___________________________________________$12, 000
    Bureau of Labor Statistics________________________________________ 88,000
    Bureau of Immigration____________________________:________________ 4, 500
    Immigration Service_____________________________________________ 26,	000
    Children's Bureau_________________________________________________ 37,500
    Bureau of Naturalization_____________________________________________ 2,	000
    Naturalization Service	and	examiners___________________________ 25,	000
    Women’s Bureau_______________________________________________________ 9,	000
    United States Employment	Service___________________________________ 11,	000
    Total--------------------------------------------------215.000
    In addition to the above the Children’s Bureau was authorized by the maternity and infancy act to expend a portion of the money appropriated by that act for printing used in its administration, and $1,268.80 was so used. The Congress also authorized the printing of textbooks in connection with citizenship training by the Bureau of Naturalization in cooperation with the public schools. In pursuance of this authority 240,000 books were printed, at a cost of $50,226.19.
    During the year the United States Housing Corporation ordered work from the Government Printing Office to the amount of $908.56, which was paid from the appropriation “Printing and binding, United States Housing Corporation, 1924.”
    Chargeable against the regular printing appropriation there were sent to the Government Printing Office during the year requisitions covering $214,949.50. Up to July 1 bills were submitted by the Public Printer for $127,407.54, leaving an estimated balance of $87,541.96 to be paid out of the appropriation for the fiscal year 1924.
    There were written and sent to the Government Printing Office during the year 1,524 requisitions, as compared with 1,416 for the fiscal year 1923, an increase of 108, or 7.63 per cent.
    16376—24----2
    12	ANNUAL REPORT SECRETARY OF LABOR
    This very large balance of uncompleted work is due principally to the inability of the Government Printing Office to keep pace with the demands made on it.
    The cost of author’s corrections in the publications of the department has been materially reduced through insistence by the department that copy be properly edited before submission to the printer.
    Printed stationery.—During the fiscal year 1924, 402 requisitions for printed stationery were filled. Of this number 229 were for offices and bureaus within the department and 173 for services outside the District of Columbia.
    Envelopes.—During the same period 251 orders were placed calling for 4,647,478 envelopes, at a cost of $8,336.16, as compared with 267 orders in 1923, calling for 4,260,440 envelopes, costing $7,620.51.
    Periodicals.—There has been little change in periodicals issued by the department. The Bureau of Labor Statistics issues monthly three separates from the Monthly Labor Review, two of them being material formerly sent out in mimeograph form. The Employment Service now issues the first copies off the press of the Industrial Employment Information Bulletin in press-notice form instead of supplying it in mimeograph form as formerly. This latter change was made by the Director General of the Employment Service on the suggestion of the department and has proved much more satisfactory both to the Employment Service and to the newspapers using it, resulting in a considerably wider use of the material by the press and a saving of several hundred dollars and a tremendous amount of labor in mimeographing and distribution. This method of furnishing press material attracted the attention and received the commendation of the Director of the Bureau of the Budget.
    Supplies.—The value of supplies on hand at inventory time, July 1, 1923, was $18,918.37, and the value on July 1, 1924, was $19,455.06. Requisitions were filled for the various bureaus, offices, and services to the number of 1,920—14 more, than for 1923. On these requisitions there were written 2,509 orders, as against 2,329 in the preceding year. The value of these orders was $81,728.56. This sum, in addition to the purchase of current supplies, represents the amount used to replace stock sold and payment for other reimbursable items, as well as supplies purchased for the bureaus and services from other appropriations.
    Editorial work.—Twenty-three per cent more folios of copy were sent to the Government Printing Office than in the fiscal year 1923 (26,960 pages as compared with 20,783). Of this material 2,870 galley proofs and 10,000 page proofs were received as 'against 4,055 galley proofs and 12,009 page proofs the preceding year. This
    ANNUAL REPORT SECRETARY OF LABOR
    13
    variation of a much greater volume of work sent to the Printing Office and much smaller quantity returned is accounted for by the tremendous amount of uncompleted work at the Government Printing Office on June 30.
    Books and blanks.—Requisitions for books and blanks were filled as follows: Inside service, 704; Naturalization Service, examiners, 147; Naturalization Service, clerks of courts, 4,673; general (Immigration Service, Employment Service, and customs), 1,101; total, 6,625.
    Books	Blanks
    Customs	 460 Immigration, general	5, 997 Immigration, New York	 503 Employment	 Naturalization clerks	1,602 Naturalization examiners	 638 Publications and supplies		„	 17 Special and miscellaneous	 208	17,100 2, 945, 500 855, 700 2, 705, 795 2, 391, 027 683, 380 221, 200 936, 400
    Total	9,425	10, 756,162
    Shipments.—Shipments of blanks and publications by mail numbered 4,483 packages of registered mail, weighing 38,647 pounds; 38,446 packages of regular mail, 279,694 pounds; 8,463 packages of immigration laws, naturalization laws, etc., 2,687 pounds; 2,082 bags of regular mail, 166,400 pounds; 48,414 letters, invoices, etc., 2,480 pounds; a total of 101,888 shipments, weighing 490,908 pounds.
    For other divisions there were shipped by freight and express 75 cases, weighing 5,851 pounds; 6,497 packages by mail, weighing 21,-322 pounds; 1,046,895 letters, weighing 52,455 pounds; 1,053,467 pieces, weighing 79,628 pounds.
    There were 4,166 cases of supplies sent by freight and express and 733 packages by mail, weighing 255,720 and 3,670 pounds, respectively. During the fisc’al year a slight economy has been effected by sending some small shipments by parcel post. There were 76 packages sent by this method, weighing 1,139 pounds. The total shipments of supplies numbered 4,975, weighing 260,529 pounds.
    Certificates of naturalization.—A total of 193,995 certificates of naturalization were forwarded to clerks of courts, there being 167 books of 10, 191 books of 25, 1,721 books of 50, and 2,030 books of 50 (special).
    Receipts.—Supplies, 2,044 packages and cases, weighing 616,073 pounds; blanks, 24,530 packages, weighing 311,254 pounds; total 26,574 pieces, weighing 927,327 pounds.
    The total number of pieces handled (receipts and shipments) was 1,757,253 pounds.

    14	ANNUAL REPORT SECRETARY OF LABOR
    Duplicating —Work performed in the duplicating section:
    Franks handled—------------------------------------------------- 14€5, 084
    Publications issued on franks-----------------------------------1, 774, 353
    Publications issued on mailing lists---------------------------- 440, 545
    Mimeograph requisitions handled--------------------------------- 1, 675
    Mimeograph copies made------------------------------------------ 2, 268, 423
    Mimeograph copies folded---------------------------------------- 676,522
    Envelopes, letters, and cards addressed------------------------- 453, 399
    Envelopes sealed------------------------------------•----------- 600,143
    Photostat copies made------------------------------------------- 937
    Motor vehicles.—The cost of upkeep of the motor vehicles of the department has been considerably less than during any recent fiscal year, being approximately $2,800 as against $2,829.29 for 1923, and $4,318.31 for 1922. During the year a new motor cycle was purchased, the old one being retained. By having these available for light delivery work the heavier trucks are relieved of a number of trips daily.
    Department library.
    During the year 7,415 books and pamphlets were catalogued and added to the department library. The library now contains approximately 100,000 books and pamphlets, a unique collection of carefully selected material covering the whole field of social welfare. It is particularly rich in pamphlet material and in reports of special investigations, not to be found usually in general collections. Such reports contain the record of the newest and most significant developments in the field of social research.
    The library places special emphasis also on its periodical collection. Through exchange relations established during the year a number of new foreign journals have been added to its current accessions, which now number approximately 2,000 periodicals and newspapers from 45 different countries. These are circulated currently to the special investigators in the different bureaus and to the Monthly Labor Review, as well as made use of in the preparation of the Child-welfare News Summary of the Children’s Bureau and the News-letter of the Women’s Bureau.
    A classified and annotated bibliography covering the literature on child labor and minors in industry for the years 1916-1924 was prepared for the Children’s Bureau and is being printed in its bulletin series. This brings up to date the list published in 1916. Progress was made on the comprehensive bibliography on women in industry which the library is compiling for the Women’s Bureau. The first section, covering the minimum wage for women in the United States and Canada, was completed during the year and is being printed as a bulletin of the Women’s Bureau. A list of recent references on workers’ education was contributed to the Monthly Labor
    ANNUAL REPORT SECRETARY OF LABOR	15
    Review. The list of references on “Labor banks in the United States” contributed to the Library Journal of March 15, 1924, has been widely used.
    In addition to the regular work of cataloguing current accessions it was possible during the year to complete the cataloguing of the arrears of the American trade-union publications and to prepare a special list of the publications of American trade-unions in the library, which is being used in an effort to fill in the many gaps that still exist in this very valuable part of the collection.
    In spite of the progress made there still remains untouched arrears of cataloguing amounting to over 7,000 books and pamphlets, in addition to the collection of material transferred from the Bureau of Industrial Housing and Transportation. Even more serious is the fact that because of the inadequate amount of cataloguing assistance available the library is unable to do systematically the detailed subject indexing of periodicals and other serial publications needed for a highly specialized library service. The catalogue is the key to the resources of the library, and it is a serious loss to the research work of all of the bureaus if it can not be kept up to date and made as effective an instrument as possible. Additional cataloguing assistance constitutes the library’s most pressing need.
    THE CONCILIATION SERVICE
    A gradual increase in the trade disputes submitted to the conciliation service is shown by the comparative statement entitled “ Number and disposition of cases.” (See tabulation.)
    From the beginning of the service in 1913, excluding the fiscal years during which our country was engaged in the World War and during the period of demobilization, there is shown an increase year by year in the cases submitted for conciliation. This does not mean that the number of trade disputes is increasing, but it does mean that the services of the conciliation commissioners is coming into wider appreciation and the prospect is rather that the number of strikes and lockouts may be cut down by efforts of prevention.
    Commissioners of conciliation were assigned during the fiscal year 1924 to 544 trade disputes—strikes, threatened strikes, and lockouts. These cases are listed by States, and the number of workers affected directly and indirectly is set forth in the tables submitted with this report.
    Of the 544 cases in which the representatives of the conciliation service of the Department of Labor exercised their good offices, 415 disputes were settled—346 through the individual efforts of the commissioners and 69 cases were adjusted in cooperation with State or local agencies or with committees of citizens or State and municipal
    16	ANNUAL REPORT SECRETARY OF LABOR
    officials. At the close of the fiscal year, June 30, there were 67 cases pending, most of them of recent origin (a majority of the latter have been closed since the beginning of the new fiscal year), and we have recorded as “ unable to adjust ” 62 cases during the period covered by this report. Since the beginning of the year 24 industrial disputes from the previous year were also satisfactorily adjusted.
    The number of workers directly and indirectly involved in the controversies handled through this service aggregate 497,469. In the tabulation of those indirectly affected the aim is to be extremely conservative because it is impossible to state accurately just how many workers are affected by a suspension of work through a strike or lockout; i. e., a strike might throw out of work scores of individuals employed in industries dependent upon the industry directly concerned. In the garment strike in New York City, complaints were registered from New England interests where cloth, braid, linings, and the like, were produced and where the employees of these mills were in consequence indirectly affected. We record only those immediately affected by a termination or curtailment resulting from a specific controversy.
    It is the earnest desire of the Secretary of Labor to continue developing the conciliation service so that it will ultimately become a more important factor in the prevention of strikes and lockouts through the adjustment of differences arising between the interested parties while production continues and the wages and returns to the management are uninterrupted. Gratifying progress is being made along this line of endeavor.
    It is too much to expect to see the day when strikes and lockouts shall be entirely eliminated, but it is hoped to see a substantial reduction in the number of trade disputes. So long as man is governed by the wholesome desire for gain, whether as manager or worker, differences of opinion over working conditions or compensation for service or over output or problems of production are bound to arise.
    When this point in difference in opinion develops good judgment on the part of both employer and employee requires a calm and dispassionate consideration of the disputed issues through the method of joint conference, where the simple plan of getting together removes the spirit of personal antagonism and clears the way for an honest and genuine effort to approach the problems presented and solve them to the best interests of all concerned. If this method should fail, then the intervention of an impartial third party, in the person of a commissioner of conciliation, will prove of material aid in clearing up the points that keep the contending interests apart.
    Even where the disputants agree to a joint conference it is well to have the advice and assistance of a United States commissioner, be
    ANNUAL REPORT SECRETARY OF LABOR
    17
    cause conciliation is his business and the experience he has gained from his services in this field makes him a dependable adviser even though he takes no part in the making of the agreement.
    The proof of the effectiveness of these mediatorial agents of the Department of Labor is attested by scores of appreciative letters received annually from both employers and committees of workers who have had their differences adjusted through these governmental peacemakers in .industry.
    The Secretary of Labor is anxious and willing to aid in the maintenance of industrial amity, and to that end the conciliation commissioners are always at the service of the employers and workers of our common country. These representatives of the Government will cooperate with State and local agencies or with any committee or officials charged with or voluntarily endeavoring to settle strikes, threatened strikes, or lockouts, or with any agency engaged in the laudable effort of seeking to prevent a cessation of work in any industrial plant likely tc be affected by controversial issues.
    As a matter of public interest a brief description of some typical cases handled by the conciliation service of the department follows. Space precludes the insertion of the entire number of cases presented during the fiscal year, and in many instances those described do not represent major cases, but the cases outlined do give a general perspective of the conciliation work of the Government:
    Shell Oil Co. of California—An important industrial event on the Pacific coast in 1923 was the negotiation of the memorandum of terms by and between the Shell Oil Co. of California, their employees, and the Federal oil board, the latter being composed of Commissioners of Conciliation E. P. Marsh and Charles T. Connell, duly appointed as the successors to the President’s Mediation Commission. On the 27th of August the officials of the Shell Oil Co., the wage committee of the Shell company employees, 17 in number, together with the Federal oil board, convened at the Federal building, Santa Barbara, Calif., the conference being presided over by the chairman of the Federal oil board, for the purpose of negotiating a memorandum of terms covering wages, working conditions, and the classification of workers. After a four-days’ session replete with harmony and good will, an agreement was reached effective September 1, 1923, to August 31, 1924, with provisions for an adjuster and a clause attached that the Federal oil board may call a conference within 60 days of the expiration of the memorandum of terms with a view to a renewal. This memorandum of terms is in fact a tri-partite agreement and provides for shop committees who are authorized to adjust grievances in conjunction with the management in each separate district, with final appeal to the adjuster named therein, Hywel Davies, commissioner of conciliation, Department of Labor. There are 4,500 employees in the Shell company directly and indirectly affected, and the operations of the company extend over large areas in the State of California, some 10 districts in widely scattered parts of the State. The outstanding feature of the negotiations is the fact that the Shell Oil Co. pays during the life of the memorandum of terms 25 cents a day on every classification more than the other old-line companies
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    ANNUAL REPORT SECRETARY OF LABOR
    operating in California, or the base rate adopted by the other companies effective September 1, 1921.
    Street railway men, Pittsburgh, Pa.—A distinguishing feature giving the Pittsburgh street railway strike an outstanding place in the industrial events of the year is recognized in the high standard and plane of action that characterized the procedure of the entire affair. Both the company and its employees are to be commended for the conservative attitude manifested in defending their respective interests. On both sides there was apparent a full consciousness of the grave responsibilities involved, the possibilities of a long-drawn-out fight, perhaps the destruction of life and property, the suffering of the members of the families of the workers concerned, and the great inconvenience to the public. Frequently a conciliator finds a gulf of alienation and misinterpretation between those involved in a labor dispute, but in this case the attitude of both sides was reciprocal, with a converging of ideas in an earnest seeking of a solution of the problems before them.
    At midnight on May 12, 1924, 3,200 went out on strike. Miss M. Emmilinne Pitt, L. R. Thomas, and A. L. Faulkner represented the Department of Labor in the negotiations. A joint conference of the interested parties, participated in by Miss Pitt, Mr. M. P. Frederick, representing the State department of labor and industries, and the mayor of Pittsburgh, convened at 9.30 a. m. on May 12 and remained in continuous session until 2.30 a. m., when an agreement was reached, subject to ratification by the membership of the union. At the conference the strikers’ representatives waived their demands for a wage increase. The plan of adjustment called for a two years’ agreement at the old rate of 67 cents per hour. The company agreed to pay one-half the cost of one uniform a year for each man in the service. At a mass meeting of the strikers the agreement was ratified and operations were resumed.
    Jurisdictional dispute, Cedar Rapids, Iowa.—The jurisdictional dispute has probably done more injury to the cause of organized labor in the United States than any other single thing. The spectacle of workers employing the strike weapon against their own fellows is a violation of the whole spirit of trade-unionism and has done much to injure the trade-union principle in the minds of many employers. These disputes, however, are by no means uncommon. An illustration occurred in the city of Cedar Rapids, Iowa, where a courthouse was under construction. A dispute arose as to which craft had the driving of the piles. The carpenters were doing the work and the ironworkers were claiming it. Commissioner of Conciliation F. A. Canfield endeavored to compose the differences, after the Building Trades Council of Cedar Rapids had endeavored to arrive at an amicable settlement. Commissioner Canfield wired Mr. John Donlin, president of the building trades department of the American Federation of Labor, for information as to which craft had been given this class of work by the national board of jurisdictional awards. Mr. Donlin replied to the effect that the work belonged to the carpenters. An amusing feature of the case was that when the telegram was handed to the secretary of the ironworkers he declared that Mr. Donlin never wrote the telegram and that it was “ concocted ” by Commissioner Canfield himself. Nevertheless the award was accepted and a strike happily averted.
    Teamsters and truck drivers, Cincinnati, Ohio.—A threatened strike of teamsters and truck drivers at Cincinnati, Ohio, on July 31, 1923, furnishes evidence of the value of the conciliation service of the Government when an opportunity is given to render service before a strike actually occurs. Here was an instance of a local union with a paid-up membership of 1,800 demanding a flat increase in wages of $6 a week and changes in working rules that meant a further increase of from $1.50 to $2 a week. These men were fully
    ANNUAL REPORT SECRETARY OF LABOR
    19
    determined to strike for their demands on the expiration of their yearly agreement with their employers on July 31, while the employers were equally determined to concede nothing more than a renewal of the 1922 agreement. Mr. Fred Keightly was the conciliator assigned to the case.
    After two very busy days with the representatives of both sides, the department’s representative was successful in getting the employers to make a compromise offer of $2 a week increase in wages and a readjustment of working conditions that meant a further increase of $1.25 a week. This offer was accepted with enthusiasm at a meeting of 1,400 teamsters and truck drivers, thus avoiding by one day what might have turned out to be one of the most bitter and costly strikes in Cincinnati’s history. Mr. Keightly received hearty thanks for the services rendered by the department in this matter not only from the employers’ and employees’ representatives but also from a number of contractors who had buildings under construction and to whom a strike would have meant heavy loss and much delay in completing contracts.
    Louisville <£• Nashville Railroad shopcrafts, Corbin, Ky.—The Department of Labor was asked to utilize its good offices in securing reemployment for a large number of shopcraft employees of the Louisville & Nashville Railroad Co. at Corbin, Ky. These men had been on strike since the big strike of 1922. When the strike was declared off all vacant positions had been filled and the management refused to give preference to its old employees. Commissioner George H. Van Fleet represented the department in the negotiations. He proceeded to the scene of the trouble and found that 317 men were out of work. Of these 280 were married men who owned homes in or around Corbin. These workers were all mountaineers who had been recruited some years before and had never worked for any other company. When the Louisville & Nashville first installed its shops in Corbin it had been forced to import all of its help, but these men could not be prevailed upon to remain in the town and the company went into the mountains and hired its help there. At the time of the strike these employees had been in the employ of the company from 5 to 20 years. They had lived secluded lives in the mountains for gene- ations and were not conversant with the ways of the outside world. They seemed to think that if they could not work for the Louisville & Nashville it was the end of everything for them. They had no idea of working for anyone else. They seemed desperately in need of help. Commissioner Van Fleet called upon the master mechanic and was told that the orders from headquarters at Louisville were that none of the old men were to be reemployed. The commissioner took a list of the men, and in many cases, their life history, to the management at Louisville. Sympathy for the old employees was his only plea; he pleaded with the general manager to give these old employees another chance. Finally, after a conference lasting several hours, the general manager agreed to withdraw his order and the master mechanic at Corbin was instructed to hire back his old men as fast as work could be found for them. This order cleared up the situation to the intense gratification of the old employees.
    Hudson Coal Co.—On October 6, 1923, the general grievance committee of the Hudson Coal Co. met and declared a general strike against the company, involving 22,000 miners. The strike became effective on October 9. This strike was typical of a number of sporadic suspensions of work which have disturbed the anthracite industry during the past year. Failure of the company to adjust grievances protested by the miners for some weeks back was the cause of the strike order. Inability of the grievance committee to secure the sanction of President Rinaldo Cappellini, of district No. 1, United Mine
    20	ANNUAL REPORT SECRETARY OF LABOR
    Workers of America, before going on strike, caused the suspension to be termed an “ outlaw strike.” The company pleaded for time and promised that all grievances would be adjusted satisfactorily within a week. Commissioner of Conciliation Thomas Davis, who has handled the disturbances in the anthracite field for the department, took up the case. Visiting the district offices of the mine workers’ organization, he was invited by the district officers to accompany them to a mass meeting of the miners. After listening to the discussion for hours, during which time no prospect of a settlement appeared probable, the commissioner was asked to take the floor and give his opinion of the situation. He complied, pointing out in emphatic manner that the miners were violating the laws of their own union and disregarding the sacredness of their contract. He explained to them that their action was harmful to their cause, inasmuch as the public would hold them responsible for breaking their contract. The commissioner’s words were commended by some of the miners’ representatives present, and the question of return to work was put to a vote. By a small majority it was voted to call off the strike and let the case go through the regular channels for adjustment.
    Teamsters and truck drivers, Belleville, III.-—Commissioner of Conciliation Edward Stewart was instrumental in adjusting a strike of teamsters and truck drivers at Belleville, Ill. The strike occurred on January 22, 1924. The demands were for 8 hours a day in place of 9 and a wage increase of 50 cents a day. It developed that the employers were willing to negotiate a settlement with the teamsters provided the business agent of the building trades council, who had been acting for the strikers and who had become very objectionable to the employers, should withdraw from the case. When Commissioner Stewart found that the activity of the business agent was standing in the way of a settlement he suggested that the negotiations be conducted directly with the international officers of the union at Indianapolis. This course was followed and the place of negotiations transferred to Indianapolis, where Mr. Stewart brought representatives of the employers to the international headquarters for a conference. An adjustment was soon reached which provided for a wage increase of 50 cents a day and the 8-hour day.
    The importance of this settlement lay in the fact that Belleville is largely supplied with foodstuffs and many other essentials by trucks from St. Louis. These supplies were all held up; and as the weather was severe at the time, the situation had become serious. The settlement was hailed with great satisfaction.
    Painters, Hudson County, N. J.—On May 5 the painters of Bayonne, Hoboken, Jersey City, Union Hill, and West New York, municipalities located in Hudson County, N. J., went on strike to enforce increase of $2 a day, which would make the wage rate $12 a day in the section named. Commissioners John A. Moffitt and Jacob Tazelaar were assigned to the case. They found that the master painters were not organized into an association, hence they were compelled to deal directly with each firm. The commissioners interviewed the parties at issue and proffered their good offices. A large mapority of the master painters were desirous of a settlement and in a frame of mind to grant the demands. A few of the larger employers, however, were adamant' in their refusal to make the concession demanded. This brought about a division among the master painters that was a contributing factor in the final result. It exemplified the truthfulness of the adage that “A house divided against itself can not stand.” At the end of the first week fully 95 pei* cent of the employers had granted the demands of the strikers and the men affected had returned to work. It appeared that the primary reason why the larger employes failed to sign up was the fact that the representatives of the union
    ANNUAL REPORT SECRETARY OF LABOR
    21
    refused to recognize the person selected by the employers to represent them. They claimed that when the master painters selected a painter to represent them, rather than a real estate agent, they would be glad to confer with such a representative. This was not done, however, and some 75 of the striking painters were still out when the commissioners concluded their efforts. A total of 800 men were directly affected.
    Painters and decorators, Orange, N. J.—Members of the Brotherhood of Painters and Decorators, Local Union No. 242, of Orange, N. J., went on strike in April, 1924, for increased wages and shorter hours, to wit, an increase from $9 to $10 a day and a decrease from 44 to 40 hours a week. Messrs. Jacob Tazelaar and John A. Moffitt were designated by the department as mediators to effect an adjustment if possible. An interview was had with Mr. C. J. Davis, business agent of the union, and Messrs. Christiansen and Ogletree, representing the Master Painters’ Association, the result of which was that the employers acceded to the demands so far as wages and hours were concerned, but objected to the journeymen painters doing odd jobs after hours. They also insisted that boss painters should not belong to the union but should be required to hold membership in the Master Painters’ Association. The latter two points were referred to a conference of the journeymen and employers, and a compromise was agreed to, which allowed boss painters who wish to do so to retain membership in the journeymen’s organizations but providing that no odd jobs should be taken and done after working hours. With this compromise the strike was declared off. About 475 men were directly affected.
    Fishermen on the Great Lakes.—Two organizations were involved in a strike of fishermen which centered at Erie, Pa., in the summer of 1923, viz, the Fishermen’s Union and the Lake Tugmen’s Protective Association. The first-named organization is composed of fishermen who are engaged in that industry along the chain of lakes, while the latter is composed of captains and engineers who man the fishing boats. The fishermen receive no guaranteed wage, their compensation being based on a set price per ton on all the fish they catch, different kinds of fish bringing various prices. The members of the Lake Tugmen’s Protective Association receive a wage of $175 a month, together with a percentage, which totals 3 per cent of the catch, as a bonus. During the summer of 1923 the Lake Tugmen’s Association decided it was due them to have representation at the producers’ and fishermen’s meetings when schedules were made and prices on the catches were set. This had never been the custom before, and inasmuch as these men had received their established wage, whereas the fishermen were only piece workers, the latter resented this arrangement, and operations ceased at Erie, which is one of the largest ports in the industry. Commissioner of Conciliation Thomas M. Finn was directed to take up the situation. He found the vessels tied up at their docks and the men loitering about the boats. The situation had developed into an internal organization fight. The commissioner got in touch with President William Freitas, of the Lake Tugmen’s Association, and President William Maher, of the Fishermen’s Union. Conferences were held and the question discussed from every angle. The one thing which caused the most discussion was the fact that both organizations were under contract for one year, and the suspension of work was a violation of contract and was unauthorized by the international presidents. Commissioner Finn was authorized by the president of the Lake Tugmen’s Association to render a decision which would be binding upon the members of that organization, the president agreeing to ask the men to return to work and withdraw their demands. This was done and a decision rendered that was the cause of much comment among union leaders
    22	ANNUAL REPORT SECRETARY OF LABOR
    in the fishing industry. The decision was to the effect that, inasmuch as the strike was unauthorized, illegal, and called without the knowledge or consent of the international president, and as the men involved were under contract, they return immediately to work and take up the question involved at their convention to be held in 1924, and there discuss and settle the matter; also, that when operations resumed neither side discuss the matter with the other until after the convention was held. The commissioner then appeared before the meeting of the tugmen’s association and read his decision, thereby ending one of the few strikes that have occurred along the chain of lakes, and the only one so far recorded in which the above question was involved. About 500 men were directly involved, and had the situation not been cleared up it was understood that every fishing vessel along the south shore of Lake Erie, from Erie to Lorain, would have pulled their nets, affecting 5,000 men in the industry. At the convention the matter was adjusted. Both organizations extended their thanks to the conciliation service, and to-day there are no two crafts organizations in any industry that work in closer cooperation than the Fishermen’s Union and the Lake Tugmen’s Protective Association.
    Washington, Baltimore <& Annapolis Railway Co.—On September 22, 1923, the department assigned Commissioner John B. Colpoys to a threatened strike of the shopmen of the Washington, Baltimore & Annapolis Railway Co. The negotiations extended over a period of seven weeks. The men threatened to strike on three different occasions but were restrained through the advice of Commissioner Colpoys. Presuming that the negotiations would be long drawn out, the department’s representative suggested that whatever wages were finally agreed upon should be retroactive to October 1, and this provision was accepted by both sides. The demands of the shopmen were such that it appeared that the granting of them would work a serious financial hardship, as the earnings for the past year would prevent the company meeting the demands of the employees. The settlement which was finally reached was due to the exceptional spirit of fairness manifested by the officials of the road. The adjustment was reached by using the Baltimore & Ohio Railroad shop crafts agreement as a basis for a settlement, and in most instances the scale of rates as embodied in that agreement were made applicable to the Washington. Baltimore & Annapolis employees. This makes the conditions of these employees better than that of any workmen employed on any other interurban railroad. The average wage prior to the agreement was 48 cents an hour, and this was increased to an average of 73 cents, a very substantial advance. The men wanted a union agreement with full recognition, but this the company refused to accede, and the commissioner persuaded the employees to drop this demand. The agreement was then signed by representatives of both sides.
    A number of other industrial disputes in the District of Columbia were successfully adjusted by Commissioner Colpoys. These controversies affected the baking industry, retail clerks, butchers, carpenters, and plasterers. No major dispute arose in the Capital City during the past year.
    Ladies' garment workers. Waterbury, Conn.—Commissioner R. A. Brown was assigned by the department to a strike of ladies’ garment workers at Waterbury, Conn. A unique feature of this case was the fact that the attorney for the company, contrary to the usual procedure in such cases, strongly advised his clients to grant the demands of the strikers, including recognition of their union, and including a clause in the agreement which provided that members of the union should not become delinquent in their union dues. When Commissioner Brown arrived at Waterbury the men were on strike, and considerable bitterness had been aroused on account of the arrest of a striker for alleged abusive language and murderous threats against his employer. The
    ANNUAL REPORT SECRETARY OF LABOR
    23
    case was dismissed by the court, however, with a statement by the judge that there appeared to be much doubt as to the truthfulness of the allegations. The department’s representative arranged a joint conference of the contending parties. The firm of Luria Bros., acting for the other manufacturers, specified that their attorney should be present or there would be no conference. There being no objection to his presence, he sat in and was largely instrumental in arranging a settlement. Due to his liberal views, practically all of the demands of the strikers were granted, including the 44-hour week in place of a 54-hour schedule and full recognition of the union.
    Stark Electric Co., Alliance, Ohio.—Beg lining May 1, 1924, and continuing for five days, the trolley lines in the city of Alliance, Ohio, and the suburban lines connecting that city with Salem and Canton, Ohio, were tied up by a strike. Commissioner of Conciliation Hugh D. Friel was assigned to the difficulties. The joint agreement under which operations were conducted prior to May 1 contained a provision whereby either party might secure the reopening of the agreement by serving notice on the other party at least 30 days prior to that date. In case neither party availed itself of this privilege the agreement would remain in full force and effect for another year. The employees decided that they would not request an opening of the agreement and would continue working under the old conditions for another year. The Stark Electric Co., however, served notice on the employees, as required, to bring about a reopening of the agreement and enter negotiations for a new one containing certain changes desired. A conference was arranged and the meeting opened with a proposal by the company for 10 ■changes in the agreement, including a 10-cents-per-hour reduction in wages. The employees countered with a demand for 10 changes, including a wage increase of 10 cents per hour. After several days’ deliberation the company receded from its original position on the question of wages and offered to settle on a 4-cents-per-hour reduction. The union would concede no reduction. The old agreement contained an arbitration clause providing that all disputes should be referred to a board of arbitration. The questions at issue did not reach the point of arbitration, however, when May 1 arrived. As the clause did not provide for continuous operations pending arbitraton, the employees took advantage of the fact and walked out. Negotiations had been suspended and no efforts were being made to arbitrate the differences when Commissioner Friel arrived on the scene. The comm ssioner conferred with the representatives of the union and then with the general manager of the company. Both parties agreed to meet in joint conference with the commissioner. A four-hour session followed without a settlement being reached, when the commissioner suggested arbitration of the questions in dispute. The company agreed to the proposition, but when it was referred to a mass meeting of the employees it was rejected by secret ballot. Another meeting was called for Sunday, May 4, when the employees agreed to concede changes in the agreement proposed by the company if an increase of 2 cents per hour were allowed. A series of separate conferences followed, Mr. Friel going from side to side with counter propos tions. On Monday, May 5, the company finally agreed to restore the old wage. A draft of the proposed new agreement, embodying all the changes agreeable to both parties was made, providing no change in wages. The final proposal was presented to the street car men in their meeting at 1 o’clock on May 5, and after a lengthy and exhaustive discussion was accepted by a two-thirds majority. This left nothing further to be accomplished but the formality of attaching the signatures of the contracting parties and the witnesses to the agreement. This was accomplished by 5 o’clock, and operations
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    were resumed the next morning. Entire satisfaction over the settlement was expressed by both sides.
    Chester Knitting Mills, Collinsville, III.—On March 1, 1924, Commissioner Benjamin M. Marshman took up the case of the hosiery workers’ strike at the plant of the Chester Knitting Mill Co., Collinsville, Ill. He found that the strike dated back to July 31, 1923, when a reduction on piecework had gone into effect. An international officer of the Textile Workers’ Union had spent considerable time in Collinsville attempting to negotiate a settlement, but had failed to do so. It developed that about two months after the strike occurred the company moved all the machinery out of the Collinsville mill and shipped it to their other mills in various cities. The strike existed, therefore, only in name. After learning of these facts the commissioner informed the committee of workers that under these circumstances they should not cling to any false hopes, as it was very doubtful if the company would submit to conciliation, but he promised to take the case up with the proper officials. In conference with the president of the company the commissioner was informed that the strike was a closed incident. However, Mr. Marshman pointed out to the president the fact that these experienced workers were valuable assets of the company, that it still owned the mills there, and that prominent business men in the town were financially interested in the company and were desirous of its reopening the plant. The president’s response was that he felt very kindly toward his former employees at Collinsville and that the blame for the strike lay with the international organizer rather than his former workers. He expressed a wish to appear before a meeting of the strikers and present the company’s side of the matter to them, and said that he would be guided as to future negotiations by the sentiment of the membership. The commissioner carried the president’s views to a committee of the strikers, and was asked to address a gathering of the strikers at their next general meeting and convey to them the attitude of the company. He did so, and the membership voted unanimously to extend an invitation to the president of the company to come and address them, and elected a committee to call on him and extend the invitation. Unfortunately, business engagements prevented the president from addressing his former employees as planned. Some six weeks elapsed before an opportunity presented itself for the original plans to be carried out. In the meantime, however, the views of the president as to the cause of the strike had undergone a change. While he had previously laid the blame for the strike upon the international organizer, he now claimed to have information that this official was not blameworthy but that the labor movement itself in Collinsville was to be held responsible. Nevertheless, he consented to address his former employees, and did so on April 9, Commissioner Marshman attending the meeting. The commissioner prevailed upon the president to make a rigid investigation of the reports he had received before definitely declining to reopen his mills. He then addressed a special meeting of the membership of the hosiery workers the following afternoon in order to explain the president’s changed attitude. He suggested to the membership that they appoint a committee to confer with the president and remove his suspicion as to further trouble if the mill were reopened. He then again took the matter up with the president, urging him to maintain an open mind on the subject, with the hope that a satisfactory settlement might eventually be brought about. At the end of the fiscal year, June 30, the matter was still pending. While mediation failed in this case to restore those workers to their jobs, the methods employed by the conciliator illustrate in a small way the working out of the purpose of the Department of Labor as expressed in the organic act, viz, “ to foster, promote, and develop the welfare of the
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    wage earners of the United States, to improve their working conditions, and to advance their opportunities for profitable employment.”
    Coal miners, Canaanville, Ohio.—The president of the United Mine Workers of America of the Hocking Valley district in Ohio requested the good offices of Commissioner William Robinett in adjusting a strike in the mines at Canaanville. It appeared that the strike grew out of the discharge of three drivers who were accused by the management of reckless handling of coal cars. Investigations of the matter were made by both the management and the union and different conclusions were reached. The evidence of the miners who rode in the cars was favorable to the discharged men. The union demanded the reinstatement of the discharged drivers, and when the management declined to do so a strike was declared. A section of the agreement under which the operators and miners were working provided that a dispute should be referred to the Southern Coal Exchange in the event that a satisfactory settlement could not be effected otherwise. This course was not followed, however. The commissioner brought the contending parties together and after much discussion it was agreed to refer the case to the district president of the mine workers* organization for a decision. His decision reinstated two of the discharged men to their former positions and the third was given a place loading coal. This brought the strike, which had affected 275 miners, to a close.
    Cloth hat and cap makers, New York City.—On July 8, 1924, Commissioner of Conciliation Jacob Tazelaar was assigned to a strike of cloth hat and cap makers in New York City. These workers, numbering 2,000, had gone out on strike on July 2. The main issue was the grouping of the workers working at the trade, unemployment insurance, and a general increase in wages. The strike was adjusted on July 11 in a manner satisfactory to both parties. An agreement was entered into for a two-year period affecting all of the shops controlled by the Cloth Hat and Cap Manufacturers’ Association and the Wholesale Cloth Hat and Cap Manufacturers’ Association. The main provisions of the agreement follow:
    “ That all the work in shops, such as cutting, operating, blocking, packing, lining making, trimming, and pressing to be done by members of the union, thereby abolishing the so-called cooperative shops, or shops having a number of officials who worked in such shops under conditions not controlled by the union, which it was alleged caused idleness to the members of the union.
    “ Wages of learners or persons coming into the trade temporarily or otherwise, and admitted not to be thoroughly competent, to be fixed and determined upon at stated periods of three months.
    “	Unemployment insurance to be taken care of by an assessment of 3 per cent of the pay roll, to be paid in by the employers each week; said amount to be deducted from the wages of all employees, and to be paid over to the joint council of Greater New York of the United Cloth Hat and Cap Makers’ Union of North America.
    “	That a statement be made by the employers setting forth a list of workers and the amount of wages paid for each week, thereby supplying the data on which the 3 per cent payment for the week in question is being made.
    “The immediate readjustment of prices regarding the wages paid to learners and others not classified as competent, amounting to about 10 per cent increase over old rates, involving approximately 500 workers.”
    Cut-sole workers, Lynn, Mass.—On March 17, 1924, the department detailed Commissioner Anna Weinstock to Lynn, Mass., with instructions to be helpful in adjusting the strike of cut-sole makers in that city. Two firms, Hilliard & Merrill and Stephenson & Osburn were involved in the strike and about 140 cut-sole makers were out. The latter company had locked out its employees
    26	ANNUAL REPORT SECRETARY OF LABOR
    when they were about to make demands upon it. Adjustment of wages also brought about the strike at the plant of Hilliard & Merrill. Commissioner Weinstock arranged a joint conference between the Hilliard & Merrill Co. and its striking employees, at which an adjustment was reached subject to ratification by the strikers. At a mass meeting the next day the settlement was ratified and the strike declared off. During the same day a joint conference of the employees of Stephenson & Osburn and the company officials was arranged by the department’s representative and an agreement worked out. Both firms agreed to recognize shop committees and to adjust wages. The result of the commissioner's visit to Lynn was gratifying in that a better understanding and a more friendly feeling was established, and in addition machinery was established which tends to maintain, via the conference table, peace and cooperation in these establishments.
    Bush Terminal Co., New York.—The clerks and freight handlers employed by the Bush Terminal Co., New York City, made demands upon the company for a signed agreement and a reclassification of wages. Several conferences were held between representatives of the company and the employees without result. Commissioners Thomas J. Williams and W. C. Diller, of the Department of Labor, were assigned and proceeded to get in touch with the situation. A joint conference was arranged, participated in by the department’s representatives, but no agreement was reached, and a strike became effective, involving 257 workers. The Bush Terminal is a rather unique institution. It furnishes complete service, including light, heat, power, and elevator and other transportation for its tenants in a large number of buildings. These tenants are engaged in various industrial pursuits, and the company engages to assist in bringing in the raw materials and ship out the finished products. Probably 40,000 workers are employed in the many industries housed by this great corporation. The strike involved only the employees of the company itself, but threatened to interfere with the service rendered by the company to its many tenants. A number of new employees, however, were obtained by the company during the two weeks’ duration of the strike. The commissioners kept in touch with the situation and were able to bring about a settlement eminently satisfactory to all concerned. All the old employees were reinstated without discrimination. The company met with a committee of its old employees and agreed to take up the question of reclassification of workers and to revise working conditions and wages. No signed agreement was made, but the conditions of employment were posted on the company’s bulletin board and a general increase in wages granted. A friendlier feeling has been engendered between the company and its employees and the sporadic strikes which had previously been a source of trouble are apparently ended.
    Cocheco Mills, Dover, N. H.—The Cocheco cotton mills of Dover, N. H., were closed by a stubborn strike of six months’ duration during 1923. The price of cotton soared and made it necessary for the company to meet a condition that had troubled it for some time. The class of goods which the mill was equipped to make was costing about a third more per pound of cloth than in some other competing districts. For example, a Cocheco weaver ran 16 automatic looms, while a weaver in certain competing mills was operating double that number or more, making the same style of fabric. The management of the Cocheco therefore declared it was necessary to rearrange the work of the mill. It was proposed to relieve a weaver of the jobs of filling batteries, taking off cloth, and “ sweeping up.” With these eliminated it was said that a weaver could keep many more looms in operation. It was appreciated that the success of the undertaking lay in the cooperation of the operatives, but there were some defects manifest in the method by which such cooperation was sought. To
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    many of the weavers a change in system was the forerunner of a lower wage and a curtailing of jobs. If the number of looms per weaver were increased, they reasoned, there would be a decreasing demand for weavers. The reply of the management was that a demonstration would be necessary to determine it, and this would take time. Some demonstrations were attempted in the weaving and spinning departments, but these seemed to confirm a state of mind among the operatives that it couldn’t be done. Confidence, the most important element in employment relations, was lacking; in its place suspicion ruled. Impatience crept in, pressure for results Increased, tempers clashed, and hasty opinions were freely expressed and freely condemned. The actual break came on November 17, 1923. The weavers declined to perform the work in accordance with the plan as outlined by the management and the mills shut down. Conferences between the executives and representatives of the operatives were without profit. Later on a substantial number of the operatives joined a local union affiliated with the United Textile Workers and a strike was officially declared to exist. The case settled down to a test of endurance.
    A division of sentiment occurred among the members of the union. Those “ craving action ” left it and formed a group known as the “ One Big Union.” When the mill opened its gates and attempted to operate members of the One Big Union engaged in such an active program of picketing that the chief of police augmented his force with patrolmen from other cities. The excitement soon died, because the mill closed its gates and the dispute resumed its state of inaction.
    On May 9 three commissioners of the Department of Labor were assigned to settle the strike if possible—Messrs. Charles G. Wood, R. A. Brown, and Anna Weinstock. They found a condition most unpromising for an adjustment, as the two unions were violently antagonistic. Before taking up the matters in dispute between the employer and employees the commissioners had to compose many differences of opinion between the unions. The cooperation of the State labor commissioner, the mayor of Dover, and the citizens’ committee was generously conferred. Representatives of the company were interviewed. The new method of performing the work was inspected and explained to the commissioners. A knowledge of the policy of the management to be fair and honorable, the commissioners felt, justified them in an endeavor to establish confidence in the plan in the minds of the employees and a like confidence in the operatives on the part of the employer. When the parties were in a frame of mind to meet together and discuss the matters in controversy in a businesslike way a conference was arranged and continued until the parties reached a good understanding. Then the employees met and a majority voted to call off the strike and cooperate with the employer in working out changes in the old methods of production. Thus was ended in a few days a strike that had lasted over six months, which had caused a loss to 1,075 employees of over $800,000 in wages, a large overhead loss to the company, besides a potential loss of over 20,000,000 yards of cloth valued at something like $2,500,000.
    Painters, decorators, and paperhangers, St. Louis, Mo.—On March 15, 1924, the painters, decorators, and paperhangers of St. Louis, Mo., went on strike in support of their demands for a 40-hour week and $12 a day. The old rate had been $9 a day with a 44-hour week. Commissioner of Conciliation E. H. Dunnigan was assigned to the case on April 8. In a conference with the chairman of the labor committee of the St. Louis Master Painters and Decorators’ Association, Mr. Dunnigan learned that the organization was composed of 54 paint contractors, who employed 80 per cent of these craftsmen in the city. It appeared that some contractors, not members of the associa-16376—24------------3
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    ANNUAL REPORT SECRETARY OF LABOR
    tion, had granted the demands of the union. The commissioner was also informed that in addition to the demands mentioned, the union had presented a request for many drastic changes in working rules and conditions which had greatly incensed the contractors, who now declared that they would never consent to any agreement but would pay $10 a day for a 44-hour week. On April 11 the commissioner arranged a joint conference of the contending parties. At this meeting he presented a proposition calling for a compromise rate of $11 a day. The union’s committee showed a disposition to accept this proposition, but the association’s committee turned it down, and the conference adjourned. On April 12 a second joint conference was held. A further compromise offer of $10.50 per day was presented, this offer having been tentatively agreed to by the painters’ representatives and by some of the contractors. However, a poll of the employers’ representatives showed a majority against the proposition, and after an hour’s discussion an adjournment was made without reaching an agreement. This second failure caused the union’s committee to become very hostile toward the Master Painters’ Association. A mass meeting of all the painters was called and a resolution adopted instructing the committee to stand out for $11 a day. This, however, was a reduction of $1 a day from the original demands and granted to the contractors who had signed the $12 rate a reduction of $1 a day. A long series of separate conferences followed. Many times it appeared that negotiations were about to end without an agreement, but Mr. Dunnigan continued the separate conferences in an endeavor to discover some basis upon which an adjustment could be made. During this period nonunion painters were brought into the city and put to work, and this action was followed by many acts of vandalism. Finally, on May 2, the commissioner succeeded for the third time in arranging for a joint conference of the strikers’ representatives and their employers. In order that some tangible proposition might be in order for discussion, he suggested a wage rate of $10.20 a day. Before the wage question could be disposed of, however, the matter of a signed agreement came up. This question was referred to a subcommittee, which, after an hour’s time, presented the following-agreement, which was unanimously adopted by the joint conference:
    “ This is to certify that, on and after May 5, 1924, the undersigned do hereby agree to pay a scale of wages of $------- an hour to all journeymen painters
    and paperhangers affiliated with the Painters’ District Council No. 2 of St. Louis and vicinity. This agreement to be conditioned upon the understanding that it applies to the trade and working rules as in force during the last joint agreement period, with slight modifications, when mutually agreed upon by the Master Painters and Decorators’ Association and the Painters’ District Council No. 2: Provided further, That in the event no general readjustment of wage agreements takes place in a majority of the building trades organizations (exclusive of this industry) on or before April 15, 1925, then this agreement can be reopened by either party.”
    With the question of agreement out of the way, the conference again took up the matter of wages. After three hours of argument and discussion the conference finally agreed to an adjustment on a basis of $10.40 a day or $1.30 an hour. The whole proposition was then submitted to a mass meeting of the painters attended by over 1,400 strikers and was ratified. More than 1,800 men were directly affected by the settlement.
    Carpenters, Pittsburgh, Pa.—The annual contract between the Carpenters’ District Council and the Master Builders’ Association of Pittsburgh, Pa., expired March 1, 1924. Negotiations for a new contract began prior to that date, the most significant points in controversy being demands made by the carpenters for an increase in wages and the elimination of section 3, article 1,
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    29
    of the expiring contract which read, “ There shall be no restriction of the use of any raw or manufactured materials, except prison made.” The “ raw or manufactured materials ” so designated referred to the product of 21 material-supplying planing mills in the Pittsburgh district which had become non-unionized during the strike of 1921. Obeying that clause in the agreement, the carpenters could not object to handling nonunion-produced materials, and could not reorganize the 21 material-producing mills without a modification of contract which would permit them to refuse to handle nonunion materials. Commissioners of Conciliation A. L. Faulkner and L. R. Thomas were assigned to the case on March 17.
    The carpenters remained at work during negotiations with their employers until April 5, when a strike order was issued, effective April 7, directly and Indirectly affecting the total membership of the Carpenters’ District Council of the Pittsburgh district. Although the Master Builders’ Association employed but 700, approximately, of the 5,200 carpenters involved—the remainder being employed by independent contracting firms—that association was recognized by the Carpenters’ District Council as the only responsible body with which annual contracts for wages could be made. It has always been customary for independent firms to accept and sign these contracts. The outstanding feature in the case was the presentation of the new contract, embodying the carpenters’ demands, to the independent contracting firms for signature without a settlement having first been made with the Master Builders’ Association, it having become apparent that the association would not concede the proposed modification, or elimination, of section 3, article 1. The effect of this move on the part of the employees’ officials was plainly apparent from the very beginning. In less! than seven days the new contract was signed by independent contractors sufficient in number to employ practically all the carpenters involved in the strike, thus forcing the 48 members of the Master Builders’ Association into the open labor market to meet their necessities or to make peace with the union and secure union carpenters. They chose the latter course. On April 12, six days after the strike became effective, the master builders decided to make the best possible terms with the carpenters’ union, and on April 13 an agreement between them was reached, effective April 14, which was ratified by a meeting of the carpenters’ union. The men returned to work the same day. The agreement provided for an increase of 17% cents an hour and minor advances in the wage rates of shift men and carpenters’ apprentices. The disputed clause, section 3, article 1, was modified to give the union the opportunity to organize the 21 nonunion planing mills in the Pittsburgh district on the following terms: “After 51 per cent of the mills are unionized the carpenters’ union can refuse to handle material made in nonunion plants.” The contract also provides that orders from the international union will take precedence over the agreement and yet not violate the pact entered into between the Master Builders’ Association and the Carpenters’ District Council. In the opinion of the commissioners the adjustment was beneficial to both employers and employees, in that the sting of a restriction of organization was removed and a better feeling brought about between the two parties.
    Clothmg workers, Duluth, Minn.—On May 14, 1924, the department received a communication from W. E. McEwen, publisher of the Labor World of Duluth, Minn., requesting its good offices in an effort to adjust a strike of nine weeks’ duration in the clothing industry of that city. He reported that the strikers were members of a local branch of the Amalgamated Clothing Workers’ Union employed by the firm of F. A. Patrick & Co., and that they had suspended
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    ANNUAL REPORT SECRETARY OF LABOR
    work following the discharge of eight members, all officers of the local branch of the union. It appeared that the Federated Trades Assembly had attempted to settle the trouble and an offer had been made by the company to reinstate 50 per cent of the strikers. The latter rejected this proposition. Following this offer the superintendent of the factory was reported to have organized the employees in the shop and to have notified Mr. Patrick that these employees .would strike if any of the strikers were permitted to return or if any concessions were made to the Amalgamated Garment Workers’ Union. In response to Mr. McEwen’s request, the department assigned a representative in the person of Mr. W. H. Rodgers to take up the case. The commissioner proceeded to Duluth and got in touch with the situation through conferences with both sides. He was informed by the superintendent of the plant that the eight men originally discharged were not dropped because they were union men but because they solicited other workers to join the union. The Patrick company had always operated as an open shop, and it was stated this policy would be adhered to. The superintendent stated, however, that he would consider the application of a striker if he applied for work as an individual. Not being able to find any middle ground on which he might reach an adjustment, Commissioner Rodgers withdrew temporarily from the case, but returned to Duluth on June 20. In the meantime a disturbance had occurred between the strikers' pickets and the company’s employees, with the result that a number of assault cases came rip for trial. The company also filed an application for an injunction to restrain the strikers from picketing the plant. Finding it impossible to arrange a meeting between the company's representatives and the international officials of the union, who had now arrived at the seat of the trouble, the commissioner put the question to the company as to whether it would reemploy the strikers if the strike were declared off. The reply was that if the strike were declared off, the company would hire the strikers as needed, without prejudice on account of the strike, and in preference to new employees. Advising the union officials of this proposition, the latter requested some assurance as to how long a time it might be before the strikers might be reinstated. At this time the commissioner prevailed upon the superintendent to meet the international officer of the union, and at a final conference held on June 23 a definite understanding was reached that if the strike was called off all litigation would be dropped by both sides, and the superintendent gave assurances that he would hire the strikers as needed without prejudice on account of the strike and would make special effort to provide work for those most in need of employment. A meeting of the strikers was then arranged for the forenoon of June 24. The commissioner addressed the meeting and urged them to call off the strike on the above terms. A vote was taken and the strike terminated, •thus bringing an unhappy situation to an end.
    Hiorth American Lace Co., Philadelphia, Pa.—On March 7, 1924, the North American Lace Co., of Philadelphia, Pa., wired the department that serious labor trouble was imminent at its plant and asking for the assignment of a commissioner of conciliation. Commissioner James F. Dewey was immediately detailed to take up the difficulties. He found that the strike had occurred on March 1. About 150 workers were involved, these being about one-half the number employed in the plant. It developed that the company had discharged three employees who were members of the Auxiliary Workers’ Union, this union being a federal local union affiliated with the American Federation of Labor. The reasons given for the discharge were sleeping on duty, negligence in work, and for squirting water from a hose on other employees during working hours. The union claimed that these three men were discharged for joining the Auxiliary Workers’ Union and that the charges were trumped up for
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    the purpose of finding an excuse on which to act against the union’s organizing campaign. The commissioner conferred with the president of the firm, who declined to yield in the slightest degree from his original attitude which caused the strike, and would agree to no form of compromise. On the other hand, the union officials declared that they would not consider any settlement which did not include reinstatement of the three men discharged and a guaranty that the union would be permitted to proceed with its plan of organizing the department. in which the trouble started. Commissioner Dewey finally succeeded in getting a conference between Mr. Bromley, president of the firm, and a committee of six, representing the auxiliary union and two other lace workers’ unions which had become involved in the strike. The meeting was held on March 14 and a full discussion was had of all the angles to the case. After a four-hour session it was impossible to get the firm to reinstate the three discharged men, and the union refused to settle on any other basis. The commissioner then suggested that, since they could not agree as to the justice of the discharge of these three men, they submit the matter to arbitration. Both sides rejected the arbitration proposal outright. Several subsequent conferences were held on the subject of arbitration and finally an agreement was reached to arbitrate the differences. In referring the proposition to the membership of the union, however, it was voted down. The firm then withdrew their offer to arbitrate and the strike continued. On April 12 the union involved called off the strike and the men returned to work.
    Baking industry, Spokane, Wash.—The principle of collective bargaining has been an instrument of peace in the baking industry of Spokane, Wash., for an extended period. In May, 1924, in the making of a new agreement the question of wages had been successfully adjusted and matter of working conditions was in process of settlement when it was found that the following paragraph had been dropped out of the agreement: “ In baking establishments where no Sunday or holiday work is done, work may be started one hour earlier on Monday or on the day following a holiday.”
    The restoration of this paragraph was insisted upon by the bakers’ organization, and upon this question hinged the question of whether there would be a strike or an amicable settlement. In 1922 there had been a lockout in a large bakery which dominates the trade in the vicinity of Spokane. This bakery seemed to invite a conflict in order to inaugurate the open shop and cancel the policy of collective bargaining under which the industry operated. The union responded with a strike order to become effective at 1.30 p. m. on May 26. The department’s representative, Commissioner Harry E. Gilliam, arranged a joint conference of the representatives of the contending parties to be held at 11.15 a. m. on May 27, having first arranged that the strike order would be withheld until after the joint conference. In 15 minutes the conferees arrived at an amicable adjustment, the strike was averted, and all parties made happy by the result. The difficulty had been that neither side appeared to want to meet the other, but when they finally met around the council table and talked over their troubles the difficulties did not appeal’ so great and were soon smoothed out.
    Threatened strike of motion-picture operators.—On August 1, 1923, 900 motion-picture machine operators of Greater New York threatened to strike. These operators were employed in 540 motion-picture theaters, the closing of which would have thrown out of employment approximately 3,000 other employees. The situation had become critical, both sides making preparations for the struggle, when Commissioners Charles Bendheim and Homer J. Brown intervened and brought about a resumption of negotiations between the parties. The cause of the threatened strike was the inability of the parties to agree
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    ANNUAL REPORT SECRETARY OF LABOR
    on a mutually satisfactory wage scale for the year following August 31, 1923, the operators demanding an increase of 50 per cent, and the motion picture theater owners contending that there could not be any wage increase on account of the depression in the industry. The commissioners arranged a meeting between the president of the Motion Picture Operators’ Union and the president of the Theater Owners’ Chamber of Commerce at the office of Mr. Hugh Frayne, representative of the American Federation of Labor, in New York City. At this meeting no basis of settlement could be reached, but the discussion which ensued engendered a more conciliatory attitude of mind and developed proposals and counterproposals which later culminated in a settlement. This settlement was effected at a final meeting of motionpicture theater owners held at the Astor Hotel on the 29th day of August, 1923, which was attended and addressed by the commissioners. The basis of settlement was a wage increase ranging from 7% to 15 per cent, according to seating capacity of the theater.
    Strike of derrick men and riggers, Greater New York.—Members of the United Derrickmen and Riggers’ Association went on strike on October 15, 1923. They demanded an increase in wages from $9 to $10 a day. Commissioners Charles Bendheim and Homer J. Brown were assigned to the case on October 20, 1923, and promptly conferred with representatives of the union and the Employing Stone Setters’ Association. On October 26, 1923, the commissioners secured from the Employing Stone Setters’ Association a proposition in writing to the following effect: “ That immediately after the members of the United Derrickmen and Riggers’ Association have returned to work under the conditions existing before the present strike, there shall be a meeting between conference committees representing the Employing Stone Setters’ Association and the United Derrickmen and Riggers for the purpose of discussing any grievance or matter of controversy. In case of disagreement in settlement of any matter in dispute, any such subject shall be referred to arbitration, the arbitrators to be appointed at the opening of the conference.” This proposition was presented to a committee representing the United Derrickmen and Riggers’ Association and its acceptance urged. The men were reluctant to return to work prior to the actual granting of the increase demanded, but, finally, on November 9, 1923, at a meeting of the union, it was voted to resume work on Monday, November 12, 1923, and thereafter take up for adjustment question at issue in the manner provided for in the settlement proposal submitted by the Employing Stone Setters’ Association through the commissioners. Conference committees representing the parties met following the resumption of work and effected an agreement dated November 14, 1923, that from December 1, 1923, wages of derrick men would be $9.50 a day, with the proviso that on the first Monday in March, 1924, there would be another conference between the parties to determine the wage for the remainder of the life of the agreement, which runs until May 1, 1925.
    The firms affected by the strike numbered 18, 8 of which were located in New York City, 5 in Brooklyn, 3 in Astoria, Long Island, 1 in Long Island City, and 1 in Richmond Hill, N. Y.
    Strike of marble workers, New York City, Brooklyn, and Long Island City, N. Y.; Jersey City, Newark, and Edgewater, N. J.—On October 1, 1923, 1,200 carvers, cutters, and setters in the employ of members of Marble Industry Employers’ Association of Greater New York went on strike to enforce a demand for a wage increase from $10 to $11 a day. The stoppage of work by these employees caused a loss of employment to approximately 1,800 other employees in the industry, namely, polishers, sawyers, bed rubbers, helpers, etc. It also stopped marblework on all building operations in Greater
    ANNUAL REPORT SECRETARY OF LABOR
    33
    New York and vicinity, and practically closed down 37 marble plants. Among the buildings affected were public schools, county courthouse, Roosevelt Memorial, Standard Oil Building, offices, apartments, and commercial buildings. Commissioners Charles Bendheim and Homer J. Brown, immediately on learning of the situation through publication in the New York press, tendered the good offices of the United States Labor Department to the parties involved and were instrumental in bringing about a joint conference between their respective representatives. This conference was held on the 9th day of October, 1923, at the headquarters of the Building Trades Employers’ Association of Greater New York, and resulted in the Marble Industry Employers’ Association submitting the following settlement proposal: “ Immediately after the cutters, setters, and carvers return to work there shall be a meeting between a committee representing Local No. 4 and the Marble Industry Employers’ Association for the purpose of formulating an agreement. In case there shall be any disagreement as to terms, any such, controverted questions shall be submitted for arbitration. Arbitrators for both sides shall be selected immediately, if possible.” This settlement proposal was not acted upon favorably until the 19th day of October, 1923, when at a meeting of the Marble Workers’ Union it was decided by a majority vote that it be accepted, and work resumed on Monday, October 22, 1923. Immediately after the resumption of work, in pursuance of the terms of settlement, representatives of the respective parties went into conference, the ultimate result of which was the signing of an agreement under the terms of which a wage increase of 50 cents a day was granted, with the further provision that if, in the future, wage increases were granted to any other class of workers in the industry, the additional 50 cents originally demanded would become a subject matter for arbitration.
    Montpelier (Ind.) situation.—In the latter part of October, 1923, the molders employed by the National Steel Castings Co. and the Montpelier Iron Works became involved in a dispute over the establishment of piecework prices on certain classifications of molds. After several weeks of fruitless negotiation a strike was called at this plant during the month of November, 1923. The strike proceeded as many of them do, with both sides holding out against a settlement. The usual plan of picketing was used by the molders, and when it became apparent that an early settlement was impossible the company began to import men from outside. The presence of these men caused considerable comment on the part of the local population, but aside from the usual'strong comment made, things went along peacefully for a time. Early in the morning of January 9, 1924, an explosion took place in front of the hotel where the men were quartered, breaking the windows of the hotel and of many of the business properties along the street. Within a few hours after this took place the 45 members of the union were all arrested and rushed down to the county seat. All were charged with conspiracy and many of them with placing an explosive to destroy the hotel because it had housed the strike breakers.
    On February 21 Commissioner Harry B. Dynes was assigned by wire from Washington to use the department’s good offices in an endeavor to be helpful in this situation. He at once made a trip to Hartford City and Montpelier and found there were still about 30 of the union men in jail, with bonds of $1,000 to $5,000 being asked for their release.
    At Montpelier the conciliator made a careful survey of the situation and a diligent inquiry into the characters, home life, and general standing of the members of the organization in their community. The conclusion was reached that it was the human thing first to make an effort to restore these men to their families, as he found that more than 75 per cent of them owned their
    34	ANNUAL REPORT SECRETARY OF LABOR
    own homes and had been residents of this little community from 10 to 20 years, and, while it was not his duty to fix responsibilities, it was felt that the greater part of these men knew little or nothing about the explosion, and he also felt that until these men were released little or no headway could be made in efforts toward conciliation. With the assistance of State officials and others his efforts were rewarded, and within a short time all the men were out of jail on nominal bonds.
    This phase of the case being accomplished, he next looked forward to an opportunity to bring together the parties on each side of the contention, feeling that inasmuch as these men had been a part of these concerns for many years there must have been some friendship established between the men and the management, and through all the conversations had with the men he found that they had a very kindly feeling for the president of the plant, who is now quite an old gentleman.
    In pursuing his line for a settlement the commissioner went to Fort Wayne and met the president and found that he was very much interested in the plan of the Department of Labor in settling industrial disputes. After a conference with him he called in members of his directorate and it was agreed that the commissioner might invite one of the international officers of the molders’ union to meet them and explain their position in the matter.
    Mr. Dynes proceeded to Cincinnati, took this matter up with the international officials, and they accepted the invitation. A few days later they met again in Fort Wayne and a plan of settlement was agreed upon.
    On the following day this plan was placed before the local union at Montpelier for its sanction. Definite action was postponed until the next morning, during which time a committee was named to meet the plant management; the conference with the management was satisfactory to the committee and it so reported to the local. After some debate on the question a secret ballot was taken and the proposition of settlement was accepted, and on April 18 this trying situation was adjusted.
    The jurisdictional dispute.
    The jurisdictional dispute is the basis for many suspensions that annually occur in the building trades. Some progress is being made toward its elimination as a disturbing factor in the building trades, but this class of disputes still precipitates scores of strikes, affecting thousands of workers directly and indirectly. Attention is directed herewith to a statement on the subject matter from the last annual report:
    The serious effect of the jurisdictional dispute upon both workers and employers—particularly in the building trades—calls for remedial regulation by voluntary agreement on the part of the crafts affected.
    The interests of the public generally are closely interwoven with those of mechanics and builders involved in these disputes. It has frequently happened that because of disputes between contending crafts important undertakings, including hospitals, schools, and other public structures, have been held up, entailing heavy and unnecessary expenses upon the taxpayer.
    It would appear, therefore, that the skilled American craftsmen should without delay formulate some plan that will for all time eliminate these bitterly contested and profitless controversies. If this be not feasible, it' is believed that a more general reference of these jurisdictional problems to the Jurisdictional Board of Award created in 1918-19 would result in the avoidance of many of the interruptions in the building industry.
    ANNUAL REPORT SECRETARY OF LABOR
    35
    The department will gladly lend all possible aid to any and all interests con cerned, with the hope that joint effort shall effectively prevent these disputes, which have done so much injury to building-trades craftsmen, the contractor, and the public.
    Summary of workers affected, by months
    Month	Workmen affected		Month	Workmen affected
    	Directly	Indirectly		Directly	Indirectly
    1923 July		99,935 34,373 17,343 39,018 21, 291 9,975	48,084 9,820 3,015 3,117 4,806 3,967	1924 January. _ 		11,544 15,707 25,906 21,659 79,822 14,200	3,469 4,452 6,784 2,588 11,050 5,544
    August				February .
    September				March.
    October. 				April
    November				May
    December				June
    			Total	,
    				390,773	106, 696
    RECAPITULATION
    Month	Number of cases	Month	Number of cases
    1923 July...				 August			 September	 October	 November		 December		51 51 32 62 37 24	1924 January				 February			 March	 April			 May	 June			41 36 50 55 63 42
    			544
    Cases reported from each State for each month
    State	July	Aug.	Sept.	Oct.	Nov.	Dec.	Jan.	Feb.	Mar.	Apr.	May	June	Total
    Alabama						1 1								1 1 12 9 1 8 39 42 19 4 2 1 5 37 3 4 1 13 1 52 80 35 1 3 136 6 5 1 2 3 8
    Arkansas.
    California		2 1	1 1		2 2				1	1 1	1	4 1
    Connecticut				1		2
    Delaware								1
    District of Columbia- Illinois				1 1		2 3 4			1 t	1 3	2 6 11	1 3 4 5
    	4 2 3	6 2 2 2		4 4			2 1 1
    Indiana													10 3
    Iowa				3			1 1 1
    Kentucky					1 1
    Louisiana
    Maine				1 1 3
    Maryland							1 1			i		1 2	1
    Massachusetts		7	3		3	1 2		4 1	2		5
    Michigan
    Minnesota		2					1					1
    Mississippi								1
    Missouri		1	2		1		1			. . 1	6		1
    Nebraska..									1 1 3 5 1 1
    New Hampshire			1 4 16		1 2 9		1 3 1	2 6 6				1 9 6
    New Jersey		3 6		2 11		1 4 1				5 10	9 3		5 3
    New York
    North Carolina
    Ohio 		4	5	2	2		2	3		2	2	9 1	3
    Oklahoma
    Oregon							1 7 1				1 19 1	1 13
    Pennsylvania		14	4	6	26 2 2		10 2	11	8			9	9
    Rhode' Island
    Tennessee											2		1
    Texas						1
    Virginia					1							1 2
    Washington		1 1
    West Virginia			2			4							1
    Total
    	51	51	32	62	37	24	41	36	50	55	63	42	544

    36
    ANNUAL REPORT SECRETARY OF LABOR
    Summary of cases, 1914-1924
    Cases	Mar. 4, 1913, to June 30, 1924
    	1914	1915	1916	1917	1918	1919	1920	1921	1922	1923	1924
    Number....					33	42	227	378	1,217	1,789	802	457	370	534	544
    Adjusted... 		28	26	178	248	865	1,223	596	338	266	428	346
    Unable to adjust		5	10	22	47	71	111	96	48	41	27	62
    Pending					5	21	42	7	13	9	24	31	60	67
    Unclassified			1	6	41	66	214	101	47	32	19	69
    Cases pending at end of last fiscal year and now adjusted, 24.
    Total adjustments, 370.
    UNITED STATES EMPLOYMENT SERVICE
    The United States Employment Service encountered both sides of the employment problem during the fiscal year just closed. There was a healthy tone to industry during the first five months beginning July 1, 1923, and large demands were made upon the service for all kinds of help. In December, however, a noticeable reduction was evident. This was attributed to readjustments, inventories, and the close of the year. In January a better tone was evident, which was accelerated during February and the early part of March. The public employment offices were continuously kept busy meeting the demands made upon them by the employers of labor. About the middle of March something happened, and the other side of the employment question began to be felt. There were more men looking for jobs than opportunities for employment.
    A slowing down in bituminous coal mining caused much unemployment in that industry. Determined efforts were made and are still being made to find employment for the idle miners. This service has communicated with the leading contractors of the country, soliciting their assistance in placing these idle men in employment. Bequests were also made upon numerous trade journals asking their assistance in calling to the attention of contractors and others the great army of unemployed coal miners who were in need of employment. The public employment services of the several States, through the Federal directors, were called upon to exert themselves to the utmost to find employment for these men. As weather permitted, the building of good roads offered employment to large numbers of men and many miners were employed on these jobs. The seasonal farm work which began about June 5 opened up large avenues of employment.
    It is very gratifying to report that the public employment service of the several States cooperating with the United States Employment Service placed in employment 1,806,990 men and women during the fiscal year. Details of these placements follow:
    ANNUAL REPORT SECRETARY OF LABOR
    37
    Month	Registrations	Help wanted	Referred	Placed
    July (4 weeks). . 		241,004	221, 532 257,567	203,971	176,298
    August (5 weeks)..		268,528		237,575	206,877
    September (4 weeks) 		227,401	233, 606	204,877	179,151
    October (5 weeks) 		289,045	275, 010	251,978	218,076
    November (4 weeks) 			206,792	160,092	155,880	134,367
    December (4 weeks)		 		179,810	118, 315	118,102	101,352
    -January (5 weeks) __ _	_________ 		237,342	146,661	143, 903	120,609
    February (4 weeks) 	 		188,546	128,490	126,085	105,622 121,006
    March (4 weeks)	 		201,122	145,053 209,780	143,733
    April (5 weeks)		265,116		207,512	177,858
    May (4 weeks)		 		218i 979	159, 017 146,034	160,326	137,656
    June (4 weeks) 	 		231,908		150,678	128,118

    Grand total				2,755, 593	2,201,157	2,104,620	1,806,990

    This indicates the great use made of the public employment serv-
    ice. and the need of the same.
    Cooperative public the following States:	employment service	offices are conducted in
    Alabama.	Maryland.	Oklahoma.
    Arizona.	Massachusetts.	Oregon.
    Arkansas.	Michigan.	Pennsylvania.
    California.	Minnesota.	Rhode Island.
    Connecticut.	Missouri.	South Dakota.
    District of Columbia.	Montana.	Tennessee.
    Colorado.	Nebraska.	Texas.
    Georgia.	Nevada.	Virginia.
    Illinois.	New Hampshire.	Washington.
    Indiana.	New Jersey.	West Virginia.
    Iowa.	New York.	Wisconsin.	•
    Kansas.	North Carolina.	Wyoming.
    Kentucky.	North Dakota.
    Louisiana.	Ohio.
    Alabama, Colorado, Georgia, Kentucky, Maryland, Nebraska, Oregon. South Dakota, Tennessee, Texas, Washington, and Wyoming conduct no State public employment services. In these States the cooperative arrangement is with the municipalities and the American Legion.
    During the past three years 10 States have been added to this service. While no additional appropriation has been granted to provide for extension and development of this service, the work had to be carried on and money had to be found in order to assist the new States that came into cooperation. This was accomplished by injecting more business into government ”—letting out dead timber, coordinating the work, reorganizing the force, and practicing economy ■wherever possible; in fact, since March, 1921, the personnel of the administrative office has been reduced from 27 to 15 employees, and the amount of the pay roll reduced approximately 50 per cent, notwithstanding an increase of 40 per cent in volume of service for the same period.
    38
    ANNUAL REPORT SECRETARY OF LABOR
    Farm labor division.
    While this report is being written 500,000 acres of wheat are daily being harvested in the States of Texas, Oklahoma, and Kansas. Thousands of harvesters are assembled and distributed by agents of the farm labor division. This Herculean task of furnishing the required number of harvesters at the right moment taxes the farm labor division of this service to its utmost capacity. The public employment service throughout the country, and more particularly the public employment service of the wheat belt section, cooperates with the farm labor division. Whole-hearted cooperation of the chambers of commerce, other organizations, and county extension agents is also given to the farm labor division.
    The successful harvesting of the wheat crop is a matter that concerns not only the wheat belt but the Nation as a whole. The activities of this division of the United States Employment Service have been extended over a far greater area this year than in other years. The work under review was carried on in one-third of the States of the Nation, but these States embraced fully one-half of the actual area of the United States.
    The scope of the work included the handling of a number of the major farm crops. The total number of men recruited and distributed for seasonal farm labor was 161,083. This is practically 50 per cent greater work than has been performed by the farm labor division in any previous year of its history since the World War. The development of the farm labor division in Texas to provide not only for the successful harvesting of the wheat crop but to recruit and distribute men for cotton chopping and assisting in harvesting the cotton crop has merited the commendation and united support of the entire State of Texas.
    The farm labor division of the United States Employment Service is rendering a service which is to-day regarded as purely a Federal function. At the time when States and various organizations undertook to direct the movement of men to harvest the crops there was confusion. One State bid against another and men were unevenly distributed. Under the direction of the farm labor division the harvesting of wheat begins in Texas about June 5, and as the grain ripens men are moved in an orderly manner as far north and west as Montana. The requirements for the States west of Montana are taken care of by the Spokane office, supplemented by the temporary offices opened during the season. In order to expedite the handling of men, recruiting centers are maintained in the larger cities throughout the wheat belt. Temporary offices are opened through which men are directed to the fields and closed when the work in the district is completed.
    ANNUAL REPORT SECRETARY OF LABOR
    39
    In order to supply the help that the farmers of Colorado and Wyoming need to harvest their wheat and allied crops and to provide men for the sugar-beet and fruit industry, a new permanent office has recently been opened at 1323 Eighteenth Street, Denver, Colo. The demands already made upon this office emphasize the need for its service. Other agricultural sections of the country are appealing to this service for permanent farm labor offices. Plans are now under way for establishing two new additional permanent offices. In addition to supplying the seasonal farm help these offices will supply permanent help. The headquarters of the farm labor division are located at 2014 Main Street, Kansas City, Mo. At this office a well-equipped staff is maintained. To prevent congestion at any given point, and to provide against directing more men to a district than is necessary, the acreage of the entire wheat belt is surveyed, as well as condition of crops, and the approximate number of harvesters necessary are directed to the fields.
    Additional help has been given this year to the inland empire, comprising the States of Washington, Oregon, and Idaho. This section is becoming more and more important agriculturally and the demands upon the service are increasing correspondingly. Realizing the importance of successfully harvesting the wheat crop the railroads operating in the wheat belt of Kansas, Texas, and Oklahoma granted special rates during the harvest season. Special rates were also obtained in Texas for the transportation of cotton choppers and pickers, as well as special rates from points in Minnesota and Iowa westward. The rates granted by the railroads have been of inestimable value in expediting the movement of men to harvest fields.
    Junior division.
    This division has continued to operate during the fiscal year 1924 under the general policy and organization plan defined in some detail in the report for the fiscal year 1923. The junior division functions through cooperation with the public employment services of the States, the local public-school systems, and other agencies in various communities throughout the country. It helps to establish and maintain a limited number of placement offices in sections where local educational and occupational conditions are especially favorable to the development of the work. These local offices serve (1) as junior employment bureaus in their respective cities and (2) as experimental stations where fundamental and specific junior placement problems can be worked out by a trained personnel, information collected and interpreted scientifically, and, .through the Washington office, made available to the whole country.
    National office.—The national office conducts the administrative work of the junior division and through correspondence and field
    40
    ANNUAL REPORT SECRETARY OF LABOR
    visits keeps in close touch with all local offices. These offices present detailed weekly reports that are compiled and charted by the national office for the general information of people engaged in junior guidance and placement. In addition the national office issues periodic news-letters and field studies, whose value is attested by increasing demand for them from many sources. The survey of vocational guidance and placement in the United States made cooperatively with the Children’s Bureau is now ready for publication. During the last year the weekly-report forms have been carefully revised with the advice of a committee composed of experts in guidance and placement not only in our own offices but from others in the field, and were adopted and put in use January 1, 1924. They present the range of activities suitable to a junior office, which, in the judgment of this committee, will provide standardization and definition of terms and methods; also statistical reports.
    Field offices.—It is the policy of the junior division to develop to 'a point of efficiency a few placement offices in representative sections rather than to spread superficially over a wider territory. The junior division is at present assisting in the maintenance and operation of local placement offices in 23 cities in 13 States. A list of the cities thus cooperating, together with the agency through which the cooperation is effected, follows. The work in these cities is in various stages of development. Some have been established for several years; in others the contact has been recently made. The type of organization, extent of service, number of persons engaged in the work, and so on, depend largely on local conditions. All the offices, however, represent a centralized junior placement service open to all boys and girls in the community between the legal working age and 21 applying for vocational guidance and placement.
    California:	Agency
    i__________________________________Public schools.
    Huntington Park 1--------------------------- Do.
    Los Angeles1-------------------------------- Do.
    Oakland 1---------------------------------   Do.
    San Diego1---------------------------------- Do.
    Stockton------------------------------------ Do.
    Delaware, Wilmington--------------.---------- Do.
    Georgia, Atlanta_____________________________Public schools and city coopera-
    tive employment service.
    Illinois, Rockford-'-------------------------Public schools.
    Indiana:
    Gary_____________________________________ Do.
    Richmond--------------------------------- Do.
    South Bend___________________________   Do. *
    Contacts made during the fiscal year 1924.
    ANNUAL EEPORT SECRETARY OF LABOR
    41
    Massachusetts:
    Pittsfield 1_____________________________
    Worcester________________________________
    Michigan, Jackson____________________________
    Minnesota:
    Minneapolis______________________________
    St. Paul_________________________________
    New Jersey, Jersey City______________________
    Pennsylvania, Pittsburgh_____________________
    Rhode Island, Providence_____________________
    Utah, Salt Lake City_________________________
    Wisconsin:
    Green Bay1_______________________________
    Milwaukee________________________________
    Agency
    Public schools.
    Do.
    Do.
    Do.
    Do.
    Public schools and State department of labor.
    Public schools.
    Do.
    Do.
    Do.
    State laboi* commission.
    Note.—Plans are under way for cooperative offices with the following cities, which will be operating September 1, if not before: San Francisco, Fresno, and Sacramento, Calif.; Cleveland, Ohio; Oklahoma City, Okla.; and Memphis, Tenn.
    Reports from field offices.—The tasks of junior placement offices are as varied as they are vital to the individual applicant. Every junior registering presents a special case, and must be so regarded. No junior officer fails to find out why the junior has left school, and if his reason is not imperative an attempt is made to persuade him to return by showing him how serious a handicap is a lack of education and how large is the ultimate financial return for time and money invested in training. Often the counselor can make readjustment in the school program, transfer the junior to another kind of school, or merely by furnishing him with a new viewpoint send him back to the same classes with fresh ambition. It may be a social readjustment that is necessary, and to the end that such readjustments may be possible the junior office maintains a close cooperation with the social agencies of the city.
    Following is a summary of figures for the fiscal year ended June 30, 1924, taken from weekly reports sent by local offices to the junior division:
    July 1, 1923, to June 30, 1924: Registrations, 99,077; help wanted, 24,308; referred, 25,954; placed, 18,260.
    Office interviews (Jan. 1, 1924, to June 30, 1924, only), 54,511.
    Collateral activities (Jan. 1, 1924, to June 30, 1924), cases of follow-up, 6,498; visits to employers, 2,493.
    Every year requests for cooperation from various States and communities increase in number and also in promise of sound achievement. The aid they need varies from help in organization to financial assistance and other substantial support.
    1 Contacts made during the fiscal year 1924.
    42
    ANNUAL. REPORT SECRETARY OF LABOR
    Industrial employment information division.
    The scope of this service has been broadened during the year. Industrial employment information is being gathered and published monthly in the Industrial Employment Information Bulletin from 476 industrial centers, as against 416 in the previous year. The extension and development of this work will continue to be broadened until all the industrial centers throughout the country will be covered by this division.
    In order that the work of the department might be coordinated and overlapping of activities avoided, the publication of statistical information in the monthly bulletin was discontinued in December, 1923, and all the data were transferred to the Bureau of Labor Statistics. The editorial and resume of industrial conditions for the month formerly appearing on the front page of the bulletin were also discontinued. The statistical data and the resume of industrial conditions are now published by the Bureau of Labor Statistics.
    When this division was established the country was divided into nine zones, with a district director in charge of each zone. On Janu-ary 15, 1924, districts 6 and 7 were coordinated, and the work of both districts was placed in charge of the director of district 6, this being in line with the general policy of the service to coordinate its activities, thereby effecting savings whenever possible without a loss of efficiency or detriment to the service.
    The constant and increasing demand for the Industrial Employment Information Bulletin emphasizes its worth to the business and industrial interests of the country. It is furnished to newspapers, labor organizations, chambers of commerce, railroad companies, libraries, manufacturing concerns, wholesale merchants, economists, Federal reserve and other banking institutions, and financiers. Two editions of the bulletin are published. The first edition is for the immediate use of the press and is especially prepared for publishers’ clipping purposes. This edition was formerly mimeographed, but the present method of publishing has effected a saving of over $2,000 a year, and it is presented in better form than formerly. The second edition is printed in solid form for distribution to the public. As this bulletin is dealing with current information, its value is enhanced by its timeliness. The bulletin is usually ready for the press about the 12th of the month following the month under review.
    UNITED STATES HOUSING CORPORATION
    During the fiscal year 1924 the revenues of the United States Housing Corporation to be covered into the Federal Treasury amounted to $3,901,193.45. The sources from which these funds were derived were:
    ANNUAL REPORT SECRETARY OF LABOR
    43
    Real estate sales---------------------------------------------$1,349,336.48
    Real estate interest__________________________________________ 738, 009.97
    Sale of salvage material______________________________________ 18,170. 29
    Repayment of loans____________________________________________ 1, 451, 401.18
    Interest on loans_____________________________________________ 234, 817. 34
    Rents and miscellaneous items_________________________________ 109, 458.19
    Total-------------------------------------------------- 3,901,193.45
    The total expenses for administration of this business were $109,-020.63, or but 2.8 per cent of the amount collected—an extremely low figure considering the scope of the field activities of the corporation.
    In addition to the aforementioned amounts there was also collected as receipts from the Government Hotels for the fiscal year 1924 the sum of $706,772.63. Deducting disbursements on account of the: operation of the hotels, amounting to $681,769.20, leaves a cash surplus to the Government from the conduct of this enterprise of $25,003.43. The actual profit from operations, however, will probably not exceed $16,000 for the year. The difference is accounted for by depletion of inventories due to the closing of one of the hotel restaurants and the deferment where possible of the purchase of supplies from 1924 to 1925. It should be noted also that this profit is arrived at only by omitting from consideration the items of rent on buildings, interest on investment, and depreciation.
    (This report is made at a date when it is manifestly impossible to give exact figures for the entire fiscal year 1924. Those set out above, however, represent actual receipts and expenditures for the first 11 months and anticipated receipts and expenditures for the last month.)
    From a business standpoint perhaps the outstanding achievement of the corporation has been the record which it has made in the operation of the Norfolk County Ferries. For the year under consideration this business showed a profit of $161,871.87, surpassing even the profit reported for the preceding year, which was the highest ever recorded in the history of this utility under either private or Government management up to that time.
    Principal activities.
    The principal activities of the corporation may be summarized as follows:
    1.	Rentals and sales of properties.
    2.	Collections from rentals and sales.
    3.	Liquidation of transportation and public utility loans.
    4.	Operation of the Government Hotels.
    5.	Operation of the Norfolk County Ferries.
    Rentals and sales.—Rentals of properties have formed but a comparatively small portion of the corporation’s business during the 16376—24---------4*
    44
    ANNUAL REPORT SECRETARY OF LABOR
    past fiscal year. At two projects, however, notably Bremerton, Wash., and Cradock, Va., where it was necessary for the corporation to reacquire title to numerous houses because of the defaults of original purchasers, an appreciable number of houses were rented rather than permitted to stand idle.
    Throughout the year sales of improved and unimproved properties to the number of 163 and having an aggregate value of $644,-365 were made. Assignments of sales contracts to the number of 390 also were authorized, which required almost as much detail work as the handling of original sales.
    Truxtun, Va., a development comprising 250 houses for negroes, and lying almost adjacent to Cradock, was finally sold in its entirety to the highest bidder, after it had been conclusively established that the successful consummation of individual sales throughout this project was impossible. The interests of the original contract purchasers from the corporation were safeguarded, however, by requiring the bulk purchasers to grant a 25 per cent write off to the then contract holders with the corporation. In this way the corporation insisted, so far as lay within its power, upon an adherence to the spirit of the act governing its sales policy, which contemplated that the loss to be absorbed by the Government on account of excess war costs should redound to the benefit of the individual home owner rather than to that of speculative purchasers.
    A similar sale was made of the housing project at Bath, Me. This development consisted of 98 houses. Another and even larger project had been constructed by the Shipping Board in this same community, and, following the cessation of the abnormal industrial activities which existed during the war in this locality, it soon became apparent that it would be unable to absorb so many additional dwellings. Reductions in wages sustained by purchasers of the corporation’s houses in this city resulted in their inability to carry through their purchase agreements, and a bulk sale to a local financial institution was finally made.
    C onvey anting —During the period covered by this report the corporation delivered 721 deeds of conveyance and took back 393 notes secured by purchase-money mortgages. And there were also executed and delivered 146 deeds of release affecting mortgages which had been paid in full. So far as practicable, delivery of these deeds and mortgages has been made by the field representatives of the corporation, thereby saving the cost of attorneys’ fees, which are usually necessary in matters of this nature.
    The delivery of deeds in accordance with the terms of the contracts of sale has involved an almost endless amount of detail. Many of these contracts were executed almost four years ago. Meanwhile the status of numerous purchasers has been changed by death, divorce, insanity, or because of other legal disabilities that have
    ANNUAL REPORT SECRETARY OF LABOR
    45
    arisen. In these instances the interests of the parties affected became subject to the jurisdiction of the courts. And, obviously, the procedure incident to the transfer of the purchasers’ interests under these conditions has been more or less involved and has resulted in voluminous correspondence.
    The aforementioned deeds of conveyance and deeds of release were delivered in the following communities:
    Aberdeen, Md.	Erie, Pa.	Pompton Lakes, N. J.
    Alliance, Ohio.	Ilion, N. Y.	Quincy, Mas§.
    Bethlehem, Pa.	Hammond, Ind.	Rock Island, Ill.
    Bremerton, Wash.	Kittery, Me.	Truxtun, Va.
    Bath, Me.	Lowell, Mass.	Vallejo, Calif.
    Br'dgeport, Conn.	Moline, Ill.	Waterbury, Conn.
    Butler, Pa.	New London, Conn.	Water town, N. Y.
    Cradock, Va.	Newport, R. I.	Watervliet, N. Y.
    Davenport, Iowa.	New Brunswick, N. J.	Warren, Ohio.
    East Moline, Ill.	Niles, Ohio.	Washington, D. C.
    Elizabeth, N. J.	N agara Falls, N. Y.
    Foreclosures.—It has been the policy of the corporation to accord all possible leniency, consistent with a due regard for the Government’s interests, to those purchasers who, through temporary adversity, have been unable to keep up their monthly payments. But when it becomes apparent that an individual is either unable or unwilling to live up to his obligations the corporation is compelled either to resort to foreclosure or to secure a voluntary reconveyance of the property by means of a quitclaim deed. Throughout the fiscal year under consideration there have been but 40 cases of actual foreclosure. It was necessary to reacquire possession, however, in a considerable number of other cases.
    Insurance.—In line with the general policy of the Government, the corporation carries no insurance on its real-estate holdings. But it requires purchasers of its properties to carry insurance for its benefit whenever any portion of the purchase price remains unpaid. There were thus in its custody at the beginning of the fiscal year some 4,000 policies, representing a total of approximately $20,000,000 insurance. In the course of the year 1,422 policies expired and were renewed. Policy assignments to the number of 750, following contract assignments or transfer by deed, were also authorized. A number of policies were dropped at their expiration because of the cancellation of contracts affecting the properties which they covered. And as a result of the execution of new sales contracts, 90 new policies were added during the fiscal year. At the close of this period, therefore, there were still in force some 3,600 policies, having a total value of $17,000,000. Claims amounting to $5,755, growing out of losses occasioned by fire or lightning on 17 houses owned by the corporation, were paid during the year.
    Liquidation of transportation and public utility loans.—Under its prescribed policy of endeavoring to effect settlement of the contracts
    46
    ANNUAL REPORT SECRETARY OF LABOR
    running between itself and various transportation companies through the medium of negotiations rather than by resorting to the appraisals called for in many of these contracts, the corporation has recovered during the fiscal year $1,451,401.18. At the present time negotiations are under way looking to a settlement of all outstanding accounts of this character, and it is expected that they will be brought to a conclusion during the ensuing fiscal year.
    Government hotels.—The Government hotels continue to fill a long-felt want in the lives of many of the female employees of the Government in the city of Washington. As a result of the heavy reductions which have been made in the personnel of the classified civil service, there has, of course, been a decrease in the number of guests of the hotels. At the end of June, 1924, they were still furnishing wholesome and healthful living accommodations at moderate rates to more than 1,200 women.
    The laundering of towels, uniforms, and the like for other branches of the Government located in the District of Columbia has formed no inconsiderable portion of the work of the laundry of the Government hotels. It has heretofore .been reported that, at the instance of the Committee on Appropriations of the House of Representatives and the Bureau of the Budget, an investigation was instituted for the purpose of determining the costs of laundry work done by private contractors for the various departments as compared with costs for similar work done in this laundry. Following this inquiry—which disclosed that the prevailing charges of private contractors laundering towels for the Government departments ranged from $1 to $2 a hundred (a very few paying less than $1)—there was turned over to the hotels’ laundry a large amount of this work. For the fiscal year 1924 towels, uniforms, etc., to the number of 1,480,443 were handled by this laundry for other branches of the Government. It was originally estimated that this work could be done by the hotels’ laundry at the rate of 57 cents a hundred. But by the application of measures calculated to promote efficiency and economy it was possible during the latter part of the fiscal year still further to reduce this sum to 45 cents a hundred.
    The history of the negotiations, following the demand of the Baltimore & Ohio Railroad Co. for rent for that portion of its land occupied by certain of the hotel buildings, was recounted in the report for last year. Pursuant to the recommendations of the department, there was appropriated $74,315 for the payment of rent during the fiscal year 1924. But the failure of passage during the closing hours of the Sixty-eighth Congress of the measure in which a similar appropriation was carried for the fiscal year 1925 has left the corporation without funds with which to meet this obligation for the period July 1, 1924, to June 30, 1925.
    ANNUAL REPORT SECRETARY OF LABOR	47
    Norfolk County Ferries.—It was expected that the net profits of $144,000 from the Norfolk County Ferries for the preceding year would constitute a mark to which the corporation could constantly point with pride. It is with no small measure of gratification, therefore, that I am able to report that the net profits for the past year surpassed the aforementioned sum and reached the remarkable figure of $161,871.87. The record of the Housing Corporation in the management and operation of this public utility is perhaps one of the “ exceptions which prove the rule.” For, while I am a firm believer in the principle of “ less government in business, and more business in government,” it has been demonstrated beyond peradventure that this is one instance of Government operation which has proved strikingly successful. Of equal importance in the administration of this business has been the success which has attended the corporation’s efforts to promote friendly relations with the city of Portsmouth and the county of Norfolk, Va. (which jointly own these properties), as well as with the thousands of citizens who rely upon the ferries for transportation between the cities of Portsmouth, Norfolk, and Berkeley, Va. Originally inclined (and perhaps not entirely w’ithout reason) to look askance at the assumption of control by the Government of what is ordinarily a local function, the attitude of the populace of these communities has undergone a gradual change as it became apparent that the Government was not unmindful of its duty to furnish the best possible service to the traveling public, as well as to increase the earnings of this enterprise. Proof of this fact is furnished by the recent submission of a proposal on the part of the owners that the Housing Corporation continue the operation of the ferries beyond the period provided for in the original contract; in other words, instead of proceeding with the appraisal for the fixation of the amount which the owners should pay the corporation on account of its original advances for improvements, that this amount should be arrived at through negotiations, and pending the liquidation of the debt thus determined the operation by the corporation should continue. As this report goes to press it is impracticable to predict the outcome of the negotiations.
    INDUSTRIAL AND ECONOMIC CONDITIONS IN THE VIRGIN ISLANDS SURVEYED BY ALL-COLORED COMMISSION
    During 1923 civil authorities and citizens of the Virgin Islands, which had been purchased by the United States from the Kingdom of Denmark for $25,000,000, made special request of the Secretary of Labor, both directly and through the late Phil H. Brown, of the conciliation service, for an investigation by the Federal Government of the industrial and economic conditions in the islands. Following approval first by the late President Harding and later by President Coolidge, Secretary of Labor James J. Davis appointed a Fed
    48
    ANNUAL REPORT SECRETARY OF LABOR
    eral commission, composed of George H. Woodson, of Iowa; Cornelius R. Richardson, of Indiana; Charles E. Mitchell, of West Virginia; W. H. C. Brown, of Virginia; and Jefferson S. Coage, of Delaware.
    This commission left Washington on January 12, 1924, en route to the Virgin Islands, where an intensive study was made of the population of the Virgin Islands and their internal conditions of life. This Federal body, which was the first all-colored commission ever dispatched upon an official errand for the United States Government, made its report to the Secretary of Labor, and, through him, to the President of the United States, on February 29, 1924, and a brief summary of its findings and recommendations here follows:
    SUMMARY OF FINDINGS AND RECOMMENDATIONS SUBMITTED TO THE SECRETARY OF LABOR
    FINDINGS
    1.	Location.—Forty miles east of Porto Rico; 1,440 south of New York City: 1,025 northeast of Panama Canal. Area of three largest inhabited islands, 132 square miles. Population, 26,000 (negro, 24,100; white, 1,900); density, 200 per square mile.
    2.	Education compulsory between 7 and 13. Attendance, average, 3,000, or over 98 per cent of possible attendance. Illiteracy less than 2 per cent. Language, English.
    3.	Water supply depends on rainfall caught in cisterns.
    4.	General health compares favorably with Southern States. No epidemics. Birth rate, 32 per 1,000; death rate, 25% per 1,000.
    5.	Climatic conditions, with a minimum of 65° and maximum 92°, insure low cost of living in way of clothing, housing, and food fat. Trade winds prevail.
    6.	Economic and industrial conditions are far from being satisfactory, as shown by the variation in the imports and exports between the islands and the United States. Fiscal year 1921: Exports, $3,571,787; imports, $4,162,949; total, $7,734,736. Fiscal year 1922: Exports, $754,729; imports, $1,836,567; total, $2,581,296.
    This marked loss of trade is largely due to («) our general policy of treating the islands only as an outpost of defense for Panama Canal; (&) Federal prohibition, which crippled the bay-rum industry of the islands; (c) serious droughts which almost eliminated crops last three years; (d) St. Thomas, although one of the finest ports in the West Indies or the world, is no longer used as a port of call by the steamship lines using the Panama Canal and sailing to and from Atlantic ports of South America. This combination of conditions creates an appallingly large per cent of unemployment and already evidences of undernourishment are apparent.
    7.	Leading industries.—(a) Sugar cane, 12,000 acres; (b) cotton, 2,000 acres; (c) grasses and fodder, 30,000 acres (cattle raising) ; (d) fishing; (e) coaling steamships (150 men, 300 women) ; (f) watering ships (when there is any water available).
    8.	Wages.— (a) Agricultural, 20 to 40 cents a day; (b) fishing, nominal; (c) coaling vessels, 2 cents per basket; average, 60 cents a day, and only two days a week.
    9.	Housing of workers— Largely one-room shacks with an occasional lean-to kitchen.
    ANNUAL REPORT SECRETARY OF LABOR	49
    10.	Food of workers largely “fungee” (a mess of corn meal and fish).
    11.	Cost of living, owing to above-outlined conditions, is naturally very low, but unless something is done to improve the opportunity for work these people must migrate to avoid sinking to an economic level abhorrent to our American ideals.
    12.	Native population is clean, bright, genial, peaceful, intelligent; 98 per cent can read and write; honest and very polite. Very little crime, and that largely in the seaport towns.
    RECOMMENDATIONS
    1.	Installation of a water supply and irrigation system to meet agricultura1 and domestic needs. Rainfall generally ample if conserved. This will insure more regular employment as well as more and better home-grown food supplies.
    2.	Restoration of St. Thomas as a port of call with (a) the same right of foreign vessels to seal their wine and liquor lockers as when passing through the Panama Canal; (&) develop water supply to meet needs of all ships.
    3.	Institute a study of preparation of bay rum that will restore its market standing without violating our prohibition laws. The Bureau of Standards of the Department of Commerce and the Bureau of Chemistry of the Department of Agriculture could materially help in this study.
    4.	While the native population, through their long-established custom of “ consensual marriages,” are as moral as any in the West Indies, yet, it is advisable that all marriages should conform to our standards of marital relations. It is not fair to these people to classify their children from consensual marriages as illegitimate in the broad sense that we often use the term. The fact that over two-thirds of the children are the product of these marriages shows the necessity for education in the moral code of our American standards.
    5.	As an aid to the development of the ideal of American standards we strongly urge that a system be arranged between the public schools of the Virgin Islands and the leading negro colleges in the United States for an exchange of teachers and scholarships for island students of from one to one hundred each year in order that the educational systeming be stimulated and true American ideas and ideals be encouraged on the islands as well as on the mainland of the United States.
    6.	The citizen status of the inhabitants of the Virgin Islands should be cleared up, as much confusion now prevails owing to the different interpretations of the following supposed guaranty quoted from the purchase treaty with Denmark, proclaimed January 25, 1917 (sec. 6) :
    Those who remain in the islands may preserve their citizenship in Denmark by making before a court of record, within one year from the date of the exchange of ratifications of this convention, a declaration of their decision to preserve such citizenship; in default of which declaration they shall be held to have renounced it, and to have accepted citizenship in the United States.
    7.	We suggest that the Department of Commerce make a special study of the manufacturing and commercial possibilities, and the Department of Agriculture of agricultural possibilities, so that these people can feel that their homeland under our Government is receiving a living consideration other than that of a mere outpost of defense.
    8.	We respectfully suggest that a longer term for each governor appointed will be more beneficial than the shorter and more uncertain tenures in office.
    Note.—Seven governors in about three years. Proof of value of longer service is shown by the fact that the present incumbent, although he has held ofiice only four months, has brought about several changes promoting the well-being of the people on these islands.
    50
    ANNUAL REPORT SECRETARY OF LABOR
    9.	Seasonal labor competition from adjacent alien islands deserves immediate consideration, as it generally interferes with the limited opportunities available to the natives, and largely explains the extremely low standard of wages.
    And, lastly, we respectfully suggest that the resolution passed by the joint session of the Colonial Council of the Virgin Islands and approved by Gov. Philip Williams on the 15th day of February, 1924, deserves the serious consideration of the Congress of the United States and the departments of the Government which, more or less, handle such problems.
    IMMIGRATION
    The per centum limit act of 1921.
    The number of aliens admitted and charged to the quota during the fiscal year ended June 30, 1924, was 357,642, as compared with 243,-953 and 335,480 in the fiscal years 1922 and 1923, respectively. During the year just ended the quotas of all countries, with the exception of Esthonia, Fiume, and Iceland, were completely exhausted. The following table shows the operations under the quota law during the past three fiscal years. Attention is called, however, to statistics of immigration from Canada, Mexico', South and Central Americas, etc., which under the law were exempt from quota limitation :
    Table I.—Immigration quotas allotted to specified countries or regions of birth, and the number of aliens admitted and charged against such quota allotments during the fiscal years ended June 30, 1922, 1923, and 192Jf
    Country or region of birth	Year ended June 30, 1924		Year ended June 30, 1923 -		Year ended June 30, 1922
    	Quota	Number admitted	Quota	Number admitted	Quota	Number admitted
    Albania	 Armenia (Russian)	 Austria	 Belgium	 Bulgaria	 Czechoslovakia	 Danzig, Free City of	 Denmark	 Esthonia		288 230 7,342 1,563 302 14,357 301 5,619 1,348 3,921 71 5, 729 67, 607 77,342 3,063 5,747 75 42, 057 1,540 2, 629 92 3, 607 12, 202 30,977 2, 465 7,419 24,405 912	288 230 7,342 1, 563 302 14,357 301 5,619 1,224 3, 921 66 5, 729 67, 607 77, 342 3,063 5,747 43 42, 057 1,540 2, 629 92 3,607 12, 202 30,977 2,465 7,419 24, 405 912	288 230 7, 451 1, 563 302 14,357 301 5,619 1,348 3,921 71 5, 729 67, 607 77,342 3, 294 5,638 75 42, 057 1,540 2,460 92 3,607 12, 202 31,146 2,465 7,419 24, 405 912	288 230 7,358 1,563 295 14, 357 263 5,226 241 3,921 67 5,034 49, 258 77, 342 3,294 5,638 59 42, 057 1,513 2,460 92 3, 607 . 12, 202 29,730 2, 465 7,419 24,405 912	288 1,589 7,451 1,563 302 14, 282 301 5,694	280 1 1, 574 4, 797 1,581 301 14, 248 85 3,284 (2) 3,038 18 4,343 19, 053 42, 670 3,447 6,035 (3) 42,149 (2) (2) 93 2,408 5,941 26,129 2,486 7,429 28,908 888
    Finland	 Fiume, Free State of		 France			_					3,921 71 5,729 68, 059 77,342 3, 294 5,638
    Germany	 Great Britain, Ireland		 Greece. _
    Hungary (including Sopron District)	 Iceland
    Italy						42, 057
    Latvia
    Lithuania (including Memel and part of Pinsk region)
    Luxemburg	 Netherlands	 Norway	 Poland (including eastern Galicia and part of Pinsk region)	 Portugal (including Azores and Madeira Islands)	 Rumania	 Russia, European and Asiatic (excluding Barred Zone)	 Spain (including Canary Islands)						92 3, 607 12,202 25, 827 2,520 7,419 34,284 912
    1 Turkish and Russian Armenia for the year 1 22.
    * Esthonia, Latvia, and Lithuania included with Russia for the year 1922.
    8 Iceland included with Other Europe for the year 1922.
    ANNUAL REPORT SECRETARY OF LABOR
    51
    Table I.—Immigration quotas allotted to specified countries or regions of birth, and the number of aliens admitted and charged against such quota allotments during the fiscal years ended June 30, 1922, 1923, and 1924—Continued
    			Year ended June 30, 1923		Year ended June 30, 1922
    Country or region of birth	Year ended June 30, 1924
    	Quota	Number admitted	Quota	Number admitted	Quota	Number admitted
    Sweden		20, 042 3, 752 6,426 86 57 882 2,654 92 104 18 121 279 80	20, 042 3,752 6, 426 86 57 882 2, 654 92 104 18 121 279 80	20, 042 3, 752 6,426 86 57 928 2, 388 81 122	19, 867 3, 752 6,426 86 57 928 2,388 81 122	20, 042 3, 752 6, 426 86 56 906 656 81 }	122 65 279« 80	8, 766 3, 723 6,644 144 214 1,008 1,096 528 195 83 279 88
    Switzerland...
    Yugoslavia	 .
    Other Europe (including Andorra, Gibraltar, Liechtenstein, Malta, Monaco, and San Marino)
    Palestine
    Syria
    Turkey (European and Asiatic,) including Smyrna region, and Turkish-Armenian region for 1923
    Other Asia (including Cyprus, Hedjaz, Iraq (Mesopotamia), Persia, Rhodes, and any other Asiatic territory not included in the Barred Zone; persons born in Asiatic Russia are included in the Russian quota)
    African
    Egypt
    Atlantic islands (other than Azores, Canary Islands, Madeira, and islands adjacent to the American continents)...			121 279 80	118 279 80
    Australia
    New Zealand and Pacific islands
    Total
    	357, 803	357, 642	357,803	335, 480	356,995	243,953

    The data shown in the foregoing compilation will be more readily comprehended by a study of the following table, in which are compared the quota allotments of and the number of aliens admitted from northern and western Europe, southern and eastern Europe, including Asiatic Turkey and “Other Asia,” and certain other sources subject to the quota law, during the fiscal years 1923 and 1924:
    Table II.—Immigration quotas allotted to specified areas, and the number of aliens admitted and charged against such quota allotments, during the fiscal years ended June 30, 1923, and June SO, 1924
    Area	Year ended June 30, 1923		Year ended June 30, 1924		Per cent quota admitted
    	Quota	Number admitted	Quota	Number admitted	1923	1924
    Northern and western Europe		197, 555	177,943	197, 555	197, 555	90	100
    Southern and eastern Europe, including Asi-
    atic Turkey and other Asia			159, 646	156, 938	159, 646	159,485	98 3	99.9
    Africa, Australia, New Zealand, and other
    Pacific islands, and Atlantic islands		602	599	602	602	99.5	100
    Total						357,803	335,480	357, 803	357, 642	93.8	99.9
    Immigration act of 1924.
    The immigration act of 1924, approved May 26, 1924, changes the basis for computing the quotas in two particulars; the per centum limit act of 1921 took as a basis the foreign-born persons in the

    52	ANNUAL REPORT SECRETARY OF LABOR
    United States as shown by the census of 1910, while the new law takes as a basis the number shown by the census of 1890; further, the old law applied 3 per cent to the census enumeration of 1910, whereas the new law applies 2 per cent to the census enumeration of 1890.
    New legislation.
    As pointed out in my remarks elsewhere in this report relative to the Gottlieb decision, the erroneous judicial interpretation of the previous quota law resulted in affirmative language in the immigration act of 1924, tending to clear up certain doubtful points in previous legislation. As a result the 1924 immigration act not only defines what is meant by “immigrant,” “nonimmigrant,” and “quota immigrant,” but1 sets out specifically the preferences within the quotas. For the first time, too, an alien who is a lawful resident in the United States is afforded by law an opportunity to have his status as such investigated and determined prior to his departure from the United States on a visit and is given a certificate establishing that fact which he may use as evidence of his status upon his return. While the new legislation in that respect places upon the Bureau of Immigration the gigantic task for which no provision in the way of increased personnel was made, it undoubtedly considerably facilitates the return of aliens who have acquired a lawful domicile and desire to make a temporary visit abroad.
    The basis for numerical limitation of aliens has been changed so as to rest, for the present, on the census of 1890 instead of 1910, as in the previous quota law. Beginning July 1, 1927, however, the numerical limitation will be based on the number which bears the same ratio to 150,000 as the number of inhabitants in continental United States in 1920 having that national origin (ascertained as hereinafter provided in this section) bears to the number of inhabitants in continental United States in 1920, but the minimum quota of any nationality shall be 100.
    A strict adherence to the law can not fail to very materially decrease, if not entirely eliminate, the hardship which resulted after exclusion under the previous quota law after a useless voyage to the port of arrival. To aid in this respect, Congress has provided a fine of $1,000, together with a refund of the amount paid by the alien for his passage, for bringing to the United States (1) any immigrant who does not have an unexpired immigration visa, or (2) any quota immigrant having an immigration visa, the visa in which specifies him as a nonquota immigrant.
    To further assist in carrying out the law, Congress has raised to $1,000 the fine for bringing in aliens who are afflicted with idiocy, insanity, imbecility, feeble-mindedness, epilepsy, constitutional psychopathic inferiority, chronic alcoholism, tuberculosis in any form,
    ANNUAL REPORT SECRETARY OF LABOR
    53
    or a loathsome contagious disease. Whereas, under previous legislation, the fine of only $200 was specified, the bringing of aliens with a physical defect or a mental defect other than those specified above has been raised from $25 (under the act of February 5, 1917) to $250.
    Table III.—Immigration quotas according to nationality proclaimed in pursuance of the immigration act of 192Jf. These quotas are available only to aliens who are eligible to citizenship in the United States
    Country or area of birth
    Annual quota
    Country or area of birth
    Annual quota
    •Afghanistan		100
    Albania						100
    Andorra 	 ...	100
    Arabian Peninsula >,2			100
    Armenia			124
    Australia, including Papua, Tasmania, and all islands appertaining to Aus-
    tralia 3,4		121
    Austria	 .... .	785
    Belgium 8	 ...	512
    •Bhutan		100
    Bulgaria	 ...	100
    Cameroon (proposed British mandate)	100
    Cameroon (French mandate)		100
    •China		100
    Czechoslovakia		3,073
    Danzig, Free City of	 		228
    Denmark 8,6		2, 789 100
    Egypt
    Esthonia		124
    Ethiopia (Abyssinia)		100
    Finland				471
    France >, 8,6		3,954 51, 227 34,007
    Germany
    Great Britain and northern Ireland b3,8,6.
    Greece		100
    Hungary	 .... .	473
    Iceland		100
    •India 3	 .	100
    Iraq (Mesopotamia)		100
    Irish Free State 3				28, 567
    Italy, including Rhodes, Dodekanesia,
    and Castellorizzo 8 		3, 845
    •Japan	 _	100
    Latvia	 .	142
    Liberia		100
    Liechtenstein		100
    Lithuania		344
    Luxemburg. 		100
    Monaco		100
    Morocco (French and Spanish zones
    and Tangier).......................
    •Muscat (Oman)______________________
    Nauru (proposed British mandate) 4...
    •Nepal______________________________
    Netherlands l,8,6 *_________________
    New Zealand (including appertaining
    islands) 3,4_____________________
    Norway 5____________________________
    *New Guinea, and other Pacific islands
    under proposed Australian mandate 4. Palestine (with Trans-Jordan, proposed
    British mandate)_________________
    Persia 1____________________________
    Poland______________________________
    Portugal*,5_________________________
    Ruanda and Urundi (Belgium mandate) Rumania_____________________________
    Russia, European and Asiatic 1______
    Samoa, western (proposed mandate of
    New Zealand)4________________....
    San Marino__________________________
    •Siam_______________________________
    South Africa, Union of3_____________
    South West Africa (proposed mandate
    of Union of South Africa)________
    Spain 5_____________________________
    Sweden______________________________
    Switzerland_________________________
    Syria and the Lebanon (French man-
    date) ___________________________
    Tanganyika (proposed British mandate) Togoland (proposed British mandate). Togoland (French mandate)___________
    Turkey______________________________
    •Yap and other Pacific islands (under
    Japanese mandate)4_______________
    Yugoslavia__________________________
    100
    100
    100
    100
    1,648
    100 6,453
    100
    100
    100
    5,982
    503
    100
    603
    2,248
    100
    100
    100
    100
    100
    131
    9,561
    2,081
    100
    100
    100
    100
    100
    100
    671
    Total___________________________
    164,667
    * For each of the countries indicated by an asterisk (*) is established a nominal quota according to the minimum fixed by law. These nominal quotas, as in the case of all quotas hereby established, are available only for persons born within the respective countries who are eligible to citizenship in the United States and admissible under the immigration laws of the United States.
    1 (a) Persons born in the portions of Persia, Russia, or the Arabian Peninsula situated within the barred; zone, and who are admissible under the immigration laws of the United States as quota immigrants, will be charged to the quotas of these countries; and (6) persons born in the colonies, dependencies, or protectorates, or portions thereof, within the barred zone, of France, Great Britain, the Netherlands, or Portugal, who are admissible under the immigration laws of the United States as quota immigrants, will be charged to the quota of the country to which such colony or dependency belongs or by which it is administered as a protectorate.
    2 The quota area denominated “Arabian Peninsula” consists of all territory except Muscat and Aden, situated in the portion of that peninsula and adjacent islands, to the southeast of Iraq, of Palestine with Trans-Jordan, and of Egypt.
    3 Quota immigrants born in the British self-governing dominions or in the Empire of India will be charged to the appropriate quota rather than to that of Great Britain and northern Ireland. There are no quota restrictions for Canada and Newfoundland.
    4 As shown on chart No. 1262a, Hydrographic Office, U. S. Navy Department.
    8 Quota immigrants eligible to citizenship in the United States, born in a colony,^dependency, or protectorate of any country to which a quota applies will be charged to the quota of that country.
    6 In contrast with the law of 1921, the immigration act of 1924 provides that persons born in the colonies, or dependencies of European countries situated in Central America, South America, or the islands adjacent to the American Continents (except Newfoundland and islands pertaining to Newfoundland, Labrador,, and Canada), will be charged to the quota of the country to which such colony or dependency belongs..
    General note.—The immigration quotas assigned to the various countries and quota areas should not be regarded as having any political significance whatever, or as involving recognition of new governments, or of new boundaries, or of transfers of territory except as the United States Government has already made such recognition in a formal and official manner.
    54
    ANNUAL REPORT SECRETARY OF LABOR
    While the above table shows the number of aliens that may be admitted to the United States under the new law from quota territory, it must not be assumed that the law places any limit on the total immigration. There are exemptions in the quota law, and, further, nearly all of the American hemisphere is not subject to the quota law. What the total immigration will be can not be determined until the end of the year. What actually happened in the fiscal year just ended is shown in Tables IV and V.
    The naturalization laws state that the provisions thereof “shall apply to aliens being free white persons and to aliens of African nationality and to persons of African descent.” Aliens of other races are not eligible to citizenship, and hence, with certain exceptions, are barred from entering the United States under the new immigration law and do not fall within the quota. The nominal quota of 100 as shown in Table III for certain countries can apply therefore only to persons of white or African race who were born in such countries.
    The figures given in the foregoing Tables I and II cover immigration under the per centum limit act, but there is heavy immigration from countries outside the quota law as well as from quota countries. A total of 879,302 aliens were admitted to the United States during the fiscal year ended June 30, 1924, of which 706,896 were immigrants and 172,406 were nonimmigrants. In other words, 46 per cent more aliens were admitted outside the quota than were admitted under it.
    Admissions from the countries of Europe, Asia, and Africa falling under the quota law are shown in the following Table IV, and admissions from countries outside the quota are shown in Table V.
    ANNUAL REPORT SECRETARY OF LABOR
    55
    Table IV.—Immigration, by country of origin (last permanent residence)
    Country of origin
    Albania.......................................
    Austria_______________________________________
    Belgium_______________________________________
    Bulgaria______________________________________
    Czechoslovakia________________________________
    Denmark_______________________________________
    Esthonia._____________________________________
    Finland_______________________________________
    France, including Corsica_____________________
    Germany_______________________________________
    Great Britain, Ireland:
    England___________________________________
    Ireland___________________________________
    Scotland__________________________________
    Wales_____________________________________
    Greece________________________________________
    Hungary.__________________________________
    Italy, including Sicily and Sardinia__________
    Latvia________________________________________
    Lithuania_____________________________________
    Netherlands___________________________________
    Norway________________________________________
    Poland________________________________________
    Portugal, including Azores and Cape Verde islands. Rumania_______________________________________
    Russia (European)_____________________________
    Spain, including Canary and Balearic Islands__
    Sweden________________________________________
    Switzerland___________________________________
    Turkey (European and Asiatic)_________________
    Yugoslavia____________________________________
    Other Europe__________________________________
    Australia, New Zealand, and Pacific islands___
    Syria, Palestine, and Mesopotamia (Iraq)______
    Other Asia____________________________________
    Africa________________________________________
    Total, Europe, Asia, and Africa..........
    Aliens admitted during the fiscal year ended June 30, 1924
    Immigrant	Nonimmigrant	Total
    250	6	256
    7,505	401	7,906
    2,065	469	2,534
    550	28	578
    13, 554	338	13,892
    5,281	561	5, 842
    765	10	775
    3,662	186	3,848
    6,387	3,569	9,956
    75,091	4,482	79,573
    24,466	11,454	35,920
    17,111	673	17,784
    33,471	1,529	35,000
    1,553	316	1,869
    4,871	352	5,223
    5,806	267	6,073
    56,246	6,859	63,105
    1,473	33	1,506
    2, 369	39	2,408
    3,783	945	4,728
    11,986	1,545	13,531
    28,806	333	29,139
    2,769	50	2,819
    11,142	194	11,336
    12, 649	286	12,935
    932	648	1,580
    18,310	935	19,245
    3,842	669	4,511
    4,301	112	4,413
    5,835	136	5,971
    328	18	346
    679	4,011	4,690
    2,946	208	3,154
    323	226	549
    900	468	1,368
    372,007	42,356	414,363
    Table V.—Immigration from nonquota countries during the fiscal year ended June SO, 1924
    Country of last permanent residence	Immigrant	Nonimmigrant	Total
    China		6,992 8,801 183 200, 690 2,000 89,336 9,270 17,559	7,569 1,638 356 8,598 2,433 4, 553 3,685 21,347 79,848 23	14, 561 10,439 539 209,288 4,433 93,889 12,955 38,906 79,848 81
    Japan.
    India
    Canada and Newfoundland
    Central America
    Mexico
    South America.
    West Indies.. 	 ..
    United States
    Other countries	 .	58
    Total
    	334,889	130,050	464,939

    As compared with, the year 1913-14, a fairly typical pre-war immigration year, when 921,160 immigrant aliens of the races of southern and eastern Europe and Turkey were admitted, only 192,599 of such aliens were admitted in the year 1923-24, a decrease of 728,561. This comparison not only shows a numerical decrease but further
    56	ANNUAL REPORT SECRETARY OF LABOR
    establishes that the proportion of these peoples in the total immigration fell from 75.6 per cent in 1913-14 to 27.2 per cent in 1923-24. On the other hand while there were admitted from northern and western Europe, 393,342 in 1923-24, as compared with 253,855 in 1913-14, such peoples or racial stocks formed 55.7 per cent of all our immigration in 1923-24 compared with only 20.8 per cent of the whole in 1913-14.
    The total number of immigrant aliens of all nationalities admitted from Mexico and Canada during the fiscal year 1924 was 290,026 as compared with 180,779 during the preceding year. This increase has been due to the great demand for workers in the United States.
    Oriental immigration.
    Chinese immigration.—The close of this fiscal year shows that there was a slight increase in the number of immigrants of the Chinese race admitted during the year, the total being 4,670 in 1923-24, as compared with 4,074 for the year ending 1923, or an increase in Chinese immigration of 596. The number of Chinese emigrants leaving the United States, while showing a slight decrease as compared with the year 1923, remains practically the same, 3,788 having departed in 1923 whereas 3,736 left during the present year. From this it will be seen that there was an increase in Chinese immigration of 934 for the fiscal year ending June 30, 1924, and of 286 for the year 1923.
    The record of Chinese immigration and emigration since the fiscal year 1913 is shown in the following table.
    Fiscal year (ended June 30)	Chinese immigrant aliens	Chinese emigrant aliens	Fiscal year (ended June 30)	Chinese immigrant aliens	Chinese emigrant aliens
    1913		2,022	2, 250	1919		1,697	2,062
    1914.	2,354	2,059	1920		2,148	2,961
    1915		2,469	1,959	1921		4,017	5i 253
    1916.	2,239	2,148	1922		4,465	6,146
    1917		1,843	1,799	1923		4, 074	3, 788
    1918.	1, 576	2,239	1924		4i 670	3,736

    The immigration act of 1924, which was approved May 26, 1924, and became generally effective July 1, 1924, has materially affected Chinese immigration. This is made so because of the inhibitions contained in this act against the coming to the United States of a number of classes of persons of races ineligible to citizenship who were formerly admissible under the Chinese immigration treaty of 1880, the various Chinese-exclusion laws enacted subsequent to that time, and likewise the numerous court decisions under these laws upon which the department has been operating. Briefly stated, the most important change is found in the fact that under the immigration act of 1924 the following classes of persons can no longer come to the United
    ANNUAL REPORT SECRETARY OF LABOR	57
    States solely because of their relationship to persons in the United States, such classes formerly being admissible: (1) The wives and minor children of alien Chinese merchants (either already domiciled in this country or coming here temporarily und’er the present law), (2) the wives of United States citizens of the Chinese race, (3) the adopted children of either merchants or citizens, and (4) the wives and children of certain classes of Chinese persons who may come here temporarily, students, and the like. Merchants, themselves, can no longer come to the United States unless they are coming here to conduct a business of an international character.
    As a result of the material changes in regard to Chinese immigration as found in the immigration act of 1924, it is anticipated that the number of Chinese immigrants for the next fiscal year will show a marked decrease.
    Japamese immigration.—The number of Japanese immigrant aliens admitted during the fiscal year 1924 was 8,481 as compared with 5,652 in the previous fiscal year. The number of Japanese emigrant aliens leaving the country decreased from 2,844 in the year 1923 to 2,120 in the year 1924.
    Immigration from the so-called Asiatic barred zone that was created under the immigration act of 1917 is negligible, only 154 East Indians having been admitted during the past fiscal year.
    During the past fiscal year 1,219 contract laborers were debarred and 54 were arrested and deported after having unlawfully entered the country, as compared with 1,409 debarred and 60 deported during the fiscal year 1923.
    Alien seamen.
    One of the greatest difficulties with which the immigration service has been confronted during the past fiscal year was to put into operation an effective plan which would result in breaking up the evil practice extensively followed by foreign steamship companies in engaging a large number of inadmissible aliens, ostensibly as seamen, who immediately on arrival at United States ports would desert and take up their permanent residence in this country in violation of the immigration laws. The number of desertions of alien seamen during the past fiscal year had reached such proportions as to command painstaking consideration of its significance. A total of 35,013 were reported during the fiscal year 1924, as compared with 23,194 for the preceding fiscal year.
    Numerous complaints were received from representatives of labor organizations against the unlawful entry of deserting alien seamen, on the grounds that their presence in this country afforded opportunities to the large industries to employ them at a low rate of wages, to the detriment of unemployed union labor. Very recently an investigation conducted in the anthracite coal region in Pennsylvania
    58
    ANNUAL REPORT SECRETARY OF LABOR
    disclosed that one of the large companies had in its employ approximately 200 alien seamen who had entered the United States contrary to the provisions of the immigration laws, and it is not unlikely that as a result of that investigation several hundred aliens who thus entered illegally will be deported.
    Deportation of aliens.
    Notwithstanding the many difficulties experienced, the bureau succeeded in deporting under warrant proceedings, during the fiscal year ended June 30, 1924, 6,409 undesirable aliens, the largest number for any one year during its history. Over one-half of this number were transported to ports of departure in large groups as follows:
    Movements
    New York to San Francisco______________________________________________ 4
    Chicago to San Francisco_______________________________________________ 4
    San Francisco to New York______________________________________________ 5
    Seattle to New York____________________________________________________ 4
    Chicago to New York_____________________________________________________ 3.
    El Paso to Galveston____________________________________________________ 4
    San Antonio to Galveston________________________________________________ 2
    Kansas City to Mexican border points___________________________________ 4
    In these movements alien deportees are added en route from the various States and immigration districts traversed.
    The remainder of the deportees were moved in smaller groups to local ports of departure and deported direct. A large number of deportees, whose cases originate in the southwestern States, are now being deported and reshipped one-way foreign from the port of Galveston, Tex., fully one-half of them being reshipped without cost to the Government for their transportation foreign. In addition to that a considerable saving is effected in the short haul from points of origin to Galveston instead of conveying these aliens to New York. Approximately $10,000 or more in transportation expenses was saved in this manner during the past year, over and above the savings effected in the year previous.
    During the year agreements were consummated with several more transportation companies whereby guards and free transportation for the deporting officers in charge of group movements are furnished, thus affording a much greater saving in transportation costs than that effected last year. With one or two exceptions, all the common carriers patronized by the bureau in the movement of deportees in large parties are now furnishing such service without charge to the Government.
    The service is still greatly handicapped in its deportation work on account of the lack of sufficient funds with which to carry it on. Reports are being received from time to time indicating the overcrowded condition of many of our Federal and State penal institm
    ANNUAL REPORT SECRETARY OF LABOR
    59
    tions, asylums, and hospitals with deportable aliens to the detriment and inconvenience of citizens of this country. With ample funds available this condition could soon be eliminated or reduced to a minimum.
    The races or peoples involved and some of the principal causes of deportation are set forth in the following tables:
    Table VI.—Aliens deported after landing in the United States during the fiscal year ended June 30, 1924, by races or peoples
    Race or people	Deported	Race or people	Deported
    African (black)		126	Magyar		28
    Armenian	.	. .	26	Mexican	 		1,091
    Bohemian and Moravian (Czech)		24	Pacific Islander
    Bulgarian, Serbian, and Montenegrin		60	Polish		 		147
    Chinese.	 . _ 		301	Portuguese		63
    Croatian and Slovenian __ 		124	Rumanian		53
    Cuban	 . ...	15	Russian	 		120
    Dalmatian, Bosnian, and Herzegovinian.	5	Ruthenian (Russniak) 		55
    Dutch and Flemish .	.				107	Scandinavian (Norwegians, Danes, and
    East Indian				 ..	67	Swedes)		1		190
    English. . . . .	. . _ . 		573	Scotch			251
    Finnish	57	Slovak	... 		 . _ ...	55
    French . . . . . . 				423	Spanish		 _. 		315
    German	 . 			343	Spanish American	2		38
    Greek			 . _ . 	 ..	194	Syrian		81
    Hebrew	 			170	Turkish		19
    Irish_. . 			 	 . 		 .	303	Welsh				17
    Italian (north)..			 		125	West Indian (except Cuban)		4
    Italian (south).. . . 						664	Other peoples	.'		72
    Japanese	65
    Korean .	_.							3	Total				6,409
    Lithuanian				35
    Table VII.—Aliens deported from the United States after landing during the fiscal year ended June 30, 1924, by causes
    Causes
    Number
    Causes
    Number
    Insanity, epilepsy_____________________
    Imbeciles, feeble-minded_______________
    Constitutional psychopathic inferiority.. Other mental conditions________________
    Loathsome or dangerous contagious diseases_______________________________
    Professional beggars___________________
    Likely to become a public charge_______
    Public charges not specified___________
    Entered without inspection_____________
    Contract laborers______________________
    Accompanying aliens (under sec. 18)____
    Assisted aliens._______________________
    Under 16 years of age and unaccompanied by parent_______________________
    Stowaways______________________________
    Polygamist_____________________________
    Criminals______________________________
    Anarchists and violations of war-time legislation____________________________
    Prostitutes and aliens coming for any immoral purpose________________________
    Supported by or received the proceeds of prostitution________________________
    Aliens who procure or attempt to bring in prostitutes or females for any immoral purpose__________________________
    Prostitutes after entry, or inmates of houses of prostitution_________________
    612 19
    57 36
    101
    3 2,092 52 605
    54
    3 12
    26 16
    1 525
    81
    106
    3
    88
    80
    Imports or attempts to import, or assists, or protects, or promises to protect prostitutes from arrest___________
    Received proceeds of prostitution or connected with the house of prostitution or othgr place habitually frequented by prostitutes_________________
    Found in the United States after having been deported as a prostitute or procurer, or as having been connected with the business of prostitution......
    Entered the United States within one year of previous deportation___________
    Unable to read (over 16 years of age)__
    Under passport provisions of section 3... Geographically excluded classes________
    Under provisions of Chinese-exclusion act____________________________________
    Without proper passport (under State
    Department regulations)______________
    Under last proviso of section 23_______
    Under provisions of narcotic act.......
    Under per centum limit act of May 19, 1921, as extended “excess quota”_______
    Total
    44
    13
    190
    345
    44
    53
    1 172
    218
    270
    21
    462
    6, 409
    1 Chinese deported under judicial writ not included.
    . 16376—24---5
    60
    ANNUAL REPORT SECRETARY OF LABOR
    Debarment of aliens.
    During the fiscal year just ended there were turned back at the ports 30,284 aliens, or about 3.3 per cent of the total number applying for admission. The principal grounds on which these rejections occurred are shown in the following table (VIII) :
    Table VIII—Aliens debarred from entering the United States during the fiscal year ended June 30, 1924, by causes
    Causes	i Number
    Insanity, epilepsy---------------------[	85
    Idiots, imbeciles, and feeble-minded j	105
    Constitutional psychopathic inferiority.'	69
    Chronic alcoholism---------------------j	5
    Surgeon’s certificate of mental defect j
    which may affect alien’s ability to earn j
    a living, other than idiots, imbeciles, j
    feeble-minded, epileptics, and insanity.'	41
    Tuberculosis (noncontagious)____.------j	9
    Loathsome or dangerous contagious dis- |
    eases________________________________I	1,486
    Surgeon’s certificate of physical defect I which may affect alien’s ability to earn a living, other than loathsome or dan- ;
    gerous contagious diseases--------------1	706
    Likely to become a public charge---------1	8,130
    Paupers, professional beggars, and va-	,
    grants----------------------------   1	6
    Contract laborers_______________________:	1,219
    Assisted aliens_________________________j	325
    Stowaways-------------------------------!	2,436
    Accompanying aliens (under sec. 18) ..._|	251
    Under 16 years of age and unaccom- ,
    panied by parent-----------------------1	267
    Causes	Number
    Polygamists		2
    Criminals		546
    Anarchists	 	 			2
    Prostitutes and aliens coming for any immoral purpose		163
    Aliens who are supported by or receive proceeds of prostitution		1
    Aliens who procure or attempt to bring in prostitutes or females for any immoral purpose		149
    Had been deported within one year		46
    Unable to read (over 16 years of age)		1,708
    Geographically excluded classes		20
    Under passport provisions of section 3...	8
    Under provisions of Chinese exclusion act	509
    Under last proviso of section 23		322
    Without proper passport under State Department regulations		1,554
    Under per centum limit act of May 19, 1921, as extended, “excess quota”		10,114
    Total 		30,284

    Smuggling aliens.
    As. I have constantly attempted to bring before the public, both orally and by means of articles in periodicals of national circulation, the passage of the so-called quota law has resulted in a situation which, for want of a better name, we have called “bootlegging of aliens.”
    Boatload after boatload has been apprehended by our officers on the Florida coast. Strange as it may seem, most of the arrests have occurred between Cedar Key and Sarasota, Fla., notwithstanding that territory is considerably north of Key West, the nearest point to Cuba, the country whence the smuggled aliens came, although our officers operating in connection with the Coast Guard have apprehended as far north as New Orleans a boatload of European aliens who started from Habana, Cuba. The Immigration Service has at this time no patrol boats of its own and must, in order to detect these smugglers before they come ashore, rely on such aid as the Coast Guard Service is able to render. As the coast line of Florida is hundreds of miles in length, it goes without saying that to attempt to stem the tide of smuggled aliens solely by means of the shore stations of Jacksonville, Miami, Key West, Tampa, and Pensacola is next to impossible.
    ANNUAL REPORT SECRETARY OF LABOR
    61
    What applies to the smuggling situation in Florida and on the Gulf coast with respect to aliens of European origin, is equally true of those of Asiatic origin on the Pacific coast. It has been noted that steamers touching at Pacific coast ports carry large numbers of Asiatics destined to points in southern Mexico and beyond, although how the communities to which they are destined could possibly support immigration of that kind is a mystery. Investigation recently conducted by our officers in northern Mexico, to which a group of East Indian farm laborers were destined, disclosed that not only was the project upon which they were to be employed not in existence but that there was >no other industry in that country which would support the added population, thus leaving no doubt in the minds of our officers that the voyage to Mexico in that case, as in all other similar ones, was merely a sham and that the ultimate destination of all these passengers was the United States.
    European aliens are traveling between northern European ports,, principally Rotterdam and Vera Cruz and Tampico, Mexico, in large numbers. No one in the least familiar with the situation will contend for a moment that conditions in North America south of the-Rio Grande are such as to justify European immigration. It is singular to note also that few, if any, of the aliens apprehended are English, Irish, German, or of any nationality whose quota under the present legislation is reasonably large, but that the majority of them are of those nationalities and races the numerical limitation of which has been materially decreased by the 1924 immigration act. These aliens subsequently find their way to the shores of the Rio Grande, where they lie in wait for the opportunity to slip by the immigration forces who guard the 2,100 miles of international boundary.
    On the Canadian border the Immigration Service finds itself confronted with troubles hardly less than those which prevail on the Rio Grande. The principal difference is in the races concerned.
    The Gottlieb decision.
    In February, 1922, there arrived at the port of New York, N. Y.r the wife and child of a Jewish rabbi named Solomon Gottlieb, who,, by their exclusion, were destined to cause not only great confusion in the administration of the immigration act but to turn into the wrong channel a long line of judicial thought as to the proper interpretation of the immigration laws. The husband and father had preceded his family to’ the United States by about 14 months. The quota allotted to Palestine, the country where Mrs. Gottlieb and her son were born, having been exhausted before their arrival they were denied admission to the United States. By means of habeas corpus proceedings, the United Charity Institutions of
    62
    ANNUAL REPORT SECRETARY OF LABOR
    Jerusalem intervened, as a result of which United States Circuit Judge Mack, in a decision which appears in 278 Fed. Rep. 564, sustained the writ and discharged the relators, on the assumption that a proviso in section 3 of the act of February 5, 1917—which, by the terms thereof, is limited only to persons who were born in the geographically described territory of that section—also applied to immigration legislation passed four years thereafter.
    The Government was unable, to prevail upon the circuit court of appeals that District Judge Mack had erred, and on November 17, 1922, in the case entitled “ United States ex rel. Gottlieb v. The Commissioner of Immigration” (285 Fed. 295), that court held that the interpretation placed upon the law by District Judge Mack was correct. It was not until May 26, 1924, that the Supreme Court of the United States finally pointed out that both the district court and the circuit court of appeals were in error and that the exemption covering only aliens of the geographically described zone could not be made to apply to a Jewish rabbi whose family had been excluded under a subsequent law. Meanwhile the Federal courts at New York, as well as those at Boston, not only generally followed the Gottlieb decision but sought to enlarge the classes to which it was meant to apply. In fact, only on the Pacific coast did the courts construe the quota law in the manner which the department felt it was the intention of Congress that it should be construed. Judge Lowell, in Boston, in the case entitled “ Babina Suzanna,” went even further and concluded that even a proxy bride could acquire by such proxy marriage the right to enter the United States after the quota was exhausted, notwithstanding the fact that he admitted that the validity of a proxy marriage had never been determined, so far as he was aware, in any case in England or the United States. As a result of that decision there was incorporated in section 28 of the 1924 immigration act specific language to the effect that the terms “ wife ” and “ husband ” do not include a wife or husband by reason of a proxy or picture marriage.
    When the efforts of the department to carry out what is conceived to be a proper construction of the law were constantly interfered with by the courts, it could not do otherwise than issue instructions to its field officers to admit, in line with those court decisions, aliens of a class it had theretofore felt should be excluded. In order that no hardship might result in deporting, after all these years, aliens who were admitted solely because of an erroneous judicial construction of the statute, Congress passed a special resolutiqn legalizing the residence of—
    (1)	Aliens heretofore admitted in excess of quota and charged to the quota of a later month;
    (2)	Aliens heretofore admitted under a construction of such act of May 19, 1921, required by court decision;
    ANNUAL REPORT SECRETARY OF LABOR
    63
    (3)	Aliens arriving in the United States after May 26 and before July 1, 1924, who departed for the United States from the last port outside the United States or outside foreign contiguous territory on or before May 26, 1924, believing in good faith that they would be admitted pursuant to a construction of such act of May 19, 1921, required by court decision; and
    (4-) Aliens heretofore temporarily admitted under bond to relieve cases of extreme hardship.
    Miscellaneous tables.
    Net increase or decrease of population by arrival and departure of aliens during the fiscal years ended June 30, 1923 and 1924, Oy months
    FISCAL YEAR 1923
    Month	Admitted			Departed			Increase (+) or decrease (-)
    	Immigrant	Nonimmigrant	Total	Emigrant	Nonemigrant	Total
    1922 July		41,241	12,001	53,242	14, 738	16,096	30, 834	+22,408
    August		42, 735	12, 298	55,033 67,016	10,448	9,051	19,499	+35,534
    September	 		49,881	17,135		7,527	9, 734	17,261	+49, 755
    October		54,129	17, 063	71,192	7,192	10, 645	17,837	+53, 355
    November	 		49,814	12,316	62,130	7,077	10, 202 10, 673	17,279	+44, 851
    December		33,932	10, 052	43,984	8,157		18, 830	+ 25,154
    Total, 6 months		271, 732	80,865	352, 597	55,139	66,401	121,540	+231,057
    1923 January		28, 773	9,480	38,253	4,232	7,270	11,502 8,844	+ 26,751
    February		30,118	8, 642	38,760	2,794	6,050		+ 29,916
    March	 		42,888	10, 442	53,330	3,610	7,020	10, 630	+42, 700
    April	 .. 		52,433	12, 702	65,135	4,509	9,254	13,763	+51, 372
    May		52, 809	14, 045	66,854 58,477	5, 752	10, 582	16,334	+ 50,520
    June		44,166	14,311		5,414	12, 559	17, 973	+40,504
    Total, 6 months		251,187	69, 622	320,809	26, 311	52,735	79,046	+241,763
    Total, fiscal year 1923		522,919	150,487	673,406	81,450	119,136	200, 586	+472, 820
    FISCAL YEAR 1924
    Month	Admitted			Departed			Increase (+) or decrease (-)
    	Immigrant	Nonimmigrant	Total	Emigrant	Nonemigrant	Total
    1923 July		85, 542	13,039	98,581	8, 041	14, 213	22, 254	+ 76,327
    August				88, 286	13, 688	101, 974 107, 652	6,489	12,267	18, 756	+83, 218
    September		89, 431	18,221		6, 073	10, 245	16, 318	+91,334
    October	 ... . ... ...	88, 028	15, 490	103, 518	7,291	13,856	21,147	+82, 371
    November	 _ _ 		92, 782	12,611	105, 393	6,925	11,607	18, 532	+86,861
    December		55, 794	12, 287	68,081	9,480	13, 722	23,202	+44, 879
    Total, 6 months		499, 863	85,336	585,199	44, 299	75,910	120, 209	+464,990
    1924 January				33, 878	10,476	44, 354	5, 723	8, 689	14,412	+29,942
    February		29, 901	10, 842	40, 743 48, 856	3, 706	7,880	11,586	+ 29,157
    March		35,585	13, 271		4, 202	7,983	12,185	+36, 671
    April. 		38, 375	17,190	55, 565	5,394	10, 546	15,940	+39, 625-
    May	 		32,985	16, 230	49, 215	6, 634	14, 457	21, 091	+28,124
    June					36,309	19, 061	55, 370	6,831	14,491	21,322	+34, 048
    Total, 6 months		207, 033	87,070	294,103	32,490	64,046	96, 536	+ 197,567
    Total, fiscal year 1924		706, 896	172,406	879, 302	76, 789	139,956	216, 745	+ 662,557
    64
    ANNUAL REPORT SECRETARY OF LABOR
    Increase or decrease in population by arrival and departure of aliens during the fiscal year ended June 30, 1924, by races or peoples
    Race or people	Admitted			Departed			Increase (+) or decrease (-)’
    	Immigrant	Nonimmigrant	Total	Emigrant	Nonemigrant	Total
    .African (black)		12,243	7,099	19,342	1,449	3,438	4,887	+ 14,455
    Armenian 		2,940	240	3,180	60	127	187	+2,993
    Bohemian and Moravian(Czech)	6,869	699	7,568	1,287	904	2,191	+5,377
    Bulgarian, Serbian, and Montenegrin 		2,482	324	2, 806	1,544 3,736	565	2,109	+697
    ■Chinese		4, 670	9,843	14, 513		9,172	12,908 581	+ 1,605
    'Croatian and Slovenian		4,137	184	4,321	381	200		+3,740
    •Cuban				1,412	7, 941	9, 353	961	7,397	8, 358	+995
    Dalmatian, Bosnian, and Herzegovinian		295	69	364	183	361	544	-180
    Dutch and Flemish 		7,840	3,097	10, 937	990	3,164	4,154	+6, 783
    East Indian	 	.	..	154	186	340	149	151	300	+40
    English..	 		93,939	31,385	125,324	6, 505	35,333	41,838	+83,486
    Finnish	 	 . ...	3,975	704	4, 679	411	924	1,335	+3, 344
    French	 		48, 632	6, 925	55, 557 105,054	1,305	6, 567	7, 872	+47, 685
    German.		95, 627	9,427		1,832	7,653	9,485	+95,569
    Greek		5, 252	1,127	6, 379	7, 335	1,677	9,012	-2,633 +51, 596
    Hebrew		 _	49,989	2,765	52, 754	260	898	1,158
    Irish		42, 364	4, 709	47,073	1,581	3, 741	5, 322	+41, 751
    Italian (north)	 			11, 576	5,744	17, 320	2, 704	4, 505	7, 209	+ 10,111
    Italian (south)		47, 633	19, 410	67,043	20, 363	12,951 9, 623	33,314	+33, 729
    Japanese		8,481	7,217	15, 698	2, 120		11, 743	+3,955
    Korean. 	 			122	50	172	27	65	92	+80
    Lithuanian. 		1,991	332	2, 323	381	308	689	+ 1,634 +6, 879
    Magyar	 ...	7,446	757	8,203	587	737	1,324
    Mexican		87, 648	18,139	105, 787	1,878	1,694	3, 572	+102, 215
    Pacific islander			12	32	44	1	7	8	+36
    Polish		19,371	1,359	20, 730	2, 590	1, 682	4, 272	+ 16, 458
    Portuguese		3, 892	2,405	6, 297	3,465	1,106	4, 571 1, 690	+1,726
    Rumanian		1,727	343	2,070	1,085	605		+380
    Russian		 		9, 531	1,135	10, 666	734	1,190	1, 924	+8, 742
    Ruthenian (Russniak)		2,356	51	2, 407	52	39	91	+2,316
    Scandinavian (Norwegians, Danes, and Swedes)		40, 978	8,055	49,033	2, 662	6, 815	9, 477	+39,556
    Scotch	 ...	61, 327	6,304	67, 631	1, 281	5,412	6, 693 719	+60,938
    Slovak		5, 523	234	5, 757	475	244		+5, 038
    Spanish			3, 664	6,104	9,768	3, 674	4, 326	8,000	+ 1, 768
    Spanish-American		3,065	3,983	7,048	906	3,145	4,051	+2,997
    Syrian		1,595	690	2,285	439	513	952	+ 1,333
    Turkish		355	124	479	297	80	377	+102
    W elsh		2,635	536	3,171	77	227	304	+2, 867
    West Indian (except Cuban)		2,211	2, 296	4, 507	600	2,155	2,755	+ 1, 752
    Other peoples.			937	382	1,319	422	255	677	+642
    Total		706,896	172,406	879,302	76,789	139,956	216, 745	+662, 556
    Male	 	 		423,186	114,407	537, 593	57,313	92, 514	149, 827	+387,767
    Female		283, 710	57, 999	341, 709	19,476	47, 442	66, 918	+274, 791
    All classes of aliens admitted, departed, debarred, and deported, and United States citizens arrived and departed, during the fiscal year ended June 30, 1924, by ports
    Ports	Arrivals				Departures
    	Admitted			Aliens debarred	Departed			Aliens deported
    	Immigrant aliens	Nonimmigrant aliens	United States citizens		Emigrant aliens	Nonemigrant aliens	United States citizens
    Atlantic ports:						80,448	201,491	1,582
    New York, N. Y		315,587	97,471	205,362	6,370	55, 576
    Boston, Mass		36,320	2,472	6, 507	347	4, 721	2,128	5, 472	145
    Philadelphia, Pa		8, 711	844	1,073	241	585	218	598	63
    Baltimore, Md		480	104	141	130		3	28	26
    Canadian Atlantic		18,140	2,423	7,472	449	1,000	1,805	225	324
    Portland, Me		3,912	221	584	53	8	157	49	7
    New Bedford, Mass		87	87	65	17	361	83	103	6
    Providence, R. I		7,347	2,600	1,599	90	1,346	216	449	24
    Newport News, Va		461	12	1	16			1	5
    Norfolk, Va			739	17	519	68	1	2	1	37
    Savannah, Ga		22	5	3,638	22	2	2	3
    Miami, Fla		1,932	4,445		48	765	3,127	2,948	10
    Key W"est, Fla		1, 535	7,124	31,489	73	918	8,318	28,949	42
    Other Atlantic		146	16	53	43		1	15	212

    MH
    ANNUAL REPORT SECRETARY OF LABOR
    65
    All classes of aliens admitted, departed, debarred, and deported, and United States citizens arrived and departed, during the fiscal year ended June 30, 1924, by ports—Continued
    Ports	Arrivals				Departures
    	Admitted			Aliens debarred	Departed			Aliens deported
    	Immigrant aliens	Nonimmigrant aliens	United States citizens		Emigrant aliens	Nonemigrant aliens	United States citizens
    Ports of Gulf of Mexico: Tampa, Fla		1,051 8 55 1,180 314 13 7,659 146 7,131 523 176 200,834 88,280 762 3,115 230	1,843 4 58 4,021 224 8,214 16 4,658 4,705 46 7,362 18, 497 865 2, 560 1,490	90 8 129 7, 276 923 2 6,980 15 2,971 2,074 94 13,673 2, 092 1,144 2, 257 3,050	98 7 33 237 89 9 390 16 412 357 28 16,236 4,133 95 126 51	40	105	46	76 7 7 38 60 24 95 20 96 9 6 1,551 1,904 26 4 3
    Mobile, Ala	 New Orleans, La		 Galveston, Tex	 Other Gulf					2 519 28	7 2, 372 251	31 7,644 697
    Pacific ports: San Francisco, Calif	 Portland, Oreg	 Seattle, Wash	 Canadian Pacific	 Alaska	 Border stations: Canadian border	 Mexican border	 Mexican border seaports. Insular possessions: Honolulu, Hawaii	 Porto Rico	 Total						3,766 9 1,968 614 45 2,104 1,540 242 442 184	7,747 23 2, 091 2, 323 2 20,978 1,572 1,162 3,158 1, 657	6,228 6 2, 508 1,417 30 10,448 346 1,972 2,914 3,231
    	706,896	172,406	301,281	30,284	76, 789	139,956	277,850	6,409
    Last permanent residence of immigrant aliens admitted to and future permanent residence of emigrant aliens departed from the United States, fiscal year ended June 30, 1924, by countries
    Countries	Immigrant, July, 1923, to June, 1924	Emigrant, July, 1923, to June, 1924
    Albania		250	284
    Austria		7, 505	217
    Belgium	 		2,065	517
    Bulgaria . 		550	233
    Czechoslovakia		13, 554	1,568
    Denmark		5,281	510
    Esthonia	.	 		765	11
    Finland 		3, 662	360
    France, including Corsica		6,387	1,249
    Germany		75,091	1,178
    Great Britain:
    England 		24,466	4,361
    Ireland		17,111	1,282
    Scotland.		33i 471	827
    Wales		1, 553	60
    Greece _ 		4,871	7,250
    Hungary	.. 		5,806	522
    Italy (including Sicily and
    Sardinia)	•		56,246	22,904
    Latvia 			1,473	67
    Lithuania 		2,369	335
    Netherlands .. 			3, 783	345
    Norway 		Hi 986	955
    Poland 	 _ 		28,806	2, 594
    Portugal (including Azores
    and Cape Verde Islands)...	2,769	3,357
    Rumania			11,142	1,096
    Russia			12, 649	572
    Spain (including Canary and
    Balearic Islands)		932	2,967
    Countries	Immigrant, July, 1923, to June, 1924	Emigrant, July, 1923, to June, 1924
    Sweden				18,310	830
    Switzerland. 		3,842	390
    Turkey in Europe		1,481	128
    Yugoslavia		5,835	1,991
    Other Europe		328	28
    Total Europe		364,339	58,988
    China		6,992	3,847
    Japan		8, 801	2,155
    India _ 		183	161
    Syria, Palestine, and Mesopotamia		2,946	492
    Turkey in Asia		2,820	211
    Other Asia		323	77
    Total Asia		22,065	6,943
    Africa.. 		900	108
    Australia, Tasmania, and New Zealand		635	485
    Pacific Islands (not specified).	44	34
    Canada and Newfoundland __	200,690	2, 601
    Central America		2,000 89, 336	567
    Mexico					1,926
    South America		9, 270 17, 559	1,052 4, 081
    West Indies
    Other countries		58	4
    Grand total		706,896	76, 789
    66
    ANNUAL REPORT SECRETARY OF LABOR
    Future permanent residence of immigrant aliens admitted to and last permanent residence of emigrant aliens departed from the United States, fiscal year ended June 30, 1924, by States.
    ♦ States	Immigrant, July, 1923, to June, 1924	Emigrant, July, 1923, to June, 1924
    Alabama		438	53
    Alaska		287	65
    Arizona.				12, 620	439
    Arkansas		165	21
    California			57, 946	6,008
    Colorado.. 		L 657	182
    Connecticut					12, 833	1,478
    Delaware		451	25
    District of Columbia		1,504	225
    Florida		4,047	1,705
    Georgia		417	78
    Hawaii			3,186	451
    Idaho		1,118	109
    Hlinois		46, 254	3,977
    Indiana		5,311	633
    Iowa		3, 757	253
    Kansas		1,582	101
    Kentucky		559	47
    Louisiana		1,365	457
    Maine.					12; 541	100
    Maryland		3,009	•265
    Massachusetts		61,938	6,715
    Michigan			60,482	2, 624
    Minnesota		10, 795	640
    Mississippi		475	47
    Missouri			4,435	423
    Montana	 		1, 956	178
    Nebraska...			2,495	145
    States	Immigrant, July, 1923, to June, 1924	Emigrant, July, 1923, to June, 1924
    Nevada		261	53
    New Hampshire		7,140	132
    New Jersey		30,803 1, 364	2,909
    New Mexico... 			52
    New York		166, 749	28,983
    North Carolina			270	79
    North Dakota		1,745	112
    Ohio... 		24,154	3,423
    Oklahoma				519	42
    Oregon		6,820	398
    Pennsylvania	 Philippine Islands		47, 344 1	7,014
    Porto Rico		266	183
    Rhode Island	 ..	7,707	1,282
    South Carolina		150	24
    South Dakota		1,016	66
    Tennessee 		391	45
    Texas	 		57, 016	1,033
    Utah		1,181	301
    Vermont		3, 251	58
    Virginia	 Virgin Islands		2,185 15	188
    Washington		20,915	1,526
    West Virginia		2,061	712
    Wisconsin		 _ 		9, 324	610
    Wyoming		625	120
    Total		706, 896	76, 789
    Immigrant aliens admitted to and emigrant aliens departed from the United States during the fiscal year ended June 30, 1924, by occupations
    Occupations	Immigrant July, 1923, to June, 1924	Emigrant July, 1923, to June, 1924
    Professional:
    Actors		1,012	89
    Architects		447	18
    Clergy		2,093	342
    Editors		56	9
    Electricians			3, 777	64
    Engineers (professional)..	4,870	295
    Lawyers	 Literary and scientific	233	43
    persons		712	86
    Musicians		 _. . ...	1,479	95
    Officials (government)		553	156
    Physicians		1,391	87
    Sculptors and artists		429	59
    Teachers		3,460	252
    Other professional		4, 266	411
    Total		24, 778	2,006
    Skilled:
    Bakers		 . ... .	3, 521	202
    Barbers and hairdressers..	2, 621,.	221
    Blacksmiths	 ..	3, 233	79
    Bookbinders			275	2
    Brewers	 __ 		34	1
    Butchers		2,795	106
    Cabinetmakers.. _ _ . .	487	46
    Carpenters and joiners		16,420	592
    Cigarette makers		48	2
    Cigar makers		267	332
    Cigar packers		20	1 i
    Clerks and accountants...	25,194	985 I
    Occupations
    Immigrant July, 1923, to June, 1924
    Emigrant July, 1923, to June, 1924

    Skilled—Continued.
    Dressmakers_____________
    Engineers (locomotive, marine, and stationary).
    Furriers and fur workers.. Gardeners_______________
    Hat and cap makers______
    Iron and steel workers__
    Jewelers________________
    Locksmith_______________
    Machinists______________
    Mariners________________
    Masons__________________
    Mechanics (not specified). Metal workers (other
    than iron, steel, and tin). Millers...............
    Milliners_______________
    Miners__________________
    Painters and glaziers___
    Pattern makers__________
    Photographers___________
    Plasterers______________
    Plumbers________________
    Printers________________
    Saddlers and harness
    makers________________
    Seamstresses____________
    Shoemakers______________
    Stokers_________________
    Stonecutters____________
    Tailors_________________
    3, 904
    3, 421 320
    1, 230 303
    7,308
    482
    3, 701 6,616 8,571
    5,452
    8, 388
    1,123 525 662
    7,001
    3,937
    339
    478
    769
    2,080 1,740
    322 2,579 4,694
    968
    560 6,754
    156
    96
    17
    98
    4
    126
    31
    3
    271
    323
    163
    265
    25
    77
    9 954 132
    5
    15
    27
    58
    58
    1
    61
    328
    26
    19
    362
    ANNUAL REPORT SECRETARY OF LABOR
    67
    Immigrant aliens admitted to and emigrant aliens departed from the United States during the fiscal year ended June 30, 1924, by occupations—Con.
    Occupations	Immigrant July, 1923, to June, 1924	Emigrant July, 1923, to June, 1924
    Skilled—Continued.
    Tanners and curriers		182	5
    Textile workers (not specified)		482	133
    Tinners		739	8
    Tobacco workers		30	1
    Upholsterers		374	12 !
    Watch and clock makers .	528	12 1
    Weavers and spinners		2,713	424 |
    Wheelwrights		130	1
    Woodworkers (not specified) 		498	5
    Other skilled		5,876	198
    Total		150,694	7,078
    Miscellaneous:
    Agents		2,179	170 :
    Bankers.			180	88
    Occupations	Immigrant July, 1923, to June, 1924	Emigrant July, 1923, to June, 1924
    M iscellaneous—Continued. Draymen, hackmen, and teamsters	 Farm laborers	 j Farmers		 Fishermen	 Hotel keepers	.. Laborers	 1	Manufacturers	 Merchants and dealers.... |	Servants	 j	Other miscellaneous	.	1, 770 27,492 20,320 3,113 225 108,001 525 11,390 51,680 26,640	57 259 1,575 82 39 37,259 84 2,567 2,659 3,638
    Total	 No occupation (including women and children)		253,515 277,909	48,477 19,228
    Grand total		706,896	76,789
    Financial statement.
    The total appropriation for the immigration field service for the fiscal year 1924 was $3,817,840, which was made up as follows:
    For the enforcement of laws regulating immigration into the United
    States_______________________________________________________$3,300,000
    For physical maintenance and upkeep of immigration stations-----	100, 000
    For emergent alterations, repairs, and remodeling of buildings at
    the immigration station, Ellis Island, New York Harbor-------- 326, 000
    Salaries, Bureau of Immigration_______._________________________ 01, 840
    Total____________________________________________________ 3, 817, 840
    The amount expended during the fiscal year 1924 for all purposes, including salaries, repairs, remodeling, and maintenance of immigration stations (exclusive of repayments from steamship companies and individuals for expenditures not properly chargeable against the Government) was $3,732,315.38, leaving an unexpended balance of $85,524.62.
    The total revenue from the enforcement of the immigration laws during the fiscal year 1924 and turned into the general fund of the United States Treasury was $6,334,756.74. The following table shows the various sources of income and the amounts collected under each head:
    Head tax (through customs districts) July 1, 1923, to June 30,
    1924__________________________________________________________$5,493,552.00
    Head tax voluntarily paid, the statutory period having expired. 2, 312. 00
    Head tax through naturalization for nunc pro tunc inspections.	21, 839. 96
    Fines (through customs districts), July 1, 1923, to June 30,1924.	444, 938.’66
    Forfeiture of bonds______________________________________________ 124, 723. 97
    Sale of exclusive privileges_____________________________________ 1, 634. 40
    68	ANNUAL REPORT SECRETARY OF LABOR
    Sale of Government property____________________________________ $3,129. 92
    Coin-box collections from the New York Telephone Co., Ellis
    Island, N. Y_________________________________________________ 314.58
    From Deper Bros, for damages in moving furniture--------------- 10. 00
    Bell Manufacturing Co., for lease of the old Charleston immigra-
    tion station from Dec. 1, 1922, to June 30, 1923------------- 525.00
    Care and treatment of aliens, Ellis Island Hospital, Public
    Health Service, from July 1, 1923, to June 30, 1924__-------- 241, 776. 25
    Total___________________________________________________ 6, 334, 756. 74
    From the foregoing you will note that the Immigration Service was not only self-supporting during the fiscal year, but in addition produced a revenue of $2,602,441.36.
    With reference to the repayments above referred to, it may be stated that prior to February 16, 1922, no charge was made by the Government for maintenance of aliens at immigration stations, except a flat charge for hospital treatment and meals. Beginning February 16 an additional charge of 25 cents per day per alien was made to cover the cost of maintenance, and this charge was increased to 50 cents a day July 1, 1923. This resulted in a saving to the appropriation of $347,000 during the fiscal year 1924 and a saving of $537,371.53 since the plan was inaugurated.
    Remodeling Ellis Island.
    During the last session of Congress an appropriation of $326,000 was procured for the purpose of making some very necessary repairs and alterations at the immigration station at Ellis Island, New York Harbor. While this appropriation is only two-thirds as large as the department requested, it will, nevertheless, enable it to remodel and repair the ground floor of the main building and ticket office so as to make it available for primary inspection purposes and obviate the necessity of having the applicants for admission (a considerable number of them women accompanied by small children) go to the second floor, which was necessary prior to alteration; remodeling and repairing the railroad waiting room; remodeling the second floor of the main building to provide waiting rooms for aliens temporarily detained and those awaiting examination by boards of special inquiry; converting a portion of the present lower special inquiry room into locker rooms and toilets for both male and female employees; reconstructing the present men’s locker room, drafting room, and upper special inquiry room into dormitories; providing new and much needed additional laundry equipment; installing selfsyphoning ventilators, with ducts and dampers, in detention rooms, in the registry division, power house, laundry, and waiting rooms; renewing and installing electric wiring and safety panel boards on Island No. 1, which contains the main building, and on Island No. 3, on which are located the contagious-disease wards; and purchase of
    ANNUAL REPORT SECRETARY OF LABOR
    69
    a number of two-tier white enamel beds, with springs, mattresses, mattress protectors, pillows, pillow slips, sheets, chairs, tables, and the like.
    Ferry Dock Immigration Station, Detroit, Mich.
    For some years the inspection of aliens entering the United States via the Detroit & Windsor Ferry Co.’s vessels at Detroit, Mich., which land at the foot of Woodward Avenue, has been conducted at considerable disadvantage, the facilities proving inadequate to meet the demands* of the service on account of the great number of passengers.
    Many of these passengers, though citizens of the United States, are unknown to the inspectors; many others are citizens of Canada who have been legally admitted to the United States on a previous occasion and are returning after a temporary visit to Canada, or Canadians entering with the intention of returning to Windsor within a few hours; while a smaller number consists of Canadians or other aliens entering for an indefinite stay in the United States. The status of all these must be ascertained before they are allowed to leave the wharf.
    The vessels, traveling but a short distance to and from Windsor, Ontario, arrive at frequent intervals; the passengers are discharged as rapidly as possible and file before the inspectors, being questioned, and, if admissible, permitted to depart, while otherwise they are detained for further examination. Under the former arrangements the facilities were so limited that congestion could not be avoided and, aside from the delay to pa'ssengers, the inspectors were unable to conduct their work to good advantage.
    The new immigration station at this point, erected by the Detroit & Windsor Ferry Co. and recently formally accepted by the Immigration Service and placed in charge of an experienced officer, with a board of special inquiry available at the dock itself, will result not only in expediting the landing of those who have a right to enter but in arriving at a decision as to doubtful cases, making it possible to return to Windsor from the dock itself those who are excluded without requiring them, as under the former system, to go to the uptown office of the district director of immigration to have their cases adjudicated.
    The new arrangement has been found more satisfactory than the one preceding it, and every effort is being made to facilitate the work at this point without a lessening of efficiency.
    Emigration conditions in Europe.
    Since the close of the war the subject of immigration has been receiving more and more attention by the American people. It will be recalled that when this administration came into office in
    70
    ANNUAL REPORT SECRETARY OF LABOR
    1921 there were nearly 6,000,000 breadwinners out of employment in the United States and immigration was beginning to assume its prewar proportions. The Sixty-sixth Congress realized that the rising tide of unemployment and labor unrest in certain quarters called for some definite action in the way of an immigration policy. A bill placing a numerical limit upon immigration to the United States was passed by that Congress, but did not receive the signature of President Wilson. While this bill died with the close of that Congress, it was passed in substantially the same form at the special session called by the late President Harding and became a law on May 19, 1921. That law was amended and extended by the resolution of May 11, 1922, but expired by limitation on June 30, 1924.
    Economic conditions in America have changed since the first limit was placed upon the number of immigrants that were to be given the privilege of taking up residence here. The millions of unemployed have been more or less absorbed into normal conditions of employment. The great pool of surplus labor which existed in 1921 has been drained nearly dry, and the advocates of cheap labor a year ago, in anticipation of a shortage, began a vigorous national campaign for open immigration, on the theory that Europe was a reservoir of labor and all that was necessary to secure it was an open main.
    On the other hand, far-sighted individuals and patriotic organizations observing closely the types of immigrants admitted following the war reached the conclusion that a very small percentage of the immigrants being received would ever become “labor” of the type America needed. A large number of applicants could only just meet the physical and mental requirements of the law and many had to be rejected as unfit.
    With the return of prosperity to America, representatives of labor have repeatedly charged that the contract-labor sections of the general immigration laws were being violated by large employers of labor, and demanded investigation.
    The question early in this year had two classes of advocates— those seeking the establishment of an open-door policy and those lined up as urging absolute restriction for a period of years.
    Reports during the period following the war were received from several patriotic spirited Americans who investigated without cost to the Government the conditions affecting emigration in the principal countries of Europe. These have presented conflicting recommendations, some actuated no doubt by a spirit of compassion for afflicted people, with little thought as to the cause of affliction and no consideration of the effect of “a haven of refuge” policy upon the future of the Republic. Others who reported perhaps gave too little consideration to the conditions abroad in determining what the
    ANNUAL REPORT SECRETARY OF LABOR	71
    emigration prospects would develop into in terms of American citizenship.
    Not the least among the disturbing reports were those which indicated that certain foreign governments were pursuing toward America a policy of “ dumping ” of their undesirable citizens and subjects. Few people realize the iniquities of the present passport system as a means of crediting immigrants. While passports must be visaed by American consular officers to be recognized by the immigration officials at the ports of entry, the issuance of those passports are regulated by the government to which the alien owes allegiance. Passports are not issued as a matter of right, and there is no dispute of the fact that these documents are refused to many who apply. Under the present arrangements with these foreign powers passports amount to declarations as to certain facts by the government issuing them. A visa is nothing more than a statement by the consul to the effect that the document is recognized as genuine. The whole system is ideally adapted for the furtherance of a policy of dumping such as has been suggested as existing.
    Realizing that immigration legislation would be necessary during the Sixty-eighth Congress, the late President Harding suggested that during the summer recess I try to ascertain at first hand what were the actual conditions, and determine what I believed the best policy for the administration to pursue in the way of constructive legislation which would meet the legitimate demand of employers and at the same time safeguard the institutions of this country from a destructive peaceful alien invasion.
    Accordingly, in order that every angle of the question might be studied, I asked to accompany me Mr. E. S. Griffiths, of Cleveland, Ohio, a man prominent in various business activities in that city; Mr. Nathan Grosshandler, of Youngstown, Ohio, a publisher of a number of foreign-language newspapers; Mr. Oswald Ryan, an attorney at law from Anderson, Ind.; and my secretary, Mr. Arthur E. Cook, whose former experience as American vice consul and service with the Immigration Committee of the House of Representatives was helpful to the party. Accompanying the party also were Congressman J. B. Aswell, of Louisiana, who desired to secure certain information concerning agriculture and immigration, and Mr. Hugo Doebler, of Chicago. Mr. Griffiths and Representative Aswell rendered their service without cost to the Government for either salary or expenses by reason of the appointments. The other special appointments were made to include actual expenses only, without compensation for services.
    France.—France was the first country visited and the first investigative work done was at the emigrant detention quarters at Cherbourg. There is comparatively little emigration from France,
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    ANNUAL REPORT SECRETARY OF LABOR
    but Cherbourg is the port of embarkation for a great many from Poland and Russia. The growing strictness of our laws relating to the admission of the physically unfit has led to the establishment in a number of ports of facilities for the inspection and observation. These facilities are supervised by the United States Public Health Service.
    In spite of the marked decrease in the total number of passengers examined and embarked at Cherbourg, the activities of this station have been justified by the increased number of passengers originating in typhus-infected regions. Whereas during the year ended June 30, 1921, 6,688 passengers were detained, 10,188 passengers, nearly all originating in either Poland or Russia, were allowed to embark after observation without the occurrence of a single case of typhus during the year ended June 30, 1922.
    The marked diminution in the number of rejections because of trachoma, favus, and the like, 47 for this year, as compared with 384 for the year ended June 30, 1921, has been brought about by increased cooperation on the part of the steamship companies. During the past year several conferences have been held here at which were present the agents and physicians employed by the companies in the more important emigration centers. At Warsaw, Bucharest, Budapest, Prague, and Zagreb, the main sources of the Cherbourg passengers, prospective purchasers of tickets are being examined in advance. Although this has decreased the number of frank cases, each passenger is being examined at least three times before acceptance at this port. “ Cured favus ” cases are not infrequent. Such cases are subjected to repeated microscopical examinations before being accepted. The new delousing and disinfection plant is in operation and decided improvements in housing conditions for the steerage passengers have been made.
    Attention is called to the low hospital record. (See Table D of this report.)
    There are six companies calling at Cherbourg and embarking passengers for the United States directly: The White Star, Red Star, Cunard, Royal Mail, United States Lines, and the United American Line. In addition the Canadian Pacific and Cunard Lines embark passengers in transit for the United States via the Canadian ports.
    Since passengers for Canada and South America are quartered with passengers for the United States, this officer inspects such passengers before their admission to the “ clean ” section of the two hotels.
    ANNUAL REPORT SECRETARY OF LABOR
    73
    Table A.—Summary of operations for the year ended June 30, 1922
    Number of passengers—
    Inspected____________________________________________________19,	306
    Embarked for	United States________________________________________17,	867
    Found verminous___________________________________________________ 4,	860
    Deloused__________________________________________________________ 9,	610
    Detained_____________________________________________________10,188
    Rejected_____________________________________________________ 47
    Trachoma______________________________________________14
    Favus_________________________________________________31
    Tinea (finger nail)___________________________________ 2
    Vaccinated___________________________________________________12, 906
    Number of pieces of baggage—
    Inspected and passed_________________________________________ 7, 056
    Disinfected__________________________________________________22,127
    Number of vessels—
    Inspected________________________________________________________ 17
    Fumigated____________________________________________________ None.
    Number of bills of health—
    Granted______________________________________________________ 195
    Withheld______________________________________________________ None.
    Number of cases smallpox	developed during detention_______________ None.
    Number of cases of typhus	developed during detention--------------- Nono
    Table B.-—Summary of operations for the year ended June 30, 1922, by classes
    Number of passengers—
    Inspected ----------------------
    Embarked for United States------
    Vaccinated----------------------
    Found verminous-----------------
    Deloused________________________
    Detained------------------------
    Rejected------------------------
    Trachoma____________________
    Favus_______________________
    Tinea, finger nail----------
    Number of pieces of baggage—
    Inspected and passed------------
    Disinfected---------------------
    Number of bills of health granted to—
    Passenger vessels---------------
    Cargo vessels___________________
    18
    11
    7
    0
    29
    3
    24
    2
    Second class
    9, 637
    9, 465
    5, 367
    1, 243 2,666
    3, 316
    6,645
    4,538
    Third class
    9, 669 8,402 7,539
    3, 617 6,944
    6, 872
    411
    17, 589
    184
    11
    Note.—The large difference in the number of passengers inspected and embarked is due to the fact that passengers for countries other than the United States are quartered with those destined for the United States. All such passengers are subjected to the same regulations as passengers for the United States under my control and inspection.
    During the past year 391 sanitary inspections of detention quarters and hotels have been made.
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    ANNUAL REPORT SECRETARY OF LABOR
    Table C.—Embarkation, by months
    1QO1	,	Second Third
    -L”zl	class	class
    July_______________________________________________________ 712	551
    August____________________________________________________1, 287	1,147
    September_________________________________________________ 1, 433	1, 000
    October___________________________________________________1> 253	786
    November___________________________________________________ 763	470
    December___________________________________________________ 623	646
    1922
    January____________________________________________________ 381	317
    February__________;_______________________________________	296	159
    March______________________________________________________ 506	563
    April_____________________________________________________  660	620
    May________________________________________________________ 681	948
    June ______________________________________________________ 870	1,195
    Total_______________________________________________ 9, 465	8, 402
    Table D.—Summary of cases sent to the hospital July 1, 1921, to June 30, 1922 (All causes)	Cases	Deaths
    Diphtheria__________________________________________________ 2	0
    Dysentery, bacillary Shiga type----------------------------- 1	1
    Gastro-enteritis ------------------------------------------- 4	0
    Influenza___________________________________________________ 2	0
    Mumps__________________________/--------------------------- 1	6
    Measles____•----------------------------------------------- 3	0
    Pneumonia------------------------------------------------- 4
    Scabies____________________________________________________ 3	0
    Total_______________________________________________17	2
    Table E.—Verminous steerage passengers, by country of origin
    Lice Eggs
    Armenia______________________________________________________ 21	57
    Austria_______________________________________________________ 6	10
    Bulgaria------------------------------------------------------ 1	24
    Czechoslovakia_______________________________________________ 37	302
    Egypt------------------------------------------------------------ 5
    France________________________________________________________ 2	21
    Greece________________________________________________________ 3	9
    Hungary-----------------------------------------------------   9	131
    Italy________________________________________________________ 31	97
    Libia_________________________________________________________________ 6
    Lithuania_____________________________________________________________ 1
    Mialta__________________________________________________•------	1
    Palestine_____________________________________________________ 9	37
    Persia________________________________________________________________ 3
    Poland______________________________________________________ 167	267
    Rumania______________________________________________________ 46	106
    Russia______________________________________________________ 576	928
    Spain_______________________________________________________________   1
    Switzerland--------------------------------------------------- 6	28
    Syria	12	77
    Turkey________________________________________________________ 1	7
    Ukrania_______________________________________________________ 2	3
    Yugoslavia_________________________________________________   33	312
    Total_________________________________________________ 962	2,430
    ANNUAL REPORT SECRETARY OF LABOR
    75
    Verminous United States citizens, steerage
    Coming from—	Lice	Eggs
    Czechoslovakia_____________________________________________  2	15
    Italy_______________________________________________________ 3	55
    Palestine___________________________________________________ 7	11
    Poland_____________________________________________________ 34	47
    Syria-----------------------------------------------------   4	21
    Yugoslavia__________________________________________________ 7	19
    Total_________________________________________________ 57	168
    Total for steerage________________________________________ 1, 019	2, 598
    Grand total_____________________________________ 3, 617
    Holland.—Very little time was spent by the committee in -Holland, but such time as was spent there was very refreshing from the general atmosphere of order and cleanliness. Holland is known the world over for the peace-loving and industrious attitude of her people. While most of Europe was in a turmoil the Netherlands and Switzerland were outstanding exceptions. Holland, however, had an unemployment situation that was quite serious, and a surplus of births over deaths, said to number about 140,000 yearly, presenting other serious problems for the Government. As a result of a visit to Holland a document was presented later in London on behalf of the Netherlands Emigration League, the assistant manager of which was appointed by the Dutch department of labor and which therefore may be taken as representing at least the semiofficial attitude of that Government toward the immigration policy of this country. The impression gained by every member of the committee was that from an agricultural and industrial standpoint the United States could use profitably every able-bodied Hollander who would emigrate. The document submitted by the emigration league follows :
    1.	The Netherlands Association for Commerce and Industry, the leading association in the Netherlands on industrial and commercial questions, has appointed as its representative Mr. Walrave Boissevain, member of the board of directors.
    2.	The Netherlands American Chamber of Commerce in Amsterdam, of which Mr. W. Westerman is president (the president of the Rotterdam Bank), has appointed its secretary, Dr. E. H. von Baumhauer. This chamber is a sister organization to the Netherlands Chamber of Commerce, New York, of which the Hon. W. C. Redfield, former Secretary of Commerce of the United States, is the president.
    3.	The Dutch department of labor has appointed as its representative Mr. H. J. C. Hengeveld, assistant manager of the Netherlands Emigration League.
    4.	The Holland American Line, of Rotterdam and New York, has appointed as its representative Mr. M. J. Van Vugt, manager of its passenger department.
    16376—24-----6
    76	ANNUAL REPORT SECRETARY OF LABOR
    In representing these various organizations, these men believe that they are able to inform you of the sentiment of the Dutch people regarding emigration, and they are at your disposal as an advisory commission.
    Referring to the interview kindly granted to them on August 5, they beg to suggest the following proposals:
    (a)	Selective immigration.—Holland Dutch immigrants ought to be welcome to the United States Government, as* they are law-abiding, thrifty, hard working, and assimilate easily with the American Nation. Under existing law only 3,607 are allowed to enter the United States in any fiscal year.
    Population of the Netherlands, over 7,000,000. Surplus births over deaths, about 140,000 yearly. Unemployed at the present moment, 150,000. General economic conditions in western Europe point to prolonged unemployment. A yearly number of 25,000 to 35,000 good emigrants (wage earners) might easily be expected if selective immigration opened the doors of the United States to the descendants of the founders of New Amsterdam.
    Applications of would-be emigrants for the American visum now nearly reach the total of 3,607, mentioned above, and before the end of the calendar year this number will most probably have sailed from Europe, leaving no room whatever for emigrants during January-June, 1924.
    (b)	Educated and professional people.—It is suggested that, pending the discussion on the intended amendments and new emigration legislation, the exemption now granted to exclude from the quota count members of certain of the learned professions should also be given to those who have passed their examinations as graduates of a recognized Dutch technical or agricultural college or school. The desirability of immigrants of this type is, we believe, apparent.
    (c)	Contract labor.—The present provision regarding contract-labor rules of May 1, 1917, section 3, provision 4, page 7, “ that skilled labor if otherwise admissible, etc.,” prevents the most desirable emigrants from sailing for the United States. A milder provision leaving open the possibility of contracting employment before sailing is respectfully suggested. The desirable farmeremigrant will be attracted if equal certainty is given him in regard to prospective land ownership.
    (d)	Temporary immigration.—Cases frequently arise where people desire to enter the United States for temporary purposes who do not fall either in the class of visitors or of business purposes for less than six months. Such cases arise with those who desire to go to the United States to work in automobile factories or other large industries of the United States for a period of a few years to become thoroughly familiar with American industry and business and with the English language. Such people tend on their return to Holland to become sales agents for American products and are therefore the best promoters of American interests.
    (e)	Examination at point of departure.—We respectfully suggest that some arrangement, if possible, be made which would permit the final determination of an emigrant’s eligibility to enter the United States before embarkation. This might be effected by leaving the decision to the American consulates in Holland assisted by an advisory commission which should do the necessary preparatory work. The four organizations which this commission represents would be willing to lend their assistance and give cooperation in every way. In this way no additional work would be placed on the consulates and congestion on Ellis Island could be materially reduced.
    In bringing forward the suggestion that examination be conducted at the point of departure we believe that in many ways this plan would be more effective. This would be particularly applicable in determining the existence of diseases and affections, especially those of the brain, which are not
    ANNUAL REPORT SECRETARY OF LABOR	77
    readily apparent on first examination. The applicant’s record as to the commission of offenses involving moral turpitude could be better ascertained in the country of origin, where his criminal status is available. Moreover, in the Netherlands, where education is compulsory, the school records of each applicant could be easily procured.
    Germany.—Among the working people of Germany we found many workmen whose ambitions were to emigrate to the United States. These people were prevented from doing so because of the prohibitive cost of steerage transportation when translated into terms of local currency. When converted into American dollars the majority of skilled workers earn wages of but a few dollars a month. No doubt many who would make desirable citizens would like to emigrate to the United States if they could finance their passage and numerical restrictions were removed.
    Poland.—Poland lays claim to almost unprecedented prosperity. Crops, as in most of the countries visited in Europe, were excellent, and not only able-bodied male Poles but large numbers of women were busy in the fields and on section gangs performing manual labor. It was stated, and apparently the statements were not without foundation, that workmen in Poland are receiving better wages and saving more money to-day than they did prior to the war. Few Polish laborers, especially agriculturists, seemed to be anxious to leave their country. On the other hand, there were many thousands of small tradesmen and refugees who were, almost without exception, very desirous of emigrating to the United States.
    It must be remembered that Poland is a war-torn country and that there is a great deal of reconstruction work being done. Opportunities for those who are ambitious to labor exist in rehabilitation.
    CzechoSlovakia.—The committee was very much pleased to note the progress made by this new Republic toward the stability of government. The country was in a high state of cultivation, crops were good, and industries operating on full-time basis. The people of Prague apparently were enjoying prosperity equal to their expectations and an atmosphere of optimism prevailed. Like Poland, Austria, and Hungary, however, there were considerable numbers who desired to come.
    Austria-.—Conditions affecting immigration in Austria in some respects are similar to those in Germany, but lacked the acuteness of the situation in the latter country. Farm crops were good and export trade was being developed under foreign exchange conditions which gave advantage to foreign trade. The purchase of industrial materials could be accomplished with greater ease than in Germany because of the better credit situation, while low cost of labor in terms of Austrian kronen assisted in developing the market.
    Italy.—It can be said for Italy that she has made bona fide efforts to conform to the American immigration law. Eighteen months ago
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    the Italian commissioner general of emigration visited Washington for the purpose of determining America’s attitude. Italy now apportions the quota and makes preliminary examinations as to the probable admissibility of her people before they are permitted to leave that country. The result is a very low percentage of inadmissible Italian immigrants being received at the ports of entry. It has also resulted in the practical elimination of surreptitious and illegal entries into the United States of Italian subjects. This is true protection of a foreign power of its own citizens, and the results are also gratifying to immigration officials. It is, of course, selection by a foreign Government of prospective American citizens, but no more so than under the present passport system which permits to immigrate to the United States only those to whom the foreign Governments see fit to grant passports. Italy would appreciate the lifting of restrictions upon immigration to the United States. Her officers are apprehensive as to the overpopulation of Italy and are seeking an outlet for surplus population. If restrictions were removed, heavy immigration from Italy could be expected.
    Great Britain.—Unemployment in Great Britain in the last year has created general unrest, and large numbers would emigrate if restrictions were removed. Unemployment, however, has produced other conditions which are not without significance. It seemed to be the impression among the workmen actually employed that the English dole system has had a very unwholesome affect upon her workman. On the other hand, there are several hundred thousand men who have since the war reached the age of productive manhood and have completed apprenticeships in the various trades who are unable to secure profitable employment. It is only natural that these younger people should be ambitious and desire to emigrate. The policy of the British Government is to encourage emigration of this class to her colonies rather than to permit it to come to the United States.
    After reviewing conditions affecting emigration in the countries of Europe and observing the results of the quota act the committee felt that there should be no loosening of America’s immigration policy, but it should be strengthened and placed on a purely selective basis; i. e., give to America only the immigration it needs.
    No one can deny that conditions created in Europe as a result of the war are difficult. War always brings its aftermath and with the carving up of some of the larger countries involved, the establishment of new governments upon principles little understood by the people, together with normal readjustment problems, produced confusion. The founders of the United States faced no easy task when they shouldered the problems of organization; nation building is not for weaklings.
    ANNUAL REPORT SECRETARY OF LABOR
    79
    As the committee analyzed the situation, the candidates for emigration from Europe divide themselves into the following classes:
    1.	Dependents and undesirables passively encouraged by the foreign governments to leave their countries.
    2.	Undesirables driven from those countries by officials hostile to their activities.
    3.	Radicals and communists who desire voluntarily to come for no other purpose than propaganda.
    4.	Subjects of countries not devastated, which countries are dependent to considerable degree upon world commerce and in which a real unemployment situation exists.
    5.	Citizens or subjects of countries in which unemployment exists as a result of military domination of industry. This was limited because of lack of capital in terms of American currency.
    6.	Normal immigration, comprising but a small percentage of all immigration.
    7-	Subjects of countries not devastated by war suffering from overpopulation by natural increase.
    By analysis it must be evident that there is much that is undesirable in immigrant prospects, especially if all limitations were to be removed. Perhaps the actual numbers of desirable labor admitted would be greater by a letting down of the bars, but the influx of unassimilable and undesirable aliens would be more than proportionately increased. The quota law, however, has increased “bootlegging ” of aliens across our borders, and this practice has been a prolific source of dangerous types.
    In addition to the smuggled alien there is always the alien who, although inadmissible, comes to this country and seeks through the efforts of friends, relatives, and members of his own racial group to influence immigration officials to waive the restrictions and admit him. These cases are exceedingly difficult to handle. They appeal to every instinct of humanity in the Government officer who must pass upon them. Usually they involve the breaking up of families or the return of individuals, even children, to deplorable conditions abroad. But no public officer can conscientiously stretch the law of the land to admit to the United States individuals who sooner or later will become public charges and whose admission will affect our whole level of mental and moral life. Results of such a policy are already upon us. A scientist who made a thorough study of American mental standard, testifying before the House of Representatives Committee on Immigration and Naturalization, estimated that if the mental tests applied to the American Army during the World War had been enforced against the foreign bom now in the United States and all showing a mental level below a standard fixed
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    ANNUAL REPORT SECRETARY OF LABOR
    between low average and inferior intelligence had been excluded, 45.6 per cent of the nearly 14,000,000 foreign born in the United States would- have been barred.
    For more than three years I have been strongly urging the revision of the immigration laws to put them upon a selective basis. That is to say, to provide tests of physical, mental, and moral standards within whatever numerical restriction Congress might deem advisable; these tests to be made abroad in order that the applicant for admission might not have to spend the savings of a lifetime upon a long ocean voyage in order to find out whether he could enter the United States.
    These examinations should be made by American officers on the authority given to American consuls to refuse visas to those who do not measure up. After reviewing the conditions abroad, we felt that in selection abroad was the only practical means of safeguarding the Nation in such a manner as to uphold its dignity and reputation of fairness to individuals of all countries. Furthermore, the information received indicates that the objections raised against this procedure are more theoretical than real.
    One great result of moving our inspection machinery abroad to make selections among the applicants for admission would be to end the heartrending scenes which are every day being enacted at Ellis Island and other ports of entry. So long as under the law we admit foreigners to this country we could end all of these horrors if selections were made on the other side and immigrant stations would be transformed into gateways of welcome, devoid of the harshness of official delays and sorrows of disappointment. So long as the United States is to admit foreigners we should have a system that would function to bring us the best that we can get from abroad, but to limit to the minimum the number of undesirables who seek entry and prevent “ dumping ” of such classes by foreign governments. (Legislation going into effect July 1, 1924, will make our immigration laws partly selective at foreign ports.)
    The following letter transmitting to the chairman of the Committee on Immigration and Naturalization of the House of Representatives making recommendations for new immigration legislation will be of interest:
    Hon. Albert Johnson,
    Chairman Committee on Immigration and Naturalization,
    House of Representatives.
    Dear Sib: There is submitted herewith, for the consideration of your committee, a draft of a bill containing certain suggestions deemed material in connection with pending legislation on the subject of immigration.
    In the proposed legislation no attempt has been made, nor is it intended, to suggest to the Congress the policy to be pursued in adopting restrictive measures. The proposal as submitted may be readily adapted to any legislation,
    ANNUAL REPORT SECRETARY OF LABOR	81
    restrictive or otherwise, that may be agreed upon, as, in the main, it seeks to provide a practicable plan for the administration of the immigration laws. Amendments to the act of February 5, 1917, have been suggested where experience has demonstrated the need for such amendment.
    It will be observed at the outset that whatever quota restriction is adopted that restriction will apply to all countries, thus marking a radical departure from existing laws or pending legislation, which eliminate Canada, Mexico, and South and Central America from the operation of the quota limitations.
    Another change equally as important from an administrative standpoint is the distribution of the annual quota allotment over the entire period of 12 months. No more immigration certificates than one-twelfth of the annual quota may be issued in any calendar month. Under this provision the quota of any nationality can not be exhausted as at present, but will be continuing throughout the year and the years to follow.
    A consular officer is allotted so many immigration certificates for any given month. When these are all issued the immigrant must make application in the following month, and so on throughout the year. When in possession of an immigration certificate the immigrant is at liberty to depart for the United States at any time within a year after the date the cerificate is issued without, on the one hand, interrupting steamship schedules, and on the other without congesting the ports of arrival. Unseemly racing for position will be eliminated, as the immigrant’s admission is no longer contingent upon the time of his arrival in the United States, and a more careful examination and inspection at the ports, with less inconvenience to the immigrant, will result.
    The selective features of the bill are worked out through the provisions giving preference to certain classes in the issuance of immigration certificates. Having in mind the desirability of reuniting families, it is provided that the husbands, wives, and minor children of alien residents who have declared their intention to become citizens shall have the first preference in the issuance of immigration certificates. Then follows, in the order named, immigrants who served in the military and naval forces of the United States during the World War; ministers of any religious denomination; professors, or members of recognized learned professions; skilled laborers; all other laborers, including domestic servants; and finally all other immigrants.
    Thus it will be seen that Congress having once determined the number of immigrants that shall come to the United States in any one year, a method is provided for the proper selection of the best of those applying by requiring, in the first place, that the immigrant seeking admission to this country make application to an American consular officer for an immigration certificate. This application will of necessity set forth the family history and personal record of the alien, and supplemented by such investigation as the consular officer shall make will afford such information concerning the immigrant as will enable the officer to determine whether the applicant is a desirable or an undesirable immigrant. Upon arrival at our ports the immigrant is subjected to the usual inspection and medical examination, and if found to meet the mental, moral, and physical standards required by our immigration laws is admitted; otherwise he is excluded and returned to the country whence he came.
    By the means of a special immigration certificate demands for labor of all kinds, skilled and unskilled, including farm labor, are met, and such labor made readily available, regardless of quota limitations and restrictions, upon application to the Secretary of Labor, while on the other hand, by the provisions of another section, immigration may be suspended in whole or in part from all or any designated country when unemployment in the United States is so widespread as to justify such action.
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    ANNUAL REPORT SECRETARY OF LABOR
    It will be observed that the term “ nonquota ” is nowhere used in the proposed legislation, and that the corresponding provision authorizing the issuance of a special immigration certificate is limited in its application to but two classes, namely, (1) husband, wife, minor child, dependent father or mother of a citizen of the United States, and (2) farmers and skilled or unskilled laborers when labor of like kind unemployed can not be found in the United States. In either case the special immigration certificate can be had only upon application to the Secretary of Labor, and then in the case of laborers only when a strike or lockout does not exist or impend in the industry seeking to import such labor.
    Provision is also made to satisfy the periodical demands for laborers from Canada and Mexico by classing such laborers as nonimmigrant when authorized by the Secretary of Labor to enter the United States for the purpose of laboring at a specified occupation for a definite time at a designated place.
    In the cases referred to it is hoped to satisfy the legitimate demands for labor without destroying the restrictive features of any law that may finally be enacted. It is believed that the discretion vested in the Secretary of Labor will be exercised only when that official is satisfied that there is a real, and pressing necessity for the particular labor sought. Furthermore, under this authority a most beneficial distribution of immigrants will take place, and the Secretary of Labor will be able in a most helpful way to cooperate with the various States in supplying immigrants to develop resources, establish industries, and bring about colonization.
    Definition of immigrant.—In the definition of an immigrant it has been sought to except only such classes as are nonimmigrants. Therefore, in addition to the classes commonly understood to be nonimmigrants, such as Government officials, transits, and visitors, exception has been made in favor of aliens lawfully admitted to the United States and returning from a temporary visit abroad; bona fide students, seeking to enter for the purpose of study at an accredited college; bona fide alien seamen seeking to land in pursuit of their calling; aliens who, having resided continuously for at least five years in foreign contiguous territory, are authorized to enter the United States for the purpose of laboring at a specified occupation for a definite time at a designated place; and aliens habitually crossing and recrossing boundary lines between the United States and foreign contiguous territory upon legitimate pursuits.
    Nonimmigrants are not required to obtain an immigration certificate and are not subject to the quota limitations and restrictions.
    Maintenance of exempt status.—To insure that a nonimmigrant will maintain the status under which he was permitted to enter the United States and to guarantee his departure within the time specified, the Secretary of Labor is required to promulgate such rules and regulations as will protect the United States, and he may exact a bond with sufficient surety conditioned that such status will be maintained and that the alien will depart within the time mentioned. Alien seamen are not subject to the provisions of this particular section. Provision is made in a following section for the landing and identification of seamen which it is believed will on the one hand prevent the landing of the excluded races and the mentally and physically unfit and on the other prevent the evasion of our laws by those permitted to land temporarily in pursuit of their calling or to reship foreign.
    Passports.—It has been deemed advisable, in view of the provision for the issuance of an immigration certificate, to dispense with passports or other instruments in the nature of passports issued by foreign governments in so far as immigrants are concerned.	•
    ANNUAL EEPORT SECRETARY OF LABOR
    83
    Immigration certificates.—Passports or other instruments in the nature of passports issued by foreign governments not being required of immigrants, therefore a vis6 is no longer necessary, but a consular officer is authorized to issue an immigration certificate when in his opinion the immigrant is admissible to the United States. The immigrant may ascertain the essential fact of his admissibility in advance, and is not, as under the present law, put to the expense of obtaining a passport and vis6 when not reasonably assured of admission to the United States. The immigration certificate is very properly substituted for the vis6 and is based on a more thorough knowledge of the immigrant, and, furthermore, it is in keeping with the power of the United States to determine in the first instance who shall and who shall not come to this country as an immigrant. The question whether the immigrant must have a passport before being permitted to leave the homeland is one strictly between him and his government.
    The immigration certificate is valid for one year after the date of issue, but it is not a guaranty that the immigrant will be admitted to the United States. Upon its surrender at the port of inspection the immigrant is given a certificate of arrival, which may later be used in naturalization proceedings. A fee of $10 is charged for the issuance of an immigration certificate, because the immigrant is no longer required to pay the visg fee.
    Application for immigration certificate.—The application for an immigration certificate must be in writing and be properly verified. It will be in the form of a questionnaire designed to elicit such information as will enable the American consular officer to determine the admissibility of the applicant. No fee is charged for the issuance or verification of the application.
    Special immigration certificate.—The special immigration certificate is issued by the consular officer without regard to quota limitations when authorized by the Secretary of Labor. Such authority is granted upon the verified petition of a citizen of the United States after hearing and investigation, and then only in case of the immediate relatives of such citizens, or of farmers and skilled or unskilled laborers when labor of like kind unemployed can not be found in the United States. The issuance of the certificate is further restricted by the provision with respect to laborers—that it must satisfactorily appear to the Secretary that a strike or lockout does not exist or impend in the particular industry seeking to import such labor. The special immigration certificate is valid for the period therein specified not exceeding six months from the date of issue and is to be surrendered upon arrival in the United States in exchange for a certificate of arrival.
    No passport is required of the holder of a special immigration certificate, but a fee of $10 is charged therefor.
    Duties of immigration officials.—Under the provisions of section 23 of the act of February 5, 1917, the Commissioner General of Immigration may, with the approval of the Secretary of Labor, whenever in his judgment such action may be necessary to accomplish the purposes of that act, detail immigration officers for service in foreign countries, and, upon his request, approved by the Secretary, the Secretary of the Treasury may likewise detail medical officers of the United States Public Health Service for the performance of duties in foreign countries in connection with the enforcement of the act.
    The legislation proposed requires a consular officer to perform certain duties in connection with its enforcement. Assuming that in the very near future immigration and medical officials will be stationed abroad, the duties conferred upon consular officers are to be performed by the immigration
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    officials when detailed to or stationed in foreign countries under the provisions of the act of February 5. 1917, just referred to. This section is made necessary so far as the Dominion of Canada is concerned for the reason that immigration officials are now stationed in that country for the enforcement of our immigration laws.
    Nationality and precentage limitation.—The sections of the proposed bill relating to nationality and percentage limitations are incomplete in that the census year to be considered and the percentage limitations to be employed in arriving at the annual quota for any nationality are left blank. This was not an oversight, but was purposely done to carry out the intention expressed in the beginning, not to suggest to the Congress the policy to be pursued in adopting restrictive measures.
    Attention is called to that proviso of section 10 dealing with nationality which requires that the nationality of a wife or minor child shall be determined by the country of birth of the husband or parent as the case may be, if the husband or parent is entitled to an immigration certificate. This provision assigns the nationality to where it properly belongs and will put an end to the hardship and delay resulting from the application of different quota limitations to the members of the same family traveling together.
    Subdivision (b) of section 11, in fixing a monthly limit upon the issuance of immigration certificates, provides that in each of the 12 calendar months of any fiscal year no more immigration certificates than one-twelfth of the annual quota shall be issued, and where the annual quota of any nationality is less than 600 the Commissioner General, with the approval of the Secretary, is authorized to determine the number to be issued in any one month. This feature of the bill will establish a continuing quota, lessen to some extent the labor of the consular officers, and enable them to devote the time necessary for a careful investigation of each application. When considered in connection with the provision making an immigration certificate valid for one year, it must be obvious that the continuing monthly quota provided for is for the best interest of all concerned—immigrants, steamships, and officers at the ports of arrival.
    Unused immigration certificates.—This section provides in substance that an immigration certificate once issued can not be returned or canceled. When issued it is immediately charged against the quota and that charge stands regardless of the disposition made of the certificate by the immigrant.
    Exclusion from the United States.—It is provided in this section of the proposed legislation that no immigrant shall be admitted to the United States unless he has an unexpired immigration certificate or an unexpired special immigration certificate or was born subsequent to the issuance of such a certificate to the accompanying parent. This provision is made necessary in order to carry out the scheme of selection abroad as herein proposed.
    Subdivision (b) of the section under consideration establishes a definite policy and refuses admission to any immigrant who is not eligible to citizenship.
    Permit to reenter the United States.—An alien lawfully admitted to the United States and desirihg to make a temporary visit abroad may upon proper application obtain a permit which will entitle him upon his return to be admitted to the United States regardless of quota limitations or restrictions. When in possession of such a permit the alien is classed as a nonimmigrant and is not required to obtain an immigration certificate. The permit is valuable from an administrative standpoint because it is documentary evidence of the claim that alien is returning from a temporary stay abroad, and to that extent will lessen fraud and perjury.
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    It has been deemed proper to charge a fee of $5 for the issuance of the permit.	K
    Suspension of immigration.—The necessity for this section becomes apparent when it is recalled that but a short time ago millions of men were without employment in the United States, and that, notwithstanding the situation which then existed, thousands of immigrants were permitted to land upon our shores and join the great army of idle workers. In the light of that experience it is submitted that some provision should be made for the suspension of immigration during periods of widespread industrial depression.
    Certificates of arrival.—Every immigrant, upon his admission to the United States, is given a certificate of arrival, and this certificate may be subsequently used in naturalization proceedings.
    Alien seamen.—In drafting the sections regulating the landing of alien seamen care was taken not to interfere with the operation of the seaman s act, and it is believed that the proposal submitted will so regulate the- landing of such seamen as to prevent to a much greater extent than is now possible evasions and violations of the immigration laws.
    Subdivision (a) of section 18 is directed against the excluded races and such other aliens as are excluded by section 3 of the immigration act of 1917, and is intended as a substitute for section 32 of the existing law, which is repealed. Under this section an oriental, for instance, is not permitted to land in pursuit of his calling or to reship foreign, except under such conditions, including the giving of a bond, as may be prescribed.
    Section 19 and its various subdivisions require that a landing card, furnished at the expense of the vessel, be delivered to all alien seamen employed on the vessel who were not shipped or engaged in the United States. This card will contain pertinent information concerning the alien, and is what its name implies—a card authorizing the seaman to land in the United States either in pursuit of his calling or to reship foreign when properly indorsed by an immigrant officer. No bond is required of the seaman in such cases.
    Under this procedure the seaman is entitled to remain in the United States for a period not exceeding 30 days, and when he departs the card must be surrendered to the master of the vessel by which he leaves the United States.
    Sections 33 and 34 of the existing law are repealed, except that as to violations of section 34 existing at the time of the taking effect of the proposed act the section is continued in force and effect.
    Section 20 of the proposed legislation makes it obligatory upon the vessel to detain all seamen on board until they have been inspected by an immigration official, failure to do which incurs a penalty of $1,000 for each seaman with respect to whom the failure occurs.
    Section 21 changes the existing practice as outlined in section 34 of the act of February 5, 1917. and when a seaman is apprehended because he lands contrary to the provisions of the act, or because he is not in possession of an unexpired landing card, or for being found in the United States more than 30 days after being permitted to land temporarily, he may be deported in accordance with the provisions of section 20 of the act of February 5, 1917. There is no limitation as to time, and it will no longer be necessary to have a board of special inquiry deal with his case.
    Section 22 recognizes that in the nature of their calling alien seamen can not always make regular application before a consular officer for an immigration certificate, and provision is therefore made for applictions for admission by alien seamen upon arrival in the United States. If after examination and inspection the seaman is regularly admitted, he is chargeable to the quota
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    for the nationality to which he belongs, and the Secretary is required to reduce that quota by one.
    Penal provisions.—It is believed that the various penal provisions of the proposed legislation will to a considerable extent prevent fraud and evasions and otherwise make possible a satisfactory administration of the law.
    Amendments to immigration act of 1911.—The amendments to the act of February 5, 1917, are found in section 28 of the proposed legislation and are intended in the main to make clear the meaning of such act, and in one or two instances to supply provisions that are necessary and which were obviously overlooked by the framers.
    It is proposed to amend the proviso to section 24 by giving the Secretary more latitude in the employment and detail of individuals under that section. Because of the provisions of section 4 of the act of August 5, 1882 (22 Stat. L. 219, 255), the number of employees that may be stationed in the District has been limited by specific appropriation to but two, and, owing to the enormous increase in volume of the work handled by the department even under existing law, it is necessary that this limitation be removed if a high standard of efficiency is to be maintained.
    The provisions of the proposed legislation for the importation of all kinds of labor, not only from Canada and Mexico but from trans-Atlantic countries^ if enacted into law, will necessitate a greatly increased force of officials and investigators to properly administer that feature alone, and affords an additional reason for favorable action upon the proposed amendment at this time.
    The proviso has been further amended by increasing the amount which the Secretary is permitted to withdraw from the appropriation from $100,000 to $200,000. This amendment will not result in an increased appropriation, and will not only enable the Secretary to provide for the necessary increase in the forces stationed in Washington but will make it possible to detail immigration officials for service in foreign countries as originally contemplated by section 23 of the act of February 5, 1917.
    Permit me to repeat that the effort in the proposed legislation has been to suggest improvements from the administrative point only. I have studiously sought to avoid any suggestions as to the broad policies dealing with the subject of immigration, which, of course, belong wholly and exclusively to Congress, and with which an administrative officer has no concern. I, of course, am familiar with the policies of Congress so far as they have been expressed in laws now in force, and am also endeavoring to meet the apparent policy of Congress as expressed by a number of bills introduced during the present session by Members of both Houses, particularly those introduced by members of the Committee on Immigration of both Houses.
    After securing the suggestions and advice of many people who handle the administrative w-ork in connection with immigration, and after giving most careful study to the whole subject, I feel that the suggested draft will overcome to a great extent the unexpected hardships that have resulted from some past legislation and will serve greatly to do away with the heartbreaking experiences that have befallen many aliens, and will largely overcome the difficulties met by administrative officers in endeavoring to reconcile conflicts in the law which have developed in the past.
    My only purpose in submitting this proposed legislation is to be helpful to the Members of Congress and of your committee. If there is any other way in which I or any member of my staff can be of assistance to your committee, please feel free to call upon me for that service.
    Very sincerely yours,
    James J. Davis.
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    -A bill to limit the immigration of aliens into the United States and to provide a system of selection in connection therewith, and for other purposes
    [Proposed by the Secretary of Labor]
    Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, That this act may he cited as the “ Selective immigration act of 1924.”
    DEFINITION OF IMMIGRANT
    Sec. 2. When used in this act the term “ immigrant ” includes all aliens departing from any place outside the United States destined for the United States, except (1) a government official, his family, attendants, servants, and employees; (2) an alien visiting the United States as a tourist or temporarily for business or pleasure; (3) an alien in continuous transit through the United States; (4) an alien lawfully admitted to the United States who later goes in transit from one part of the United States to another through foreign contiguous territory; (5) an alien lawfully admitted to the United States to whom a permit has been issued as provided in section 14 and who is returning within the time therein specified from a temporary visit abroad; (6) an alien who is a bona fide student over 18 years of age seeking to enter the United States solely for the purpose of study at an accredited college, academy, seminary, or university particularly designated by him and approved by the Secretary; (7) a bona fide alien seaman serving as such on a vessel arriving at a port of the United States and seeking to enter the United States in pursuit of his calling; (8) an alien who has resided continuously for at least five years immediately preceding the time of his application f
    RULES AND REGULATIONS
    Sec. 26. The commissioner general, with the approval of the Secretary, shall prescribe rules and regulations for the enforcement of the provisions of this act; but all such rules and regulations, in so far as they relate to the administration of this act#by consular officers, shall be subject to the approval of the Secretary of State.
    ACT TO BE IN ADDITION TO IMMIGRATION LAWS
    Sec. 27. The provisions of this act are in addition to and not in substitution for the provisions of the immigration laws and shall be enforced as a part of such laws, and all the penal or other provisions of such laws not inapplicable shall apply to and be enforced in connection with the provisions of this act.
    AMENDMENTS TO IMMIGRATION ACT OF 1917
    Sec. 28. That the immigration act of 1917 be amended as follows:
    (a)	Section 1, by inserting after the words “insular possessions” in the second clause of the second sentence of said section the w’ords “ or insular territory,” so that such clause will read, “ but if any alien shall leave the Canal Zone, or any insular possession or insular territory of the United States, and attempt to enter any other place under the jurisdiction of the United States, nothing contained in this act shall be construed as permitting him to enter under any other conditions than those applicable to all aliens.”
    (b)	Section 2, by inserting after the word “territory” in the fourth sentence of said section the following clause: “ nor on account of an alien to whom a permit has been issued as provided in section 14 of this act and who is returning within the time therein specified from a temporary visit abroad.”
    (c)	Section 8, by adding at the end of said section the following: “ or concealed or harbored, or attempted to be concealed or harbored, and any air or land vehicle, or any vessel, together with its or her appurtenances, equipment, tackle, apparel, and furniture, concerned or employed in such violation shall be seized and forfeited to the United States, and on an order duly issued by the court having jurisdiction thereof said air or land vehicle or vessel, together with its or her appurtenances, equipment, tackle, apparel, and furniture, shall be sold at public auction, the proceeds to be covered into the Treasury and credited to the appropriation ‘ expenses of regulating immigration
    (d)	Section 9, by adding after the third sentence of said section a new sentence to read as follows: “ If a fine is imposed under this section for the bringing of an alien to the United States, and if such alien is accompanied by another alien who is excluded from admission shall pay to the collector of customs, in addition to such fine but as a part thereof, a sum equal to that paid by such accompanying alien for his transportation from his initial point of departure, indicated in his ticket, to the point of arrival such sum to be delivered by the collector of customs to the accompanying alien when deported,” and by striking out the last proviso to said section, and inserting in lieu thereof a proviso reading as follows: “ That the provisions of this section shall not apply to the case of any alien granted admission on appeal or for a temporary period.”
    (e)	Section 17, by inserting next after the word “ twenty-one” in the proviso of said section a clause reading as follows: “ and the seventh proviso of section three.”
    (f)	Section 19, by inserting after the words “insular possession” in the fourth proviso to said section the words “ or insular territory.”
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    (g)	Section 24, by inserting after the words “civil service act” in the first proviso of said section, the following, “ or to section 4 of the act of August 5, 1882 (22d Stat. L., pp. 219, 255),” and by striking out the figures “100,000” wherever they appear in said proviso to said section and inserting in lieu thereof the figures “ 200',000,” so that said proviso will read as follows: “ Provided, That said Secretary, in the enforcement of that portion of this act which excludes contract laborers and induced and assisted immigrants, may employ, for such purpose and for detail upon additional service under this act when not so engaged without reference to the provisions of said civil service act, or to section 4 of the act of August 5, 1882 (22d Stat. L., pp. 219, 255), or to the various acts relative to the compilation of the Official Register, such persons as he may deem advisable and from time to time fix, raise, or decrease their eompensation. He may draw annually from the appropriation for the enforcement of this act $200,000, or as much thereof as may be necessary, to be expended for the salaries and expenses of persons so employed and for expenses incident to such employment; and the accounting officers of the Treasury shall pass to the credit of the proper disbursing officer expenditures from said sum without itemized account whenever the Secretary of Labor certifies that an itemized account would not be for the best interests of the Government.”
    GENERAL DEFINITIONS
    Sec. 29 (a) The term “United States,” when used in a geographical sense, means the States, the Territories of Alaska and Hawaii, the District of Columbia, Porto Rico, and the Virgin Islands.
    (b)	The term “alien” includes any individual not a native-born or naturalized citizen of the United States, but this definition shall not be held to include Indians of the United States not taxed, nor citizens of the islands under the jurisdiction of the United States.
    (c)	The term “eligible to citizenship,” when used in reference to any individual, does not include an individual who is debarred from becoming a citizen of the United States under section 2169 of the Revised Statutes, or under section 14 of the act entitled “ An act to execute certain treaty stipulations relating to Chinese,” approved May 6, 1882, or under section 2 of the act entitled “ An act to authorize the President to increase temporarily the Military Establishment of the United States,” approved May 18. 1917, as amended, or under law amendatory of, supplementary to, or in substitution for, any of such sections.
    (d)	The terms “immigration certificate” and “special immigration certificate ” means a certificate issued by a consular officer under the provisions of this act.
    (e)	The term “consular officer” means any consular or diplomatic officer of the United States designated, under regulations prescribed under this act, for the purpose of issuing immigration certificates or special immigration certificates under this act. In case of the Canal Zone or the insular possessions or insular territory of the United States the term “ consular officer ” means an immigration official therein stationed, or an officer designated by the President for the purpose of issuing immigration certificates or special immigration certificates under this act.
    (f)	The term “ immigration act of 1917 ” means the act of February 5, 1917, entitled “An act to regulate the immigration of aliens to, and the residence of aliens in, the United States.”
    (g)	The term “immigration laws” includes such act, this act, and all laws, conventions, and treaties of the United States relating to the immigration, exclusion, or expulsion of aliens.
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    (h)	The term “person” includes individuals, partnerships, corporations, and associations.
    (i)	The term “ Secretary” means the Secretary of Labor.
    (j)	The term “commissioner general” means the Commissioner General of Immigration.
    (k)	The term “application for admission” has reference to the time of the application for admission to the United States and not to the time of the application for the issuance of the immigration certificate.
    (1)	The term “ permit ” means a permit issued under section 14.
    (m)	The term “ landing card ” means a landing card issued under section 19.
    (n) The term “unmarried,” when used in reference to any individual as of any time, means an individual who at such time is not married, whether or not' previously married.
    Sec. 28. Time of taking effect.
    (a)	Sections 2, 3, 4, 5, 6, 7, 8, 9, 10, 11, 12, 13, 14, 16, 17, 19, 20, 21, 22, and 24 shall take effect on July 1, 1924.
    (b)	The remainder of this act shall take effect upon its enactment.
    International conference on emigration and immigration. Rome, May 15-31, 1924.
    In June, 1923, the Italian Government t®ok the initiative in the calling of a conference on emigration and immigration to be held in Rome in 1924. It accordingly invited the governments of emigration and immigration countries to send delegates and submitted a program in which it outlined the general character of the conference, which was to be entirely technical and in no sense diplomatic.
    This was the first attempt at a world-wide conference on the subject of immigration. There had been other conferences limited as to the countries involved and the subjects considered. In 1869 our Government and the Germanic Confederation negotiated an agreement for the protection of emigrants to America. The President at that time expressed the idea that similar agreements should be entered into with other countries from which people emigrate to the United States. Nothing, however, came of it for a number of reasons.
    In 1874 Germany endeavored to arrange emigration treaties between European countries and this Government, but this matter, too, terminated without result. In 1884 the Netherlands backed by Italy proposd an international conference for the purpose of arranging conventions between countries interested in the subject of their nationals going overseas. Several European countries agreed to it, but no definite results were achieved. In 1885 a so-called African conference was held at Berlin for the purpose of dealing with the subject of forced emigration of negroes. In 1889 a conference was held at Brussels of European countries also dealing with the negro, as a result of which slavery and the traffic in slaves was abolished.
    At various times conferences were held of certain governments dealing with the problem of traffic in women and children. Presi
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    dent Roosevelt in 1905 expressed the opinion that an international conference on immigration was desirable, and Congress in the immigration act of February, 1907, authorized the President to call a conference of this kind. Italy in 1908 proposed to the United States that it call such a conference, but nothing developed. In 1912, 16 governments met in Paris to consider assistance for indigent foreigners.
    The Great War stopped the migratory movement of peoples for four or five years, and there was little discussion during that period of immigration conferences. In the peace treaty of Versailles reference is made to the subject and the International Labor Organization is directed to study the subject. In 1919 an international labor conference was convened in Washington under the treaty of Versailles, and subsequent meetings were held in Europe of a special copmittee growing out of the treaty of Versailles. The League of Nations has fostered some similar conferences, including one in Barcelona in 1921 and another one in the same year at Geneva. In 1921, under the leadership of the Italian Government, a conference was held of the countries interested in emigration, at which the thought was first suggested of dealing with the countries of immigration on this subject. The invitation of the Italian Government in June, 1923, resulted from this.
    The United States Government accepted the invitation and designated four delegates for that purpose, namely: E. J. Henning, Assistant Secretary of Labor; W. W. Husband, Commissioner General of Immigration; Dr. Hugh S. Cumming, Surgeon General, United States Public Health Service; and Homer M. Byington, American consul general at Naples.
    Mr. Harlan Miller, of the Department of State, was designated as secretary to the delegation, and Mr. George Shaw, formerly with the State Department, was appointed as a representative from the Department of Labor for the purpose of acting as secretary to Mr. Henning and as stenographic expert for the delegation. The following is a statement by Hon. E. J. Henning regarding the conference:
    In pursuance of the commission issued to me by President Coolidge, and instructions given by the Secretary of Labor, I sailed from New York City on the Italian ship Duilio on May 1, 1924, for Naples, accompanied by my secretary, Mr. George Shaw, and Mr. Harlan Miller, of the Department of State, secretary of the delegation. The Commissioner General of Immigration had preceded me a week earlier, but we met at Naples. There we also met Mr. Homer M. Byington, consul general of the United States at Naples, who had been designated as a delegate. From Naples we proceeded to Rome, where we were joined by Dr. Hugh S. Cumming, Surgeon General of the United States Public Health Service, designated as a delegate. He was later joined by Dr. Robert S. Wynn, of the United States Public Health Service, stationed at Genoa, Italy.
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    The opening session of the conference was held in the Hall of Horace and Curiace of the Capitol of Rome, a splendid old building which is used in connection with the municipal government of the city. We were there received by Victor Emmanuel III, King of Italy, who shook the hand of each of us, with words of cordial welcome. Addresses were made by Premier Mussolini, by the president of the council of the League of Nations, the minister of labor of Belgium, the minister of agriculture of Argentine, and the president of the administrative committee of the International Labor Office, which are reported in extenso in the minutes of the proceedings, to which reference is hereby made. It appeared that 59 Governments were represented at the conference, which I am told constitutes a world record, both in the number of Governments actually present at an international conference and in the percentage of all the Governments of the world meeting together.
    The second plenary meeting was held at 4 o’clock on the same day in the council chamber of the Capitol of Rome. This is in a very old building, which contains some pillars which antedate the Christian era. At this meeting the conference was organized by the adoption of certain rules, the election of a permanent chairman, or president, of the conference, and the completion of the organization of the conference, in accordance with regulations adopted? I had the honor on this occasion to be chosen to present to the conference the name of the Hon. Guiseppe De Michelis, Commissioner General of Emigration of Italy, as president of the conference. He was chosen by acclamation.
    The conference was divided into four sections and the various subjects which had been presented by the various governments for consideration were divided into four classes and each of these classes was referred to one of the sections. As chairman of the American delegation, I assigned Doctor Cumming to the first section, which dealt with matters of health and sanitation; Commissioner General Husband to the second section, which dealt with the general subject of emigrant welfare; Consul General Byington to the fourth section, which dealt with the general subject of international agreements; and assigned myself to the third section, which dealt with the subject of labor. I also assigned Doctor Wynn as technical adviser to the first section, Mr. George Shaw as technical adviser to' the third section, and Mr. Harlan Miller as technical adviser to the fourth section. Under the plan of organization, a presidential control committee was created for the purpose of general supervision of the work and membership therein was assigned by an even division of countries of emigration and immigration and included eight vice presidents of the conference and four presidents and eight vice presidents of the sections. The United States of America was assigned a vice presidency and the American delegation designated me as such vice president, representing the United States of America.
    The various sections met daily beginning on the 16th of May and each considered the questions referred to it. Some disputes arose as to the proper assignment of some of the questions and the control committee met daily after the section meetings had adjourned to consider these problems and to make reassignments. The control committee also considered each day general problems of policy-determining nature, which the sections felt they were not authorized to deal with. Nearly every country had sent its best informed men on the broad subject of the migration of peoples, and the discussions were profound and usually highly technical. While some countries had but one representative, several had a staff of a dozen or more, notably Italy, Great Britain, Japan, and Cuba. Among the delegates were many ambassadors, ministers, and other men of standing in the diplomatic corps of their
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    respective countries. There were also noted psychologists, sociologists, physi-chins, lawyers, and technical experts on all the various topics considered.
    The conclusions of the various sections on the topics assigned to them were reported to plenary sessions of the entire conference for final action. Section sessions were held in the Palace Vidoni, one of the old historical palaces of Rome, conveniently located in the business section of the city. The final plenary sessions again were held in the council chamber, in the Capitol group above mentioned.
    In voting on the various questions as they arose in the sectional meeting, each Government voted as a unit and had one vote. Governments voted either for a proposition or against it or refrained from voting. Full opportunity was given each Government to present its views on each question or to explain the reason why it abstained from voting. Representatives of the United States of America in the various sections were compelled frequently to refrain from voting on questions presented, for various reasons. We did not always state our reasons, but from time to time made general explanations as to our abstentions, which often applied to a number of questions. We did not hesitate, however, to state our reasons specifically in many instances.
    From the very beginning it became apparent that there were undercurrents at work which manifested themselves from time to time by showing on the surface. For example, it appeared early in the conference that certain Governments felt that the subject of emigration should be dealt with by the International Labor Office because emigration is really and essentially a phase of labor and employment and because the treaty of Versailles provides for dealing with that subject of emigration through the League of Nations. Generally speaking, the Governments taking this position were those that adhere either to the League of Nations or to the International Labor Office and who felt that the International Conference on Emigration and Immigration was more or less a competitor of existing international organizations or was trying to occupy a field already occupied by existing international organizations. On the other hand, Governments which did. not adhere to the international organizations mentioned and some who do, took the ground that none of the existing international organizations was world-wide in the sense of embracing all the Governments of the earth and that this conference had a large number of Governments which did not have membership in other existing international organizations which might deal with the subject of emigration and immigration and that the existing international organizations were dealing with the subject in a limited way and not as broadly as was proposed by this conference.
    The American delegation, of course, was somewhat embarrassed by some of these matters when they came up in vague and indefinite ways. Finally, however, a proposition was submitted in the third section that certain things were to be referred to the International Labor Office with the request to take certain steps with reference thereto and to report their action to the Governments represented at this conference.
    At this point I took occasion to make a statement for the record with reference to the American attitude and announced that the American Government could take no part in any action of that kind for many obvious reasons. I felt and said that the record thus presented was calculated substantially to eliminate the United States of America from further participation in the conference. Briefly, I took the position that the United States of America is not only not affiliated with the international organizations referred to but that our people had definitely rejected the proposition to adhere thereto and that
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    therefore the United States of America could not accept the fruits of toil of such international organizations when it could not possibly participate in the expense involved in that toil. I further took the ground that the American ■Government had accepted an invitation to meet with Governments and that I had specifically declined to approve the plan to invite organizations other than Governments to meet with the conference. From that time forward, with a single exception, the conference refrained from any reference to other existing international organizations in connection with its work, either by name or otherwise.
    Broadly speaking, the American delegates in the sections when refraining from voting on questions did so, generally, for two or three specific reasons: First, because the proposition involved international agreements and the American delegation was without authority to negotiate agreements or to discuss the proposition of international agreements and was limited to technical subjects. Second, because the questions involved the domestic policy of the United States, and our Government could not discuss those policies with other Gov-•ernments. Third, because our own legislation already covered the subject involved, or had taken ground in advance of the proposition submitted.
    To illustrate: The delegate from Egypt submitted a proposition providing specifically that the different Governments should pass legislation providing for the recognition or toleration of various forms of religious practices of alien immigrants within their boundaries. The American delegation refused to participate in the consideration of that resolution because the Constitution •of the United States guarantees utmost freedom of religious practices to •everyone under the flag, be he citizen or alien, and because that very constitutional provision would prohibit legislation on the subject as outlined in the resolution of the delegate from Egypt. I might say that the resolution was adopted, but it was made clear that under many Governments there are many restrictions as to forms of worship by the people.
    At the final plenary session, at which the various sections made their reports to the entire body, it was agreed that there should be no debate but that the delegates should have the privilege and right to explain their vote. The American delegation under this rule explained its votes on some questions, where explanations of a specific type seemed necessary. We filed a written statement for the record, explaining in a general way the general attitude of the American Government on the general line of topics and propositions. The statement is as follows:
    Rome, May SI, 192.'i.
    STATEMENT FOB THE EECORD OF THE PLENARY SESSIONS SUBSEQUENT TO THE SECOND SESSION
    The delegation from the United States of America is here under the limitations of the terms of the invitation of the Italian Government and the letter of acceptance of our Government. Our action here is therefor circumscribed by the policies of our country, as expressed in our Constitution and in the laws and treaties made in pursuance thereof.
    The United States of America is distinctly a country of immigration and is in mo sense a country of emigration. By common consent the question of who shall enter a country as an immigrant is purely and wholly a domestic question. Within certain well-defined limits every man has an inherent right to emigrate out of his country. However, he has no inherent right to immigrate into some other country. He may always return to the country to which he owes allegiance. He may not, however, force himself into a foreign country.
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    The movement of individuals and groups of individuals from their country of birth or of allegiance into some other country for the purpose of remaining there more or less permanently is world-wide, and therefore of great importance to every country. This movement creates many problems. The proper solution of these problems is of the utmost importance. The ultimate peace of the world depends very largely upon it.
    Many of the problems of this world movement of people are “domestic” to the country of emigration; many of them are “ domestic ” to the country of immigration; and many are of universal application to all countries of the-world as a whole. It is our view that the work of this conference lies essentially in this latter field. This is a field of sufficient magnitude and importance to enlist the most earnest and serious consideration of every civilized country of the world.
    Various countries of the world have in varying degrees accentuated and dealt in their legislation with the purely domestic questions of this problem. The United States of America has perhaps one of the most highly developed codes on the subject of immigration of any known country. It has no laws whatever on the subject of emigration. Most of the countries of Europe are emigration countries and have given much attention to the laws and regulations with reference to the domestic concerns of that phase of the movement of people.
    Many propositions were submitted to the conference with reference to the treatment accorded wandering people who have emigrated from their own land to some other country. We have discovered that most of these questions have been written into law in the United States and have been in practice for many years. They are therefore part of the recognized policy of our Government on these domestic questions. For that reason we have found it necessary in a number of instances to refrain from voting on the precise questions here submitted because they either varied from our own legislation or were in conflict therewith.
    In but one section of the conference was much attention given to the problems of emigration and immigration which are universal in their application. Questions of sanitation, of health, of morals, of the protection of women and children are questions purely humanitarian and of great concern to all civilized peoples. Our own country has paid much attention to this field and has enacted much legislation covering these subjects. We have been in harmony with the purpose and spirit of nearly everything presented along these lines, but were at times obliged to abstain from voting because of the question of legislation of our own which was somewhat different in form from the form proposed.
    The delegation from the United States of America appreciates deeply the great importance of every question considered. The actual record of votes is not a fair measure of our interest in these questions. In many instances we were unable to take part in the vote because of existent positive provisions of our own laws. No doubt the fruits of the labors here performed will find expression from time to time in our future legislation.
    The United States of America is a republic in its form of government, which highly accentuates the importance of the individual and his natural rights. For example, we were obliged to refrain from voting on the suggestion of recognizing religious forms of emigrants and immigrants. Under our Constitution every individual is guaranteed perfect freedom of creed and religion, be he citizen or alien, and our legislative bodies may not enact laws on that subject. We refrained from voting not because we underestimated the importance of that question but because our own institutions are in advance of what was here
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    proposed and can not be the subject of treaties or international agreements or legislation.
    This statement is made for the purpose of explaining to the representatives of our sister nations in a brief resumd the principal reasons why we took the positions we did on many of the questions submitted. We respectfully call attention to the act of our Congress and President adopted while this conference was in session, and which becomes effective on July 1, 1924. The delegates will readily recognize that that law covers a very large portion of the questions here considered and, as a rule, these provisions are in advance in their scope and detail of what was here proposed.
    E. J. Henning, Chairman of the Delegation, United States of America.
    Throughout the conference there was much discussion in an informal way Between the individual delegates with reference to the thought of future conferences of Governments on the subject of emigration and immigration. There was considerable sentiment among the Governments of the Western Hemisphere south of the Rio Grande for another conference, such conference to be held preferably in one of the Western Hemisphere countries. In a general way this program was not favored by the Governments adhering to the League of Nations and the International Labor Office, although there were many exceptions both ways.
    A resolution was finally presented at the last plenary session, divided into three principal subheads and each subhead voted on separately. The first provided for the distribution throughout the world of the conclusions and recommendations of the present conference, the second that another conference be held in 1927 in some country of immigration, the third that the present control committee be created a permanent body, to have its headquarters at Rome and to form the continuing factor between the present conference and the one to be called in 1927. The American delegation voted for the first and third propositions, but refrained from voting on the second. We explained our abstention on the ground that the definite agreement to participate in an international gathering was a prerogative of the President of the United States and that the American delegation could not assume to act in that regard, nor would it cable for instructions on the subject. We voted for the third proposition with the explanation that should the American Government decide to participate in the proposed plan of a conference in 1927, then and in that event we favored the recommendations of the third provision of the resolution.
    The control committee again honored the American delegation by designating me as one of the four delegates to deliver closing remarks at the conclusion of the work of the conference.
    Official minutes of the proceedings, both in the plenary sessions and in the sections, have been prepared by the secretariat of the conference in the Italian and French languages. The understanding is that any Government desiring to print the same in a different language will furnish its own translation for that purpose. The proceedings were conducted in the Italian, French, and English languages, and portions of the record will be found in the English language. I recommend that the minutes be translated into English and published by the Department of Labor.
    Social features.—The Italian Government and the people of Rome did their utmost to bid the delegates welcome and make them feel at home while at Rome. Many courtesies were extended to the delegates by the Government as such, including free transportation on the railroads operated by the Government of Italy. Throughout the conference much attention was given to
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    social entertainment. Some of these were of a highly educational nature to most of us.
    The number of persons constituting the conference exceeded the expectations of the Italian Government and it was found necessary in some instances to limit the invitations for social entertainments to the chairmen of the delegations. The royal family of Italy entertained with luncheon at the Quirinal, and because of the limited capacity of the state dining room, was compelled to adopt this rule. The managing committee announced at the beginning of the conference that delegates were not to feel obliged to indulge in social intercourse with each other by way of formal calls or the leaving of cards, and particularly requested that delegations refrain from entertaining other delegations. However, several delegations violated these regulations to some extent. A number of brilliant receptions were tendered by officers of the Italian Government, including one to all the foreign representatives by the president of the council, Premier Mussolini. The premier also entertained all the representatives at a formal dinner. The public buildings of the Italian Government in Rome were generally thrown open to the visitors, including many wonderful exhibitions of art and sculpture. All the representatives were taken to Tivoli, a city in the foothills some hundred miles from Rome, and were entertained at the ancient Villa d’Este, one of the most notable old castles of Europe, surrounded by what is undoubtedly the most beautiful garden of its type in the world. The representatives were also taken on an excursion to Ostia, the seaport of ancient Rome, situated some 20 miles south from the present city. Here are being excavated the remains of three distinct cities, as indicated by ruins of buildings erected on the crumbling foundations of the preceding generation. Rising seas twice drove the inhabitants inland, whence they twice returned to rebuild the seaport. In addition to being given the opportunity to view these remarkable ruins the Italian Government entertained at a luncheon served on the spacious platforms of a modern, new concrete terminal station erected for a Rome to Ostia-on-the-Sea electric line which is in course of construction.
    There was a spirit of welcome and good will everywhere, not only among the public officers of state and municipality, but on the part of the people we met in Rome, and this tended to make our stay most delightful.
    While the conference proper concluded its work late on Saturday night, May. 31, the Italian Government had arranged a short program in Naples, by way of completion of social and official functions. The printed program announced that all delegates and representatives were to proceed to Naples on Sunday night, June 1, in order to take part in an all-day program there. We were to take part in an examination of the existing emigrant home there and in the dedication of the ground for an elaborate addition to the Government’s plan calculated ultimately to constitute one of the most complete and important emigrant detention plants in the world. Accordingly, I went with the great majority of the delegates to Naples on Sunday night, and there represented our country in the program arranged by the city of Naples and the Italian Government jointly. The day was a holiday in Naples and the functions and ceremonials were most elaborate. The mayor entertained the visitors with a luncheon in the emigration quarters, the chamber of commerce entertained at tea at the city hall, and the commissioner general of emigration of Italy, Mr. De Michelis, in cooperation with the municipal officers, tendered a banquet at one of the leading hotels of Naples as a final function at night.
    The existing equipment for the detention of emigrants at Naples are all of a very extensive nature and of a high type. When the contemplated improvements
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    have been made it will be one of the most attractive and one of the most extensive equipments devoted to such a purpose. I did not see another equipment in Europe that approaches the Naples plant in perfection of detail, and I do not think there is one anywhere.
    The delegates returned to Rome during the night of June 2 as the guests of the Government, and the 3d of June saw the final formal dissolution of the conference.
    Visits to American consulates.—While the conference was in session word came that the American Congress had passed the new immigration act and that it had been approved by President Coolidge. The general outline of the new act was familiar to the American officers in the Consular Service generally, but few of them realized just how fully the responsibility of examining the emigrants for the United States had been shifted to them. All were apprehensive as to just what would be expected and few had a clear conception of what the real philosophy was behind the new enactment. The consular officers everywhere were eager to meet us and to discuss with us these things.
    Accordingly, in pursuance of instructions of the Secretary of Labor given in a general way, I proceeded from Rome after the closing of the conference to the more important consulates of western Europe.
    Consul General Byington, of Naples, was a delegate to the conference, and I had many discussions with him on the subject of the new law and its enforcement. Consul General Keene, of Rome, was in constant touch with us while in that city, and I went into many details with him and his assistants in this regard. In proceeding from Rome it was my purpose not only to visit the principal consulates, but also to study closely economic and labor conditions.
    My itinerary from Rome was substantially as follows: Florence, Italy; Venice, Italy, Consul James B. Young; Milan, Italy; thence northward through portions of Switzerland, including Lucerne, Consul James Lee Murphy; and Geneva, Consul General Lewis W. Haskell; Lyon, France; Paris, France, Consul General Alexander M. Thackara. I spent considerable time in the environs of Paris, and from there proceeded through the valley of the Marne to Nancy and Strasbourg, Consul Chester W. Davis. I crossed the Rhine at Strasbourg and visited a number of cities of southern Germany, including Kehl, Appen-weir, and Baden-Baden. The latter city is surrounded by a number of thriving little manufacturing communities. Consul General Thackara, at Paris, was about to retire, under the provisions of the Rogers law, and therefore I dealt generally with other members of the staff stationed in that city.
    From Paris I proceeded to Brussels, Consul Herbert O. Williams; Antwerp, Consul General George S. Messersmith; Rotterdam, where Consul General George E. Anderson was on the verge of leaving for the States, h
    A Simese woman who marries an alien loses her nationality if by his national law she has acquired the nationality of her husband.
    Except under certain circumstances, a Siamese can not lose his nationality by naturalization or otherwise unless he obtains the sanction of the Government.
    If the foreign nationality which a Siamese has acquired with the sanction of the Government extends to his wife or children, they lose Siamese nationality.
    SPAIN
    Ten years’ continuous residence in Spanish territory, with character of legal domicile, is necessary to obtain citizenship. Likewise, foreigners who have been domiciled in Spain for more than five years, and who have duly registered in the book of citizenship in the manner prescribed by law, will be considered to have obtained citizenship if married to a Spanish woman; if they have introduced or developed for the first time in Spain an important industry or invention; if owner or manager of any agricultural, industrial, or mercantile concern; if they have rendered distinguished services to the nation.
    In no case can Spanish nationality be obtained by a foreigner whose legal status is affected by the laws of the country of his origin, or who is subject to the military or criminal authorities of his or another country and could for an offense be extradited or who has not behaved as a man of good moral character during his residence in Spain.
    A foreigner desiring to obtain Spanish nationality may present to the appropriate court a petition duly signed, accompanied by a certificate of domicile registration or documents of evidence, together with certificate of birth of applicant or its equivalent; certified document stating petitioner is of age, and in case of a woman, a document showing her legal status; certificate or record of marriage and birth certificate of wife, when petitioner is a married man, and birth certificates of children bom abroad; certificate from local consul stating that petitioner is free to act and duly registered; certificate showing he is not subject to military service of his native country; certificate proving he is not extraditable for crime committed in native country; certificate having reference to defaulters and transgressors of the law; certificate of good conduct.
    After the petition, with required documents attached, has been approved by the appropriate authorities, it will be returned to the appropriate court with the certificate of naturalization. The judge will deliver the latter to the person concerned, accept the renouncement of previous nationality, and administer the oath to the State Constitution, making appropriate entry thereof. After the entries are made, the judge will immediately forward certified copies of the same to the central office of registrars and notaries, which will attach them to the extracts of petitions which must be kept in the central office, and rhe latter will have published a list of those who have been naturalized.
    Spaniards by birth are those born in or away from Spain of fathers of Spanish nationality; those bom in Spanish territory from foreign parents, provided the parents or the children during year after reaching majority select Spanish nationality; illegitimate children born within’ or without Spain, if the father is a Spaniard, or of having been recognized by one of the parents, only he or she is Spanish; illegitimate children of Spanish father or mother,
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    whose paternity or maternity is evident by a document whereby the relationship is expressly recognized; those born in Spain of unknown parents; children found in Spanish territory whose nationality can not be determined ; children of parents who have lost Spanish nationality provided they select said nationality.
    In order to be considered as included in the roll of inhabitants of a place an uninterrupted residence of 10 years in Spanish territory is necessary, with the legal character of domicile. Under the law this term commences from the time of inscription of the foreigner's domicile in the book of citizenship and civil residence of the respective municipal registry. The time of residence enjoyed before the passing of this law can be shown by appropriate documents. Upon completion of the legal proceedings declaring that residential rights have been granted, the judge will send information to the interested party and will receive renunciation of the former nationality and will receive the oath to the constitution of the State, making proper entry.
    A foreign woman marrying a Spaniard acquires Spanish nationality thereby. The status of the wife is governed by that of the husband unless the law of the country where she belongs is contrary. The father’s status governs that of his children under his jurisdiction.
    SWITZERLAND
    The foreigner desirous of acquiring the right of Swiss citizenship must apply to the Federal Council for permission to acquire the right to cantonal ami community citizenship in the manner prescribed by law. With the application there must be inclosed birth certificate of the applicant, and in a given case birth certificate of the wife, marriage certificate, death certificate of deceased husband; draft or legalized copy of the judgment pronounced if the applicant is divorced or separated; a passport, certificate of citizenship, or similar identification issued by the competent authorities concerning the nationality of the applicant and his family; the necessary identification concerning residence; a certificate of good conduct; an extract of the penal register of applicant's native State in so far as the applicant has not lived continually in Switzerland since his sixteenth year or if he is not yet 16 years of age. Applicants who came to Switzerland during the war and were of an age liable to military service and who never formerly lived in Switzerland must present their military papers and must make a declaration as to their military circumstances.
    Minors who are to be naturalized without their parents must present a legalized declaration of agreement from the person who has the right of parental control or guardianship.
    The applicant must produce a certificate of domicile from the competent authorities of the place of his residence which covers also his wife and his children who are more than IS years of age; in cases where they live in a different community to the applicant they must produce a separate certificate of domicile. The applicant must prove that during the last 12 years before applying he has lived for at least 6 years in Switzerland. A foreigner born in Switzerland who, up to the end of the twentieth year, has lived at least 10 years in Switzerland can obtain the permission in so far as he can prove that during the last 5 years before making application he resided at least 3 years in Switzerland. In any event, the applicant must bring the proof that during the two years preceding the date of the application he has resided uninterruptedly in Switzerland.
    A fee of 20 francs is assessed for the execution of permission to acquire Swiss citizenship. Minor brothers and sisters who make a conjoint application pay the fee once only. Under certain circumstances the fee is dispensed with.
    Foreigners who become naturalized in Switzerland without having been dismissed from their former native country remain subject to military service In their first native country.
    The minor children of French parents naturalized in Switzerland have the right of option between Swiss and French nationality during their twenty-second year. The application of a woman formerly Swiss, for gratuitous naturalization, can only be taken into consideration if same be made within 10-years after divorce or separation.
    After 20 years of uninterrupted residence in a community a cantonal citizen, his wife, his minor children as well as the children who have come of age and
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    are living in the community, become citizens of the community free of charge, except in cases of persons who have undergone criminal punishment, who have not been reinstated or such persons or their families who have been public charges for the last five years and have not repaid the sums due.
    In order to acquire the rights of community citizenship it is necessary that persons have legal uninterrupted residence of at least three years, for foreigners at least five years, in Hie community in question; that they be citizens of honor and of good reputation; proof that the applicant is in a position to maintain himself and family. Minors proceeding must have permission from the person having paternal control. Community and cantonal citizenship may lie Al acquired by proceeding under the prescribed laws and payment of the re-" quired fee.
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