[Eleventh Annual Report of the Secretary of Labor for the Fiscal Year Ended June 30, 1923] [From the U.S. Government Publishing Office, www.gpo.gov] ELEVENTH ANNUAL REPORT OF THE SECRETARY OF LABOR FOR THE FISCAL YEAR ENDED JUNE 30 1923 WASHINGTON GOVERNMENT PRINTING OFFICE 1923 3 1336 05750 2560 CONTENTS. Paet I. Page. Office of the Secretary___________________________________________________ 1 Department quarters_______________________________________________ 2 Assistant secretaries_________________________________________________ 3 Solicitor_____________________________________________________________ 4 Chief clerk___________________________________________________________ 4 Appointment clerk_______________________________•______________ 4 Disbursing clerk__________________________________________________ 7 Publications and supplies________________________________________ 12 Department library______________________________________________ 15 Conciliation service_________________________________________________ 17 The jurisdictional dispute_______________________________________ 20 United States Employment Service___________________________________ 34 United States Housing Corporation__________________________________ 30 Immigration____________________________________________________________ 44 Reorganization of districts________________________________________ 44 Deportation _______________________________________________________ 44 Board of review____________________________________________________ 45 The per centum act of 1921_________________________________________ 45' Oriental immigration_______________________________________________ 49 Contract labor_____________________________________________________ 50 Deserting alien seamen_____________________________________________ 50 Smuggling and surreptitious entry__________________________________ 51 Deportation of aliens_______________________________.______________ 53 Net revenue________________________________________________________ 53 Century of immigration_____________________________________________ 54 Bureau of Labor Statistics_____________________________________________ 54 Historical_________________________________________________________ 54 The Monthly Labor Review___________________________________________ 54 Other publications_________________________________________________ 55 Reports transmitted but not published______________________________ 57 Statistics on volume of employment--------------------------------- 58 Extension of cost-of-living surveys________________________________ 59 Accident-prevention survey, accident statistics, and safety code work_ 59 Labor conditions in insular possessions____________________________ 62 Efficiency and productivity of labor------------------------------- 62 Labor laws and decisions------------------------------------------- 63 Children’s Bureau------------------------------------------------------ 63 Maternity and infancy______________________________________________ 63 Constitutionality of the maternity and infancy act----------------- 65 Child hygiene------------------------------------------------------ 66 Street trades______________________________________________________ 67 Employment of children in stores, mills, and factories in Georgia__ 68 Rural child labor__________________________________________________ 68 Minimum wage for minors____________________________________________ 68 Other child-labor studies__________________________________________ 69 Juvenile-court standards___________________________________________ 69 Studies of child dependency---------------------------------------- 69 Child welfare in Porto Rico________________________________________ 71 Recreation_________________________________________________________ 72 Child-welfare legislation in 1923__________________________________ 72 Child-welfare commissions__________________________________________ 72' Committee on traffic in women and children_________________________ 72 Publications_______________________________________________________ 73 in TV CONTENTS. Page. Bureau of Naturalization_______________________________________________ 74 Reorganization_____________________________________________________ 74 Citizenship training----------------------------------------------- 75 Volume of the work_________________________________________________ 77 Separate status of women------------------------------------------- 77 Women’s Bureau--------------------------------------------------------- 7S Industrial conference______________________________________________ 78 Investigations_____________________________________________________ 79 Special studies____________________________________________________ 80 Research and educational work-------------------------------------- 84 Moving pictures---------------------------------------------------- 85 The radio__________________________________________________________ 85 Publications_______________________________________________________ 86 The coming year---------------------------------------------------- 86 Part II. Conclusions and recommendations---------------------------,---------- 89 Introductory------------------------------------------------------- 89 America and the alien----------------------------------------------- 92 A century of immigration---------------------------------------- 93 An alien code___________________________________________________ 194 The quota law___________________________________________________ 104 Specific amendments--------------------------------------------- 105 Naturalization—----------------------------------------------------- 108 Nonnaturalizable aliens----------------------------------------- 113 Summary_________________________________________________________ 111 Railway Labor Board------------------------------------------------- H5 “ To improve their working conditions ”----------------------------- 115 Seasonable employment------------------------------------------- 116 Vocational Board---------------------------------------------------- 117 Women and children-------------------------------------------------- 117 Child labor----------------------------------------------------- 117 Maternity and infancy act--------------------------------------- 121 Procedure of Federal courts in children’s cases----------------- 121 Women in industry----------------------------------------------- 121 Appendixes: Appendix I. A century of immigration—Statistics and charts---- 126 Appendix II. Letter to the President on the immigration problem— 141 Appendix III. Act creating the Department of Labor----------------- 147 ELEVENTH ANNUAL REPORT OF THE SECRETARY OF LABOR. Department of Labor, Office of the Secretary, Washington. D. C., October 7, 1923. To the Congress of the United States: Section 9 of the act of Congress approved March 4, 1913, entitled “An act to create a Department of Labor,” provides— That the Secretary of Labor shall annually, at the close of each fiscal year, make a report in writing to Congress, giving an account of all moneys received and disbursed by him and his department and describing the work done by the department. He shall also, from time to time, make such special investigations and reports as he may be required to do by the President, or by Congress, or which he himself may deem necessary. In accordance with the foregoing provision of law, I have the honor to submit a report of the business of the Department of Labor for the fiscal year ended June 30, 1923, and with it certain reports of investigations and conclusions, together with certain recommendations which to me seem proper and important. Respectfully submitted. James J. Davis, Secretary of Labor. ELEVENTH 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 Immigration, Bureau of Labor Statistics, 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 'heir 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 (U. S. 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 REPORT OF THE 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 effects 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. Department quarters. The department building is a modern nine-story and basement, fireproof building containing 84,981 square feet of floor space which, after deducting hallways, toilets, etc., leaves 72,424 feet available for use. Of this 8,430 square feet is used for the maintenance of the building and storage, leaving 63,994 feet of available office space. By rearrangement of the offices in the building it was possible during the past year to transfer from Tempo Building No. 4 a part of the United States Employment Service. The department building now houses the Office of the Secretary, the Bureau of Immigration, Bureau of Labor Statistics, Bureau of Naturalization, and the major portion of the United States Employment Service. This move enabled the department to return to the Public Buildings Commission 1,825 square feet of floor space in Tempo Building No. 4, and also permitted the much-needed expansion of the Children’s Bureau and the Women’s Bureau. The Children’s Bureau now occupies 17,180 square feet; the Women’s Bureau 5,960 square feet; and the Employment Service 2,310 square feet in that building. REPORT OF THE SECRETARY OF LABOR. 3 The Bureau of Industrial Housing and Transportation occupies 5,935 square feet of space in the Maltby Building, 200 New Jersey Avenue. The lease on the department building at 1712-1722 G Street NW., renewed July 1, 1922, for a period of five years, will expire on June 30, 1927. It is necessary that some arrangements be made before the expiration of this lease for housing the department. In order to do this adequately in one building, approximately 120,000 square feet of office space would be required. If a building is to be constructed for the department, as provided on page 342 of the report of the Public Buildings Commission of December 18, 1917, on the Government-owned site bounded by Fourteenth and Fifteenth and C and D Streets NW., it would be necessary to have immediate legislation. The project of the Public Buildings Commission, as set forth in that report, was to erect a building comprising 85,525 square feet, this building to be capable of extension so as to supply net floor space of 155,650 feet. The report contemplated the housing of the Bureau of Efficiency and the United States Employees’ Compensation Commission in that building. Since the Department of Labor requires approximately 120,000 square feet it would seem that a building containing a total floor space of 155,650 feet would not be too large to allow for normal expansion for four years. It is possible that some other small activity of the Government could be temporarily housed therein. If it is proposed to house the department in one of the Government-owned buildings it is necessary that preparation be made in time. A garage, built in the department building, houses the various motor vehicles of the department. Should another building be secured, arrangements must necessarily be made for the housing of this equipment and provision be made to pay rental and maintenance therefor. I can not, of course, state whether the present owners of the department building will renew the lease, or, if renewed, on what terms. By the act approved February 13, 1923, the care and maintenance of the department building was transferred to the superintendent of the State, War, and Navy Department Buildings, effective July 1, 1923. Accordingly, instructions have been issued throughout the department that every effort be made by officials to cooperate with the superintendent for the successful and economical operation of the building. 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. 4 REPORT OF THE SECRETARY OF LABOR. 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, 1923, are as follows: Legal opinions rendered, formal-:____________________________________ 102 Contracts and leases examined, approved, or disapproved______________ 191 Contracts, leases, forms of bonds, etc., drafted, redrafted, or modified— 7 Bonds on contracts examined, approved, or disapproved___________________ 20 Bonds, alien immigrants, examined, approved, or disapproved__________5, 403 Bonds, official, examined, approved, or disapproved__________________ 5 Acts drafted and redrafted___________________________________________ 11 Miscellaneous matters embracing everything submitted for advice or suggestion of the solicitor, or for the formulation of departmental action, not included in the foregoing________________________________________ 455 Total---------------------------------------------------------6,194 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. Appointment clerk. Officials and employees.—There was an increase of 299 employees in the department at the close of June 30, 1923, as compared with the number employed on the same date of the previous year. The Immigration Bureau and Service had 184 additions, Children’s Bureau 71 (of which number 46 are temporary^, Bureau of Labor Statistics 25, and the Bureau of Naturalization 9. while there was a reduction of 38 in the Office, of the Secretary. The reduction in the Office of the Secretary was made under the act of Congress of February 13, 1923, which transferred all maintenance of building employees to the Office of the Superintendent of the State, War, and Navy Buildings. The table below shows 381 statutory positions for the present fiscal year while for the previous year there were 428 positions authorized by .statute. There are 10 vacant statutory positions in the Children’s Bureau. There are at present 436 persons holding appointments in the department at the nominal compensation of $1 per annum. Of this number there are 32 in the Division of Conciliation, 5 in the Bureau of Labor Statistics, 57 in the Children’s Bureau, 27 in the Immigration Service, and 315 in the Employment Service. Those in the Employment Service are mainly State, county, and municipal officers working in cooperation with the service. REPORT OF THE SECRETARY OF LABOR. 5 Total number of officials and employees in the Department of Labor July 1, 1923. Bureau or office. Statutory. Non-statu-tory. In District of Columbia. Outside District of Columbia. Total July 1, 1923. Total July 1, 1922. Increase (+) or decrease (-)• Office of the Secretary 81 81 81 119 -1 38 Commissioners of conciliation 74 7 2 67 74 54 + 20 Bureau of Labor Statistics 112 34 131 3 15 146 121 +25 Children’s Bureau 65 176 154 4 87 241 170 +71 Immigration 53 1,794 60 3 1,787 1,847 288 1,663 + 184 N aturalization 70 218 98 190 279 +9 United States Employment Service 510 35 6 475 510 494 + 16 WOman’s Bureau 47 47 47 35 + 12 Total 381 2,853 613 2,621 3,234 2,935 +299 Housing Corporation 481 470 11 481 587 -106 1 Decrease due to act of Feb. 13, 1923. 2 Of this number 32 are employed at the nominal sum of $1 per annum. 3 Of this number 5 are employed at the nominal sum of 81 per annum. 4 Of this number 57 are employed at the nominal sum of 81 per annum. 6 Of this number 27 are employed at the nominal sum of 81 per annum, 15 of these being under sec. 24, immigration act. 6 Of this number 315 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, 1923: Appointments, separations, and miscellaneous changes in personnel during fiscal year 1923. Bureau or office. Appointments. Separations. Miscellaneous changes. Permanent. Temporary. Total. From permanent. Temporary. Total. Competitive. Excepted. Unclassified. Competitive. Excepted. Unclassified. Office of the Secretary Commissioners of conciliation. 12 1 36 1 14 36 21 21 1 1 23 21 43 24 Labor Statistics 18 6 20 44 26 9 35 70 Children’s Bureau Immigration 30 234 43 67 4 120 118 193 423 20 216 12 28 60 91 92 335 118 717 Naturalization 47 1 28 76 39 1 13 53 234 United States Employment Service 2 271 64 337 9 170 3 182 243 Women’s Bureau 19 1 20 40 8 2 5 15 22 Total 362 426 4 371 1,163 339 234 1 182 756 1,471 There was a total of 1,163 appointments, 756 separations, and 1,471 miscellaneous changes of personnel during the year. There were 371 appointments to and 182 separations from temporary positions, 362 appointments to and 339 separations from competitive positions, 426 appointments to and 234 separations from excepted positions, and 4 appointments to and 1 separation from unclassified positions. Transfers.—There was only a slight change in the personnel caused by transfers to and from the department, a total of 36 coming in 6 REPORT OF THE SECRETARY OF LABOR. from the various departments and 8 being transferred out. However, this does not show the number of employees who were appointed under the civil-service rules being nominally reinstated in other departments for the purpose of immediate transfer to this department. The following table shows the number of transfers to and from the department during the year: Transfers to and from the department during the fiscal year 1923. Comparative statement.—The following table shows the number of persons employed in the Department of Labor at the close of June 30, 1923, and the number on the rolls on July 1, 1923. These changes come about mainly by change in appropriations. The statement shows an increase of 33 employees between the close of June 30, the end of the fiscal year, and July 1. It will be observed that there is a decrease of 8 employees in the District of Columbia, but an increase of 41 in the field service. Comparative statement of the number of employees of the Department of Labor, June 30, 1923. and July 1, 1923. June 30, 1923. July 1, 1923. In District of Columbia. Field. Total. In District of Columbia. Field. Total. Office of the Secretary 121 121 81 81 Conciliation 7 74 81 7 67 71 Bureau of Labor Statistics 122 6 128 131 15 146 Children’s Bureau 164 102 266 187 99 286 Bureau of Immigration GO 1,757 1,817 60 1,787 1,847 Bureau of Naturalization 98 189 287 98 190 288 United States Employment Service 35 464 499 35 475 510 Women’s Bureau 47 47 47 47 Total 654 2,592 3,246 646 2,633 3,279 REPORT OF THE SECRETARY OF LABOR. 7 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 52 employees retired on annuities, and in the same period 37 extensions based on value of the services of the individuals so retained. There have been 536 applications for refund of the deductions approved and paid. The following table gives figures by years: Retirements, extensions, and refunds for the period August 1, 1920, to June 30, 1923. 1921 1922 1923 Total. Employees retired 25 13 14 52 Extensions 20 5 12 37 Applications for refund 163 195 178 536 Total 208 213 204 625 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 by the Secretary of Labor from aliens in lieu of bond are accounted for by him. His report for the fiscal year ended June 30, 1923, is appended. Appropriations.—For the fiscal year ended June 30, 1923, the appropriations by Congress to the department and its services were as follows: Salaries, Office of the Secretary of Labor____________________ $140, 380. 00 Salaries and expenses, commissioners of conciliation---------- 175, 0001. 00 Contingent expenses, Department of Labor---------------------- 50, 000. 00 Increase of compensation, Department of Labor_________________ 566, 832. 00 Rent, Department of Labor_____________________________________ 24, 000. 00 Printing and binding, Department of Labor--------------------- 200, 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 Refund to Swedish-American Line at New York, N. Y------------- 30. 00 Immigration station, Ellis Island, N. Y: For vacuum heating system, Island No. 3------------------ 15, 000. 00 Renewal of plumbing system, Island No. 3----------------- 23, 000. 00 Remodeling and renovating buildings and plant------------ 100, 000. 00 REPORT OF THE SECRETARY OF LABOR. Salaries, Bureau of Naturalization______________1-------------- $97, 010. 00 Miscellaneous expenses, Bureau of Naturalization_______________ 600, 000. 00 Salaries, Children’s Bureau____________________________________ 106, 040. 00 General expenses, Children’s Bureau____________________________ 85, 000. 00 Investigation of child welfare, Children’s Bureau______________ 120, 000. 00 Promotion of the welfare and hygiene of maternity and infancy (includes $62,500 for administrative expenses welfare and hygiene of maternity and infancy)____________________________ 1,240,000.00 Salaries and expenses, Women’s Bureau-------------------------- 100, 0001. 00 Employment Service, Department of Labor------------------------ 225, 000. 00 Total__________________________________________________ 7, 483, 752. 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, 894. 25 Salaries and expenses, commissioners of conciliation---------- 263. 75 Salaries, Bureau of Labor Statistics__________________________ 4,166. 00 Miscellaneous expenses, Bureau of Labor Statistics------------ 500. 00 Salaries, Bureau of Immigration------------------------------- 1, 730. 00 Expenses of regulating immigration---------------------------- 57, 884. 00 Salaries, Bureau of Naturalization_____________--------------- 2, 425. 25 Miscellaneous expenses, Bureau of Naturalization-------------- 9, 960. 00 Salaries, Children’s Bureau----------------------------------- 2, 418. 50 Investigation of child welfare, -Children’s Bureau------------ 1, 998. 00 Promotion of welfare and hygiene of maternity and infancy----- 318. 71 United States Employment Service------------------------------ 730. 00 Salaries and expenses, Women’s Bureau------------------------- 1, 592. 50 Total deductions______________________________________ 86, 880. 96 Expenditures.—-The expenditures, arranged according to items of appropriation, were as follows: Office of the Secretary : Salaries, Office of the Secretary, 1922----------------- $5, 700. 46 Salaries, Office of the Secretary, 1923----------------- 135,169. 67 Contingent expenses, Department of Labor, 1921__________ 65. 08 Contingent expenses, Department of Labor, 1922__________ 13, 490. 41 Contingent expenses, Department of Labor, 1923__________ 37,516.26 Salaries and expenses, commissioners of conciliation, 1921_ 18. 41 Salaries and expenses, commissioners of conciliation, 1922_ 9, 964. 48 Salaries and expenses, commissioners of conciliation, 1923_ 147, 382. 52 Increase of compensation, Department of Labor, 1922_______ 20, 902. 76 Increase of compensation, Department of Labor, 1923______ 510, 696. 55 Rent, Department of Labor, 1922------------------------- 2, 000. 00 Rent, Department of Labor, 1923_________________________ 22, 000. 00 Printing and binding, Department of Labor, 1923_________ 148, 604. 83 1, 053. 511. 43 REPORT OF THE SECRETARY OF LABOR. 9 Office of the Secretary—Continued. Less credit by recoveries as follows— Salaries, office of the Secretary, 1921_________$56. 87 Salaries and expenses, commissioners of conciliation, 1921______________________________________ 53. 97 Increase of compensation, Department of Labor, 1921____________________________________________ 66. 67 Total credits______________________________________________ $177. 51 Net total___________________________________________ 1,053,333.92 Bureau of Labor Statistics : Salaries, Bureau of Labor Statistics, 1922____________________________ 6, 876. 44 Salaries, Bureau of Labor Statistics, 1923__________________________ 157, 859. 37 Miscellaneous expenses, Bureau of Labor Statistics, 1921_________ 1. 54 Miscellaneous expenses, Bureau of Labor Statistics, 1922______________ 9, 847. 22 Miscellaneous expenses, Bureau of Labor Statistics, 1923_____________ 58, 340. 25 Library, Bureau of Labor Statistics, 1922________________________ . 33 Library, Bureau of Labor Statistics, 1923________________________ 287. 95 233, 213.10 Less credit by recoveries to miscellaneous expenses, Bureau of Labor Statistics, 1921---------------------------------- 9. 40 Net total_________________________.________________ 233,203.70 Bureau of Immigration : . Salaries, Bureau of Immigration, 1922_________________________ 2, 908. 64 Salaries, Bureau of Immigration, 1923----------------------- 68, 298. 89 Expenses of regulating immigration, 1921_____________________ 15, 819. 66 Expenses of regulating immigration, 1922____________________ 220, 239. 04 Expenses of regulating immigration, 1923—T----------------- 3, 090, 214.15 Enforcement of laws against alien anarchists, 1921_________ 16. 49 Expenses of deporting aliens, 1921------------------------- 26. 50 Immigration stations— Ellis Island, New York_________________________________ 71,125. 92 Ellis Island, New York, 1923___________________________ 55, 093. 04 3, 523, 742. 33 Less credit by recoveries to— Enforcement of laws against alien anarchists, 1921____________________________________________$54. 09 Expenses of deporting aliens, 1921______________ 83. 77 Total credits______________________________________________ 137. 86 Net total_____________________________________________________ 3, 523, 604. 47 Children’s Bureau: Salaries, Children’s Bureau, 1922--------------------------------- 4, 096. 66 Salaries, Children’s Bureau, 1923________________________________ 91, 526.12 General expenses, Children’s Bureau, 1921_____________________ 1. 32 General expenses, Children’s Bureau, 1922_________________________ 9, 583. 77 General expenses, Children’s Bureau, 1923________________________ 51, 201. 74 10 REPORT OF THE SECRETARY OF LABOR. Children's Bureau—Continued. Investigation of child welfare, 1921_____________________ $0. 49 Investigation of child welfare, 1922_____________________ 4, 953. 88 Investigation of child welfare, 1923_____________________ 103, 594. 32 Promotion of the welfare and hygiene of maternity and infancy, 1922_____________________________________________ 313.19 Promotion of the welfare and hygiene of maternity and infancy, 1923_____________________________________________ 3,432.89 Administrative expenses, welfare and hygiene of maternity and infancy_____________________________________________ 19, 827. 53 288. 531. 91 Less credit by recoveries to—- Salaries, Children’s Bureau, 1921___________________$0. 35 General expenses, Children’s Bureau, 1921___________ 4. 35 Total credits____________________________________________ 4. 70 Net total____________________________________________ 288,527.21 Bureau of Naturalization: Salaries, Bureau of Naturalization, 1922__________________________ 3, 819.16 Salaries, Bureau of Naturalization, 1923_________________________ 86, 902. 73 Miscellaneous expenses, Bureau of Naturalization, 1921________ 4. 76 Miscellaneous expenses, Bureau of Naturalization, 1922_______ 39, 780. 32 Miscellaneous expenses, Bureau of Naturalization, 1923______ 526, 775.13 • 657, 282.10 Less credit by recoveries to miscellaneous expenses, Bureau of Naturalization, 1921_______________________________________ 102. 66 Net total_______________________________________________ 657,179. 44 Women’s Bureau: Salaries and expenses, Women’s Bureau, 1922_______________ 5, 606. 85 Salaries and expenses, Women’s Bureau, 1923_______________ 90, 018. 47 95, 625. 32 Less credit by recoveries to Women in Industry, 1921------------- 3.19 Net total______________________________________ 95, 622.13 United States Employment Service: United States Employment Service, Department of Labor, 1921___________________________________-____________ 183. 73 United States Employment Service, Department of Labor, 1922________________________________________________ 14, 009. 86 United States Employment Service, Department of Labor, 1923 _______________________________________________ 200, 945. 67 215,139. 26 Grand total____________________________________ 6, 066, 610.13 In addition to disbursements by the disbursing clerk, the following expenditures on behalf of the department were specifically made: REPORT OF THE SECRETARY OF LABOR. 11 By special disbursing agents for— Immigration Service (estimated)____________________________ $43,341.30 Children’s Bureau__________________________________________ 432. 95 Claims settled by the General Accounting Office of the Comptroller General__________i____________________________________ 877, 834. 21 Total_________________________________________________ 921, 608. 46 Miscellaneous receipts.—The following receipts from miscellaneous sources have been recorded during the year: Bureau of Immigration: Plead tax________________________________________________$4, 071, 734. 60 Fines____________________________________________________ 196, 879. 77 Forfeiture of. bonds_____________________________________ 161, 200. 00 Rentals and sale of exclusive privileges_________________ 4, 208. 03 Telephone service________________________________________ 850. 82 Sale of Government property------------------------------ 1, 244. 20 Miscellaneous collections________________________________ 4, 206. 28 Total______________________________________________ 4, 440, 323. 70 Bureau of Naturalization: Naturalization fees_______________________________________ 651,128. 45 Nunc pro tunc examination head tax________________________ 34,070.08 Miscellaneous: Proceeds of sales of Government property, etc------------- 505. 21 Total receipts____________________________________________ 5,126, 027. 44 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 March 29, 1923: Salaries, Office of the Secretary of Labor, 1921---------------- $567. 24 Contingent expenses, Department of Labor, 1921------------------ 2, 810. 56 Salaries and expenses, commissioners of conciliation, 1921------ 915.19 United States Employment Service, Department of Labor, 1921— 31. 65 Women in Industry, Department of Labor, 1921-------------------- 556. 83 Expenses of regulating immigration, 1921------------------------ 4. 028. 44 Salaries, Bureau of Immigration, 1921--------------------------- 1, 674. 02 Enforcement of laws against alien anarchists, 1921-------------- 6, 387. 20 Expenses of deporting aliens, 1921------------------------------ 42. 60 Salaries, Bureau of Naturalization, 1921------------------------ 273. 51 Miscellaneous expenses, Bureau of Naturalization, 1921---------- 878.18 Salaries, Bureau of Labor Statistics, 1921---------------------- 4, 809. 34 Miscellaneous expenses, Bureau of Labor Statistics, 1921-------- 503. 81 Library, Bureau of Labor Statistics, 1921----------------------- . 50 Salaries, Children’s Bureau, 1921_______________________________ 2,507.65 General expenses, Children’s Bureau, 1921_______________________ 1, 299.19 Investigation of child welfare, Children’s Bureau, 1921--------- 1, 391. 36 Increase of compensation, Department of Labor, 1921------------- 116. 51 Total_______________________________________________ 28, 793. 78 71372—23----2 12 REPORT OF THE SECRETARY OF LABOR. Publications and supplies. Printing and binding.—In the act making appropriations for the Departments of Commerce and of Labor for 1923 there was appropriated for the Department of Labor for printing and binding the sum of $200,000. This amount was apportioned by the Secretary as follows: Office of the Secretary______________________________________________$12, 000 Bureau of Labor Statistics___________________________________________ 90, 000 Bureau of Immigration_________________________________________________ 5, 000 Immigration Service_____________________________________________ 19, 000 Children’s Bureau___________________________________________________ 37,500 Bureau of Naturalization______________________________________________ 2, 500 Naturalization Service and examiners---------------------------- 25, 000 Women’s Bureau-------------------------------------------------------- 9, 000 Total________________________________________________________ 200,000 After the apportionment to bureaus had been made it was found that the cost of binding manifests at immigration stations, always heretofore paid from the appropriation for “ Expenses of regulating immigration ” was chargeable properly to “ Printing and binding.” This depleted the printing fund something over $6,000. There were outstanding from 1922, and sent to the Government Printing Office during the fiscal year 1923, requisitions covering $200,796.55. Up to July 1, bills were submitted by the Public Printer for $156,270.68, leaving an estimated balance of $44,525.87 to be paid out of the appropriation for the fiscal year 1923. It is believed the variation between the appropriations and the estimates will be equalized as the work nears completion; if it shall appear that a deficit might be caused by reason of inaccurate estimates, it will be rectified by accepting smaller editions on some of the requisitions. It is shown by comparison of the bills rendered by the Public Printer with the estimates that the bills usually are considerably in excess, due in a considerable measure to charges for “ author’s corrections.” Every effort is being made to reduce this latter source of expenditure. One hundred and ninety-four books or pamphlets were printed during the year, aggregating 16,503 pages. Of these publications 1,067,561 copies were issued. Printed stationery.—During the fiscal year 1923, 470 requisitions for printed stationery were filled. Of this number 230 were for offices and bureaus within the department and 240 for services outside the District of Columbia. Envelopes.—During the year 267 orders were placed with the envelope companies, calling for 4,260,440 envelopes, at a cost of REPORT OF THE SECRETARY OF LABOR. 13 $7,620.51, as compared with 171 orders in 1922, calling for 2,829,450 envelopes, costing $6,220.53. The increase in the number of envelopes ordered during the year was due principally to the fact that the surplus stock of envelopes left by the war-time services of the department had been exhausted and new stock had to be bought. This condition will be even more pronounced next year. Supplies.—A contingent fund of $50,000 appropriated for the use of the department was allotted to the bureaus, offices, and services as follows: Office of the Secretary_____________________________________________$32,175 Bureau of Labor Statistics____________________________________________ 4, 225 Bureau of Immigration------------------------------------------------- 2, 500 Children’s Bureau_____________________________________________________ 4, 350 Women’s Bureau-------------------------------------------------------- 2, 500 Bureau of Naturalization______________________________________________ 4, 250 To this there was added from the appropriation “ Expenses of regulating immigration, 1923,” the sum of $13,500 for the use of the immigration field service. On June 30, an apparent balance of $2,532.90 remained in the contingent fund and of $2,361.34 in the fund for the Immigration Service. These balances may be altered slightly by reason of the impossibility of estimating exactly the cost of certain services for which bills have not been received. There are ample funds remaining to the credit of the department to meet all outstanding liabilities. The value of supplies on hand on July 1, 1922, was $16,219.12; an inventory as of July 1, 1923, shows a valuation of $18,918.37. This valuation is based on replacement cost, which is considerably above 1922 prices. This small stock permits the department promptly to fill requisitions of the various bureaus and services for standard articles without delay caused by waiting for the supplies to be purchased and delivered. There were received from the various bureaus, offices, and services during the year 1,906 requisitions, as compared with 1,599 requisitions during 1922. On these requisitions there were written 2,329 orders, as against 2,164 in the year previous. The cost of upkeep of cars has been materially less during the year 1923 than in any previous year, due in great part to the fact that the passenger-carrying vehicle is comparatively new, and it is not anticipated that any considerably increased expense in this particular will be experienced during the fiscal year 1924. Periodicals.—The Monthly Labor Review continues as reported last year, while the title of the Industrial Employment Survey Bulletin has been changed to the Industrial Employment Information Bulletin. The statistical portion of this publication has been discontinued, that feature now being handled by the Bureau of 14 REPORT OF THE SECRETARY OF LABOR. Labor Statistics in the Monthly Labor Review. The Bureau of Labor Statistics, besides its retail prices and cost of living statement, now issues monthly a small statistical statement of wholesale prices or commodities, summarized quarterly in the Review. There is also issued monthly a report of activities of State and municipal employment agencies. Editorial work.—Editorial and proof reading, expressed in figures, was as follows: Folios of copy (not including reprints) forwarded to the Government Printing Office, 20,183. Galley proofs received, 4,055. Page proofs received, 12,009. Proofs of forms received, 278. Books and blanks.—A tabulated statement of books and blanks handled during the year, and of mail, freight, and express receipts and shipments follows: NUMBER OF REQUISITIONS FILLED. . 704 Inside service------------------------------------------------ Naturalization Service, clerks-------------------------------- T ^3 . 147 Naturalization Service, examiners----------------------------- General (Immigration, Employment, and Customs)---------------- 1,101 Total______________________________________________________ 6’ 625 SHIPMENTS MADE. Number. Weight. 1 385 Packages, registered mail— 3, 915 30,328 Packages, regular mail 28,063 265,676 Immigration laws, etc 5,358 2, 533 Bags, regular mail 1, 481 118,480 Letters, invoices, etc — ___ 518,352 26,235 Total 557,170 443,637 Other divisions: 125 5, 088 Boxes, freight and express Packages, regular mail 6,403 18,719 Letters 1, 306, 818 65, 340 Total 1,313,346 89,147 ; - ___ Supplies: 272,335 Freight and express 6,866 Mail 437 2, 274 7,303 274, 609 • —• —“ — Total shipments 1,877,819 807,393 REPORT OF THE SECRETARY OF LABOR. 15 Packages received: Number Blanks - 21,117 Supplies 5, 727 Weight. 274, 705 421, 411 Total_____________________________________________ 26, 844 696, 116 Total parcels handled. 1, 904, 663 1, 503, 509 Certificates of naturalization: 171 books of 10----------------------------------------------- 1, 710 166 books of 25_______________________________________________ 4,150 1, 251 books of 50______________________________________________ 62, 550 935 books of 50 (special)_____________________________________ 46,750 2, 523 Total_________________________________________________ 115,160 BOOKS AND BLANKS SENT. Books, general____________________________________________________ 8, 885 Books, naturalization_____________________________________________ 2, 523 Total_____________________________________________________ 11, 408 Blanks___________________________________________________________ 8, 608,100 WORK PERFORMED IN DUPLICATING SECTION. Franks handled___________________________________________________ 117, 064 Publications issued on franks____________________________________ 1, 926, 731 Publications issued on mailing lists_____________________________ 347, 262 Mimeograph requisitions handled__________________________________ 1, 735 Mimeograph copies made------------------------------------------- 3, 034,199 Mimeographed copies folded_______________________________________ 765, 541 Envelopes, letters, and cards addressed__________________________ 491, 793 Envelopes sealed_________________________________________________ 771, 723 Photostat copies made____________________________________________ 1,246 Department library. The record of the work of the library for the year shows progress in four directions—valuable additions to the collection, added facilities for its use, wider service to the bureaus of the department, and larger use of the library’s resources by outside organizations. During the year 6,189 books and pamphlets were catalogued and added to the collection. In addition, much material of ephemeral character but of real value temporarily was made available for quick use by subject in the vertical files. About 50,000 cards were added to the card index. One thousand four hundred and fifty-two volumes were sent to the bindery. The collection of State codes and session laws in the Bureau of Labor Statistics and the department library were combined into one collection and catalogued. This made possible the discarding of old and superseded volumes and the filling in of gaps in the collection. With the volumes of the Federal statutes and the general laws of Canada, Great Britain, and France, the special compila 16 REPORT OF THE SECRETARY OF LABOR. tions of labor laws, and the current translations published by the International Labor Office, the library now has a compact and up-to-date collection of American and foreign labor legislation. Special efforts were made during the year to complete the files of publications of American trade-unions and many important additions were made to this part of the collection. Particular attention was paid also to securing as promptly as possible all new publications in relation to the coal industry, particularly those relating to the living and working conditions of miners. This part of the collection is extremely valuable, and many of the publications gathered over a period of years could not now be replaced. During the past months it has been used extensively by the research staff of the coal commission. Some progress has been made also in reestablishing cooperative exchange relations with organizations in the labor and social welfare field abroad, which had been interrupted by the war, and with the many new organizations that have come into being since, particularly in the new political divisions of Europe. This work involves, however, besides the correspondence, a good deal of preliminary research, for which the necessary assistance has not been available. The Department of Labor library has for some time been preparing “ copy ” for the catalogue cards printed by the Library of Congress for all of the publications of the department. These entries go out on the Library of Congress proof sheets to the principal libraries of the country and to a number of the largest libraries abroad, and serve to make better known the valuable publications issued by the different bureaus. The library regularly furnishes “copy” also for catalogue cards for its important new accessions and, in addition, during the last year has prepared analytical cards for the various studies and reports of the International Labor Office. The number of periodicals and new books circulated in the bureaus has greatly increased during the year. The library endeavors to keep informed of new investigations in progress or projected in order that material bearing on these may be obtained as promptly as possible and placed at the disposal of the different investigators. Important periodical articles bearing on the problems studied are also called to their attention. The circulation of material in the bureaus whose work is closely related is greatly complicated by the fact that two of the research bureaus of the department are located in another building some blocks away. Better methods for meeting the needs of these two bureaus are being sought. The library is being called upon constantly for definite and highly specialized information. To furnish this promptly more elaborate subject catalogues are needed than for a general collection. REPORT OF THE SECRETARY OF LABOR. 17 More detailed subject indexing is now being done than in previous years, but the cataloguing assistance available is still inadequate to handle the current work. There remains untouched arrears of cataloguing amounting to over 8,000 books and pamphlets. The catalogue is the key to the resources of the library, and it is a serious loss to the research work of all the bureaus that the cataloguing is not being brought up to date. The number of persons using the library from outside the department has greatly increased during the year. In its library the department has a collection of source material covering the whole field of social welfare unequaled in the United States. While this collection exists primarily to meet the basic need of its own research work, it is the policy of the department, in line with the purpose for which the department was created, to make the collection as widely available as possible. It is used extensively by other Government departments, by research bureaus, and by individual investigators, is consulted as freely by employers’ organizations as by labor. The inquiries coming to me for reply through the library are many and varied. They range from the names and addresses of officials and organizations or the publisher of a particular book to questions involving considerable research, such as information regarding State-operated coal mines, foreign laws relating to the work of women underground, use of cost of living figures in wage determination, registration of dock laborers in foreign countries, wages in the celluloid industry in Japan, and similar questions. The pressure of the work prevented the completion of two extensive bibliographies begun during the year. These cover the living and working conditions of coal miners in the United States and employee representation in industry. A bibliography on “ Profit-sharing and labor copartnership ” was contributed to the April number of the Monthly Labor Review and the list on the Kansas Court of Industrial Relations was brought up to date and published as an appendix to Bulletin No. 322 of the Bureau of Labor Statistics. CONCILIATION SERVICE. Actuated solely by a desire to be helpful to “ man and manager ” in industry, the conciliation service of the Government becomes year by year a more important factor in the maintenance of industrial peace. The commissioners in the conciliation service are experienced men and women who willingly and energetically endeavor by advice and suggestion to avert breaks between employer and employee and to harmonize and adjust strikes and threatened strikes and lockouts through joint negotiations between the parties at interest. The problem of industrial relationship is as old as industry. It is true that it varies somewhat with changing industrial methods 18 REPORT OF THE SECRETARY OF LABOR. and conditions, but fundamentally the issues confronting the contending interests in an industrial conflict in this age present many of the elementary economic problems that brought about a suspension of work in mine, mill, and factory during the preceding century. In some countries industrial conflicts have eventually led to the battlefield and in several instances precipitated revolutions. In these enlightened days, however, a better and finer spirit of cooperation and an appreciation and understanding of the rights of employer and employed enables the manager and worker to act with each other fairly to solve their problems in a calm and peaceful manner. This procedure, when followed, brings as its reward happy and efficient workers and steadier and better production. If a trade dispute develops to the point where work is suspended for a time through a strike by workers or a lockout or a suspension of operations on the part of the management conciliation paves the way for closer active cooperation. The same procedure—common counsel to find common ground—eliminates divided responsibility and brings instead that joint relationship which year by year is being more generally accepted by the interests concerned. To prevent strikes and lockouts if possible, or to speedily bring these regrettable industrial conflicts to a close, is the task imposed upon the Secretary of Labor and his representatives—the commissioners of conciliation— by the Congress of the United States. It is a comparatively new function of government, and year by year an increasingly important and satisfying activity. The Department of Labor has no panacea for the industrial ills that from time to time confront our business life. We know that just so long as men are actuated by the wholesome desire for gain, man and manager will be faced by differences of opinion which oftentimes result in stoppage of work. It is the department’s policy to approach these situations in a practical and common-sense way, without prejudice and with open mind. In our national industrial life there is such a diversification of occupations that a suspension of operations in most industries presents first of all a problem for those directly affected, and, secondly, for the public living in the immediate section affected by the strike or lockout. However, when our transportation systems, our mining or other industries closely associated with the production of the necessaries of life cease to fulfill their mission and obligation to the public because of a general suspension due to any cause, all of our people are affected. Happily these situations are not common to American industry. Trade disputes are not of recent origin. The peoples of all lands have witnessed these trade conflicts as far back as history records. REPORT OF THE SECRETARY OF LABOR. 19 Workers in what was actual slavery in the brick plants in the time of the Pharaoh who ruled Egypt late in the fourteenth century B. C., on account of an edict from the ruler that the workers henceforth should supply their own straw and stubble to be used in making the bricks, became incensed and threatened an uprising. The situation was further aggravated by bad food supplied to them by the taskmasters under the king. When the unrest became most serious, Moses and his brother, Aaron, left at once to wait on the ruler. Moses mildly complained to Pharaoh, who refused to consider any of the grievances, saying, “ Wherefore do ye lead the people from their work? Get you unto your burdens.” And Pharaoh commanded the same day the taskmasters of the people, saying, “ Ye shall no more give the people straw to make bricks. Let them go and gather straw for themselves.” And the workers had to ransack the country for straw and stubble, which was very scarce. When no concessions could be secured they quit work in a vast mass, to the number of more than half a million (in all 603,555 were employed). Moses finally led them to a land of freedom, pursued by the Egyptian soldiers. The story of the exodus is well known to all readers of Scripture. A strike of bakers occurred in Egypt over a thousand years before the Christian era; and so on down through the ages we find conflicts between employer and employee. With the changes in industry bringing ultimately into existence the factory system, strikes and suspensions were of frequent occurrence in all parts of the world. In this country there is a sure but slow reduction in the number of contests reaching the stage of a strike or lockout; notwithstanding the great coal and railway shopcraft strikes of 1922, the American people have made gratifying progress toward peace in industry. I do not expect to see the day when absolute industrial peace will reign, but I do hope to see the day when the American business genius and the enlightened American working man will negotiate agreements around the peace table before and not after a break develops. This action will minimize the number of trade disputes and the efforts of the service then will be better utilized in assisting by advice and suggestion based on a familiarity with negotiations and all phases of the particular industry affected, thus helping both sides in reaching a satisfactory adjustment. During the year the conciliation service used its good offices in 534 trade disputes, strikes, threatened strikes, and lockouts. These cases involved directly 294,320 and indirectly 101,358 workers. In 428 of these situations the department secured amicable settlements. In 19 cases the commissioners assisted State officials, city officials, and local committees. There remained 60 pending on June 30, and in 27 cases no settlements could be secured. 20 REPORT OF THE SECRETARY OF LABOR. This is a particularly pleasing record, because of the impetus in the building trades and kindred industries during the past year or year and a half. During the war and immediately thereafter a slackening up in the building program caused builders to put forth a tremendous effort in recent months to catch up. This strenuous program naturally strained the relationship at times very near to the breaking point. Good counsel, however, prevailed and at the close of our fiscal year matters of general industrial relationship demonstrate what can be accomplished by joint effort when all concerned move in the right direction along conciliatory lines. As the matter of coal occupies an important place in our industrial life, particularly in view of the suspension of work on the part of 600,000 miners last year, the Department of Labor has given considerable thought to -all phases of the subject. No one will deny that strikes are regrettable and that they bring in their wake sufferings and hardships aside from the monetary losses to both worker and manager that can never be regained; but there are other phases than the strike problem that require our best thought and most serious consideration. For 20 years, 1900-1919, according to Geological Survey reports gathered from coal operators, strikes in coal mines resulted in the loss of 124,747,199 man days. But in the same time in the same mines there were lost 1,053,576,000 man days through no market, transportation, disability, or breakdowns at the mines. In other words, 10.5 per cent of the total loss in the coal mining operation in 20 years was due to strikes, while 89.5 per cent loss during the same time was due to other causes than strikes and lockouts. While this ratio of loss would not apply to all other lines of industry, it does apply to a lesser extent in a great many other lines of industrial endeavor. The jurisdictional dispute. 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 REPORT OF THE SECRETARY OF LABOR. 21 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. The department will gladly lend all possible aid to any and all interests concerned, with the hope that joint effort shall effectively prevent these disputes which have done so much injury to buildingtrades craftsmen, the contractor and the public. Limitation of space prevents even a brief descriptive account of all of the trade disputes of the year just closed. It is, however, possible to report in detail upon some of the cases presented for conciliation. The following are submitted as typical examples of the work. Some of these are not cases involving the greatest number of workers affected, but are cases that show the diversity in occupations involved, issues in dispute, and plans of settlement secured by and with the aid of commissioners of conciliation of the Department of Labor. The great coal strike.—Commissioner Hywel Davies, of California, and W. H. Rodgers, of Iowa, devoted several months to the special study of the coal problem, both antecedent to and during the great coal strike of 1922 in the anthracite and bituminous mines of the country. The director of conciliation, Mr. H. L. Kerwin, jointly with the above-named commissioners, aided by six field commissioners, served as mining advisers to the Secretary of Labor, so that the Secretary could be kept thoroughly posted on every phase of this great controversy that disturbed the industrial and economic welfare of the country from April to September, 1922. The department’s close touch with the entire situation materially helped in the final settlement. As the strike overlapped into the fiscal year 1923, but was settled before the annual report for the year 1922 was submitted to the President and Congress, it was deemed advisable to include in the 1922 report (which see) the complete story of the strike, thus dispensing with the necessity of repetition in this annual report, even though the strike was not settled until August, 1922, in the bituminous, and September, 1922, in the anthracite fields. Stonecutters, New York City.—The agreement between the Journeymen Stonecutters’ Association of New York City and the Greater New York Cut-Stone Contractors’ Association contained an article to the effect that if a general wage advance were made covering the building-trade crafts, it should apply also to the stonecutters. Some of the crafts had received advances, amounting in some cases to $2 per day, but the increase had not become general and varied in the amounts granted. This condition created dissatisfaction among the stonecutters and culminated in a demand for a wage increase of $2 per day. Commissioners Thomas J. Williams, E. H. Dunnigan, and R. A. Brown were assigned to the case by the department. On April 18 the men struck to enforce their demands. Some 2,600 men answered the strike call. The building program of Greater New York was threatened with serious interruption. A radical difference of opinion existed between the contending parties as to whether or not the existing agreement had been broken. As both sides appeared adamant in support of their views on the subject, the commissioners deemed it best to ignore this phase of the situation and endeavor to find some common ground upon which both sides might meet and 22 REPORT OF THE SECRETARY OF LABOR. open negotiations. The commissioners attended meetings first with one side and then the other, and then arranged a joint conference to work out a formula, if possible, to overcome the deadlock. The point was reached where the contractors declined to consider the matter further until the men returned to work. The men countered with the proposition that they would return to work and confer after their wages were advanced. It was admitted by representatives of the employers that some men much less skilled than the stonecutters were receiving higher wages, and this fact doubtless had considerable weight in persuading them to grant an advance. Specific reference was made to derrick men, who were receiving $1 per day in excess of the amount received by the stonecutters. This was a strong factor in bringing about an adjustment. On May 7 a second joint conference was arranged. A proposition to increase wages $1 a day in lieu of the previous demand of $2 was accepted by the strikers’ representatives. The compromise was the suggestion of the commissioners. On May 8 the men returned to work, after 21 days of idleness. New England granite industry.—On April 1, 1922, the granite producing companies in the New England States put into effect a general wage reduction of 20 per cent and certain changes in working conditions. This action was followed by a strike which was quite general throughout the industry. Many of the firms had had contractual relations with their employees for a number of years. Upon the inauguration of the strike, however, the manufacturers’ association declared for the open shop. The good offices of the Department of Labor was not requested until the month of August, when Commissioner R. A. Brown was delegated to look into the matter with a view to bringing the contending parties together. It developed that there were four parties concerned in the strike, namely, the Quarry Owners’ Association who produced the rough stock, the Quarry Manufacturers’ Association who own and operate the cutting plants, the Quarry Workers’ Union, and the Granite Cutters’ Association. The officers of the two unions expressed a willingness to negotiate for a settlement, but the producers’ associations at first declined the commissioner’s proffer of his good offices. It soon became manifest that individual settlements would have to be made, as many of the manufacturing companies were anxious to resume operations and were not in accord with their organization in its stand for the opep shop. A growing scarcity of both the rough and finished granite was a factor tending toward a settlement. The efforts of the board of control of the manufacturers’ association to prevent their locals from dealing with their workers’ representatives ended in failure and a number of companies resumed contractual relations and restored the old rates of pay. This proved to be the beginning of the end of the strike. Individual settlements continued to be made until practically the entire industry had resumed operations under the old conditions. This called for a minimum wage of $1 per hour and a 44-hour week for the granite cutters. The quarry workers in most cases accepted a reduction of 10 cents per hour, establishing the rate at 62 cents, with an 8-hour day. Upwards of 3,500 men were directly affected by the strike. Shoe strike, Cincinnati, Ohio.—This strike of seven months’ duration, stubbornly contested on both sides, ended in a compromise. After months of contention which resulted in very heavy monetary loss to both sides and untold hardships to many of the workers involved, and after the futility of continuing the struggle had been made manifest to both sides, a spirit of compromise finally prevailed and an agreement was brought about. Probably the same result could have been reached during the first week of the strike if the contending parties had shown any disposition to give and take. The original proposition of the manufacturers was for a 25 per cent reduction of wages. This the workers promptly rejected and threatened to strike. The REPORT OF THE SECRETARY OF LABOR. 23 manufacturers met again and the proposed wage cut was fixed at 10 per cent. The question of accepting or rejecting the reduction left to a referendum vote •of the workers and the decision to strike was carried by a small majority. Commissioners W. C. Liller and Oscar F. Nelson were designated as the Department of Labor’s representatives in an effort to bring the parties together. The manufacturers contended that they had lost money the previous year and that they could not compete with manufacturers in other cities because of labor costs. This assertion was flatly contradicted by the workers’ representatives who pointed to the fact that seven companies in Cincinnati were continuing the old scale. They also maintained that the peak war-time wages never had obtained in the Cincinnati shoe shops.j Many conferences were held at various times without result and it was only after seven months of industrial warfare that a compromise proposition based on a 5 per cent wage reduction was accepted by a big majority of the strikers. Embroidery workers, New York City.—Commissioner Charles Bendheim was assigned by the department to take up a strike situation involving 2,000 embroidery workers employed in 125 shops in New York City. A group of these manufacturers were associated together under the name of the Bonnaz and Hand Embroiderers’ Protective Association. This organization had previously been in contractual relations with the union, but when the commissioner intervened in the situation all negotiations between the parties had been broken off and the prospects for a long and disastrous struggle was imminent. It was through the instrumentality of the commissioner that the president of the manufacturers’ association and several of its committee members met in conference at a luncheon with the general manager of the joint board of the union and several other union officials and renewed efforts to bring to a satisfactory conclusion a situation that was daily developing into a more tense and ■determined struggle. The chief contention conserved unionization of general workers, such as finishers, buckram, scrapers, and basters, which class of help, under previous agreements, the employer employed in the busy seasons without regard to union affiliation. After several conferences extending over a period of two weeks a final agreement was reached, the terms and conditions of which were embodied in a contract under date of August 31, 1922, 16 days subsequent to the beginning of the strike. This settlement put back to work 2,000 workers in the shops of the association members and other plants. Building trades, Indianapolis, Ind.—Commissioner Harry B. Dynes was instrumental in averting a general strike in the building trades of Indianapolis, Ind., in the spring of 1923. On April 1, the following crafts struck for higher wages: Plasterers, hoisting engineers, iron workers, lathers, and electricians. These craftsmen numbered about 800. As the strikes were rather interlocking it was apparent that if the crafts on strike did not settle by the time the buildings were ready for these crafts still on the job, the latter would be forced into idleness. The situation was difficult owing to the fact that each case had to be handled as a separate entity, as endeavors to adjust one situation had no effect on the other crafts on strike. There was danger also of other issues being injected unless the contending parties could reach a settlement. On April 12 the hoisting engineers and structural iron workers settled with their employers, the former on a basis of from $1.15 to $1.25 per hour depending upon the class of engine, and the latter receiving an increase to $1.17i to May 1 and $1.25 thereafter. On May 1 the lathers returned to work, getting an increase from $7.20 to $8 per day. On the same day the electricians settled, re 24 REPORT OF THE SECRETARY OF LABOR. ceiving an increase from $1 to $1.10 per hour until September 1, 1923, and $1.12J thereafter. On May 4 the plasterers returned to work, receiving an advance from $9 to $10.50 per day until September 1, and $11 per day thereafter. These adjustments averted a general strike and gave a promise of peaceful conditions for the rest of the fiscal year. House wreckers, New York City.—'The 2,000 members of House Wreckers’ Union, Local No. 95, located in New York City and vicinity, made demands upon the Demolition Contractors’ Protective Association and independent firms for a wage increase of 25 cents per hour. An agreement under which the contracting parties had been working expired on March 31, 1923. In addition to the wage increase, the union also asked that the men be retained on a job until the end of the week in lieu of the prevailing practice of sometimes discharging men at the end of a day’s work, and also requested that the foreman on every job be a union man in good standing. Commissioner E. H. Dunnigan was the department’s representative on the case. The contending parties were unyielding in their views and a deadlock ensued. It was argued by the contractors that the wrecking of buildings required no skill and that this class of men were already paid from 10 to 25 cents per hour more than the construction laborers. Conferences were held and the demands discussed. The contractors finally agreed to an increase of 5 cents per hour for bar men and helpers. This was flatly rejected by the union. A joint conference of the interested parties was then arranged, but this also adjourned without a settlement being reached. The question of arbitrating the differences was suggested and rejected. On April 4, having been unable to reach an agreement, the men went out on strike. Conferences were again resumed and at a stormy meeting of the contractors it was voted to grant an increase of 10 cents per hour. The new offer was then presented at a largely attended union meeting and was rejected. As the new offer seemed a very fair one the commissioner appeared before a union meeting and pleaded for its acceptance. Finally on April 11 the men voted to accept the offer and to waive their other demands. The strike was declared off and work resumed on April 12. Lockout of workers on children’s knee pants and jackets.—Manufacturers of knee pants and jackets in Greater New York City have the work done by contractors. These contractors operate shops away from the premises of the manufacturers, employing and having supervision of all workers. They locked out the workers, claiming that they could not operate profitably unless the workers either accepted a wage reduction or the manufacturers agreed to pay an increased price for the work. There were 10,000 workers idle when the department detailed Commissioners Bendheim and Weinstock to take up the situation with a view to its adjustment. The commissioners commenced their work on January 4, 1923, when they ascertained that all negotiations between the contractors and the union had terminated and no attempt was made by any of the interested parties to hold conferences with the manufacturers. The contractors contended unless union workers would accept a decrease in wages, it would result in a general strike against the manufacturers for the purpose of compelling them to grant an increased price for the yvork. The union insisted before it would take any action in the matter that the contractors must reopen their shops and reinstate the workers. The commissioners held several conferences with the Knee Pants Contractors’ Association, Children’s Clothing Contractors’ Association, individual contractors, and individual employers and representatives of the union. The contractors agreed to resume operations, which they did on January 10, 1923, with the REPORT OF THE SECRETARY OF LABOR. 25 understanding that immediately thereafter committees representing the union and contractors would be appointed to take up for adjustment with individual and small groups of manufacturers the question of a readjustment of prices for work that would justify a higher level of pay. Teamsters, Cleveland, Ohio.—Cessation of building operations in Cleveland, Ohio, was threatened in May, 1923, when the building teamsters went on strike. About 600 men struck, involving indirectly upward of 2,500. Unless satisfactorily adjusted teamsters local unions Nos. 407 and 436 threatened to go out in support of local No. 444 who were on strike, and such action would have soon caused all building operations to automatically cease. The strikers were demanding an increase in wages, a reduction in hours, and recognition of their union. The Department of Labor assigned Commissioner A. L. Faulkner to assist in reaching a settlement. Conferences were arranged and the matters in dispute carefully consideretl. An amicable adjustment was reached on the ninth day of the strike. An increase of 5 cents per hour was granted to all employees, and the same was made retroactive to May 1. The insurance feature of the agreement was restored. All strikers were restored to their old positions without discrimination. Recognition of the union was waived. Texas & Pacific Railway shopmen.—To the splendid spirit of cooperation and helpfulness manifested by Judge Rufus E. Foster, of the United States District Court of New Orleans, and by Hon. J. L. Lancaster, receiver for the road, appointed by Judge Foster, may be attributed the settlement of the shopmen’s strike on this railroad. An effort to adjust the shopmen’s difficulties on the various lines traversing the State of Texas had been made by Gov. Patrick Neff and his associates, including State Labor Commissioner Joseph S. Myers. An invitation extended by the governor to the eight executives of the roads crossing the State to attend a joint conference in the governor’s office to discuss ways and means of terminating the strike, had been declined by the executives. At the instance of the governor, therefore, State Labor Commissioner Myers requested the Department of Labor to use its good offices and endeavor to bring the strikes to an end. It was pointed out that while nearly all of the strikers were employed elsewhere at wages as good or better than they had been receiving from the railroads, they were nevertheless in many instances separated from their families or compelled to leave their homes, in many cases only partially paid for, and settle in other communities, and if a settlement of the strikes could be brought about it would be an act tending toward stability generally and a happy event to many families seriously affected. The department assigned Commissioner Charles T. Connell, of Los Angeles, Calif., to conduct negotiations. Sensing that efforts along the lines taken by the State officials would result in failure, the commisioner determined that his efforts would be made with the individual roads concerned. The Texas & Pacific road was in the hands of receivers appointed by Judge Foster and it "was determined to center efforts on this company. Commissioner Connell proceeded to New Orleans and laid the matter before the judge for counsel and advice. He found the latter highly sympathetic relative to the welfare of the former employees. The outstanding contention against which the strikers demurred was that they must join the so-called company union before they would be reemployed. The judge passed upon this question and decided that such membership was not a requisite to reemployment. This was a decided concession to the men and brought about a much better feeling. The method to be employed in the reemployment of former employees was referred by the judge to the receivers and the operating 26 REPORT OF THE SECRETARY OF LABOR. officials of the company. The following was submitted by the company as a basis of settlement upon which the former employees could return to work: 1. No discrimination whatever against the old men. On the contrary former employees to receive preference whenever vacancies occurred. 2. No new men to be discharged for* the purpose of replacing them with former employees. 3. No requirement that applicants must join the existing employees’ organization. Any man employed by the receivers is at liberty to join the new organization or retain his membership in any other organization that he may be a member of, and all employees are to be treated exactly alike. While the above terms were not altogether satisfactory to all of the strikers, they were eventually accepted and the strike declared off. This has enabled many of the old men to return to their own communities and homes, and has assured the Texas & Pacific of a full force of contented and efficient shopmen in contrast to the bitterness still existing among the forces of some of the othei* railroads in that vicinity. The department is appreciative of the faithful cooperation of State Labor Commissioner Joseph S. Myers in this case. Potters’ strike.—A strike of about 7,000 operative potters in 61 plants in the United States occurred on October 1, 1922. On account of the magnitude of the strike and the fact that it embraced sections of 12 different States, extending from the Atlantic to the Pacific coasts, the department assigned four commissioners of conciliation at different points, namely, W. C. Liller, W. H. Rodgers, L. R. Thomas, and A. L. Faulkner. For a period of upward of 28 years, the most friendly relations had existed between the United States Potters’ Association, representing the employers, and the National Brotherhood of Operative Potters, representing the workers. Each year representatives of both sides met in conference and reached amicable agreements as to wage rates and working conditions. This year, however, they were unable to agree upon a wage rate. A reduction of 10 per cent had been agreed upon at the previous year’s meeting, and this had been followed by an additional cut of 7 per cent the following November. The union demanded the restoration of the 7 per cent reduction, and this stand was indorsed by a referendum vote of the membership. Conferences were held at East Liverpool, Ohio, Trenton, N. J., and other points. The manufacturers were adamant in the position they had assumed, declaring that conditions in the industry prohibited any wage advance and they had decided to close down their plants. Negotiations were rendered difficult owing to the fact that the officers of the union did not have authority to settle the strike, but must first be armed with this authority by a referendum vote of the membership. The strike continued until the first week in December, when the workers voted to return to work at the same wages prevailing when operations were suspended, with the understanding that the representatives of the United States Potters’ Association and the National Brotherhood of Operative Potters would meet at Atlantic City on December 18 to negotiate a new agreement and wage scale. At this meeting a new agreement was signed and a wage increase of 4i per cent granted. Seamen on the Great Lakes.—The sailors, firemen, cooks, and coal passers employed on the ships controlled by the Lake Carriers’ Association, by referendum vote, decided to strike during the month of August, 1922, because the association had failed to accede to their request for an increase in wages and the abolishment of the so-called “ discharge book ” issued under the welfare plan of the association, and the demand of the sailors and cooks for REPORT OF THE SECRETARY OF LABOR. 27 the eight-hour day, or three-watch plan. Commissioners Oscar F. Nelson and Benjamin M. Marshman were assigned to the case by the department. On August 3 the commissioners attended a meeting of the executive committee of the unions at Detroit, Mich. The executive committee granted the commissioners a hearing and after their appeal that no action be taken until the Department of Labor had had an opportunity to conciliate the situation, they voted to defer action until such an effort had been made. Representatives of the union then proceeded to Washington, D. C., for a meeting with Secretary Davis and Director of Conciliation Kerwin. Negotiations were entered into by the department with the Lake Carriers’ Association, with the result that an increase of $15 per month to all classes of help was granted, effective September 1. This action averted a strike on the Great Lakes at that time. In September the sailors’ union took a vote on the question of whether they should strike on October 1 unless the eight-hour day, or three-watch system, was instituted. The vote was for a strike. The department’s commissioners conferred with officials of the union and with the president of the Lake Carriers’ Association and with a number of ship owners in Detroit and Buffalo. Each side was firm in its position and on October 1 the strike went into effect. Only a portion of the sailors responded to the strike order. However, some delay occurred in transportation. On October 16, at the solicitation of the commissioners, a meeting of the executive committee of the union convened. After consideration of the situation the’committee issued instructions to discontinue the strike and authorized the men to return to work on November 1. Children's dresses, house dresses, bath robes, and kimonos, New York City and contiguous territory.—A strike in these industries occurred on the 2d day of February, 1923, which involved approximately 10,000 workers and quite a large number of manufacturers and contractors. A large number of the workers were members of locals Nos. 10, 41, and 50 of the International Ladies’ Garment Workers’ Union and the strike was precipitated by the union to establish work standards, after having first invited the employers to meet with its settlement committee and arrange peaceable settlements. Commissioners Charles Bendheim and Anna Weinstock were assigned to the case. They conferred at various times with representatives of the union and manufacturers and contractors and it was at their solicitation that Mr. Samuel Borads and Mr. S. L. Hoffman, president and secretary respectively of the House Dress and Bath Robe Manufacturers’ Association met in joint conference at the Hotel Pennsylvania, New York City, with official representatives of the union. These conferences were continued from time to time and finally resulted in an agreement covering all questions at issue. Employers agreed to the demand of the workers to unionize all shops within the jurisdiction of the association. a general weekly wage increase of $2, with the establishment of a minimum wage scale, and the enforcement of recognized sanitary conditions. This settlement, together with 90 individual settlements effected after the commissioners entered the situation, disposed of practically the entire controversy. Bakers, Washington, D. C.—For the third consecutive year the master and journeymen bakers of Washington, D. C., entered into a controversy at the expiration of their agreement. For the first time, however, a strike of a few days’ duration actually occurred. About 600 bakers were affected, indirectly involving about 1,200 workers. The demands of the workers included a re quest for a substantial increase in wages, a revision of the hours, which would 71372—23-----------3 28 REPORT OF THE SECRETARY OF LABOR. increase the period of time during which the night rate was paid, and certain restrictions as to the employment of automatic machines. Commissioner J. B. Colpoys represented the Department of Labor. Commissioner Colpoys was confronted with a situation wherein the journeymen bakers refused to make concessions upon which a basis of settlement could be negotiated. He found it necessary to lay the matter before the international officers of the bakers’ union at Chicago, Ill. The international office wired the local bakers’ union to modify their demands and enter into immediate negotiations with their employers. Joint conferences were held, but the difficulties seemed insurmountable. So threatening had become the aspect of the case and so little hope had the master bakers of arriving at a settlement that a large number of men had actually been brought into the city to take the places of the strikers, and provisions had been made for their subsistence. When matters had so shaped themselves that a fight to a finish seemed inevitable, Commissioner Colpoys finally persuaded the contending parties to make a final effort for a settlement in joint conference at the Department of Labor at which Assistant Secretary Henning and Director of Conciliation Kerwin participated. This meeting resulted in an amicable basis of adjustment being reached. A general increase of about 10 cents per hour was allowed and the other demands were waived and a few days later all were back at work. Shirt-waist and dress makers, Philadelphia, Pa.—Approximately 4,000 shirtwaist and dress makers in Philadelphia, Pa., went out on strike in February, 1923, in support of their demands for a wage increase of 15 per cent and improved shop conditions. Previous to the strike conferences had been held in the mayor’s office and elsewhere and many propositions, including an offer to arbitrate the difficulties, had been submitted by the workers, through Commissioner John A. Moffitt, and rejected. The strike involved 172 employers, of whom 60 were members of the manufacturers’ association, and 112 were outside that organization. Differences of opinion between the organization members and the independent employers as to terms of settlement became apparent. An agreement was reached which terminated the strike so far as the' independent manufacturers were concerned. The terms of the agreement provided for a wage increase and improved working conditions. The members of the manufacturers’ association continued to run their plants on the open-shop basis. It was generally conceded, however, that in order to retain their employees they would be compelled to meet the conditions granted by tlie independents. Woven-label manufacturers, New York City and vicinity.—Commissioner Robert M. McWade attended a conference in New York City between representatives of the woven-label manufacturers and their employees in which the question of the wage rate for the ensuing year was taken up and decided upon. The employees demanded the return to the old scale which had obtained prior to April 5, when wages had been reduced from 10 to 13 per cent. The negotiations were conducted in a friendly spirit and ended in the old scale being restored. Among the firms affected by the agreement were the Artistic Weaving Co., Pompton Lakes, N. Y., the United States Woven Label Co., Brooklyn, N. Y., and the E. H. Kluge Weaving Co., West New York, N. J. Building trades laborers, Buffalo, N. Y.—A strike of 4,000 building trades laborers occurred at Buffalo, N. Y., in May, 1923. Commissioner Thomas Finn was assigned to adjust the matter if possible. These workers struck for 75 cents per hour, an increase of about 10 cents, and for recognition of their union, and a signed agreement. It developed that if the strike continued at length, 10,000 building trades workmen might become involved. This threatening aspect REPORT OF THE SECRETARY OF LABOR. 29 of the case induced the department to assign two additional conciliators, Messrs. L. R. Thomas and Fred Keightly, who cooperated with Commissioner Finn and a member of the New York State Board of Mediation. The strikers took the position that there should be no settlements with individual contractors and that at least 60 per cent be returned to work before any employer would be furnished with men. The officials of the Building Trades Council gave every assistance in endeavoring to effect an adjustment, although the laborers on strike were not affiliated with that organization. The strike of laborers had not received the sanction of the officers of the international union, and consequently was not indorsed by the Building Trades Council. The strikers were advised by the council that they would have to sign up with any individual contractors who might be willing to sign or they would lose the support of that organization. The larger contractors were opposed, to recognition of the laborers’ organization. The strike was in effect, with gradually d.minish.ng effectiveness, for about five weeks, and was then declared oft. None of the demands were granted. Fancy leather-goods workers, New Fork City.—Employees of Jeffs & Co., Inc., New York City, struck to enforce union recognition, wages, and working conditions. Commissioner Charles Bendheim, who happened to be in the city in connection with other conciliation work, proffered his good offices to the contending parties, which they accepted. He experienced some difficulty in arranging a conference between representatives of the respective parties owing to the management being averse to negotiating with union officials. But finally all objections were overcome and a preliminary conference arranged. The antagonistic feeling which was manifested at the inception cf this conference gradually gave way to a more conciliatory spirit as it progressed, and at its conclusion a better understanding was reached. However, it required several subsequent conferences before the commissioner succeeded in getting the parties in entire accord. While at the outset this situation seemed likely to develop into a prolonged struggle, it lasted only a few days and culminated in an agreement which provided for the following conditions: 1. Employment of union workers only. 2. Work week of 44 hours, which by mutual consent could be made the basis of a five-day work week. 3. Overtime pay at the rate of time and a half, with the limitation that no more than two hours of overtime be done on any one day. 4. Workers classified as first-class to receive minimum wage of $38 a week, and those in the second class a minimum wage of $34. Anthracite strikes.—A number of strikes of considerable magnitude but of short duration have occurred in the anthracite region during the past year. These strikes, occurring at a time when the country was short of anthracite, due to the prolonged strike of 1922. have in the aggregate caused a loss in production of thousands of tons. Commissioner Thomas Davis was assigned to the anthracite region during the past year for the purpose of assisting in the settlement of such strikes and shortening their duration. The following cases are cited as examples of the many difficulties taken up: Pennsylvania Coal Co., Pittston Pa., and vicinity: Nearly 10,000 men were ordered to strike in this instance in support of a few miners who struck at the Butler Colliery on account of a minor grievance. After one day’s idleness the miners were induced to return to work. Philadelphia & Reading Co.: A four days’ strike, affecting 700 miners, occurred in the mines of this company due to a change from nationality locals to colliery locals. The matter was settled by a referendum vote of the miners agreeing upon the colliery locals. 30 REPORT OF THE SECRETARY OF LABOR. West End Coal Co., Mocanaqua, Pa.: This controversy affected 900 miners who threatened to strike, citing a number of minor grievances. The matter was referred to the Anthracite Conciliation Board for disposition. Plasterers, St. Louis, Mo.—The union plasterers in St. Louis, Mo., struck in June, 1923, in support of their demands for a wage increase from $12 to $14 per day. Competition among the contracting plasterers had induced some of them to pay from $1 to $2 above the prevailing rate. This action caused unrest and dissatisfaction in the ranks of those not getting the advance and culminated in a strike on June 11. An adjustment was brought about on June 28 when the boss plasterers agreed to pay $14 temporarily, but refusing to acknowledge It as the scale. Commissioner F. A. Canfield assisted in the adjustment. ‘California oil fields.—Commissioner Hywel Davies, as referee on interpretations of the joint wage and labor agreements for two of the largest oil companies on the Pacific coast, reports harmony and cooperation in this industry "without the loss of a shift during the fiscal year. There was some slight 'disturbance in some of the California tank farms early in the summer on account of some I. W. W. agitation, but neither of the companies working under the above joint agreement was affected. These desired results were contributed to very materially by the cooperation of Commissioners Chas. T. Connell, of Los Angeles, and E. P. Marsh, of Portland, Oreg., through their active contact with all labor disturbances on the Pacific coast. Their activities often stopped the contagion of unrest and prevented the fruition of many slated strikes by demonstrating that the department’s sincerity and ability to get prompt hearings and consideration from the employers soon removed the cause of unrest. The copper industry.—As further proof of the preventive value of the closer association between the Division of Conciliation and the basic industries of the country, it is only necessary to call attention to another year of industrial peace in the copper industry of the West, where recognized workmen’s shop committees are functioning successfully. These shop committees were inaugurated through the activities of the Department of Labor six years ago, and continued contact of representatives of the Division of Conciliation has materially contributed to continued peace in an industry that suffered seriously from strikes and I. W. W. disturbances before the present working relations were established. Clothing workers, Toledo, Ohio.—A reported threatening situation in the clothing industry of Toledo, Ohio, induced the department to assign Commissioners William Robinett and H. D. Friel to look into the matter. It developed that a campaign to organize the workers in the industry had caused considerable newspaper publicity with reports of an impending strike. Investigation showed that these reports were exaggerated and the alleged discrimination against union workers was not found. The visit of the commissioners to the city allayed suspicion and brought about a better feeling. Hosiery mills, Adamstown, Pa.—A strike affecting four hosiery mills at Adamstown, Pa., took place on January 3, 1923. Commissioner W. C. Liller took up the matter and brought about a prompt adjustment. The operatives struck for a wage increase from 13 to 15 cents per dozen pairs of hose. A compromise was agreed upon which brought the rate to 14| cents per pair. The strike lasted but two days. Ladies' Hat-frame Makers, New York City.—A strike affecting upward of 1,500 workers in this industry occurred in New York in July, 1922. About 80 firms are engaged in this industry in the greater city and union conditions largely prevail. There being no association of the manufacturers it became necessary to make separate agreements. The demands were for a 44-hour REPORT OF THE SECRETARY OF LABOR. 31 week and a minimum wage. In the final adjustment 71 firms signed the agreement with the union. Six firms, while agreeing to the rates and conditions prescribed by the union, declined to sign. The agreement runs for a period of one year with an assurance of peace for that time. Commissioner John B. Colpoys assisted in the negotiations. Finery Hosiery Mills, Clifton, N. J.—A threatened strike of the full-fashioned knitters and other employees of the Finery Hosiery Mills, Clifton, N. J., was averted through the good offices of Commissioner Robert M. McWade. A controversy had arisen over the wage rate, the full-fashioned knitters demanding a substantial increase. Conferences held in Philadelphia and in Clifton resulted in an amicable adjustment being reached. The knitters were given an increase to $1.43 per dozen, and other employees a proportionate advance. This action set the pace for other full-fashioned hosiery plants in that section and eliminated the possibility of trouble in the industry generally. Street-car employees, Erie, Pa.—The department, through Commissioner Thomas M. Finn, was instrumental in averting a strike of the street-car employees at Erie, Pa. The company in this case was willing to arbitrate the question of an increase in the wage rate. The employees were very much opposed to this form of settlement. Commissioner Finn conferred with the representatives of the men and urged its acceptance. The employees had made a demand for an increase averaging 30 per cent. A compromise was finally agreed upon which granted an increase of 5 cents per hour, and the questions pertaining to working conditions went to arbitration. Bakers, Portland, Oreg.—The bakers’ union of Portland, Oreg., alleged a violation of their agreement with the Master Bakers which had been negotiated the year previous by a representative of the Department of Labor. The specific complaint was that representatives of the union were denied access to the plants in pursuance of their union duties. The matter was amicably adjusted through an arrangement which provided that the union representatives would be permitted to visit the plants, provided such action did not hamper the employees in their work. Commissioner E. P. Marsh, who had negotiated the previous agreement, brought about the settlement. Coal miners, Bicknell, Ind.—A strike of the 750 coal miners employed at the Bicknell mine No. 1 of the American Coal Mining Co. occurred on March 6. These miners went out in protest against the use of “ permissible ” powder in place of the black powder usually used. The company desired the change as a matter of safety, as an explosion had recently occurred in the mine in which two men were killed. The miners contended that the new powder was inferior and cut down their output. Commissioner Edward Stewart was able to arrange an amicable settlement, the miners agreeing to use permissible powder with the understanding that if one brand did not blast the coal satisfactorily different brands would be tried out until a satisfactory one was secured. This mine is one of the largest in the United States, having a daily production of about 6,000 tons. Sewer construction laborers, Baltimore, Md.-—A strike of some 300 sewer construction laborers, timbermen, and pipelayers occurred in Baltimore on April 2 to enforce a demand for a wage increase, an eight-hour day, and a signed agreement. Commissioner Homer J. Brown was assigned by the department. The mayor of Baltimore welcomed the representative of the department and cordially assisted him in his efforts to adjust the matter. A settlement was soon effected and an agreement signed for a period of one year. Its terms provided for an increase for laborers from 37i and 40 cents per hour to 50 cents and an advance to timbermen and pipelayers to 60 cents per hour. An eight-hour day was also provided for. The men returned to work on April 9. 32 REPORT OF THE SECRETARY OF LABOR. The cloak and suit manufacturers of Philadelphia. Pa., were confronted with a strike of about 3,000 operatives on February 1. Three units composed the manufacturers, to*wit, the manufacturers, the jobbers, and the subcontractors. The two former groups were not involved in the strike. The strikers .alleged that the subcontractors had broken their agreement by attempting to reintroduce the “sweat-shop system” whereby work was sent to the private houses of the workers and done at a cost less than their agreement with the union called for. Commissioner John A. Moffitt, who was detailed on the case by the department, arranged a joint conference. An agreement was reached on February 8 which contained the following provisions: 1. That each of the subcontractors deposit $200 with the jobbers’ association for their faithful carring out of their agreement with the union. 2. That a standing committee of three be appointed, one representing the manufacturers, one representing the operatives, and the third to be a neutral party. 3. That all future grievances would be taken up by this committee and the damages assessed, if any, would be taken out of the total sum deposited and paid over to the union; and that there be no strikes or lockouts pending a decision of all grievances by said committee. Building trades laborers, Charleston, W. Va.—The building trades laborers of Charleston went out on strike on May 1, demanding a wage increase from 75 to 90 cents per hour. The strike was unauthorized and did not receive the support of the Building Trades Council, as that body had agreed not to make a demand for a wage increase during the year. Commissioner Samuel B. Montgomery used his good offices to bring about an adjustment. Efforts to have the matter go to arbitration were blocked by the contractors. The commissioner was then authorized to settle the dispute on the best terms possible. At this time it seemed doubtful that all the strikers could secure their places back. The strike was declared off. however, and assurances were given the commissioner by the contractors that the men would all be taken care of. There was no change made in the wage rate. Lorraine Mills, Westerly, R. I.—Commissioner Robert M. Me Wade was successful in adjusting a strike affecting more than 600 operatives of this company who had been on strike for a period of about six weeks. At the beginning of the strike the company promised to adjust all grievances if the strikers would first return to work. The operatives declined this proposition. When Commissioner McWade arrived he found conditions about the same as at the beginning of the strike. Upon taking the matter up with the management he was promised that if the operatives would return to work there would be no discrimination against the strikers or union members and that all real grievances would be redressed. The strike was declared off on this basis. , American Locomotive Co., Dunkirk, N. Y.—After a month of idleness the strike of molders at the plant of the American Locomotive Co., Dunkirk, N. Y., was adjusted. Commissioner Hugh D. Friel assisted in the settlement. The adjustment was made upon the basis of a proposition submitted by the employer, which after some changes had been made in conference, was recommended by the commissioner. A wage increase of 61 cents per hour was granted. Steam dredge employees, San Francisco and vicinity.—On June 4, 1923, the department received a telegram from Mr. E. F. Kraut, secretary of the dredgemen’s union of San Francisco, Calif., advising of a controversy affecting the members of his organization and requesting the good offices of the department in an effort to adjust the difficulties. Commissioner E. P. Marsh, of Portland, REPORT OF THE SECRETARY OF LABOR. 33 Oreg., was assigned to the case and subsequently was assisted by Commissioner C. T. Connell, of Los Angeles. This case involved a wage dispute between the dredgemen’s union of San Francisco and operators of dredges in San Francisco and surrounding territory, including Sacramento and Stockton. The union had had a signed contract with the operators from 1918 until June 1, 1922. On the latter date the operators declined to renew a written agreement, but orally agreed to continue wages and working conditions unchanged until June 1, 1923. They also agreed to hire their help at the union headquarters. In 1921 a wage reduction ranging from $10 to $15 per month had been accepted by the union. On April 26 it served notice of a demand for the restoration of the old scale; also that time and one-half for overtime should be increased to double time. These demands the employers refused to concede. A request for a joint conference to consider the differences was ignored, some employers stating that they would enter a conference if one were called, but refusing to take any initiative in getting the employers together. At this juncture the department’s representatives appeared on the scene. Separate conferences were held with representatives of both sides. The employers at first demurred on going into a joint conference, but finally agreed to meet the union representatives under the department’s auspices, in an informal conference, with the understanding that they would not be asked to make a written agreement. The conference lasted all day and was harmonious and pleasant. The employers finally agreed to increase wages $5 and $10 per month, depending upon the class of work, and to make all increases effective June 1, 1923, and to continue for one year. It was agreed that existing working conditions should continue. The commissioners then addressed a letter to the union urging it to accept the offer made to its representatives. The union accepted the offer by formal vote at San Francisco, Stockton, and Sacramento, and expressed its appreciation of the department’s good offices. Summary of workmen affected by months. Month. Workmen affected. Month. Workmen affected. Directly. Indirectly. Directly. Indirectly. July 11,468 37,150 2,510 17,618 5,715 13,437 25,457 2,264 7,155 830 11,702 2,993 3,312 7,936 February 46,593 17,688 35,462 38,441 1 42,781 294,320 6,911 8,681 14,407 30,386 1 4,781 101,358 August March September October November April May June December January Total 1 Potters directly affected, 1,954 ; indirectly affected, 611. Mar. 4, 1913, to June 30, 1923. Number and disposition of cases. 1914 1915 1916 1917 1918 1919 1920 1921 1922 1923 Number 33 42 227 378 1,217 1,780 802 457 370 534 Adjusted..... 28 26 178 248 865 1,223 5’6 338 266 ’428 Unable to adjust 5 10 22 47 71 111 96 48 41 27 Pending ", 21 42 7 13 9 24 31 60 Unclassified 1 6 41 66 214 101 47 32 19 1 California oil cases (adjusted), 26; pottery cases in United States (adjusted), 26; cases pending at beginning of fiscal year 1923 (now adjusted), 87 ; total adjustments during fiscal year, 515. 34 REPORT OF THE SECRETARY OF LABOR. RECAPITULATION. Month. Number of cases. Julv 1922. 26 August 13 September 17 October 23 November 11 December 40 January 1923. 60 February 55 Month. Number of cases. 1923—Continued. March 44 April 63 May 66 June 64 Total 482 California oil cases 1 26 Pottery cases in the United States 1 26 Total 534 1 California oil cases (adjusted), 26; pottery cases in United States (adjusted), 26; cases pending at beginning of fiscal year 1923 (now adjusted), 87; total adjustments during fiscal year, 515. Cases reported from each State for each month. State. July. Aug. Sept. Oct. Nov. Dec. Jan. Feb. Mar. Apr. May. June. Total. Arizona 10 10 4 4 2 2 1 9 9 2 26 26 7 2 7 2 26 22 7 1 3 12 35 3 7 1 18 31 107 27 1 3 97 7 1 12 2 2 12 1 California 1 Connecticut 1 3 Delaware 1 1 District of Columbia. Florida 1 3 3 1 1 2 9 3 Illinois 2 2 4 2 1 1 1 2 2 1 4 4 3 1 2 3 3 1 Indiana 1 1 1 Iowa Kentucky Maine. 2 1 2 1 Maryland 1 2 1 4 3 5 2 10 1 1 1 3 1 2 Massachusetts 2 10 Michigan 1 1 Missouri 1 1 1 Nebraska 1 3 2 6 4 New Hampshire 14 5 18 1 1 7 8 3 1 New Jersey 2 10 1 5 3 1 1 3 1 5 2 2 18 4 3 11 4 3 15 3 New York. 4 1 6 3 Ohio Oklahoma Oregon 1 2 1 16 1 14 1 Pennsylvania 7 2 8 3 5 9 2 8 2 1 1 15 8 2 Rhode' Island Texas Vermont 1 6 1 3 Virginia 2 Washington 1 1 6 1 West Virginia 1 2 2 1 Wisconsin Total 26 13 17 23 11 40 60 55 44 63 66 64 482 26 26 534 California oil cases... Pottery cases in United States Total UNITED STATES EMPLOYMENT SERVICE. During the fiscal year under review the department has been confronted by a problem greatly different from that heretofore obtaining. While no great wave of employment existed, yet a steady demand for service continued, a demand more insistent than during the strees of the unemployment crisis. The other side of the employment question—the demand side—was making itself felt. With the expansion of business, employers besieged the Employment Service REPORT OF THE SECRETARY OF LABOR. 35 offices to secure the help necessary to man their industries. The bidding for labor has become sharper and the Employment Service has been pushed to find “men for jobs” instead of “jobs for men.” Thus, experience has proved that the public employment service in times of prosperity as well as during a depression is a necessary and essential function of government for the general welfare of all the people. The United States Employment Service is cooperating with 40 States and the District of Columbia. Practically one-third of the entire appropriation is expended to maintain the Federal Government’s share of this cooperative service. The aim of the service is to bring every State into cooperation with the Federal Government and this will be accomplished when all the State legislatures see fit to appropriate money to bear their share of the expense of a public employment service. The cooperative system enables labor to be cleared from one place to another between the States. Requests for employment which come to the administrative office from all parts of the country are referred for placement to the Federal director in the State from which the request comes or to the Federal director in the State where the applicant desires to locate. During the unemployment crisis temporary employment offices cooperating with, the Federal Government to relieve the distressing situation were opened and maintained by many cities throughout the country. Practically all of these emergency offices are now closed. The record of the work accomplished by the cooperative service of the Federal Government and the several States and municipalities during the fiscal year ended June 30, 1923, is shown by the following figures: Registrations____________________________________________________ Help wanted______________________________________________________ Referred_________________________________________________________ Placed___________________________________________________________ 2, 887, 697 2, 864, 393 2, 516, 617 2,156, 466 The figures for the fiscal year ended June 30,1922, were as follows; Registrations. Help wanted. Referred_____ Placed ______ 2, 874, 785 1, 810, 490 1,734,493 1, 458, 746 Junior division.—The two obvious functions of the junior service in the field of junior guidance and placement are— 1. To collect and make available for general use reliable information on junior employment in its relation to public schools and the occupational world; and 2. To organize and conduct placement offices for the vocational guidance and placement of boys and girls between the legal working age and 21 years. 36 REPORT OF THE SECRETARY OF LABOR. The junior division functions through cooperation with the public employment services of the several States, with local school systems, and with other agencies. 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 v/here fundamental and specific junior placement problems can be worked out by a trained personnel, where information can be collected and made available to the whole country. The junior division is at present assisting in the maintenance and operation of local placement offices in 17 selected cities in 13 States. One new office, at San Luis Obispo, Calif., has been established during the past year. It is expected that two new cooperative offices will be established in California and one in Massachusetts. The work in the office for negroes at Atlanta, Ga., has been reorganized and cooperation has been established with the other agencies conducting social work for the colored people of Atlanta. The work in the office at Wilmington, Del., has extended so greatly as to necessitate a permanent central downtown office. There has been reasonable progress and expansion in all the other field offices. The weekly field reports are compiled and charted in the Washington office, which during the past year has issued periodic News Letters and Field Studies, carrying to the workers in the fio1^ information regarding placement work and definite instructions for the administration of placement offices. In cooperation with the Children’s Bureau a survey has been made of vocational guidance and placement in the United States which is now nearing publication and which will meet a long expressed demand for general information regarding the present status of vocational guidance and placement. The farm labor bureau.—“ The farm labor bureau of the United States Employment Service handles laborers for the various lines of agricultural work only. This should be easy and simple—just men for the farm, that’s all. “ However, when we consider that agriculture embraces one-third of the population of the country, reaches into every State of the Union, is capitalized at approximately one hundred billions of dollars, and is nearly as diversified as industry itself, demanding many and varied classes of laborers, we begin to realize that it may not be so easy and simple as at first it appears.” Thus has been outlined the problems and the work of the farm labor bureau, directed especially to the harvesting of the cotton and wheat crops. With the cooperative help of the labor departments of the several States, of county farm agents, chambers of commerce, REPORT OF THE SECRETARY OF LABOR. 37 and kindred organizations. 113,282 harvest hands were recruited and •distributed in the fiscal year 1923 to harvest the cotton, wheat, corn, potato, and sugar-beet crops. So successfully were these harvesters directed to the place of need that the farm labor bureau received favorable recognition and commendation of the press from Texas to the Canadian border. The main office of the farm labor bureau is at 2014 Main Street, Kansas City, Mo., the headquarters of the field director, where a well-equipped personnel knows no set office hours in keeping tab on agricultural conditions, number of harvesters necessary in each section, the wages paid, the most direct routes, and the sources of labor supply. In order to assist in recruiting farm labor, posters are sent for display to each postmaster throughout the country, calling attention to the probable dates of harvest and giving the addresses of the farm labor bureau offices. A permanent branch office is maintained at Sioux City, Iowa, and recruiting centers are opened in the larger cities of the Central West. In order to distribute men' more readily, temporary offices are opened in the harvest areas and are moved northward as the harvest advances and men are released from the Southern to the Northern States. The assistant manager of the West Texas Chamber of Commerce said: “ The work performed by the temporary office of the farm labor bureau at Fort Worth saved the cotton growers of Texas $1,000,000 last year.” The work at this Texas office was done at an expense of less than $1,500 and is sufficient proof of what proper organization and directing of men can accomplish. The close of this fiscal year sees a permanent branch office established at Fort Worth, a strategic point with reference to the cotton crop. It is planned to establish additional permanent offices of the farm labor bureau in other strategic agricultural centers. It is obvious that the farm labor bureau should be extended and developed so as to render service in supplying labor not only to the growers of cotton and wheat but to all farmers of the Nation. The service was extended during the past fiscal year to Colorado, Wyoming, and Montana at the request of the authorities of these States, as they were unable alone to meet their farmers’ demands for help. It is hoped to establish a branch of the farm labor bureau at Ellis Island in an effort to divert immigrants with farming experience to agricultural districts, thus furnishing a permanent source of farm help and lessening congestion in foreign quarters of cities. An office at this point would not give big results immediately, but development could make it produce effective service. 38 REPORT OF THE SECRETARY OF LABOR. Industrial employment information section.—The industrial employment information section gathers current information regarding employment conditions, the distribution of labor, and the fluctuations of employment. Nine district directors, located at important centers throughout the United States, with the help of special agents in each district and the forces of the Bureau of Labor Statistics, collect and forward regularly to Washington this information, which is published monthly in the Industrial Employment Information Bulletin. The scope of the bulletin is broadening, as industrial comment is now collected from 416 cities as against 310 in June, 1922, and the policy is to increase the number of contacts. The industrial comment is augmented by telegraphic reports from special agents in 65 of the largest industrial centers of the country. The editorial on the first page of the bulletin is based on these reports, which furnish pay-roll data from 1,428 firms, each employing 500 or more workers. The reports are grouped according to the following basic industries: Food and kindred products, textiles and their products, iron and steel and their finished products, lumber and its manufacture, leather and its finished products, paper and printing, liquors and beverages, chemicals and allied products, stone, clay, and glass products, metals and metal products other than iron and steel, tobacco manufactures, vehicles for land transportation, railroad repair shops, and miscellaneous industries. The same firms have furnished reports since January, 1921, and these reports of their pay-roll data eliminate the necessity of guesswork as to the state of employment in the 14 basic industries. The comparative value of these figures increases in proportion to the length of time during which they are collected. Inability to extend this important work of collecting pay-roll data and information regarding employment and unemployment from all industries and from firms employing 100 men and upward is to be regretted. Such a report would give a representative picture of the condition of industry throughout the country instead of the trend in the industries given at present. However, requests for place on the mailing list and the interest manifested in the Industrial Employment Information Bulletin is conclusive proof that it meets a want which previously was unfilled. It informs the public employment offices throughout the country as to the location of the demands of industry as well as those places where no opportunities for labor exists, and thus expedites the clearance of labor between the States. It supplies information to the wage earner generally, to labor organizations, to the Federal Reserve Board and its several branches, to banking institutions, railroad companies, business men, and economists. REPORT OF THE SECRETARY OF LABOR. 39 UNITED STATES HOUSING CORPORATION. The revenues of the United States Housing Corporation for the fiscal year 1923, which have been or will be covered into the Federal Treasury as miscellaneous receipts, amounted to $3,847,958.08. The sources from which these moneys were derived were as follows: Disposal of properties----------------------------------------- $986, 863. 47 Operation of properties________________________________________ 87, 781. 70 Contract interest______________________________________________ 837, 411. 93 Repayment of loans__________________---------------------------1, 613, 214. 65 Interest on loans______________________________________________ 322, 686. 33 Total_____________________________________________________ 3, 847, 958. 08 The total expenses for the administration of this business amounted to $125,534.15, or but 3.26 per cent. This, it will be observed, shows a saving of 1.35 per cent against administrative costs for the preceding year and constitutes a record which compares most favorably with the charges prevailing in private business for work of this character. In addition to the aforementioned amounts the corporation also collected as receipts from the Government Hotels the sum of $936,-015.89. Deducting operating expenses of $859,646.35 from this amount shows a net profit to the Government on this activity of $76,369.54. Of course, this profit is arrived at only by omitting from consideration rent, interest on investment, and depreciation. The receipts of the Norfolk County Ferries, another activity with the supervision of which the corporation is charged, were $677,807.40. Operating expenses of the ferries were $533,605.02, showing a net profit of $144,202.88, the largest ever recorded in their history. (This report is made at a date when it is manifestly impossible to give exact figures for the entire fiscal year 1923. Those set out above, however, represent actual receipts and expenditures for the first 11 months, and anticipated receipts and expenditures for the last month.) As has been stated in previous reports, the various activities of the corporation fall under the following general classifications: 1. Rentals and sales of properties. 2. Collections from rentals and sales. 3. Liquidation of transportation and public utility loans. 4. Operation of the Norfolk County Ferries. 5. Operation of the Government Hotels. Rentals and sales.—Sales of improved and unimproved property to the number of 142, and having an aggregate value of $380,955.43. were made during the period July 1, 1922, to June 15, 1923. In the same period of time 329 assignments of sales contracts, which, so far as administration is concerned, require as much attention as original sales, were handled. 40 REPORT OF THE SECRETARY OF LABOR. ForeclosuresThe bulk of the corporation's properties were sold to individual purchasers on the time-payment plan. It was almost an inevitable consequence of the cessation of war activities in cer- t tain of the communities where housing projects were constructed by the corporation that some of its purchasers would default on their mortgages. It is gratifying to know, however, that in comparison with the total number of purchasers, the number of cases in which it has been necessary to institute foreclosure proceedings has been exceedingly small. Throughout the fiscal year 1923 there were 116 instances of this character, with 41 pending at the end of the year. The cost of reacquiring title and possession in the 116 cases referred to was $7,401.09, of which $4,871.79 represented accrued taxes. Conveyancing.—With the limited personnel at its command, it was. manifestly impossible for the corporation to deliver deeds to all of the approximately 5,000 purchasers of its properties simultaneously. Its report for the fiscal year 1922 enumerated the various communities in which deeds were delivered and mortgages or deeds of trust and notes taken back during that period. In the fiscal year 1923, 928 additional transactions of this character were completed, covering properties located at Aberdeen, Md., Alliance, Ohio, Bath, Me., Cradock, Va., Erie, Pa., Lowell, Mass., and Watertown, N. Y. In passing, it is perhaps worthy of mention that the total cost of this work-was but $2,688.33. This amount covers all such charges as recording fees, stenographic services, and incidental expenses, and excepts only the salary of a corporation employee for the period of time in which he was engaged on this work. In other words, the average cost of conveyancing in each instance was but $2.90. Insurance.—Pursuing its established policy of requiring purchasers of its various properties to provide insurance for the corporation's benefit wherever any portion of the purchase price remains unpaid, the corporation had in its custody at the beginning of the fiscal year some 4,300 policies representing approximately $20,245,000 of insurance. In the course of the year a number of these policies*were surrendered to purchasers who took up their mortgages; so that by June 15, 1923, there were in force 4,000 policies covering properties of the corporation and amounting to $20,000,000. During the year 2,308 renewal policies have been secured to cover expirations. The securing of these renewals entailed no little work on the part of the corporation. In many instances it was necessary to conduct extensive correspondence with purchasers who were reluctant to renew their insurance, or who, after the policies had been written, were delinquent in paying the premiums thereon. The competition which exists among the various agents or brokers at the different projects also occasioned prolific correspondence to eliminate duplications and REPORT OF THE SECRETARY OF LABOR. 41 to meet the desires of the purchasers respecting the companies with which they wished to place their insurance. As a result of the assignment of contracts, resales of properties for which deeds had been delivered, and other similar causes, about 1,000 assignments of insurance were authorized during the course of the year. Losses by fire or lightning occurred to 12 houses owned by the corporation. All of these properties were covered by insurance and there was collected from this source $18,144. Liquidation of transportation and public-utility loans.—Reference has been made heretofore to amounts advanced by the corporation to various transportation and other public-utility companies for the purpose of enabling these concerns to provide additional service in connection with the emergencies of the war. These contracts contemplated, as a general proposition, that an appraisal of the properties which were acquired with the advances made by the corporation, might be made one year after the declaration of peace as officially proclaimed by the President, and that the amounts fixed by such appraisal should be received by the corporation in settlement of these obligations. In the course of the fiscal year 1923, interest to the amount of $322,686.33 and principal payments aggregating $1,613,214.65 were collected on account of these contracts. There was also received $4,486.61 as part payment for certain utilities which the corporation sold to a municipality. The Norfolk County Ferries.—Net profits of the Norfolk County Ferries for the year are expected to total more than $144,000, surpassing the amount earned in 1922, and constituting by far the best record that has ever been made by this enterprise under either private or Government management. I feel that the corporation may indulge a certain sense of pride in achieving this result. The difficulties in operating the average public utility are too well known to require restatement here. Almost complete reorganization was necessary to place this business on a profit-making basis. And it was necessary at the same time to accord equal consideration tO' the right of about 250,000 persons who are patrons of the ferries to the most efficient transportation service which could be rendered. That the corporation has been able to meet their requirements and at the same time attain the financial results indicated above is regarded as one of its most important achievements. Government Hotels.—The popularity of the Government Hotels apparently continues undiminished. Two occurrences within the latter half of the fiscal year, however, left their impress upon the record for that period. The first of these was occasioned by the 42 REPORT OF THE SECRETARY OF LABOR. early adjournment of Congress and the consequent departure from Washington of a considerable number of congressional employees who had resided at the hotels. The second grew out of the action of the Baltimore & Ohio Railroad Co. in serving notice upon the corporation that it would expect either the payment of rent for the use of its property, upon which certain of the buildings that go to make up the Government Hotels are located, or their removal before April 1, 1923. It is but fair to the railroad company to state that by virtue of an agreement executed during the war it had consented to the use by the Government of this land during the period of hostilities and for 12 months thereafter, in consideration of the Government’s paying merely the local taxes thereon. The demand for rent, therefore, followed the expiration of this agreement. In the absence of specific legislative authority the corporation was unable to pledge itself to any rental payment. With the owner of the land insisting, on the one hand, upon such an agreement as a condition precedent to any further extension of the lease, and the evident desire of Congress that the hotels should continue in operation, confronting the corporation, on the other, it found itself in considerable of a quandary. The entire matter was accordingly submitted to the Public Buildings Committees of the House and Senate, and a joint resolution, which was intended to authorize the payment of rental to the railroad company was reported out. This resolution promptly passed the Senate, but failed of passage in the House in the closing hours of the Sixty-seventh Congress. Following the adjournment of Congress, protracted negotiations, which were participated in by the chairmen of the aforementioned congressional committees, representatives of the department, and the railrqad company, elicited from the latter a proposal to extend the lease to the Government up to and including January 31, 1924, for the sum of approximately $160,000. By the exercise of every means at their command, the representatives of the Government finally persuaded the officers of the railroad company to reduce this proposed rental to the rate of $74,314.91 per annum, which from the period November 14, 1922 (the date of the expiration of the aforementioned agreement), to January 31, 1924, would amount to $90,003.62. Throughout these entire negotiations the department was of course handicapped by reason of its inability to extend any actual assurance that this money would be paid. In other words, the most that it could do was to agree to recommend to the next Congress that the requisite appropriation be made. Upon the strength of the assurance by the department that it would do this and the promise of the chairmen of the Senate and House Committees on Public REPORT OF THE SECRETARY OF LABOR. 43 Buildings and Grounds that they also would urge upon Congress the passage of the appropriation, the railroad company agreed to defer until January 31, 1924, any action looking to the demolition of the hotel buildings. At the time the resolution, which was intended to authorize the payment to the railroad company of a reasonable rental for the use of its land, was under consideration in the Senate, it was clearly indicated as the sense of that body that whatever rental was determined upon should be met through increased guest rates. In deference to this opinion, therefore, it w’as decided that, as a condition of the aforementioned agreement, a reserve fund as nearly equivalent as possible to the amount which Congress would be asked to provide for rent should be raised in this way. Accordingly, the monthly rates for accommodations in the hotels were increased $4.50 per person as of March 16, 1923. Inasmuch, however, as the rental term dates back to November 14, 1922, and the increase in rates could not be put into effect until March 16 last, the indications are that there will be set up as a reserve the sum of approximately $75,000 to meet the request appropriation of about $90,000, which- will be submitted in the corporation’s estimates of appropriations for the fiscal year 1925, or for incorporation in the first deficiency bill, if it is determined that it should be embodied in that measure. Operation and maintenance.—By the exercise of the most rigid economy, material reductions in operating and maintenance expenses of the hotels were effected in the course of the year. Among the changes that were inaugurated may be mentioned a self-service system for lunches, which made it possible to dispense with a considerable number of waitresses, and the extension of the opportunity to a number of the guests of the hotels to reside there upon the European plan, as distinguished from the American plan, which hitherto had been followed exclusively. Expenditures for the year amounted to $859,646.35, or $21,641.36 less than those for the fiscal year 1922. Laundry.—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 cost of laundry work which was being done by private contractors for the various branches of the Government in the District of Columbia, as compared with costs for similar work that was done in the laundry of the Government Hotels. It was ascertained that the prevailing charges of private contractors for laundering tow’els for the Government departments ranged from $1 to $2 per hundred, a very few paying less than $1. It is estimated that the same work can be done by the Government Hotels for 57 cents per hundred. Allowing an 71372—23--------4 44 REPORT OF THE SECRETARY OF LABOR. average saving of but 50 cents per hundred on towels, and computing the quantity which will be turned over to the hotels at 50,000 per week, or 2,600,000 per annum, it is estimated that a yearly saving of $13,000 can be effected on this item alone; and it is anticipated that the inclusion of certain other articles will still further augment this saving. IMMIGRATION. Immediately upon assuming office I discovered a woeful lack of cooperation between the Bureau of Immigration in Washington and the field service. Districts were created along State lines, no attention having been given to topography or means of transportation. There was no direct contact between the bureau and field offices, and an amazing lack of uniformity in the enforcement of the law. Inefficiency, waste, and unreasonable delays marked the administration of the immigration laws and called for immediate and oft-times drastic remedy. The work of reorganization, unification, and simplification of administrative methods was placed under the immediate control and supervision of the Assistant Secretaries, with most gratifying results in increased efficiency, economy, and the elimination of unnecessary delays and useless expense. Reorganization of districts. District boundaries have been readjusted, thus bringing about a closer cooperation between the bureau and field service. A supervisory staff of immigration officers has been created, thus making it possible at all times for the department and bureau to keep in direct and intimate contact with the field service. A system of promulgating general instructions has been adopted, so now by the issuance of “general orders” applying to each district alike, uniformity in administration has been attained, not only in the forms and printed matter in use, but also in the law itself. Old rules and regulations adopted May 1, 1917, have been revised and added to so as to meet the requirements of the service, and these fixed rules may be supplemented by “ general orders ” when the occasion or experience demands. Deportation. The method of deportation under warrant proceedings has likewise been changed. In the past the bureau provided immigrant inspectors or others to accompany deportees to the respective points of embarkation. This practice entailed large travel and per diem expense and the service of many officers whose time could be more advantageously used in other work. Under the practice now obtaining deportation parties are conducted at stated intervals from coast to coast and from interior points to coast or borders, and .REPORT OF THE SECRETARY OF LABOR, 45 deportees along said line of travel or within the territory contiguous thereto are joined at the nearest railroad point. The railroad companies over whose lines these parties travel have made reduced rates and in addition furnish all guards at their own expense. Approximately 2,500 aliens under orders of deportation were conveyed to various ports of departure in these parties, with a saving to the Government of approximately $20,000. Board of Review. “ The Secretary's Board of Review,” created and in operation since January 1. 1922, has proved a most valuable adjunct to the Secretary’s office in the consideration of appeals and other matters demanding the Secretary’s attention. Before this board the alien may appear through his counsel, relatives, or friends, and is assured of a hearing. Decisions in appeal cases, warrant cases, Chinese cases, and other matters are thus expedited, as the recommendations of the board are usually made and the Secretary for the most part is able to decide such cases on the day the record is presented. During the past fiscal year 22,606' cases, either on original hearing or on rehearing, were submitted to the Board of Review for consideration and recommendation. These cases involved 48,385 aliens, and of this number 3,184 requested and were permitted to present oral arguments. The per centum limit act of 1921. The fiscal year ended June 30, 1923, was the second complete year during which the so-called quota limit act of May 19, 1921, was in operation, and because of various important developments believed to be wholly or in part attributable to that law the records of the Immigration Service during the 12 months under consideration are of unusual interest and significance. In the first place, the number of immigrant aliens admitted reached a total of 522,919 during the year compared with 309,556 such admissions in the fiscal year 1922, an increase of 213,363. This gain was almost entirely due to increased immigration from British North America and Mexico, which countries are not within the scope of the quota limit law, and from the fact that natives of north and west European countries used 90 per cent of their allotted quotas in the year just ended, compared with only 46.4 per cent in the preceding fiscal year. Another interesting development of the past year was the large numerical and proportional decrease among emigrant aliens leaving the country when compared with the record of former years. The total number of departures of this class in the year just ended was only 81,450. as against 198,712 in the fiscal year 1922, and an annual average of 288,578 in the five pre-war years 1910-1914. The record 46 REPORT OF THE SECRETARY OF LABOR. • of the year in this respect seems to indicate a most unusual degree of stability among our recent immigrants, due, no doubt, in large measure to the favorable employment conditions which prevailed in the United States practically throughout the past year. The per centum limit law marked the beginning of actual restriction or limitation of immigration to the United States so far as European sources are concerned. The Chinese exclusion law has been in operation since 1882; the agreement with Japan under which laborers are not admitted from that country became effective in 1908; and the so-called Asiatic barred zone provision in the general immigration law of 1917 closed the doors against the lawful entry of the peoples of India and other countries of southern Asia, but the actual restriction of immigration from Europe, Africa, and Australasia was never before attempted. It is, of course, true that we have had a general immigration law since 1882, but it is also true that the general law, although several times revised and strengthened, has been and still is based on the theory of selection rather than of restriction. The provision barring illiterate immigrants, which was added to the law in 1917, was clearly intended as a restrictive measure, but in its practical effect it was simply another addition to the thirty or more classes of alleged undesirables already excluded by statute, none of which could be relied upon actually to limit the volume of immigration. Even a casual survey of congressional discussions for the past quarter of a century makes it obvious that Congress realized the constantly increasing influx of immigrants from the south and east of Europe and Asiatic Turkey, which in the 25 years following 1890 practically supplanted the old-time movement from the British Isles, Scandinavia, Germany, and other countries of northwest Europe. The widespread popularity of the literacy test was quite obviously based on the belief or hope that its application would tend to lessen the preponderance of the so-called new immigration, but it was enacted at a time when the movement from Europe was practically stopped by the war and its effectiveness as a corrective remedy was never fairly tested. The Congress, however, seemingly recognized that even the comprehensive immigration law of 1917, including the literacy test, would afford only a frail barrier against the promised rush from the war-stricken countries of Europe, and at the special session called at the beginning of the present administration the quota law was quickly enacted, and, with President Harding’s approval, became a law on May 19, 1921. This law expired by limitation June 30, 1922, but by the act of May 11, 1922, its life was extended to June 30, 1924, and some strengthening amendments were added. REPORT OF THE SECRETARY OF LABOR. 47 The operation of the per centum limit law has necessitated the introduction of new, although limited, series of immigration statistics which, for the following reasons, are not comparable with existing statistics: 1. In the quota law figures, country of birth rules, whereas country of last permanent residence is regarded as country of origin in our ordinary immigration table. 2. Both immigrant and nonimmigrant aliens may appear in quota law statistics, or by reason of exemption already referred to, arriving aliens of both classes may not be counted against quotas at all, or in other cases after a quota is exhausted. For example, during the fiscal year just ended 335,480 aliens were charged to the various quotas, while a total of 522,919 immigrant aliens were admitted during the same period, or an excess of 187,439. However, this difference is readily accounted for by the fact that during the fiscal year 193,960 immigrant aliens were admitted from British North America, Mexico, and the West Indies, and only a minor part of such immigration was subject to the provisions of the quota law. With this explanation there is presented a table showing operations under the quota law during the past two fiscal years. Table I.—Immigration quotas allotted to specified countries and regions of birth, and the number of aliens admitted and charged against such quota, allotments, during the fiscal year ended June 30, 1922, and June 30, 1923. Country or place of birth. Year ended June 30, 1922. Year ended June 30, 1923. Per cent of quota admitted. Quota. Number admitted. Quota. Number admitted. 1922 ' 1923 Albania 288 280 238 288 97 100 Armenia 1,589 1,574 99 Armenia (Russian) 230 230 100 Austria 7,451 4 797 7 451 7 358 64. 4 98 8 Belgium 1'563 1'581 1 563 1 563 101. 2 100 Bulgaria 302 301 302 '295 99.6 97 7 Czechoslovakia 14 282 14 248 14 357 14 357 99 8 100 Danzig, Free City of 301 ’ 85 '301 '263 28. 2 80 5 Denmark ". 5,694 3,284 5 619 5 226 57.6 93 Finland 3' 921 3'038 3 921 3 921 77.5 100 Fiume. Free State of 71 ' 18 ' 71 67 94 4 France 5 729 4 343 5 729 5 034 75 9 87 9 Germany 68,059 19,053 67 607 49’ 258 28 73 Greece 3' 294 3447 3 294 3’ 294 104. 7 100 Hungary 5 638 6 035 5 638 b 638 107.2 100 Iceland ’ 75 78 6 Italy 42 057 42 149 42 057 42 057 100 2 100 Luxemburg 92 ' 93 92 92 101 1 100 Netherlands 3,607 2,408 3 607 3 607 66 8 100 Norway 12 202 5 941 12 202 12? 202 48 7 100 Poland (including eastern Galicia) 25' 827 26,129 31 146 29* 730 101.1 95.5 Portugal (including Azores and Madeira Islands) 2,520 2 486 2 465 2 465 98. 6 100 Rumania 7 419 7 429 7’419 1 419 100 1 100 Russia (including Siberia) 34,284 28,908 24; 405 21’ 405 84.4 100 Esthonian region 1 348 241 17 9 Latvian region 1 540 1 513 98 3 Lithuanian and Memel regions 2' 460 2 460 100 Spain 912 888 912 ; 912 97 4 100 Sweden.. 20,042 8,766 20,042 19, 867 43.8 99.1 48 REPORT OF THE SECRETARY OF LABOR. Table I.—Immigration quotas allotted to specified countries and regions of birth, and the number of aliens admitted and charged, etc.—Continued. Country or place of birth. Switzerland................................ United Kingdom............................. Yugoslavia................................. Other Europe (including Andorra, Gibraltar, Liechtenstein, Malta, Memel, Monaco, and San Marino, and Iceland for 1922)......... 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 ble included in the Russia quota)........... Africa..................................... Australia.................................. New Zealand and Pacific inlands............ Atlantic islands (other than Azores, Canary Islands, Madeira, and islands adjacent to the American continents)........................ Total................................ Year ended June 30, 1922. Year ended June Per cent of quota admitted. 30, 923. Quota. Number admitted. Quota. Number admitted. 1922 1923 3.752 3,723 3,752 3,752 99.2 100 77.342 42,670 77.342 77.342 55. 2 100 6.426 6,644 6,426 6.426 103.5 100 86 144 86 86 167.4 100 56 214 57 382. 1 100 906 1,008 928 928 111.2 100 .656 1,096 2,388 2.388 166.9 100 81 528 81 81 651. 9 100 122 195 122 122 159. 8 100 279 279 279 279 100 100 80 88 80 80 no 100 65 83 121 118 127.7 97.5 356.995 243,953 357,803 335,480 68,3 93.8 The real significance of 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, during the fiscal years 1922 and 1923: 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, 1922, and June 30, 1923. Area. Year ended June 30, 1922. Year ended June 30, 1923. Per cent quota admitted. Quota. Number admitted. Quota. Number admitted 1922 1923 Northern and western Europe Southern and eastern Europe, including 198,082 91,862 197,555 177,943 46.4 90 Asiatic Turkey and other Asia . Africa, Australia, New Zealand and other Pacific islands, and Atlantic islands 158,367 151,446 159,646 156,938 95.6 98.3 546 645 602 599 118.1 99.5 Total 356,995 243,953 357,803 335,489 68.3 93.8 Table I shows that the quotas of the United Kingdom. Sweden, Norway. Denmark, Belgium, the Netherlands, and Switzerland were either completely or practically exhausted, the German quota being the only one of this group which reached the end of the fiscal year with any considerable balance. REPORT OF THE SECRETARY OF LABOR, 49 On the other hand the quotas of the southern and eastern European and Near East group were substantially exhausted in both years, the small increase in 1922—23 being due to the fact that more favorable conditions surrounding the immigration of natives of Russia made possible the coming of increased numbers of that nationality. It is of interest to note the effect of the operations under the quota law upon immigration from the various countries when comparison is made with the record of the year 1913-14, a fairly typical pre-war immigration year, and 1922-23. In the year 1913-14 there were admitted of the races * from southern and eastern Europe and Turkey 921,160, as compared with 162,695 in the year 1922-23, a decrease of 758,465. This comparison not only shows a numerical decrease but further establishes that the proportion of these peoples in the total immigration fell from 75.6 per cent in 1913-14 to 31.1 per cent in 1922-23. On the other hand, while there were admitted from northern and western Europe 274,507 in 1922-23 as compared with 253.855 in 1913-14, such peoples or racial stocks formed 52.5 per cent of all our immigration in 1922-23 compared with only 20.8 per cent of the whole in 1913—14. Tine total number of immigrant aliens of all nationalities admitted from Mexico and Canada during the fiscal year 1923 was 180.779. as compared with 66,361 during the preceding fiscal year. This increase has been due to the unprecedented demand for workers in the United States and, no doubt, would have been greater were it not for the fact that the amendment to the quota act requires that aliens other than natives of Canada and Mexico must have resided at least five years in one of those countries immediately preceding the time of their application for admission to the United States to render them exempt from the operation of the act mentioned. Oriental immigration. There was a slight decrease in the number of immigrant aliens of the Chinese race admitted during the year, the totals being 4,074 in 1922-23 and 4,465 in the fiscal year 1922. The number of Chinese emigrant aliens leaving the country, however, decreased from 6.146 in 1921-22 to 3.788 in the year just ended, so that the result is a small gain in oriental population. The number of Japanese immigrant aliens admitted during the past year was 5,652 as compared with 6,361 in the previous fiscal year. In fact, the number of this race admitted in 1922-23 was the smallest since the fiscal year 1911. On the other hand, the number of Japanese emigrant aliens leaving the country decreased from 4,353 in the fiscal year 1922 to 2,844 in the year just ended. Immigration from the so-called Asiatic barred zone which was created under the immigration act of 1917 is negligible, only 156 East Indians having been admitted during the past year. This 50 REPORT OF THE SECRETARY OF LABOR. seems to indicate that a movement from India which at one time gave promise of becoming an important factor in our immigration has been stopped at its beginning. Contract labor. Contract-labor cases have commanded the attention of the Bureau of Immigration in an increasing proportion since last year. During the past fiscal year 1,409 contract laborers were debarred and 60 arrested and deported after having unlawfully entered the country, as compared with 809 debarred and 71 deported during the fiscal year 1922. Because of the additional restrictions imposed by the quota law and the vigilance of our officers in the enforcement of the contract-labor provisions, applications to import skilled labor on the ground that labor of like kind unemployed can not be found in this country are now being presented with ever-increasing frequency. Such applications require careful and systematic investigation on the part of the officers specially designated therefor under section 24 of the act of February, 1917, but ofttimes our regular immigration officers are compelled to assist in the work. The investigation must not only determine the good faith of the request but the statement that labor of like kind unemployed is not to be had in this country must always be verified. The question whether the labor sought to be imported actually falls within the classification “ skilled labor ” presents difficulties not easily understood, and efficiency and ability of a high order are necessary to properly and fairly administer this feature of the immigration law. The applications for these skilled laborers are as varying as the industries asking the privilege to import. It is interesting to note that during the past fiscal year applications have been made to import “ experts in the art of tying double-wing trout flies,” “ mushroom growers,” “ artificial-eye makers,” “ repairers of old violins,” and so on through the whole gamut of the technical industries, with equally as large a list of the more generally known industries and including machinists, bricklayers, plasterers, cigar makers, etc. Each application is given the same painstaking examination, and final decision is never rendered until the department is in possession of all the facts and the recommendations of its field service. Deserting alien seamen. Reports received from the principal immigration officers in charge of seaports indicate that the desertions of alien seamen are occurring with increasing frequency, especially at the port of New York. In the fiscal year just ended such desertions reported reached a total of 23,194 at all ports and 14,734 at the port of New York alone. In the previous fiscal year only 5,879 desertions were reported for all REPORT OF THE SECRETARY OF LABOR. 51 ports. It is not possible to learn how many of these seamen do reship foreign, this being the ostensible purpose for which they land. In normal years it is probable that a majority of them do reship sooner or later, but it is known that during the year just ended large numbers permanently deserted to take advantage of superior wage conditions in the United States. It is probably true also that a considerable number who thus deserted used this means of overcoming restrictions imposed by the immigration laws and particularly the quota limit act. The best available information indicates that there are now between 2,000 and 3,000 deserting Chinese seamen in the vicinity of the city of New York, all of whom have by this means entered and are now in the country unlawfully. Very recently 102 deserting Chinese seaman were apprehended under departmental warrants of arrest at various industrial plants located on Long Island and deported to China at no inconsiderable expense to the Government. Since the regulation requiring seamen of the excluded class to furnish bond has been in force, the desertions of Chinese and barred-zone seamen have been reduced to a minimum, and it is unfortunate that some doubt has arisen as to the validity of this regulation and the authority of the Secretary to promulgate it. In the case of the United States ex rel. Young v. Stump, commissioner, the United States Circuit Court of Appeals for the Fourth Circuit held, Woods, circuit judge, dissenting, that a bona fide Chinese seaman, touching temporarily at an American port, is entitled to shore leave, and to land in pursuit of his calling, and that neither tlie treaty with China nor the Chinese exclusion act includes such seamen in their exclusive and restrictive provisions. An earnest effort was made during the past year to have Congress enact legislation which would provide the department with ample authority and proper control over alien seamen, but no definite results were obtained. In view of the decision just cited and other considerations equally as important, it is hoped that the law will be so amended as to prevent the abuse of the shore-leave privilege by any alien seamen. Smuggling and surreptitious entry. Alien smuggling has been a most troublesome phase of the immigration problem ever since the enactment of the first Chinese exclusion law, and for a good many years such operations were largely confined to bringing aliens of that race into the country. With the development of the general immigration law toward greater restriction, however, the practice spread to other alien peoples of the diseased and otherwise inadmissible classes, and to-day the efforts of aliens to effect unlawful entry into the United States from Cuba, < Canada, and Mexico continue unabated and have assumed such pro 52 REPORT OF THE SECRETARY OF LABOR. portions as to challenge the immediate attention of Congress. The smuggling of aliens into this country is perhaps nearly as prolific a source of revenue to those engaged in the traffic as is the bringing in of contraband liquor and narcotics, and with the great expanse of unprotected sea coast and land border and the lack of sufficient officers and facilities at the disposition of the bureau to cope with the situation the smugglers experience very little difficulty in plying their trade. The long-established routes from southern Europe to Mexican ports and overland to the Texas border, formerly patronized almost exclusively by diseased and criminal aliens, are now resorted to by large numbers of Europeans who can not gain legal admission because of passport difficulties, illiteracy, or the quota law. It is difficult, in fact impossible, to measure the illegal influx of Mexicans over the border, but everyone agrees that it is very large. Illiteracy is common among them and comparative poverty is widespread, and these barriers, together with the head-tax requirement Of $8, are incentives to illegal entry. The illegal entry of aliens from Canada has a]so increased with the advent of more restrictive laws. This is true to some extent of the Canadians themselves, but it is especially true of Europeans, who in increasing numbers appear to be seeking entry into Canada with the real purpose of getting themselves into a more advantageous position for entry under the quota law, or of evading that and other laws altogether. Reliable information has been received to the effect that there are now in existence numerous far-reaching organizations that take the alien from his home in Europe, secure a passport for him (a fraudulent one if necessary), purchase his steamship passage, place him on the ship, arrange for his entry into Cuba, Canada, or Mexico, and later conduct him by various underground routes into the United States—all for a fixed price. It must not be understood that no effort is being made to put an end to this illegal practice. To the very limit of its ability, the Immigration Service has sought out and deported those unlawfully here, and prosecutions have been instituted, and in a great many cases convictions have been obtained against those responsible for and participating in the illegal entry. The examination of aliens who apply for admission at the landborder ports has become the chief work of nearly all our officers on the northern boundary, and a large majority of those stationed on the Mexican border, and what was once a mobile border guard has become a force of examiners at fixed stations. This consideration points to the remedy for existing conditions. If we would successfully prevent wholesale smuggling and the unlawful entry of in REPORT OF THE SECRETARY OF LABOR. 53 admissible aliens, our wholly inadequate border guard or patrol must be increased. Deportation of aliens. The work of deporting aliens unlawfully in the country could be greatly extended if ample funds were available. Because of this lack of funds it has been impossible to make a systematic canvass of the various penal and other public institutions throughout the country with a view to the deportation of alien inmates who may be unlawfully in the country. The law provides, and even directs, that such an inquiry shall be made from time to time, but this has not been possible to any great extent for the reason stated. A total of 3,661 aliens were deported under warrant proceedings during the present fiscal year as compared with 4,345 during the fiscal year 1922. Some of the principal causes of deportation, and the races or peoples involved, are set forth in the following tables: Table III.—Causes for deportation. Likely to become a public charge-----------------------------------------1,188 Criminals ________________________:-------------------------------------- 394 Mental diseases or defects ___________________________________.__________ 319 Prostitutes, procurers, and other immoral classes------------------------ 299 Unable to read____________________—------------------1------------------- 262 Entered without inspection_____________=.-------------------------------- 229 Under per centum limit act_______________________________________________ 151 Under Chinese exclusion act------------.--------------------------------- 115 Other causes_____________________________________________________________ 704 Table IV.—Aliens deported, after entering the United States, during the fiscal year ended June 30, 1923, by races or peoples. Race or people. ''Number. Race cr people. Number. African (black)..................... Armenian............................ Bohemian and Moravian (Czech)....... Bulgarian, Serbian, and Montenegrin.... Chinese............................; Croatian and Slovenian.............! Cuban.............................. Dalmatian, Bosnian, and Herzego^ inian. Dutch and Flemish................... East Indian......................... English............................. Finnish...................-......... French.............................. German.............................. Greek............................... Hebrew.............................. Irish............................... Italian (north)..................... Italian (south)..................... Japanese............................ Korean.............................. 70 9 7 47 224 16 7 4 24 51 401 17 ;JO2 121 S3 99 137 30 188 109 Lithuanian.......................... Magyar.............................. Mexican....................-........ Polish.............................. Portuguese.......................... Rumanian............................ Russian............................. Ruthenian (Russniak)................ Scandinavian (Norwegians, Danes, and Swedes)........,.................. Scotch.............................. Slovak.............................. Spanish............................. Spanish American.................... Syrian.............................. Turkish............................. Welsh............................... West Indian (except Cuban).......... Other peoples....................... Total............................ 9 21 1,012 63 37 21 37 ■ 27 78 149 20 151 22 20 3 2 3 39 3,661 Net revenue. The total revenue derived from the enforcement of the immigration laws during the fiscal year and turned into the general fund 54 REPORT OF THE SECRETARY OF LABOR. of the United States Treasury was $4,651,180.83. Of this amount $4,285,306.60 is represented by head-tax collections, and $365,874.23 by fines, bond forfeitures, and miscellaneous collections. The net revenue accruing to the Government from the Immigration Service for the year was $1,019,236.07. Century of immigration. Attention is invited to a compilation of statistics with charts telling the story of immigration since 1820 to the present day. These statistics and charts will be found at pages 126 to 139 of this volume. A discussion of this survey begins at page 93. BUREAU OF LABOR STATISTICS. Historical. The Buieau of Labor Statistics is the oldest of the bureaus in the Department of Labor, having been organized January 1, 1885, under the name of the Bureau of Labor, as a bureau of the Department of the Interior. In 1888 it became the Department of Labor, with independent status but without executive representation. On the organization of the Department of Commerce and Labor in 1903, the bureau was incorporated therein, under its old name of Bureau of Labor. In 1913 it was transferred to the newly organized Department of Labor and given its present name. The function of the bureau has continued unchanged from its organization, the act creating it providing that it il acquire and diffuse among the people of the United States useful information on subjects connected with labor, in the most general and comprehensive sense of that word and especially upon its relation to capital, to hours of labor, to earnings of laboring men and women, and the means of promoting their material, social, intellectual, and moral prosperity.” The organic act of the Department of Labor provides that the bureau is to “ collect, collate, and report at least once each year, or oftener if necessary, full and complete statistics of the conditions of labor, and the products and distribution of the products of the same.” The Monthly Labor Review. Established in July, 1915, sixteen volumes of the Monthly Labor Review have now been issued, and its general worth as a means of disseminating current news of interest to labor and advance summaries of investigations by the Bureau of Labor Statistics has been proved. It has been on a subscription basis since July, 1920, to all but official labor bodies, State labor officials, public employment officers, and organizations exchanging publications with the bureau. In every issue of the Monthly Labor Review there is printed one or more special articles on pertinent and timely subjects relating to REPORT OF THE SECRETARY OF LABOR. ' 55 labor, while summaries of the results of original investigations by the bureau are given early publication therein. In addition there appear digests of current labor legislation and decisions of courts affecting labor; reports of State labor bureaus, workmen’s compensation commissions, and factory and mine inspection offices, abstracts of pertinent data published in official reports of foreign nations; accounts of important current movements of interest to labor, of new and successful labor methods, and of public and private activities for the betterment of industrial conditions. Important trade agreements are digested or printed in full, and current statistics of the conciliation and immigration work of the department appear regularly. During the past fiscal year there were printed summary reports of original investigations by the bureau of rates of wages and hours of labor in the following industries: Boot and shoe, cotton manufacturing, woolen and worsted manufacturing, hosiery and underwear, tin-plate mills, automobile, sheet mills, blast furnaces, and iron and steel; and changes in union wage scales were published promptly. Wholesale prices of commodities and retail prices of food and coal were printed monthly, and retail prices of gas and dry goods were published quarterly. Cost-of-living data were secured quarterly and given prompt publication. Statistics of strikes and lockouts appeared quarterly, and important labor legislation and court decisions, workmen’s compensation, and minimum wage laws and orders have been summarized and reviewed. Statistics of the conciliation work of the department and of immigration and brief reports of the work of the State labor bureaus were given publication each month, together with current items of interest to labor and a bibliography of current labor publications. A selected bibliography of Federal. State, and municipal aid to housing, 1918 to 1922, and a list of recent references on profit sharing and labor copartnership were printed, and a directory of labor officials of the United States and Canada appeared in the July, 1922, issue. I Other publications. At the end of the fiscal year there had been issued in completed form 32 bulletins, a subject index to the first 11 volumes of the Monthly Labor Review, and 12 issues of the Monthly Labor Review. The 45 publications issued contained 7,670 pages of printed matter, 351 charts, 48 illustrations, 32 line drawings, and 3 maps. Listed according to serial numbers, the bulletins issued during the fiscal year are as follows: No. 296,Wholesale prices, 1890 to 1920; No. 298, Causes and prevention of accidents in the iron and steel industry, 1910-1919; No. 300, Retail prices, 1913 to December, 1920; No. 302, Union scale of wages and hours of labor, May 15, 1921; No. 304, Proceedings of the eighth annual meeting of the International Association of Industrial 56 REPORT OF THE SECRETARY OF LABOR. Accident Boards and Commissions, held at Chicago, Ill., September 19-23, 1921: No. 305, Wages and hours of labor in the iron and steel industry, 1907 to 1920; No. 308, Labor legislation of 1921; No. 309, Decisions of courts and opinions affecting labor, 1921; No. 310, Industrial unemployment: A statistical study of its extent and causes; No. 311, Proceedings of the ninth annual meeting of the International Association of Public Employment Services; No. 312, National health insurance in Great Britain, 1911 to 1921; No. 313, Consumers’ cooperative societies in the United States; No. 314, Cooperative credit societies (credit unions) in America and in foreign countries; No. 315, Retail prices, 1913 to December, 1921: No. 316, Hours and earnings in anthracite and bituminous coal mining: Anthracite, January, 1922; bituminous, winter of 1921-22; No. 317, Wages and hours of labor in lumber manufacturing, 1921; No. 318, Building permits in the principal cities of the United States in 1921; No. 319, The Bureau of Labor Statistics, United States Department of Labor: Its history, activities, and organization; No. 320, Wholesale prices, 1890 to 1921; No. 321, Labor law’s that have been declared unconstitutional; No. 322, Kansas Court of Industrial Relations; No. 323, Proceedings of the ninth annual convention of the Association of Governmental Labor Officials of the United States and Canada; No. 324, Wages and hours of labor in the boot and shoe industry: 1907 to 1922; No. 325, Union scale of wages and hours of labor, May 15, 1922; No. 326, Methods of procuring and computing statistical information of the Bureau of Labor Statistics; No. 327, Wages and hours of labor in v’oolen and worsted goods manufacturing, 1922; No. 329, Wages and hours of labor in the men’s clothing industry, 1911 to 1922; No. 331, Code of lighting: Factories, mills, and other work places: No. 333, Proceedings of the ninth annual meeting of the International Association of Industrial Accident Boards and Commissions; No. 336, Safety code for the protection of industrial workers in foundries; No. 337, Proceedings of the tenth annual meeting of the International Association of Public Employment Services; No. 338, Safety code for the use, care, and protection of abrasive wheels. The bureau has continued during the past year its cooperation w’ith State labor bureaus, the International Association of Industrial Accident Boards and Commissions, and the Association of Governmental Labor Officials, in an effort to advance the standardizing and harmonizing of State labor legislation and administration, and publication is given to current activities of State labor bureaus each month in the Monthly Labor Review, thus enabling each bureau to keep in touch with the work of the other bureaus. At the request of the committee on statistics and compensation insurance cost of the International Association of Industrial Accident Boards and Commissions, work was undertaken by the bureau REPORT OF THE SECRETARY OF LABOR. 57 having for its object the formulation of a “standard disability schedule ” and a uniform system of forms and procedure. This work is practically completed and final report will be submitted to the convention of that association at St. Paul in September, 1923. The bureau is now cooperating with the American Engineering Standards Committee in the development of industrial safety codes, the bureau undertaking to publish and distribute these codes with a view to securing their adoption by the various States. Through a representative the bureau is assisting in the formulation of the following safety codes: Electrical safety code, sanitation, machine tools, electrical power control, walk ways, and woodworking. This representative of the bureau is also on the safety code correlating committee. An index of the codes is being prepared by the bureau—a separate index for each code and also a cumulative index for all codes. Extensive research work has been carried on by the bureau, not only for the selection and verification of material for the Monthly Labor Review, but in order to furnish information requested by Members of Congress, members of official bodies, economists, employers’ associations, labor organizations, and others interested in labor matters. A subject index of the first 11 volumes of the Monthly Labor Review was issued during the year, making readily available the extensive and valuable material contained therein. Reports transmitted but not published. Besides the 45 publications issued by the bureau (32 bulletins, 1 subject index, and 12 numbers of the Monthly Labor Review), 13 other bulletins were sent to the Government Printing Office, 7 of which were completed but not delivered, and 4 of which had part of the proof reading done. The serial numbers and the subjects of these 13 bulletins are as follows: No. 328, Wages and hours of labor in hosiery and underwear industry, 1922; No. 330, Labor legislation of 1922; No. 332, Workmen’s compensation legislation of the United States and Canada, 1920 to 1922; No. 334, Retail prices, 1913 to 1922; No. 335. Wholesale prices, 1890 to 1922; No. 339, Statistics of industrial accidents in the United States; No. 340, Chinese migrations with special reference to labor conditions; No. 341, Trade agreements in the silk-ribbon industry of New York City; No. 342; International Seamen’s Union of America: A study of its history and problems; No. 343, Laws providing for bureaus of labor, etc.; No. 344, Decisions of courts and opinions of Attorney General, 1922; No. 345. Wages and hours of labor in cotton goods manufacturing, 1922; and No. 346, Humanity in government. 58 REPORT OF THE SECRETARY OF LABOR. Statistics on volume of employment. This branch of the work has been expanded within the last year to cover 50 industries instead of 13 as originally carried. The number of establishments from which reports are received monthly has now reached 6,441 and the total number of employees reported by these establishments for June, 1923, was 2,251,565. The total pay roll reported for June was $60,066-,469. These establishments and this number of employees are distributed through the 50 industries. In most cases we have unquestionably an adequate number of plants and an adequate number of employees fairly to represent the industry. However, some of the industries should be strengthened and unquestionably other and entirely new industries should be added. There is, however, a legitimate public demand for these statistics by localities as well as by industries, and this would require not only strengthening the basic material for certain parts of the country but also a certain amount of revision with the geographical idea in mind. It must be realized that the boot and shoe industry, for instance, might be strictly normal in its volume of employment in Chicago and St. Louis at a time when the industry was practically dead in Lynn, Haverhill, and Brockton, Mass. With 169 boot and shoe establishments reporting, and the industry being considered as a whole, the unemployment in the three Massachusetts towns mentioned would not be sufficient perceptibly to influence the aggregates which form the index for the industry as a whole. Under such conditions the truthfulness of our statements is questioned immediately by the representatives of the industry in the Massachusetts towns, and there is certainly an element of fairness in their contention that our industrial statistics should be so divided into geographical districts as to show local as well as general conditions. Admittedly this should not be carried too far, and a demand that we keep tab on purely local conditions would necessarily have to be denied. However, the general principle should be adopted and applied to all the industries in our employment statistics. Again, in the selection of factories to be reported upon in any industry all types of establishments, large and small, must be taken into consideration. To say arbitrarily that we will accept reports only from concerns employing 500 persons or more, again throws the statistics into geographical ridges as it were. To illustrate: New York City employs a great many more workmen than does Detroit, Mich.; but in New York City the factories are small, very few employing 500 or more in one plant. On the other hand, in Detroit a very large proportion of establishments exceed this number of employees. Under the 500 rule, therefore, Detroit becomes a very much more important city than New York City, influencing the final statistical average three or four times as much as New York City, REPORT OF THE SECRETARY OF LABOR. 59 though the latter employs several times as many workmen in the aggregate. All these statistical problems should be met, and this could be done by a careful combination of the two ideas without abandoning the basic idea of statistics of employment by industries rather than geographically. The statistical facts now obtained are placed at the disposal of the United States Employment Service of the department, which service in turn cooperates similarly with the Bureau of Labor Statistics. Extension of cost-of-living surveys. The cost-of-living surveys made by the department through the Bureau of Labor Statistics are to-day the basis of settlement of wage controversies in more than 50 per cent of the cases in which such controversies arise. The proposal last year to change the surveys from quarterly to semiannually was met with a protest by employers and wage earners. It is very plain that the bureau must continue to make these surveys every three months no matter at what cost, and the only immediate problem is how to answer the demand for such surveys from smaller cities and from a wider geographical distribution of industrial centers. Instead of 32 industrial centers the number should be at least double that. The original survey of this character, made in 1919, covered 92 industrial centers. It is not, however, claimed that so large a number is at present necessary. In connection with this the number of cities from which retail prices are secured monthly should be considerably increased. It does not follow that every city from which the local chamber of commerce sends a request that it be incorporated in our retail price list of cities should be added to the list, though in most cases there are very sound reasons submitted for the request; but it is true that the list of cities is too small and that the cities taken are too large. What I mean by this is that prices should be given from a few smaller places to answer the very persistent and admittedly reasonable question as to whether or not prices in the smaller cities are practically the same as those in the larger cities. Accident-prevention survey, accident statistics, and safety-code work. It is not greatly to the credit of our people that nobody knows with any substantial degree of accuracy how many industrial accidents occur annually in the United States. No one knows even the annual number of industrial fatalities. Estimates as to the probable annual number of industrial deaths range from 12,500 to 35,000. Based upon incomplete data, the Department of Labor estimates the total annual number of disabling work accidents under normal industrial conditions as approximately 2,453,400. Of these 21,230 71372—23----5 60 REPORT OF THE SECRETARY OF LABOR. result in death, 1/730 in permanent total disability, 105,620 in permanent partial disability such as the loss of an arm, foot, finger, etc., 1,351,470 in temporary disability under 2 weeks, 540,350 in temporary disability of from 2 to 4 weeks, and 433,000 in temporary disability over 4 weeks. The total annual wage loss resulting from these industrial accidents amounts to at least one billion dollars. The injured workmen and their dependents are reimbursed in accident compensation approximately $200,000,000 each year. Thus it will be seen that in spite of the compensation laws the workers must still bear four-fifths of the economic burden resulting from industrial injuries. The difficulty in obtaining reliable data showing the number and severity of industrial accidents in the United States is due largely to the incomparability and incompleteness of the accident statistics published by the various States. In some States the scope of the compensation and accident reporting laws are limited to so-called hazardous employments, excluding mercantile establishments, professional employments, and clerical occupations. All the States except one exclude agriculture and domestic service. Six States and the District of Columbia have no workmen’s compensation and accident reporting laws at all, and consequently no accident statistics are available. Even in those States which have compensation laws the methods of compiling accident statistics vary so much that in many cases the data published are not comparable and can not be combined with the statistics of other States. Some States use as a unit the number of accidents which occurred during the year, some use the number reported during the year, and others use the number of cases closed or adjudicated during the year; again some States present their data for the calendar year and others for the fiscal year. This lack of uniformity makes an accurate comparison of the data of one State with that of another utterly impossible. In only 20 States are accidents classified by industry; in only 18 States are they classified by cause; in only 12 by nature of injury, and in only about one-half by severity of injury. Only two States have compiled and published accident rates, without which it is impossible to know whether accidents are increasing or decreasing, or to check up the value of accident-prevention work. In order that there may be made available accurate industrial accident statistics for the United States, the department is making a special study of the problem. It is enlisting the aid and cooperation of the various States in the work of standardizing their accident statistics. Uniform standard tables and classifications have been formulated, and already some 15 States are compiling their accident statistics in accordance with this standard. The several States have been requested to furnish their accident data to the Bureau of Labor REPORT OF THE SECRETARY OF LABOR. 61 Statistics annually for compilation. The Federal bureau thus will become the distributing center for information with respect to industrial accidents in the United States. In this connection it seems important to call your attention to the fact that the only industries which report with anything bordering on completeness are those industries where accident reports are made to the United States Government through some of its bureaus. The Bureau of Mines in the Department of the Interior has, after years of patient work, organized the machinery through which a practically complete system of accident reporting as to accidents occurring in mines has been established. The Bureau of Mines has a field work survey which has enabled it to make practical use of this information and greatly assist in rendering the mines safer. The Interstate Commerce Commission gets practically complete reports on railroad accidents, and the commission has been very serviceable in the installation of safety devices which render railroad work less hazardous. In 1910 the Bureau of Labor Statistics began the organization of the machinery by which accidents in the iron and steel industry would be reported to it, and it now receives practically complete reports.1 The bureau has had one man on this work continuously, and the classification, tabulation, and presentation of this statistical material, periodically published, has resulted in practically all the large steel corporations and companies taking the matter up and introducing safety devices and methods which have resulted in a very startling decrease in the accident ratio in this industry. What the department proposes now is to apply the same methods to the whole industrial situation, organize the machinery for complete and thorough reporting of accidents, make such field survey, as will put the department in touch with the more hazardous industries and furnish the men who can establish the methods of prevention; in other words, do for the entire field what has been done for the iron and steel industry. The department has allied itself with the American Engineering Standards Committee in the construction and publication of safety codes, and it is important that this phase of the work be more directly and immediately pushed. Three of these codes have already been published (see Bulletins Nos. 331, 336, and 338) and another is in press. It is the purpose to publish these factory safety codes as rapidly as they are agreed upon by the American Engineering Standards Committee. Personal contact with the enforcing officers of the various States is essential to the rapid adoption of these factory safety codes. 1 See U. S. Bureau of Labor Statistics Bui. No. 234, “ The Safety Movement in the Iron and Steel Industry, 1907 to 1917,” and Bui. No. 298, “ Causes and Prevention of Accidents in the Iron and Steel Industry, 1910 to 1919.” 62 REPORT OF THE SECRETARY OF LABOR. * The State departments of labor frequently ask this department to send them men who are practical factory inspectors so that the inspection work in their State can be reviewed and, if necessary, revised. Such an instance happened very recently, when the State of Maryland asked this department to detail a man practically to install its factory inspection system. I feel that we should be in a position immediately to respond to such an invitation. The first thing, however, is to make a survey and to get into actual touch with the real situation in the various States. Labor conditions in insular possessions. A broad, accurate, intensive, impartial, and authoritative survey should be made at once of the wages of labor and working conditions in Alaska, the Philippines, Hawaii, and the Virgin Islands. As matters stand to-day it is impossible to secure any information from any of these localities not colored by controversial struggle. Various interests make various statements, which are immediately contradicted by other interests. The organic law of Hawaii requires the Bureau of Labor Statistics to make a survey of working conditions in that island every five years. Such survey has not been made since 1916 because there were no funds available with which to make it. In my judgment a thorough and impartial survey of labor conditions in the Philippines and in the Virgin Islands is more important at this time than a survey of Hawaii. A continuing appropriation— that is to say, one that would be available until spent—is necessary in order to acquaint the public with the essential facts as to the working conditions in these islands. Efficiency and productivity of labor. Closely correlated with wages, hours of labor, and opportunity to secure work is the question of efficiency of labor. The wages per hour indicate what a workman gets for his time but give little or no clew as to what he does for his wages. From a social point of view both things are important, and a knowledge of each of these facts will go far toward settling industrial wage claims. In order to throw some light upon this problem the department has now in hand investigations into the productivity and efficiency of labor in a number of industries, namely, common-brick manufacture, boots and shoes, and building trades, and has already in its possession material covering lumber, bituminous and anthracite coal, and slaughtering and meat packing. To keep abreast of conditions in basic industries along these lines, such as iron and steel from the ore to the structural shapes, so that at any time changes in volume of production, changes or proposed changes in wages or in hours, can be fully measured as to their results is the new REPORT OF THE SECRETARY OF LABOR. 63 field which I am very eager to see the department enter. We should be able to state with substantial accuracy the output per man per hour and the labor cost of production in all basic industries, as well as the accident conditions, and so forth, in such industries. Labor laws and decisions. For many years the department, through the Bureau of Labor Statistics, has carried forward the work of publishing the labor laws of the various States and the decisions of courts thereon affecting labor. The latest publication of this kind was Bulletin No. 148, published in 1914. Since that time the plan has been to publish annually a survey of State labor laws, coupling them up as well as possible through a cumulative subject index. This, however, has become very cumbersome, and therefore its purpose is largely defeated. The reduction of statutory positions in the Bureau of Labor Statistics resulting from the reduction of appropriations for the fiscal year 1921 has greatly hampered this work. The interests of labor require a new edition of the labor laws, and one should be published. The information is available but not the man power to do this work within a year. CHILDREN’S BUREAU. Maternity and infancy. The last annual report described the initial steps taken by the States, the Federal Board of Maternity and Infancy, and the Children’s Bureau, in the cooperative undertaking to reduce the mortality of mothers and babies made possible by the act of Congress of November 23, 1921. As very few of the State legislatures were in session in 1922, only 11 of the States were then operating under legislative acceptances of the act. During the last year this number has been increased to 40, all the States having accepted the act except Maine, Vermont, Massachusetts, Rhode Island, Connecticut. Louisiana, Illinois, and Kansas. In Maine the legislature passed an acceptance act which was vetoed by the governor; in Louisiana and Illinois the act received a substantial majority in the senate but failed of passage in the house; in Kansas the act passed the senate unanimously but did not come to a vote in the house. In Connecticut a general act authorizing the acceptance by the State health department of any Federal funds for the promotion of public health was passed in 1919. The Connecticut Legislature in 1923 instructed the health department not to accept the funds available under the maternity and infancy act. The money available under the 1923 appropriation act for maternity and infancy was $1,240,000, the full amount authorized by the act. Of this amount, $240,000 was an unmatched fund apportioned $5,000 to each State upon approval of its plan of work by the Federal 64 REPORT OF THE SECRETARY OF LABOR. Board of Maternity and Infancy; the additional $1,000,000, minus $50,000, which is allowed for the Federal expenses incident to the administration of the act, was apportioned to the States cooperating and matching with State funds as follows: $5,000 to each State plus an additional amount determined on the basis of population. Fourteen of the States accepting the act were unable to match with any State funds the funds made available by the 1922 appropriation. Appropriation acts passed to date will enable the 40 States accepting to match in whole or in part the Federal funds. The staff of the maternity and infancy division of the Children’s Bureau, which has been immediately responsible for the Federal administration of the act, has consisted of: Two physicians, serving as director and associate director, a public-health nurse, an accountant, a secretary, and a stenographer. During the year every State which is cooperating under the act has been visited by either Doctor Rude, the director, or Doctor Watters, the associate director, of the division, to discuss plans of work and activities. At the request of the State health departments and divisions of child hygiene, nurses’ institutes on maternal and infant care have been conducted in 17 States by Miss Phelan, the public-health nurse of the bureau staff. Three others were held during the summer months of 1923. The financial accounting for Federal funds and State funds used in matching has involved much detail. The necessary forms and reports were worked out after consultation with the General Accounting Office, other departments and boards administering similar acts, and a special representative appointed by the State and provincial health officers. The bureau accountant has visited and checked the books in all but one of the 41 States in which Federal funds were expended during the last year. It is impossible in a brief statement to discuss the work that has been done in the States, but it is a satisfaction to record that a very creditable beginning has been made during the year. A condensed summary of State activities includes the following items: (1) Increase in number of public-health nurses in either State or county positions, or both; (2) establishment of maternal and infant health centers; (3) stimulation of better birth registration; (4) improvement in milk supplies; (5) surveys of maternity homes and infant homes; (6) studies of the midwife problem and methods of its solution; (7) general educational activities through literature, exhibits, lectures, demonstrations, campaigns, mothers’ classes, and correspondence courses. The act makes it the duty of the Children’s Bureau to undertake such studies and investigations as will promote its efficient adminis REPORT OF THE SECRETARY OF LABOR. 65 tration. During the last year, in addition to the regular staff of the maternity and infancy division, a physician and a social worker have been employed for a survey of maternity homes in Pennsylvania. The cooperation of local physicians has also been secured in a number of localities for statistical studies to determine the causes of stillbirths, neonatal mortality, and maternal mortality. These investigations are incomplete as yet and will be extended to other localities during the coming year. At the request of the health officer of Alabama, a test of birth registration was made to assist the State in analyzing the problem of how birth registration may be brought up to the standard required for admission to the United States birth-registration area. An analysis of infant mortality in the United States birth-registration area, prepared by the statistical division of the bureau, shows a decrease of 24 per cent for the six-year period from 1915 to 1921. (Final reports for 1922 are not yet available.) This encouraging decrease was due almost wholly to improvement in health conditions and was explained only in small part by expansion in the area. In 1915, the infant mortality rate in the cities was one-fourth higher than that in rural districts; but with the progress of infant welfare work in the cities and the continued progress in the efficient regulation of the production and distribution of milk, the city rate in 1921 was brought for the first time below the rural rate in the original birth-registration area. While the infant mortality rate of 76 in 1921 was the lowest ever recorded for the United States birth-registration area, the American rate is still higher than the rates for five foreign countries, as shown by the most recent available statistics for the nations of the world. A revision of the Children’s Bureau bulletin on maternal mortality in the United States and certain foreign countries is in progress. The United States death rate of mothers in childbirth shows a slight decrease in 1921 from the preceding year, but it is still higher than the rates in most foreign countries that have good statistics of births and deaths. In this connection it is interesting to note that only comparatively few States require the reporting of cases of puerperal septicaemia, the most fatal of the diseases connected with pregnancy and confinement; and in but one State did the number of cases of puerperal septicaemia reported exceed the number of deaths certified as due to this disease. Constitutionality of the maternity and infancy act. When a bill for the acceptance of the maternity and infancy act was before the State Legislature of Massachusetts in the spring of 1922, the question of Congress’s power to enact legislation of this sort was raised. This question was referred to the attorney general 66 REPORT OF THE SECRETARY OF LABOR. of the State and he rendered an opinion to the effect that the act was not within the constitutional powers of the Federal Government and that as a means of testing its constitutionality, suit could be brought by the State of Massachusetts against the Federal officials whose duty it is to administer the act. Although Massachusetts was at that time accepting Federal aid under 22 other acts of Congress, and this measure merely extended the well-established principle of Federal and State cooperation to the new field of protection of maternity and infancy, the legislature directed the attorney general to start suit. Accordingly complaint was filed by the State of Massachusetts in the United States Supreme Court in October, 1922. Later a taxpayer’s suit was started by Harriet A. Frothingham, a citizen of Massachusetts, in the Supreme Court of the District of Columbia. That court dismissed the plaintiff’s bill of complaint and later the Court of Appeals of the District of Columbia affirmed its decree. An appeal was then taken to the United States Supreme Court and was argued, with the Massachusetts case, in April, 1923. In addition to the brief submitted by the Solicitor General in defense of the act, briefs were also filed on behalf of the States of Arkansas, Arizona, Colorado, Delaware, Indiana, Kentucky, Minnesota, Oregon, Pennsylvania, and Virginia, and the Association of Land Grant Colleges, as amici curiae. There was no dissent to the opinion rendered by the Supreme Court on June 4, 1923, that both these cases must be dismissed for want of jurisdiction. In affirming the dismissal of the Frothingham suit, the court pointed out that “ It is of much significance that no precedent sustaining the right to maintain suits like this has been called to our attention, although since the formation of the Government, as an examination of the acts of Congress will disclose, a large number of statutes appropriating or involving the expenditure of moneys for non-Federal purposes have been enacted and carried into effect.” While the merits of the question of the constitutionality of the act were not discussed, the opinion indicated agreement with the Solicitor General that if the interpretation of the Constitution urged by the State of Massachusetts were followed, not only would other forms of Federal aid be unconstitutional, but Congress’s right to create the Department of Agriculture and most of its bureaus, as well as the Department of Labor and several bureaus in the Department of the Interior, would be denied by the same logic. Child hygiene. In addition to the bureau’s investigations of infant hygiene, special studies have been made of children of preschool age and in the whole field of child hygiene. The Child Welfare Special, the bureau’s REPORT OF THE SECRETARY OF LABOR. 67 motor truck which is equipped as a demonstration clinic for children of preschool age, was sent to Tennessee during the last fiscal year, at the request of the State board of health, and continued its work in that State until late in November of 1922. Nearly 2,400 physical examinations were made in Tennessee. In response to a request from the university extension division, the State board of health, and other organizations, the special was sent to Oklahoma in the spring of 1923 and is still holding conferences there. To date over 1,000 examinations have been made in Oklahoma. A critical study is being made of the present status of the knowledge of children’s physical fitness by surveying the work now being done in this country and assembling the literature on the subject. The following aspects of the study are being given special attention: Anthropometric studies, nutrition and metabolism, nutritional studies on animals which have a bearing on the subject, the relation of bodily mechanics to physical fitness in children, functional tests of physical vigor, physical tests in relation to mental factors, disease and defects in relation to physical fitness, and an annotated bibliography of all the available literature on the growth and development of children. An intensive study has been made of the incidence of rickets among young children in the District of Columbia, in connection with which information has been obtained on the influence as causal factors of housing, sunlight, diet, and the care of children. The study includes an analysis of the diets of children in different age groups and of their mothers during pregnancy and lactation. The bureau has made a survey of the extent and efficiency of the nutrition work for preschool children in nine eastern and midwestern cities and in three rural areas. Each of the 33 organizations visited was studied from two standpoints: The general policy and standards of the organization in regard to the care given to preschool children, and the character of the nutrition work undertaken and the methods of conducting it—in health centers, clinics, classes, and the homes of the children. The child-hygiene division has analyzed" the resources of childplacing agencies in selected cities and the methods used in protecting the health of the children under their care, cooperating in this study with the social-service division of the bureau, which has been making a study of the organization and general methods of these agencies. Street trades. Conditions surrounding children engaged in street trades, a relatively unregulated form of child labor, have been the subject of study during the last year. Information for over 4,000 children who 68 REPORT OF THE SECRETARY OF LABOR. sold newspapers, did bootblacking, tended market stands, or peddled flowers, candy, gum, etc., was obtained in Wilkes-Barre, Pa., Columbus, Ohio, Atlanta, Ga., and Omaha, Nebr. In connection with this inquiry into the extent and conditions of street work, a study of the administration of State and local street-trading regulations has also been made. Employment of children in stores, mills, and factories in Georgia. At the request of the Georgia State Children’s Code Commission, a survey of children employed outside of school hours (exclusive of those in street work) was made in Atlanta, and establishments employing children were inspected, primarily to ascertain the extent of the employment of children under 16 in industries not covered by the present State child labor law. Thirty-nine textile mills in 17 cities or towns in Georgia were also visited by agents of the Children’s Bureau in the autumn of 1922 for the purpose of comparing the standards of employment with those in effect under the Federal child labor tax law’ declared unconstitutional in 1921. This inquiry brought to light 560 violations of the standards of the Federal child labor laws which were held unconstitutional in 1918 and 1922 and 149 violations of the Georgia child labor law. Rural child labor. Continuing a series of studies of rural child labor begun in 1920, the industrial division during the last year has completed field work in connection with two such surveys and has begun a third. To date this series of studies has covered parts of 14 States and has included approximately 11,000 children under 16 years of age working in the cotton fields, on truck crops, in beet and tobacco fields, and on farms in the wheat and corn belts. During the last year, surveys were made in tobacco-growing sections of Kentucky, South Carolina, Virginia, Connecticut, and Massachusetts and in the Corn Belt in Illinois. A study in truck and fruit growing sections of the State of Washington is now in progress. Minimum wage for minors. Several months before the Supreme Court decision declaring unconstitutional the minimum wage law of the District of Columbia we began an investigation into the effects of the rates for minors and learners established by the minimum-wage boards in the District of Columbia, California, and Minnesota, where individual certificates were issued to all minors included in wage-board rulings. According to the records of the commissions, large numbers of children obtain certificates to work at learners’ rates, remain only a short period on the job, and are then lost sight of by the commission. A schedule REPORT OF THE SECRETARY OF LABOR. 69 study of the industrial history of a group of minors certificated in these two States and the District of Columbia is being supplemented by pay-roll records and other data from these States and from Wisconsin and Massachusetts. The investigation should indicate whether a comparatively high minimum rate tends to reduce the number of children employed; whether there is any tendency to discharge the children when they become legally entitled to increases; whether the minimum rate becomes the maximum; and whether the minors go into industries in which a legal minimum has not been established at wages lower than the legal minimum in other industries. Other child-labor studies. Studies have been made during the last year of industrial opportunities open to subnormal minors in Newark, N. J., and of industrial accidents to minors in Wisconsin, New Jersey, and Massachusetts. Census material and child-labor and compulsory school attendance legislation have been summarized and analyzed. An increasing number of State and city agencies are furnishing annually to the Children’s Bureau comparable statistics relating to the issuance of employment certificates, and hence to the number of children legally employed. Juvenile-court standards. During the year much interest has been expressed in the juvenilecourt reports prepared in the social-service division of the bureau. The attention of judges and probation officers has been called to them by the National Probation Association, by the State board or commission, or by state-wide conferences called for discussion of court problems in Arkansas, Georgia, Indiana, Nebraska, New Jersey, North Carolina, Ohio, Oregon, Pennsylvania, Virginia, and Texas. The committee on juvenile-court standards appointed in 1921 made its final report at a joint conference held in Washington May 18, 1923, under the auspices of the Children’s Bureau and the National Probation Association. The committee was at work for two years. It submitted a preliminary report at a joint meeting in Providence in June, 1922, and, after a two-day session in January of the present year, agreed upon a draft of standards, which was sent to more than 200 judges, probation officers, and others interested in juvenile courts, more than 50 of whom made specific suggestions. Studies of child dependency. Aid to children in their own homes.—The publications on so-called mothers’ pensions, especially the proceedings of the conference held in June of 1922, have been used by and distributed to those actually engaged in this work by the State boards in Arizona, Delaware, Massachusetts, Minnesota, New Jersey, New York, Ohio, and Pennsylvania. 70 REPORT OF THE SECRETARY OF LABOR. The publication of a legal chart showing the differences in the various State laws on this subject was of special interest in connection with bills pending in the various State legislatures in 1923. At the annual meeting on June 21 of the committee on public aid to mothers for the care of children in their own homes (formerly the cooperating committee on mothers’ pensions) we were requested to undertake during the coming year detailed studies of the standards that prevail in the work of agencies administering aid to dependent children, with special reference to health, housing, and education. Arrangements are being made for such a study, in which the committee will cooperate. The collection of information as to the administration of mothers’ pensions in the various States has continued, and a report on this subject will be published during the coming year. Foster-home care —During the last half of the year a field study was made of the organization and methods of work of child-caring agencies in 10 localities, two of them state-wide. The agencies were selected as presenting examples of some of the best work in child placing in different parts of the country. The object of the study is to obtain information in regard to constructive handling of the social and health problems of dependent children. A publication is now ready for press entitled “ Foster-Home Care for Dependent Children.” This includes contributions by 11 of the leading authorities on child-caring work, each dealing with a different phase of the problem of care and protection of dependent children. This publication also includes a bibliography of United States and foreign material on the subject of foster-home care and a reprint of the conclusions of the “White House conference for dependent children ” of 1909. A study of dependent children in the District of Columbia is ready for the press. The study was undertaken at the request of the Board of Children’s Guardians. A feature of the report is a statistical analysis of the data regarding children who were under care of the board during one year. At the request of the District Council of Central Agencies, some information was also secured from private institutions, making possible some comparisons of the work of the private institutions and that of the public agency. The field work has been completed on a study of children indentured by the Wisconsin State Public School for Dependent Children, undertaken at the request of the Wisconsin authorities. Schedules for approximately 500 children who were made wards of the State a number of years ago have been secured giving information available in regard to the family situation at the time the children were removed from their homes and the history of the parents subsequent to the taking over of the children by the State. REPORT OF THE SECRETARY OF LABOR. 71 Institutions.—Through the cooperation of the State schools and homes for dependent children in Colorado, Michigan, Minnesota, Rhode Island, and Wisconsin, the record material for all the children under the care of these agencies during the last year has been obtained. It is being analyzed with special reference to the parental status at the time the children were received as wards of the State, ages of the children when received, the present disposition, reasons for the release of those who ceased to be wards during the. year, and the length of time the children have been under care. At the suggestion of members of the staff of the Georgia Department of Public Welfare, we have undertaken to edit the manuscript of a “ Handbook of Institutions for Dependent Children ” that had been prepared by the staff of the Georgia department. An advisory committee, composed of representatives of State boards, of public and private institutions, and of other experts in this field, is revising the manuscript. It has also been submitted to a large number of people throughout the country whose advice and assistance would be of special value. Incorporating the suggestions received, supplementing the material on some points, and final editing remain to be done. Child welfare in Porto Rico. In the spring of 1923, a brief follow-up study was made of the Children’s Year survey in Porto Rico. In spite of many and serious difficulties, the child-welfare activities initiated during the previous year have gone forward in a most encouraging manner. Play and athletics have been given greater importance throughout the school system, and the training of teachers in play has established those activities upon a firm foundation. The Red Cross and the insular department of health, working in cooperation, have increased the number of child-health centers, continued the program of baby weeks, and conducted an institute on those subjects and other aspects of public health. The university summer courses in home hygiene have been continued, with special emphasis on infant and child care, and an experimental course in social service has been given. This has helped to call attention to the whole field of child welfare. Health teaching has been continued in the schools. Dental clinics have been extended by the cooperation of the Junior Red Cross and the municipalities. The school for blind children is now being built. We are assured that a bill providing for an industrial school for girls will pass the legislature. The business men’s organizations have taken a definite interest in the homeless boys of San Juan and have raised funds for constructive work to assist these children. The 1923 legislature has provided $60,000 for the establishment of an insular puericultural and maternity institute for promoting the 72 REPORT OF THE SECRETARY OF LABOR. hygiene of maternity and infancy. The institute is to have consultation centers for expectant mothers and for children, besides hospital facilities for women during confinement. Recreation. During the last year a specialist in recreation has been added to the bureau staff, and it is hoped that in the future this part of the bureau’s work can be greatly extended. A Brief Manual of Games for Organized Play adapted from Standard Sources, prepared in connection with the Porto Rican survey, has been much in demand here. Child-welfare legislation in 1923. During 1923 the legislatures of 43 States have met in regular session, and bills relating to many aspects of child welfare have been considered. Some definite gains have been made, but many bills whose passage would have been in the interest of the children have failed of enactment. On the other hand, a few bills which would have meant retrogression instead of progress were considered and most of them, fortunately, were defeated. We have been receiving from officials of the various States copies of bills relating to child welfare and information concerning the action taken upon these bills. In addition to the passage by 29 States of legislation providing for the acceptance of the Federal maternity and infancy act, bills relating to State and municipal health departments, public-health nurses, birth and death registration, physical education, and medical or dental examination of school children have been considered in many States and have become law in a number. Child-welfare commissions. The department has continued to cooperate with the child-welfare commissions by supplying information and copies of its bulletins. A revision of a bulletin entitled “ State Commissions for the Study and Revision of Child Welfare Laws,” first published in 1920, has been prepared and is now in press. It includes a history of the development of State commissions, a statement of the essential features in commission programs, summaries of organization and plans of work, and a list of reports and articles relating to the work of commissions. Committee on traffic in women and children. The Chief of the Children’s Bureau was, on my recommendation, appointed by the Secretary of State, with the approval of the President, to serve in an unofficial and consultative capacity on an international advisory committee on traffic in women and children. REPORT OF THE SECRETARY OF LABOR. 73 The traffic in women and children is one of the few fields in which there had been international agreement for legislation prior to the war. The first White Slave Conference was held in 1902, and the United States was a party to the international agreement of 1904 which grew out of that conference. A second conference was held in 1910, at which the United States was also represented. In the summer of 1921 a conference on the traffic in women and children was called. At that meeting it was recommended that an advisory committee on traffic in women and children which would serve as a committee of experts to watch developments continually in this field and to consider ways in which the traffic may be prevented should be created. Such a committee was appointed, and includes representatives of the following Governments: British Empire, Denmark, France, Italy, Japan, Poland, Rumania, Spain, and Uruguay. Publications. During the fiscal year 1922r-23 the bureau issued 34 new publications, charts, and leaflets, 12 of which were included in the Tenth Annual Report, leaving a total of 22 since that report went to press. Twenty-five others are now in press and 24 in preparation. Reprints of 33 of the bureau publications have been ordered and received, and three additional reprints are now in press. Of the new publications, the following are among the most important, not already mentioned: Child hygiene.—No. 110, The Nutrition and Care of Children in a Mountain County of Kentucky; No. Ill, Physical Status of Preschool Children, Gary, Ind.; No. 112, Infant Mortality, Gary, Ind. Child labor.—No. 89, The Working Children of Boston; No. 106, Child Labor and the Welfare of Children in an Anthracite Coal-Mining District; No. 114, Child Labor in the United States—Ten Questions Answered; No. 115, Child Labor and the Work of Mothers in the Beet Fields of Colorado and Michigan; No. 116, Standards and Problems Connected with the Issuance of Employment Certificates; and No. 117, The Welfare of Children in Bituminous Coal-Mining Communities in West Virginia. Delinquency and dependency.—No. 104, The Chicago Juvenile Court; No. 107, County Organization for Child Care and Protection; No. 109, Proceedings of Conference on Mothers’ Pensions; and No. 118, Standards of Public Aid to Children in Their Own Homes. During the year 821,735 publications (other than dodgers) were distributed, an increase of 195,985 over the number distributed in 1921-22. The distribution of popular bulletins in the Care of Children series was as follows: Prenatal Care, 157,887; Infant Care, 334,654; Child Care, 129,161. This means an increase of 60,644 over 74 REPORT OF THE SECRETARY OF LABOR. last year in the distribution of Prenatal Care, of 131,401 in Infant Care, and of 58,791 in Child Care. During the last six months of the year the monthly distribution averaged approximately 33,000 copies of Infant Care, 14,000 of Prenatal Care, and 12,000 of Child Care. Even with this increase, we have had to refuse thousands each month, and the sales at the Government Printing Office have greatly increased. Each year the number of individuals who seek information as to some phase of child care increases. During the year just passed, the Children’s Bureau received 98,553 letters, an increase of 13,059 over the preceding year. In addition to the public and private child-welfare agencies of the country with which we maintain active cooperation, individual parents in increasing numbers are applying for information. In giving the information sought, we make these requests the opportunity for informing correspondents of helpful local agencies. BUREAU OF NATURALIZATION. Reorganization. In the middle of the fiscal year just ended the complete reorganization of administrative procedure in naturalization matters was begun. This reorganization extends throughout the entire naturalization service and has for its purpose the accomplishment of a simplified and more rational administration of the uniform rule for the naturalization of aliens throughout the United States, prescribed by the Constitution. From 10,000 to 20,000 petitions for naturalization have been dismissed annually under the operation of the old administrative system of examining the aliens after they had become petitioners. Under the reorganization plan, all aliens are to be examined before they become petitioners. In approximately 100,000 of the 160,000 petitions filed, the applicant made two trips to the courthouse and one to the examiner. One of these trips has been eliminated wherever the new procedure has been established. The time of the two citizen witnesses and the alien applicant is reduced at the administrative examination about one-half under the new plan, and in the judicial examination in court amendments to petitions for naturalization, which in some courts have been large consumers of time, have been eliminated, thus making it possible for the judge to hear a larger number of petitions within the same length of time. As a part of this reorganization of administrative procedure, a branch of the Bureau of Naturalization was established on Ellis Island to specialize in the work of furnishing certificates of arrival for naturalization purposes. At the time certificates of arrival were created to enable an alien arriving after June 29, 1906, to file a REPORT OF THE SECRETARY OF LABOR. 75 petition for naturalization, the Bureau of Immigration and Naturalization existed. Upon the organization of the Department of Labor, the Bureau of Immigration and Naturalization was divided into two bureaus, the Bureau of Immigration and the Bureau of Naturalization. The naturalization work performed at Ellis Island by the immigration authorities was not detached from that bureau until the reorganization referred to was undertaken. With a personnel whose prime and sole duty is naturalization engaged upon the certificate of arrival work at Ellis Island, it will not be necessary to withdraw members from this organization to engage in immigration work when the landing of aliens at Ellis Island is in such large numbers as to make such action necessary as heretofore. The first duty of the naturalization bureau employees on Ellis Island was to clear off the congestion of applications, and at the close of the fiscal year all applications received prior to May 1 had been disposed of. The work promises to be current within three months from now. Citizenship training. Coincident with the reorganization referred to, there was a restoration of the citizenship-training activities to the coordinate relationship established by the naturalization law from the secondary relationship to which it had been relegated. The promotion of citizenship training by the public schools was extended and made effective at the most vital point of weakness—the promotion of the training of teachers for Americanization or citizenship training classes. The cooperation of the bureau in citizenship training work was accepted during the past year by the public schools of 2,461 communities throughout the United States (including rural places), which either ordered educational supplies or organized classes through the efforts of the field service. In addition, students from 355 outlying places attended classes in the near-by cities or towns conducting them. The practically unanimous participation in some form or other in citizenship training or Americanization by the public schools is established. Many influences, have been at work to cause this. Partially due to the legislation providing for separate naturalization of married women, the work with foreign-born women has assumed greater proportions than ever before and home classes for women have become more numerous and popular. Public ceremonies attending the presentation of the department’s certificate of graduation through the public schools have received added emphasis, due to the greater stress now placed upon preparation by both the native and foreign born for the duties and responsibilities of citizenship. Great national organizations, especially women’s organizations, are very active in this field. The individual members of the American Bar 71372—23---6 76 REPORT OF THE SECRETARY OF LABOR. Association are actively advocating higher standards of admission to citizenship through a better appreciation of our institutions of government, and in this movement are being stimulated by the hearty support of the judges administering the naturalization law. The Federal Citizenship Textbook, as issued, has been successfully used in large quantities. During the fiscal year the new part devoted to elementary and intermediate students received universal and hearty commendation. Much has been accomplished by the educational field representatives in arousing interest in communities as shown by the resulting citizenship-training classes, which are attended not only by the foreign born but American adults as well, who are attracted by the name “citizenship-training classes,” whereas they were repelled by the title “classes for illiterates.” The relations and cooperation with State superintendents of public instruction and State directors of Americanization have been even more cordial than heretofore. An equally important phase of citizenship-training activity is the participation by the bureau in the organization in Federal and State penal institutions throughout the country of classes for teaching English and the responsibilities and obligations of good citizenship to their inmates. Acting as a clearing house upon citizenship-training matters, an exchange of periodicals written and published by Americanization classes in the various States has been accomplished by the bureau. Supervisors and teachers find that the publication and exchange of these papers furnish valuable motivation, and the periodicals themselves show evidence of remarkable progress in English, great appreciation by the students of the public-school opportunities offered, and a desire to be worthy citizens. The Federal Council of Citizenship Training, created in January, 1923, by the President, on which the Commissioner of Naturalization is the representative of the Department of Labor, has already made substantial progress in furthering its objective of citizenship improvement. Candidates for citizenship living on farms and in isolated places not convenient to schools are taken care of through earnest and devoted volunteer teachers; their names being sent by the clerk of court to the county superintendent of schools, who appoints a teacher volunteering for the purpose. These classes now number 1,204, an increase of 385 over last year. The classes, naturally, are each composed of only a few scholars, with a probable average of two to each class. A close touch has been kept with the industrial plants, where numerous citizenship-training classes are in operation, some of the classes being conducted wholly or partly during working hours; others after the closing hour. During the year 738 communities have been supplied with the names of 264,199 candidates for citizenship and the names of 25,534 REPORT OF THE SECRETARY OF LABOR. 77 wives, making a total of 289,733 names sent to school officials, an increase of more than 30,000 over the preceding year. In addition, 61,106 cards of invitation have been sent out for Boy Scout delivery. Reports show that the activities of the Boy Scouts were largely instrumental in the formation of five citizenship classes in one city alone. These scouts have proved their worth time and time again by their courteous and tactful presentation of the invitations, by serving as ushers at Americanization meetings, school exercises, and other public ceremonies, and even by providing the music therefor. Volume of the work. There are millions of naturalization papers in the archives of the Bureau of Naturalization, representing thousands upon thousands of every European nationality. There is no knowledge of the relationship by nationalities or otherwise of these alien-born residents of America toward American citizenship. In the reorganization plaits a statistical presentation of this tremendously valuable information has been undertaken. The reorganization along these lines has become assured and the service rendered to the public and the benefits derived by the public more than, doubled, as indicated, showing the necessity of the reorganization; and this becomes doubly significant when considered with the fact that no increase in the appropriation of the Bureau of Naturalization has been submitted to support this expansion and increased efficiency of service to the public. No reduction of the current appropriations for the bureau can be made without seriously impairing this reorganization work. During the year 296,636 declarations of intention and 158,059 petitions for naturalization were filed, and 137,975 civilian certificates of naturalization, and 7,109 military, or a total of 145,084 certificates of naturalization were issued by clerks of courts. The courts denied 24,884 petitioners admission to citizenship, or 15 per cent of petitions heard. Continuances of petitions for ignorance of government, 11,005; for illiteracy, 1,270; nonappearance, 23,840; miscellaneous, 12,117; a total of 48,232. The bureau’s incoming mail amounted to 517,779 pieces; outgoing, 886,405 pieces. The total receipts from naturalization fees for the fiscal year were $636,132.90, or $37,422.95 more than for the preceding year. Separate status of women. Of far-reaching importance was the enactment of the act of September 22, 1922, providing independent naturalization status for married women. Heretofore their citizenship depended on the allegiance owed by the husband. Under the provisions of this act the status of a woman is not affected by marriage unless the husband is an alien ineligible to citizenship; otherwise, if she is a 78 REPORT OF THE SECRETARY OF LABOR. citizen of the United States, she remains a citizen; if she is an alien she must apply for naturalization even if she marries a citizen. As the result of two decisions rendered by the United States Supreme Court during the past fiscal year, interpreting the words “ white persons ” as used in the naturalization laws, it has been authoritatively determined that members of the Japanese and Hindu races are not eligible for naturalization. WOMEN’S BUREAU. The Women’s Bureau was created as a war service in 1918 and made a permanent bureau of the Department of Labor in 1920. The purposes of the bureau are “ to formulate standards and policies which shall promote the welfare of wage-earning women, improve their working conditions, increase their efficiency, and advance their opportunities for profitable employment.” In fulfilling these purposes the bureau necessarily engages in many different types of activity, and the close of the past year shows a most encouraging development of interest and support for the work which is being done. Not only have the activities of the bureau increased in type and scope, but the cooperation and interest of the women of the country have developed to a marked degree, with the result that the standards and information constantly formulated and disseminated have been given to a broad field of interested organizations which are increasingly asking guidance in matters relating to the welfare of wage-earning women. Industrial conference. The outstanding activity during the past year was the Women’s Industrial Conference which was called by the chief of the bureau at my request for a three-day session in Washington, January 11, 12, and 13. The object of this conference was to place before the women of the country an outline of the extensive and steadily increasing problems attending the employment of women in industry, and to indicate some of the methods and standards which are being adopted in order to meet these problems. With that end in view, representatives were invited from all women’s organizations, which are national in scope, and from all other national organizations interested in the subject of industry, which include women in their membership. The program of the conference was so planned that important topics of industry and its relation to women should first be presented by experts in each field and the subject then thrown open for discussion. The following topics and speakers comprised the program: REPORT OF THE SECRETARY OF LABOR. 79 Welcome and introductory remarks, Hon. James J. Davis, Secretary of Labor. What Women Workers Mean to Industry, Mr. Charles Cheney, of Cheney Bros., South Manchester, Conn., representing the National Association of Manufacturers, and Miss Mary Gilson, superintendent of employment and service department, the Joseph & Feiss Co., Cleveland. What Industry Means to Women Workers, Miss Mary Van Kleeck, director, department of industrial studies, Russell Sage Foundation, and former director of the Women’s Bureau, United States Department of Labor, and Mrs. Raymond Robins, president of the International Federation of Working Women. Health Standards for Women in Industry, Dr. R. A. Spaeth, associate professor, department of physiology, School of Hygiene and Public Health, Johns Hopkins University. Home Work, Mrs. Florence Kelley, executive secretary National Consumers’ League. Women’s Wages, Mrs. Maud Swartz, president, National Women’s Trade Union League, and Miss Sophonisba P. Breckinridge, dean of women, University of Chicago. Labor Legislation for Women, Miss Melinda Scott, United Textile Workers of America, and Miss Merica E. Hoagland, director mutual service division, Diamond Chain & Manufacturing Co., Indianapolis. The Need for Women to Enforce Women’s Labor Laws, Miss Tracy Copp, special agent, Federal Board for Vocational Education, Miss Agnes Nestor, Vice president, National Glove Workers of America, Mrs. James J. Devitt, chairman of the department of social and industrial relations of the IowTa State Federation of Women’s Clubs and member of the State Board of Education of Iowa, and Miss Mary McDowell, University Settlement, Chicago. The conference was well attended, 326 women from 40 States being registered as delegates. In addition there was a large attendance from interested persons who were not delegates. One result of this conference has been that many groups of women who hitherto had not known of the large number of women in gainful occupations and who had not appreciated the importance or the large significance of the conditions under which women are employed in the industries of this country have received from their delegates to this conference a reliable and understanding outline of the subject. More important still—and perhaps the outstanding achievement of the conference— has been the understanding developed between different groups which formerly acknowledged no common interests; a cementing of the ties of interest and a common purpose between groups whose knowledge of each other and of each other’s work had been only fragmentary and in many cases prejudiced. Investigations. In addition to its broader policy-forming and educational functions, an important part of the work of the Women’s Bureau is the investigations carried on in order to accumulate data illustrating certain aspects and conditions surrounding the employment of women. During the entire period of its existence the bureau has 80 REPORT OF THE SECRETARY OF LABOR. emphasized through its investigational work the collection of data showing general conditions under which women were employed in the various States. During the past year, however, because of the amount of general information secured and because of increases in the appropriation and staff of the bureau, it has been possible to develop the collection of information dealing with special problems in addition to the studies of general conditions. The bureau has made two State investigations of general conditions, which are larger in scope than any before undertaken. These surveys covered wages and hours of women in industry. The outstanding facts secured from the preliminary tabulations of the statistics gathered were as follows: (1) The median earnings of the women for the week for which wage records were secured were approximately $14.50. (2) The median earnings for the women who had worked practically full time (48 hours or more during the week investigated) were approximately $15.25. (3) Scheduled hours of work in both States were considerably in advance of the standard set by law. Special studies. The special studies which the bureau has been able to inaugurate during the past year promise to make definite contributions to the solution of several problems which are engaging the attention of employers, industrial experts and other persons interested in the development of opportunity for wage-earning women. OCCUPATIONAL PROGRESS. As soon as the preliminary figures from the census of 1920, showing the occupational distribution of gainfully employed women, were available a study was made of these figures showing the principal trend of employment for women during the past decade and comparing the present lines of development with those of former decades. Certain of the changes, which were apparent after a careful study of the facts, indicated decided upheavals in the traditions of women’s employment. There was a decrease of 13.6 per cent (344,297) among women engaged in domestic and personal service, an increase of 140.4 per cent (832,892) among women in clerical occupations, an increase of 38.5 per cent (282,607) among women in professional service, an increase of 99.8 per cent (106,429) among women engaged in transportation, and—contrary to general impression—an increase of only 6 per cent (109,771) among women in manufacturing and mechanical pursuits. On the whole, the great change seems to have been in a decrease among women working in or for the home and in personalservice occupations, and a corresponding increase in clerical and allied occupations, in teaching, and in nursing. In studying the REPORT OF THE SECRETARY OF LABOR. 81 figures for manufacturing and mechanical industries it was apparent that women had not gone into absolutely new occupations to any great extent. They had, however, enlarged their field of work by entering in greater number occupations in which formerly they had but scant representation. FAMILY STATUS OF BREADWINNING WOMEN. In a previous annual report mention was made of a study which had been conducted with the cooperation of the Bureau of the Census to discover as far as possible from the census schedules for a selected locality the data which were available to show pertinent social facts regarding breadwinning women. This study has created much interest, not alone for the illustration it offers of the tremendous value of much of the information available in the census schedules and not made public because of limited funds but for the clear-cut picture of the problems of the working women in an industrial community resulting from the correlations made. Because of the significance of the picture thus made available and because of the general demand for information along the same lines for other typical communities, the Women’s Bureau has extended this study to include similar facts for the breadwinning women of Wilkes-Barre, Pa., Butte, Mont., and Jacksonville, Fla. These cities were selected because they are located in different sections of the country, because their industrial activities are representative of certain typical situations, and because their size is not so small as to be unimportant nor so large as to make the handling of the census schedules prohibitive in cost. DOMESTIC SERVICE. Another study which has led into a new field where there is an undoubted need for research and the formulation of standards has been a study of domestic service, based on information secured from the records of the Domestic Efficiency Association of Baltimore. This association, formed for the purpose of putting domestic service on a better and more standardized basis, and trying to get at the causes of the high labor turnover among domestics, to improve the standards in the service, and to effect greater cooperation among employers, requested the Women’s Bureau to examine and analyze its records. This was done, and although no definite or far-reaching recommendations can be made on the basis of so limited a study, it would seem from the facts disclosed that there is urgent need for a careful consideration of this problem by the employers of domestic workers, with a view to standardizing the requirements of the work so that an employee engaged for one position may be reasonably sure of what she is expected to do. The records also showed that 82 REPORT OF THE SECRETARY OF LABOR. domestic work is to a large extent seasonal, which throws an added burden on the employee who is left to shift for herself when families leave town for the summer and houses are closed. The matter of references was found to be a serious handicap in the placement of applicants, for there seems to be no common ground or standard for the judgment of work or personality, and a worker well recommended by one employer may have an entirely contradictory reference from another. A study has been made of the records of the United States Patent Office to show the extent of women’s contributions in the field of invention. This study revealed a surprising variety and extent of inventions patented by women, and showed also that there is a steady increase in the number of patents taken out by women. Of the studies which are at present under way in the bureau and which will not be completed for some months, one of the most important is an investigation to discover the extent and causes of absenteeism among women employed in textile mills. This investigation involves very great problems of technique and interpretation and must be carried on over a considerable period of time if careful and scientific findings are to be achieved. The bureau has received most cordial and helpful cooperation from manufacturers in all parts of the country, and the study has awakened considerable interest among employers and industrial experts. Textile mills have been visited, their records inspected, and their employees interviewed in Alabama, Louisiana, Georgia, South Carolina, Maryland, New Jersey, Connecticut, and Vermont. It is planned to visit other important textile centers within the next few months. From experimental compilations of the data already gathered it seems likely that the findings may comprise also a contribution to the subject of labor turnover. INDUSTRIAL HAZARD. The increase of 110,000 women in manufacturing and mechanical industries during the past decade and the developing there of new fields of employment for them has drawn considerable attention to the accident hazard for women employed in industrial establishments. Unfortunately there has been available only a very limited amount of information on this subject, as in the majority of cases accident statistics have not been compiled separately for the sexes, and even when compiled separately the figures for women have been of little value because of the absence of current figures showing the extent of women’s employment in the various occupations from which dependable accident rates could be computed. The 1920 census has afforded this base of complete figures by occupation and REPORT OF THE SECRETARY OF LABOR. 83 sex, and it seemed therefore that the time was opportune for a careful study of the accident records in certain States in order to see if there were any industries or occupations peculiarly hazardous to women. Such a study is now being made in cooperation with the department of labor of the State of New Jersey. This State has made available to the Women’s Bureau records of all accident cases which come under the scope of the workmen’s compensation law, and the bureau is securing not only the facts as to the number and kind of accidents but also correlations which show the earnings, hours, and living conditions of the women injured, the treatment given them, and their industrial history before and after injury. It is planned to extend this study to include several more States where accident records are complete and comparable. It is hoped that when the material is assembled it will provide a basis for the establishment of very definite standards of protection and care for women employed in hazardous occupations in the industries of the entire country. CANNING AND PRESERVING INDUSTRY. The other studies now in progress are of three distinct types, each representing a special phase of the investigational activities of the Women’s Bureau. A field survey is being made in conjunction with the Children’s Bureau of the department of the conditions under which women and children are employed in the canning and preserving industry in the State of Washington. This study involves an inspection of the living and working conditions of the women and children working in the fields and canneries—picking, packing, and preparing fruits and vegetables. Fish canneries also will be included. The problems of employment in the canning and preserving industry, which is necessarily seasonal, are very acute and difficult to solve, and are complicated by the fact that the labor supply is more or less migratory, and living conditions, with large numbers of employees to be housed by their employer on the ranch or farm, present unusual situations. It is expected that the field work on this survey will be completed by the fall, and it is hoped that before the next season opens a constructive standard may have been developed for the employment of women in these occupations. MINIMUM WAGE LAWS. A research study is being made of the history, operation, and administration of minimum wage laws. This study is being conducted in a few of the States where such laws are in operation and where the records make possible a careful analysis of methods and results. In view of the recent decision of the Supreme Court of the United States declaring unconstitutional the minimum wage law in 84 REPOET OF THE SECRETARY OF LABOR. the District of Columbia, it was felt that the time was ripe for a careful study of those laws which are in operation, so that the experience of the various administrative bodies might be made available for those who are seeking to establish some method of enforcing wage standards for women. HOURS OF WORK. I During the past five years investigations were made of conditions affecting more than 220,000 women in 21 States. But unfortunately it has not been possible to collect the information in the various States at the same time. Accordingly, the data on hours and earnings are spread over a period of four or five years, with the result that for only a few States is comparable material available. Realizing the value of having comparable material for as large a territory as possible, it is intended to bring up to the same date all the information gathered to show hours of work for women in the States where investigations have been conducted. To secure wage figures for one d#te from such a large field would not be possible, but the information on scheduled hours is more easily gathered and may be brought up to date with comparatively little difficulty. Accordingly a form letter was sent to each establishment included in any investigation made. This form letter asked for definite information as to the hours in force on September 15, 1922, and the number of women employed on that date, and also gave the hours and number of employees shown by the record at the time of the investigation. Very complete response was made to these letters and the information received is now being compiled and will be issued in bulletin form, showing not only hours prevailing for a large number of women in many sections of the country, but the changes which have occurred since the date of the original investigations. Research and educational work. As the department has become better known as a source of information regarding industrial problems and conditions, there has been a steadily developing demand on the work of the research service of this bureau. During the past year, in addition to the special study of minimum wage laws already outlined, the research service has kept in touch with current changes in legislation affecting wage-earning women; it has revised and brought up to date the bulletin issued in 1921 showing, through charts and maps, the State laws affecting working women; it has issued a monthly news-letter outlining national and international activities affecting working women; it has compiled a considerable amount of information secured from the census of manufacturers to show the development of the em REPORT OF THE SECRETARY OF LABOR. 85 ployment of women in certain industries and States; and it has maintained what has amounted practically to an information service for those persons and organizations which have come to the bureau with inquiries on many different subjects. The educational work has also developed considerably during the past year and the information gathered has been more widely disseminated. Two new exhibits for general circulation have been prepared. One of these exhibits was planned as an appeal for general recognition of the importance of women in industry and the social significance of their hours of work and their earnings. This exhibit has been used successfully at several large conferences and exhibitions and was especially appreciated at the Women’s Industrial Conference. The other exhibit is a smaller one designed for use by'groups who wish to have a popular presentation of the problems connected with the employment of women in industry. It is in the form of six miniature theaters with the backgrounds showing typical factory conditions and with several figures indicating the application of certain standards. A third exhibit of a different type is now being prepared as the Department of Labor’s contribution to a permanent health exhibit which is being installed in the Smithsonian Museum in Washington. This exhibit represents a model factory 8 feet long and 5 feet high, showing models of men and women at work and illustrating in great detail the equipment and standards necessary for insuring adequate health protection in industrial establishments. Moving pictures. The film “When Women Work” is still a popular form of exhibit and has been used considerably during the past winter, although after three years’ circulation the demand for it is somewhat slackening. Charts and maps showing the occupational distribution of wage-earning women, their hours and earnings, and the various State laws regulating their employment have been prepared and circulated in considerable number. The radio. A new development of the educational work of the bureau has been the broadcasting of short talks by radio once a week from October until June. The talks prepared for this radio service have also been released to the newspapers and the returns have been very satisfactory. News releases on the bulletins and special activities of the bureau have been issued, and preparatory to and during the Women’s Industrial Conference an extensive information service was carried on. 86 REPORT OF THE SECRETARY OF LABOR. Publications. During the year the following bulletins have been published: No. 26. Women in Arkansas Industries. No. 27. The Occupational Progress of Women. No. 28. Women’s Contributions in the Field of Invention. No. 29. Women in Kentucky Industries. No. 30. The Share of Wage-Earning Women in Family Support. No. 31. What Industry Means to Women Workers. Bulletin No. 32, Women in South Carolina Industries, is in press, and the following bulletins will be ready to go to press within a few weeks: Women in Alabama Industries. Women in Missouri Industries. Domestic Service. Proceedings of the Women’s Industrial Conference. Radio Talks on Women in Industry. A preliminary report has been prepared and a final report is now being written on women in New Jersey industries. A preliminary report has been issued and the final tabulations are now being made for the investigation of women in Ohio industries. Tabulations are also under way for the study of women’s hours in 11 States. Preliminary and experimental tabulations are being made of the extent and causes of absenteeism among women employed in textile mills. The coming year. The bureau’s program for the coming year is a very full one. The slight increase in the appropriation, from $100,000 for the fiscal year just ended to $105,000 for the fiscal year beginning July 1, 1923, will not permit of a great enlargement of activities. Nevertheless it is hoped that to a large degree the bureau will be able to meet the requests that have been made for special information, while at the same time carrying on the work which has been started and developing certain new lines of research which seem to be urgently in need of attention. The studies of absenteeism, accidents, and minimum wage laws will be continued. Requests have been made for studies of conditions affecting women in industry in Illinois, North Carolina, Oklahoma, and Indiana. While it does not seem likely that all of these requests can be met it will be practicable to select such of the States as seem to be most urgently in need of assistance and secure the necessary information. It is hoped that further studies based on census records may be undertaken in the near future. A classification of the occupational data secured by the census for foreign-born women, to show the occupational opportunities for women of different nationalities in REPORT OF THE SECRETARY OF LABOR. 87 the various sections of the United States, has been asked for by a group of persons interested in the establishment of a better understanding of American life and opportunity among the foreign-born population of the United States. It seems that information compiled with this end in view would be a definite contribution to the body of facts upon which can be based a satisfactory policy for the education and treatment of the foreign born. A careful examination and selection of census material as it applies to women in industry and the issuance of such material in popular form would also be of considerable value in outlining to the general public the scope and the details of the problem of the employment of women in industry. The great interest which the past year has witnessed in the methods and results of legislation to regulate conditions for women points to the need for an authoritative study and discussion of these matters, and the growing desire for information pertaining to women in industry has emphasized the need for a critical bibliography on this subject. It is hoped that a study of legislation affecting women may be arranged for and that through a cooperative arrangement with the librarian of the department a bibliography may be compiled. PART II. CONCLUSIONS AND RECOMMENDATIONS. Introductory. Civilization is more and more coming to recognize the importance of the man who works in the fabric of social, economic, and political organization. Down through the centuries since the days when all labor was slave labor mankind has struggled toward the principle that work is a God-given privilege,' not a curse, and that the man who works is entitled to the respect and recognition of his fellows. The struggle has been a long one, but to-day it is clear to all humanity that the world depends for its progress, its prosperity, its civilization, its very existence upon the man who produces. Labor has come into its own. America’s 41,000,000 classified under the census as “ gainfully employed ” form the very basis of our national life. It is only through the maintenance of prosperity among the men and women who do the country’s work that we can hope to keep the United States a prosperous, progressive Nation. It is the part of good statecraft and wisdom to endeavor to keep the man who works happy, contented, and adequately compensated for the labor he performs. Of the 41,000,000 gainfully employed, 25,000,000 are so-called wage earners. These, with their dependents, make up the majority of our population. When we see to it that this great group is adequately compensated for the work it performs and that the conditions under which it works are proper we have done much to insure a bigger, better America. It was with this thought in mind that the Congress in its wisdom created the Department of Labor and provided in the law that the purpose of the department shall be “ 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.” This thought has been the guiding spirit of the department throughout the period covered by this report, and its wisdom has been amply demonstrated by the increased prosperity not only of the man and woman who work but of our whole people. Each year we are coming to appreciate more and more the importance of the human factor in our general scheme of political and economic life. We are coming to realize that men, women, and children rather than great economic organizations or sounding political pre 89 90 REPORT OF THE SECRETARY OF LABOR. cepts are the important thing in all of our affairs. The Department of Labor through its various bureaus is essentially the human-service department of the Government. It is the Government’s point of contact with the great bulk of the plain folks who are the real backbone of our national existence. It is in the maintenance of this point of contact and in the improvement of human relationships in America that the department accomplishes its greatest tasks. This has been a great year for the American worker. We in America are inclined to be too self-satisfied, too indifferent to the perils we have avoided, too complacent over the successes we have gained. The United States to-day is one of the very few countries that have escaped the desolation and distress which accompany economic depression. During this year starving workers have thronged the streets of a great European capital crying “ Bread! Bread !” The rifles of police have been called into noisy action as men and women clamored for food with which to feed their dying children. This is but a single incident. Europe to-day numbers its unemployed by the million. Upheaval is everywhere. Industries are in ruins. The United States to-day is enjoying economic peace unequaled in any nation of „the world. Two short years ago, in the depression which followed the Great War, the United States faced economic and political conditions almost identical with those which Europe confronted. There were then between five and six millions of our workers without employment. Industries were closed or closing. Economic authorities predicted industrial panic. We were on the highway to the economic chaos which at present prevails in Europe. Europe continued along the road, but the United States turned the corner, and to-day we have come a long way from those days of economic terror. The American workman everywhere is steadily employed. He is earning wages as high as he was ever paid before. He is working under conditions vastly improved. During the last year we took one great step forward through the elimination of the 12-hour day and the seven-day week in our great basic industry, the steel industry. Much of the credit for this reform which has been sought for two decades by the workers of America must be given to the efforts of the late President, Warren G. Harding, who for more than a year had been pressing the management in the steel industry to put an end to a system of employment which was generally recognized as antiquated and as a hardship to the men who undertook it. It may now be said that we are within sight of the time when no workman in the United States will be forced to labor from sunrise to sunset and that we are within a few years of the day when we shall have realized the hope that each man shall have eight hours for work, eight hours for play, and eight hours for sleep. Truly, American labor has much to be thankful for. REPORT OF THE SECRETARY OF LABOR. 91 But the future lies ever before us, and there is always much to be done. We must see to it that conditions in American industry continue to advance. We can not hope to establish the millenium by legislation or by administrative action, but we can strive with all our power to meet the constantly increasing problems of the man who works with a view to the future, in order that each day may find our people happier and more prosperous and our civilization further advanced. Each day’s experience must be utilized in meeting problems of to-morrow, and each mistake must prove a stepping-stone toward an ultimate right solution. It is with this thought in mind that I am putting forward the recommendations embodied in this report. They are an effort to meet those problems affecting the man who works which lie immediately before us. They seek practical advances toward our ultimate purpose to foster, promote, and develop the welfare of the wage earners of the United States, and to improve their working conditions. We must encourage that spirit of cooperation, that recognition of mutual interest, which is already making great progress among our employers and our workers. We are learning that cooperation in industry is the surest and most feasible road to industrial peace, without which we can have no real prosperity. To-day there are four parties involved in any industrial dispute—labor, ownership, management, and the public. All of these are mutually dependent, and the success of any given industry depends upon its operation along lines which will insure satisfactory returns to all of them. Enormous organizations have grown up in the conduct of modern business in America. The personal relationships between employer and worker which a generation ago insured the recognition of their mutual interests no longer exist. Our problem is either to restore it or to provide some adequate substitute for it. The employer to-day is no longer an individual, but a corporation, representing the property interests of hundreds and often of thousands of individuals. In its relations with its workers and the public which it serves it is represented by the new factor of management. The men who manage the affairs of our great, highly integrated industrial corporations often own but a small fraction of the business. Management is more and more coming to realize that to be successful it must not only seek' the greatest possible profits for ownership but that it must also maintain fair and just relations with the men whose labor makes the industry possible and with the public upon whose patronage the industry depends, and upon whose organized program in the dorm of governmental policies and legislation all must rely for ultimate justice when the other three factors are unable to agree. 71372—23---7 92 REPORT OF THE SECRETARY OF LABOR. There is in every industry a more or less close community of interest between the employer and the worker. It is when this community of interest is clouded by passion in the heat of a dispute that we find employer and worker resorting to the use of force to settle* their differences. That community of interest will operate to adjust any disputes between employer and employee if it can be kept before the representatives of both sides. It is upon this community of interest that we must depend to bring to an end the era of strife in industry and to establish the era of good will. Every industrial, dispute is ultimately settled by negotiation. After both sides have suffered the losses inevitable in such a conflict, after the workers; have been dragged through months of suffering, distress, and in some cases almost actual starvation, the issues are finally adjusted by representatives of both sides seated around the council table. We must by the constant emphasis of the community of interest between the parties and by appealing to the sense of fairness of each side find a way to settle these disputes on the basis of established facts, and in the light of reason and .justice before an appeal to force is made. It is upon this principle that the conciliation service of the department is successful in adjusting about 90 per cent of the disputes which come before it. This service has no arbitary power under the law. It has no authority to lay down the basis of a settlement and force either or both sides to accept it. This service has; done much to demonstrate the wisdom of conciliation and mediation in industrial disputes to both workers and employers in American industry during the 11 years of its existence, and it has been, a large factor in the progress we are now making toward ultimate industrial peace. Section 9 of the act creating the Department of Labor requires; among other things that the Secretary of Labor shall make such special investigations and reports either as the President or the Congress may direct “ or which he himself may deem necessary.”' In pursuance of that requirement I shall in the following pages discuss in some detail the facts and circumstances of certain observations and investigations which I have made and which I regard of serious import to the people of the United States at this time, and in that connection venture to make certain recommendations. AMERICA AND THE ALIEN. One of the prime factors in the molding of civilization since the* days when the first prehistoric man preempted for his dwelling the cave of the bear that he had killed has been the migration of peoples. Throughout the ages, wherever a given race or people has set up a strong, prosperous, comfortable state of life there have flocked the throngs of less advanced races seeking the ease of the: REPORT OF THE SECRETARY OF LABOR. 93 better civilization. There is no instance in all history since the Goths, starving and in danger of extinction by their enemies, succeeded in begging their way into the Roman Empire which does not demonstrate that soon or late the immigrant people overthrows the older civilization. This has not been accomplished by force or by armed invasion. In almost every instance great civilizations have perished through peaceful penetration of aliens who were admitted to do the work of the community. In some cases they drifted in as free labor, many entered as slaves, or as soldiery in the employ of the higher civilization. In every case, however, these migrations have resulted in the overthrow of the higher civilization by the infiltrating aliens. But few of these migrations of the past have been characterized by great movements of population in short periods of time. Only some 200,000 Goths W’ere in the original group which the Emperor Valens accepted as residents of Italy. There has never been in the history of all mankind a movement of peoples of the magnitude of the tide of immigration which has come to the United States during the last century and a half. The importance of the movement of aliens from all parts of the world to the United States has impressed itself more upon the American people in the last two years than at any previous period. This country is the most extensive immigrant-receiving country in the world. During some years we have received more aliens than have all other countries combined. There was no Federal legislation on the subject prior to 1820. Since that year, or in a little over a century, we have received approximately 35,000,000 immigrants, who have come from all parts of the globe. Nearly 10,000,000 of these arrived during the past 15 years. There has been considerable ebb and flow in the tide of immigration in the century since we first began to count the numbers. During the first year following the enactment of the law of 1820, 8,385 arrived. Of these, 6,024 came from the United Kingdom, 968 from Germany, and 475 from other countries of northern and western Europe. Recently I had prepared by the Bureau of Labor Statistics of this department a number of tables and charts concisely and graphically portraying the story of immigration to the United States during the century just past. These tables and charts will be found at pages 126 to 139 of this report. They constitute an interesting study and are worthy of careful perusal. A Century of Immigration. It appears from these compilations that the number of immigrants did not reach 100,000 in any one year until 1842, when 104,565 were 94 REPORT OF THE SECRETARY OF LABOR. received, of whom 99,666 were from northern and western Europe. This number included 73,347 from the United Kingdom, constituting 70.1 per cent of all immigration of that year. The next year (1843) the number dropped to 52,496, but it then increased year by year to 427,833, in 1854. This wave of immigration brought 272,740 from the United Kingdom in 1851 and 215,009 from Germany in 1854. In 1851, 368,565, or 97.2 per cent of all the 379,466 immigrants arriving, came from northern and western Europe, and of these 345,222 were from the United Kingdom and Germany. In 1854, out of the 427,833 immigrants 402,554, or 94.2 per cent, were from northern and western Europe. Immigration for 1855 was less than half of that of 1854, being only 200,877. From 1855 to 1864 the amount of immigration was small, getting down to 91,918 in 1861, of which number 43,472, or 47.3 per cent, came from the United Kingdom and 31,661, or 34.4 per cent, came from Germany. In 1865 another wave of immigration began to roll in which reached a crest of 459,803 in 1873, with 166,844, or 36.3 per cent, coming from the United Kingdom, 149,671, or 32.6 per cent, coming from Germany, and 374,898, or 81.6 per cent, coming from all of northern and western Europe as a whole. The recession of the wave went back to only 138,469 in 1878. This second wave brought in an element up to that time of no numerical importance—the immigration from southern and eastern Europe. Not until 1871 did all of the southern and eastern European countries together furnish as many as 10,000 immigrants in any one year. In 1874 this new class of immigrants numbered 24,584. Another wave of immigration started in 1880 and reached a height of 788,992 in 1882, with 563,213 coming from northern and western Europe and 84,973 coming from southern and eastern Europe. In 1886 immigration dropped to 334,203. In the next seven years, 1887 to 1893, it varied from a little above to a little below 500,000 each year, but changes were taking place in the class of immigrants coming. In 1888 out of 546,889 immigrants 397,123, or 72.6 per cent, were from northern and western Europe, and 141,281, or 25.8 per cent, from southern and eastern Europe. In 1892 out of 579,663 immigrants 300,792, or 51.9 per cent, were from northern and western Europe and 270,084, or 46.6 per cent, from southern and eastern Europe. From 1894 to 1901 immigration was under 500,000 each year. The year 1896 is important, however, in the story of immigration, because in 1896 for the first time southern and eastern Europe furnished more immigrants than northern and western Europe, 195,684 coming in that year from southern and eastern Europe and only 137,522 from northern and western Europe. REPORT OF THE SECRETARY OF LABOR. 95 In 1901 out of 487,918 immigrants the northern and western European immigration was down to 115,728, or 23.7 per cent of the total, while the southern and eastern European immigration numbered 359,291, or 73.6 per cent of the total. Each year from 1896 on southern and eastern Europe has produced more immigration than northern and western Europe, save 1919, when fewer than 25,000 immigrants came from all Europe, and 1923, when the per cent limit act was in effect. In 1902 immigration went above the 500,000 mark and in 1907 it reached the highest point in any year, 1,285,349, of which number 979,661, or 76.2 per cent, were from southern and eastern Europe and 227,958, or only 17.7 per cent, from northern and western Europe. In each of the years 1905, 1906, 1907, 1910, 1913, and 1914 immigration was above 1,000,000 and did not drop below 750,000 in any intervening year. The year 1914 saw the second highest point in immigration, when the number coming was 1,218,480, of which 915,007, or 75.1 per cent, were from southern and eastern Europe and only 165,100, or 13.6 per cent, from northern and western Europe. The World War reduced immigration from Europe to small numbers. The year 1917, however, brought in 105,399 immigrants from British North America and 42,380 from Mexico, Central and South America, and the West Indies. The year 1920 started a new tide of immigration from Europe. The total immigration that year reached 430,001, with 162,595, or 37.7 per cent, from southern and eastern Europe and 88,773, or 20.7 per cent, from northern and western Europe, with the countries of North and South America furnishing nearly all of the remainder. The next year, 1921, brought 805,228 immigrants, including 520,-654, or 64.7 per cent, from southern and eastern Europe, and 143,445, or 17.8 per cent, from northern and western Europe. America, with her five millions of unemployed in 1921, could not stand this oncoming flood of immigrants, which could only swell the number of unemployed, and the 3 per cent limit act was passed, going into effect June 3, 1921. This law, still in effect, applies mainly to Europe but covers also Africa and northern Asia. The oriental countries— China, Japan, India, and others of southeastern Asia—remained as .they were under previous laws and treaties, and no numerical limitation was placed on immigration from our sister countries in America. The per cent limit act restricts the admission of aliens in any year to 3 per cent of the number of foreign-born persons of such nationality residing in the United States, as shown by the census of 1910. In 1922 immigration numbered 309,556, with 138,541, or 44.8 per cent, from southern and eastern Europe and 79,842 from northern 96 REPORT OF THE SECRETARY OF LABOR. and western Europe. The year recently closed, ending with June, 1923, brought 522,919 immigrants, with 156,879, or 30 per cent, from northern and western Europe and 153,224, or 29.3 per cent, from south rn and eastern Europe, 117,011, or 22.4 per cent, from British America, and 82,961, or 15.9 per cent, from the southern American countries, Mexico, Central and South America, and the West Indies. I will not attempt to discuss the economic forces at work in Europe and America which caused these waves of immigration during the century—wars, political changes, economic changes, good times, and hard times. Attention is invited to the racial elements of immigration. The figures quoted apply to the countries from which immigrants came. Broadly speaking, the country of origin indicates the race and also the birth, but there are notable exceptions. The Hebrews are a race without a country, and so for years were the Poles. The race element in immigration has been so important that statistics as to the race of the immigrant were gathered in 1899 and have since been continued. In the 25 years, 1899 to 1923, 16,929,187 immigrants came into the United States, distributed by race groups as follows: Races. Number. Per cent. Northern and western European races, including Canadians....................... Eastern and southern European races, including Hebrews......................... Southern American races........................................................ Oriental races................................................................. Other peoples.................................................................. 4,861,419 11,081,057 500,413 323,592 162,706 28.7 65.5 2.9 1.9 1.0 The races numbering above 300,000 immigrants each in the 25-year period are: Races. Number. Per cent. English................................................................... French..........,•........................................................ German.................................................................... Irish..................................................................... Scandinavian.............................................................. Scotch.................................................................... Croatian an d Slovenian................................................... Greek.................................. ................................ Hebrew.................................................................... Italian...............................................................- - - - Magyar.....................................................-.............. Polish.................................................................... Slovak................................................................ - • Mexican................................................................... 973,720 366,612 1,220,987 766,398 915,330 379,845 481,242 495,211 1, 787,886 3, 761, 777 484,585 1,464,003 .531,388 359,417 5.8 2.2 7.2 4.5 5.4 2.2 2.8 2.9 10.6 22.2’ 2.9 8.6 3.1 2.1 The total in this 25-year period for the four oriental races— Chinese, East Indian, Japanese, and Korean—was 323,592, or 1.9 per cent of all immigration in the period. Summarizing, there have been five fairly well defined waves of immigration. The first, mainly British but also largely German, REPORT OF THE SECRETARY OF LABOR. 97 reached its height in 1851 to 1854. The second wave, with a broad and jagged crest, extended roughly between 1865 and 1875 and was composed mainly of British and German immigration with a little Scandinavian. The third wave, reaching its crest in 1882 but -also high in 1888 and 1892, was composed mainly of British and German immigration, with quite a proportion of Scandinavian, and, for the first time of any importance, of people from Italy, Austria-Hungary, Russia, Poland, and other countries of south and east JEurope. Russia and Poland include many immigrants of the Hebrew race. The fourth wave, also with a broad and ragged crest, •extends roughly from 1903 to 1914, with a few immigrants from northern Europe entirely submerged in the total inflow from Italy, Austria-Hungary, and Russia. The fiscal year ended June 30, 1921, started a fifth wave of immigration that undoubtedly would have been a completely overwhelming flood but for the percentage limit .act of 1921. The classification of an alien as immigrant or emigrant depends •on his declared intent when he enters or leaves the country. That immigrants do not always stay is shown by Table 4. From 1908 to 1923, 9,949,740 immigrant aliens came and 3,498,185 emigrant aliens left the United States, making 35 per cent as many leaving as came in the 16-year period. It should be observed that this period covers pre-war time, war time, and post-war time. The Hebrews, above all other races, come to stay; only 5 per cent .as many left as came. The Chinese occupy the other extreme; 10,914 more left than came. The largest racial group in the table is that of the south Italians. In this group there were 60 per cent as many emigrants as immigrants in the period. The table shows that, as a whole, the northern and western European races come to stay to a far greater extent than do the southern and eastern European races. The number of aliens deported and debarred from 1899 to 1922 is shown in Table 5. The statistics are presented in five tables and five charts. (See Appendix I.) Table 1 shows the immigration each year from 1820 to 1923 by •country of origin. Table 2 shows, by years, from 1820 to 1923, the total immigration, and group totals for northern and western Europe, for southern and ■eastern Europe, and for all other countries combined, together with the percentage of immigrants falling each year within each of these three groups. Table 3 shows, by years, from 1899 to 1923, the immigrants of each a*ace, together with race group totals, following closely the classification used in Table 2. In studying these tables it must be borne in 98 REPORT OF THE SECRETARY OF LABOR. mind that the country of origin—that is, the country from which the-immigrant comes—does not always indicate his race, nor does the race-of the immigrant always indicate the country from which the immigrant comes. Figures are not available earlier than 1899. Table 4 shows by race the immigration and emigration in the-period 1908 to 1923, inclusive. Table 5 gives by race, from 1899 to 1922, the alien immigrants admitted, and shows in comparison the aliens debarred and the aliens deported. The aliens debarred are divided into two groups— those debarred for physical, mental, or moral reasons, and those debarred for all other reasons. Chart 1 is drawn from Table 2 and shows the change year by year from 1820 to 1923 in the total immigration, and the immigration from the two principal regions, northern and western Europe and southern and eastern Europe. In this chart the figures given in Table 2 have been adjusted to show equivalent figures for a full year more or less than a year’s figures appeared in the table, and also adjusted to distribute the immigrants of unknown country of origin under the three known groups in'proportion to the numbers reported for such groups. Chart 2 is drawn from Table .1 and shows the immigration year by year from 1820 to 1923 coming from 10 of the principal countries. In this chart no adjustment has been undertaken to distribute the immigrants of unknown country of origin. Chart 3 shows by years from 1899 to 1923 the extent of immigration of all races combined, and for two groups, the first constituting the people of northern and western European stock and the second the southern and eastern European region. Chart 4 is similar in form to Chart 2. It shows the immigrants, of the 10 principal races coming year by year from 1899 to 1923. Chart 5 illustrates the nativity change in the population of New England during the past half century. The chart shows for Connecticut the growth of the population as a whole between 1870 and 1920, and the percentage of native and foreign born elements in each of the two years. The magnitude of the problem of the alien in America, both as it affects America and as it affects the alien was clearly demonstrated by the reports of the last census. We have a total white population of 94,820,915, of which number 58,421,957 are of native-born parentage. Of the remainder 15,694,539 are of foreign-born parentage, that is, both parents were born abroad; 6,991,665 are of mixed parentage, that is, one parent was born abroad; and 13,712,754 are foreign born. This means that we have 36,398,958 who, in the present or past generation, are or have been linked with a foreign allegiance. The figures are even more striking when we consider our urban popu REPORT OF THE SECRETARY OF LABOR. 99 lation. There are 24,556,729 native-born whites of native parents in our cities. But there are 26,063,355 whites of foreign birth or foreign stock in these cities, and of these 10,356,983 are foreign born. Of our nearly 14,000,000 foreign-born whites less than half are naturalized citizens. Our records indicate that the average alien is in this country 10 years before he assumes the duties and responsibilities of citizenship. The reasons and remedy for this will be taken up later in discussing the alien in America. But fully as important as the quantity of the immigrant body coming to this country in its effect upon the life of America to-day and to-morrow is the quality of the individuals who go to make up this great group in our population. During the past 40 years our laws have made every effort to bar from this, country those who would lower our mental, moral, or physical standard. For the past 20 years the law has denied admission to every diseased person, every imbecile, idiot, feeble-minded person, insane person, criminals, and all of those likely to become public charges. Despite every effort to enforce the law we find an extraordinary representation of these classes in our alien population. A recent survey made for the Committee on Immigration and Naturalization of the House of Representatives covered our jails, almshouses, insane asylums, and other public institutions. The scientist who made the survey investigated State institutions housing the feeble-minded, the insane, the criminal, the epileptic, the inebriate, the chronically diseased, the blind, the deaf, the deformed, the crippled, and the dependent. He found that while the foreign born make up 14.70 per cent of the Nation’s population, they furnish 20.63 per cent of the population of these institutions housing our social inadequates. He calculated that 44.09 per cent of the inmates of these institutions were either foreign born or of foreign stock. In this connection there are also available the intelligence tests applied to our soldiers during the World War which have been worked out to index the intelligence rating of our whole white population, including the foreign born, and of the white foreign born as a separate group. A table showing the result of these tests follows. 100 REPORT OF THE SECRETARY OF LABOR. REPORT OF THE SECRETARY OF LABOR. 101 The figures indicate that we have in America to-day 6,253,016 white aliens, or not much less than half of our foreign-born white population, who are classified as inferior or very inferior in intelligence. Further light on this phase of the alien problem is furnished by the following letter, supplied to me by the Surgeon General of the United States Public Health Service, at my request: Treasury Department, United States Public Health Service, Boston, Mass., October 2, 1923. The Surgeon General United States Public Health Service, Washington, D. C. Sir : I have the honor to acknowledge receipt of bureau telegram of October 2, 1923, requesting data for use by the Secretary of Labor relative to mental disorders occurring among alien and foreign-born persons living in the United States. The rate of mental diseases under care in public institutions has increased during the past 40 years from 81.6 per 100,000 to 220.1 per 100,000 in the general population. This enormous increase in the number of persons requiring care in public institutions has entailed a great outlay of public funds for buildings and equipment and an increased yearly expenditure for their care. The cost of caring for 250,000 insane persons each year is of sufficient magnitude to interest the general public, the taxpayer, the legislator, and the practical administrator who is concerned with an adequate solution of this problem. The enormous increase in the population emigrating from Europe, 40 per cent of which came during the past 20 years and 70 per cent during the past 40 years, has complicated the problem. Statistical studies dealing with the admission of persons to public institutions for the care of mental patients show that a fair proportion of them are foreign born. The rate of mental diseases among foreign-born persons living in the United States and native born of foreign or mixed parentage is higher than the rate for such disorders among native born of native parentage. The corrected rate for the foreign born in 1920 was 74.8 per 100,000; for native of foreign or mixed parentage, 58.6 per 100,000; whereas the rate for native bom of native parentage was 48.5 per 100,000. Studies conducted by the service dealing with the admission over a period of 32 years of persons to public and private licensed institutions for the care of mental patients in the State of New York, show that for each 100 admissions during that period 44.8 were foreign born. The proportion of foreign born for any one year never fell below 25 per cent and was never more than 30 per cent. During recent years the proportion of metal disorders among northern and western Europeans has shown a gradual decline, but they have never been less than 25 per cent. Obviously, the proportion of foreign born from southern and eastern Europe has shown a gradual increase associated with an increase in the population from that source. It is quite significant that one-half of the admissions to State hospitals of New York are foreign-born persons, whereas only one-quarter of the general population are foreign born. Comparing the proportion of foreign-born persons living in the general population and the proportion of foreign born in admission to public institutions, it is found that the greatest number of mental disorders occur in those persons who have lived in the United States 20 years or more. The second 5-year residence seems to be a more crucial period for the occurrence of mental diseases than the first 5-year residence. 102 REPORT OF THE SECRETARY OF LABOR. From the standpoint of racial stocks living in America, some interesting observations have been made by. the service on admissions to public institutions. Mental disorders incident to old age are more prone to develop in the Teutonic and Celtic stocks living in America. The mixed racial stocks in America also rank high in this respect. Mental diseases resulting from syphilis occur in high proportion among the Chinese, the Negro, the Lettie, Finnic, and Chaldaic stocks, the latter including the Jew. The same disorders occur in lower proportion among the so-called Anglo-American stock. The Malayic stock in America is more prone to develop mental disorders associated with Traumatism. The Celtic stock living in America is more prone to develop mental diseases associated with intoxications than any other racial groups. The Irish rank first in disorders due to alcohol, but the Slavonic stock is also high in this respect. The Hellenic and the Chaldaic, including the Jew, show the lowest ratio of intoxication disorders. Malignant mental diseases that are associated with faulty mental adjustment occur much more frequently among those people comprising the new immigration. The analysis of factors productive of situations such as these is an exceedingly important activity leading to the conservation of mental health and the prevention of mental diseases. The situation is probably the result of two factors—the conditions under which the foreign stock are required to live in America and also the character of the individual immigrant who is allowed admission to this country. Under the immigration law individuals with frank mental disorders are excluded from landing. Of greater significance, however, is the inauguration of measures which will exclude those individuals whose doubtful mental equipment does not quite bring them into the class of those subject to deportation under existing law and yet allows them to become either a real or potential danger to the country. These would be excluded through modifications of the immigration laws imposing penalties sufficient to insure as unprofitable the transportation of mentally disordered persons and those doubtful cases who are of greater potential danger to our country’s welfare. Respectfully, Walter L. Treadway, Surgeon, Medical Officer in Charge. Of course, not all of this great group of alien social inadequates which finds its way to our jails and penitentiaries, our insane asylums, and our homes for the feeble-minded conies from legitimate immigration. Perhaps most of it comes through the underground network of devious paths by which aliens are smuggled into this country. We have found them coming by every means of transportation and in every guise. Our thousands of miles of land border and our. vast expanse of coast line, with its myriad harbors, offer wealth of opportunity to the hardy outlaw who, tempted by the vast profit in the traffic, engages to pour the poison of illicit immigration into the life stream of American civilization. The actual number of surreptitious entries is difficult to determine.. It has, however, been conservatively estimated that 100 individuals a day come into the United States in violation of the law, and many well-informed people place the figure at three times that. We find them waiting by the thousand in Cuba for an opportunity to make a dash by motor boat for the coast of Florida. We find them sneak REPORT OF THE SECRETARY OF LABOR. 103 ing over unguarded points on the Mexican border by the hundred and losing themselves in the great Southwest. We find them coming by automobiles, by railroad, and by steamship, by motor boat, and by sailing vessel. We find them running side by side with the illicit traffic in rum and with the vile commerce in outlawed narcotic drugs. There is no means of entering the United States which is not utilized in this illegal traffic. Not long ago 15 young Chinese were found close to starvation and utterly bewildered aboard a sponge-fishing sloop off the port of New York. They had contracted with the captain and crew of the sponger to smuggle them into the United States. In a free-for-all fight with hatchets and revolvers the Chinese had killed off the crew, losing five of their own number in the bloody struggle. Then they calmly sat down to wait, unable to navigate the vessel. They were rescued by a pilot boat. One means of smuggling immigrants is devised as an evasion of the law enacted to protect the rights of American seamen. Under this law a foreign sailor entering an American port and leaving his vessel may remain in the United States 60 -days while he seeks a berth in an outbound ship. It is literally true that there are thousands of so-called foreign seamen in the United States to-day working at any trade but the sea. They simply leave their ships and are lost sight of. Hundreds of them were found not long ago at work in an eastern industrial plant. It is easy for any alien desiring to come to the United States to obtain a berth as a sailor—for a consideration—and to forget that he is a seaman when the vessel reaches this country. The immigration authorities estimate that there are between 2,000 and 3,000 Chinese in the city of New York alone who are in this country illegally and who came as shore-leave seamen. At times the figure has been placed as high as 5,000. With the present immigration law and organization, it is almost impossible to round them up. Even could we get them together, it would cost approximately a million dollars to deport 5,000 people to China. It is plain to me that it would take a border patrol equal to one man to every yard of our thousands of miles of land border and our seacoast to put an end to the smuggling of aliens. If we put all the Army and Navy and every State and municipal police force in the country at the task, I hardly believe we could stop the trade. The system will not work. No one can contend that many desirable aliens come to America surreptitiously. We get few real, upstanding citizens out of the dregs of humanity that crowds itself into the holds of smugglers’ ships—fit company for illicit rum and outlawed drugs. What kind of an American can be made out of the individual whose first experience of America comes through defiance of her laws and evasion 104 REPORT OF THE SECRETARY OF LABOR. of her authority ? He comes through crime and he brings crime with him. He is an outlaw from the day he lands. He has learned that law and order is to be flouted in the United States. An alien code. We are faced by the necessity of providing new legislation covering immigration. The present so-called quota law will expire by limitation at the end of the present fiscal year, and legislation must be provided to extend or replace it. The administration of our present immigration laws and the laws relating to the naturalization of aliens is complicated by the patchwork nature of past legislation. These laws have grown up piecemeal over a century of time and have been enacted under all sorts of varying conditions. The laborer of some races of people is wholly excluded and the representatives of these peoples of classes other than laborers are probably not intended to become permanent residents of the country. All people from certain sections of the Old World are excluded entirely because of geography. It is apparent that the time has come for the complete revision of these laws and for providing a systematic codification of all laws concerning the relations of the United States to the alien within our gates from the time he applies for admission to this country until he either becomes a naturalized citizen, departs the country, or is otherwise dealt with in a permanent way. Our immigration laws, so far as they deal with the admissible races, should be based upon the principle of what is best for the United States, what is responsive to our own needs, and what will contribute most to our national destiny. They should be based upon the principle of selection as to these factors, together with provision for at least a preliminary inspection of the alien who expects to become a permanent resident of this Nation before he undertakes a 3,000-mile journey over land and sea which may ultimately result in his exclusion and all the hardships incident thereto. I therefore strongly recommend to the Congress the early codification of all laws dealing with the alien and the revision of existing laws, with a view of eliminating conflict and inconsistencies and avoiding many of the perplexing and unexpected results which have come out of certain portions of existing law. The quota law. While the per centum limit law, or so-called quota law, has undoubtedly accomplished the general purpose for which it was enacted and has done so with a degree of success which few anticipated, it has nevertheless in its enforcement created many perplexing problems and has brought about conditions which have caused much suffering to innocent aliens in their efforts to enter this country. The unseemly monthly racing between steamships in the hope of REPORT OF THE SECRETARY OF LABOR. IOS entering our ports a few moments after midnight at the beginning of a quota year or a quota month, the awful congestion at ports and immigrant stations, the long delays resultant therefrom in disposing of the cases of individual aliens, and the shipwreck of hopes and ambitions and life’s accumulations when many are turned back solely because they are in excess of quota—all call for remedies. Great problems are created along the two land boundaries as well as the seaboards contiguous thereto, due to the fact that aliens, who are unable to procure vises of their passports because of the danger of exhaustion of quotas seek to gain entry by proceeding to foreign contiguous territory of the United States and islands adjacent thereto. While I strongly advocate, and repeat, that Congress enact a complete code with reference to aliens, and while I hope this may be done, I desire, in the event that such a program can not be accomplished, to recommend the enactment of certain specific amendments to existing law as to some other phases dealing with immigration and naturalization. Specific amendments. The stemming of the tide of immigration under existing conditions when innumerable European aliens are seeking to emigrate to the United States might well be likened to an attempt to dam a rushing stream by placing a barrier across the main channel without strengthening its banks or providing a reservoir for the overflow. Officers in charge of districts contiguous to the two boundaries are constantly calling for an increase in their forces and have represented that important highways of travel in some instances are being left unguarded. With the appropriation available, we have been more or less powerless to meet the situation, but even with an increased force it is doubtful whether smuggling operations could be successfully combated, since the present immigration laws prescribe no penalty for their evasion aside from possible deportation in the event of apprehension. In actual practice it is, of course, impossible to apprehend any considerable number of aliens who have gained unlawful entry, nor has the appropriation available for the enforcement of the immigration laws permitted of doing little more than actually inspecting aliens applying for admission at the various sea and border ports. It is a well-known fact that inducements are held out to European aliens, who have been unsuccessful in obtaining steamship passage to American seaports because of quota restrictions or otherwise, to embark for foreign contiguous territory and islands adjacent thereto upon representations made to them that these routes permit of easy entry to the United States, and unless some means is adopted to dis 106 REPORT OF THE SECRETARY OF LABOR. courage the practice it is probable that the numbers traveling by these routes will continue to increase. It is academic that no prohibitive law can successfully be enforced without a deterrent penalty, and it is a demonstrated fact that possible deportation is not a sufficient deterrent to discourage those who seek to gain entry through other than regular channels. Aside from the sexually immoral and members of the anarchistic and similar classes, there is nothing in the immigration laws which penalizes aliens for reentering the United States unlawfully after they have been deported at considerable expense to the Government. For many years it has been advocated that there be incorporated in the law a penalty for unlawful entry, but perhaps never before has there been greater need for a provision of this kind. I have to suggest, therefore, that the act of February 5, 1917, be amended or that any new legislation relating to immigration which may be passed by Congress contain the following provision or one drawn along similar lines: That any alien who shall enter the United States without having been duly inspected and admitted by an immigration officer or on appeal to the Secretary of Labor, as herein provided for, shall be deemed guilty of a misdemeanor and on conviction thereof shall be punished by imprisonment for a term of not less than sixty days nor more than one year, or by a fine of not more than $500. That any alien who shall, after he has been excluded, or arrested and deported, in pursuance of the provisions of this act, or of any law of the United States, thereafter enter the United States without having been duly admitted in the manner prescribed by this act, or of any other law of the United States, shall be deemed guilty of a misdemeanor, and on conviction thereof shall be punished by a fine of not exceeding $1,000 or by imprisonment for a term not exceeding two years: Provided, That the provisions of this section shall not apply to seamen discharged in pursuit of their calling, but before any such seaman shall be permitted to take up his permanent residence in the United States, or engage in the coastwise trade, it shall be incumbent upon him to report to the nearest immigration office for legalization of his presence in the United States, failing which he shall be subject to the penalty first prescribed in this section. Jurisdiction for the trial and punishment of the misdemeanors herein set forth shall be in any district where an alien may be apprehended or in any district in which violations of the provisions of this section occur. The foregoing is in addition to, and not in substitution for, that portion of section 19 which provides for deportation within three years after the entry of any alien who shall have entered the United States by water at any time or place other than as designated by immigration officials, or by land at any place other than one designated as a port of entry for aliens by the Commissioner General of Immigration, or who enters without inspection. It is somewhat singular that there is no provision in the immigration law for the deportation of an alien seaman who has abandoned his calling and taken up his residence in the United States after REPORT OF THE SECRETARY OF LABOR. 107 having b en admitted to resliip foreign, section 34 merely providing— That any alien seaman who shall land in a port of the United States contrary to the provisions of this act shall be deemed to be unlawfully in the United States, and shall, at any time within three years thereafter, upon the warrant of the Secretary of Labor, be taken into custody and brought before a board of special inquiry for examination as to his qualifications for admission to the United States, and if not admitted said alien seaman shall be deported at the expense of the appropriation for this act as provided in section twenty of this act. There are many practical difficulties connected with the enforcement of the foregoing section inasmuch as it is necessary thereunder to hear all warrant cases in which seamen are involved before a board of special inquiry instead of by a single officer as is the practice where other aliens are concerned. This works greatly to the disadvantage of the service, particularly where alien seamen are arrested in a district where there is only one officer, to say nothing of the added expense of operation. It is, therefore, suggested that section 34 be amended to read as follows: That any alien seaman who shall land in a port of the United States contrary to the provisions of this act or who shall, after he has been admitted for the purpose of reshipping foreign, abandon his calling as a seaman and take up his permanent residence in the United States, or engage in the coastwise trade, shall, at any time within three years thereafter, upon warrant of the Secretary of Labor, be taken into custody and deported at the expense of the appropriation for this act as provided in section twenty thereof. Another practical difficulty in connection with the enforcement of the act of February 5, 1917, as it applies to the deportation of aliens, results from the fact that section 19 makes it incumbent upon the Government to show that an alien is deportable by reason of being comprehended within one of the classes whose deportation is provided for therein. It frequently happens that aliens, upon advice of attorneys and sometimes upon their own initiative, refuse to testify in warrant proceedings, thereby rendering it impossible to show that they have entered within the statutory period, and this is particularly true of aliens serving time in penal institutions. To provide for contingencies of this nature it is recommended that the concluding proviso of section 19 be amended to read as follows: That any person who shall be arrested under the provisions of this section, either under this act or on the ground that he has entered or been found in the United States in violation of any other law thereof, shall have the burden placed on him of proving his right to remain in the United States, and upon failure to establish the existence of such right, shall be deported to the place specified in this act or in such other law. 71372—23-----8 108 REPORT OF THE SECRETARY OF LABOR. There are certain features connected with the naturalization laws, so closely related to the enforcement of the immigration laws that it seems not amiss to invite attention to the fact that the naturalization laws permit of an alien declaring his intention to become a citizen immediately upon entry regardless of the manner in which such entry was obtained, although, of course, he must wait five years' from the date of entry before obtaining his final naturalization certificate. Under the immigration laws, as previously set forth, deportation, where the only existing ground is unlawful entry, can not be-accomplished after the alien has resided for three years or upward in the United States. The department therefore is compelled, more or less as a matter of expediency, to make provision for legalizing the presence in the United States of aliens of this class in order that naturalization may be conferred upon them. If it were provided by law that a declaration of intention certificate would not be issued until the applicant had been shown to be lawfully in the country it would be possible not only to apprehend many deportable aliens within the statutory period but it would, at the same time, enable this service to collect the head tax in cases where the presence of such aliens in the-country is legalized, the solicitor of the department having ruled that head tax can not be collected after the alien has resided three years in the United States, even though unlawful entry was effected. I repeat. In my report rendered a year ago, I called attention in great detail to the necessity for providing proper equipment at the various immigration stations of the country, particularly Ellis Island, Boston, Seattle, and San Francisco. I specifically repeat the recommendations then made. I feel particularly that the Government should construct its own station at Seattle and that the San Francisco station should be moved from Angel Island to the City of San Francisco. In my report of last year, it is pointed out that the cost of overhead of operation alone would be sufficient to build a new and adequate station on the mainland and pay for same in about five years. In my report of last year I also called attention to the need for more thorough medical inspection at the various ports. I can not refrain from repeating that recommendation with emphasis. NATURALIZATION. Another phase of this problem lies in the .naturalization of the-alien after he has been admitted to the United States. We owe a duty to the individual of foreign birth whom we accept as a permanent resident. We owe it to him and to ourselves to see to it that he has an opportunity promptly to qualify himself for citizenship in this country, to learn what America means and what American REPORT OF THE SECRETARY OF LABOR. 109 institutions and principles are, and that the means of formally accepting citizenship after he has qualified are easily available. In this direction our present system can be vastly and fundamentally improved. The naturalization act of June 29, 1906, with its various amendments, and other naturalization acts have been given a test of practically 17 years of administrative supervision by a governmental bureau directly created for that purpose. The present laws, according to experience, have been found to contain many excellent provisions suitable for the purpose of their enactment. There are, however, some provisions which experience has shown to be wholly unsuited to the conditions presented in the naturalization of the millions of foreign-born candidates for citizenship. Such provisions of the law as have been shown to be unnecessary to the maintenance of the sacredness of our citizenship standards, and do not contribute to the purity of our institutions, should be repealed. The provisions of law allowing exemptions to those who do not acquire a domicile ordinarily should be completely changed. This refers to alien sailors, seamen, marines, and soldiers. Among these are members of State militia or national guard, erroneously included by the law in the exempted classes. They manifestly have a domicile and no good reason exists for their inclusion within the shorter period allowed to those who do not ordinarily acquire a domicile. These provisions were enacted during the-World War and to meet the conditions then existing. As these conditions no longer exist, the provisions giving exemptions should be drastically modified without delay. That fraudulent naturalization of aliens has occurred under the provision of law referred to, because of the informalities it permits, emphasizes the necessity for modification at the earliest possible date. There seems to be no good purpose contained in the prohibition of the hearing of petitions for naturalization 30 days preceding election day. Harm is following upon the limitation upon the right of aliens to declare their intention 30 days preceding election days. Both of these limitations should be removed. No petition for naturalization can be heard until it has been filed and posted for over 90 days. Many State laws do not permit a person to vote who has not, as a citizen, resided for at least six months within the State and for. at least 30 days within the voting precinct or ward. No alien can vote in some States until he has been naturalized three months or more. In order for an alien to become a voter at any election he must file his petition for naturalization three or four months prior to election day in order to comply with the 90-day posting requirement. Under the present law this petition must be filed four or five months before election day in order to have the hearing 110 REPORT OF THE SECRETARY OF LABOR. occur at least 30 days prior to election day. The expense to the Government is increased by the interruption of naturalization during October, almost annually, without any material good resulting. Legislative consideration should be given to the often-urged proposal that naturalization be brought entirely within the administrative branch of the Government and the judiciary relieved of the tedium of all naturalization. Much has been said of the lack of dignity, ceremony, and formality in the average naturalization proceeding as now conducted in courts throughout the United States. There can be no greater dignity or solemnity achieved in the proceedings in courts than is at present observed. The relationship of the administrative and judicial branches is not clearly comprehended by those who offer immediate criticism upon witnessing such procedure. Practically every court in the United States places complete confidence in the integrity of the naturalization service as a whole, and without exception the courts accept the report of the examiners who appear for the Government and present the results of the administrative examination into the antecedents of the applicants. In by far the largest number of courts the formal examination alone is made, which demonstrates the question of jurisdiction. The examination made by the representative of the Government is relied upon by the court, and the statement by the representative of the Government in naturalization causes that the Government is satisfied, is followed by the order of admission to citizenship by the judge. In brief, the administrative action is accepted as conclusive in from 95 to 98 per cent of the cases. Under the reorganized administrative procedure no objection is being made by the Government representatives in practically 99 per cent of the petitions heard. The 1 per cent of cases, or less, that will require a judicial interpretation of the law hardly seems to be sufficient to impose the remaining 99 per cent or more of naturalization hearings upon the courts now exercising naturalization jurisdiction. Practically 150,000 petitions are heard annually, and of these probably less than 1,000 will have a question of law to be determined by the courts, or an average of less than one petition in two years by the 2,200 State and Federal courts now exercising naturalization jurisdiction. Legislation is recommended to accomplish the enlargement of the authority of the Commissioner of Naturalization, the increase of the province of the Bureau of Naturalization, and such other amendments to the naturalization law as will authorize the naturalization of aliens throughout the United States by commissioners of naturalization of the Naturalization Bureau with the present direction and control of the Secretary of Labor maintained. The right of appeal should be provided for the alien applicant to the Com REPORT OF THE SECRETARY OF LABOR. Ill missioner of Naturalization or a naturalization commission which should be created, with an appeal to the appellate court of the United States in whose jurisdiction the alien petitioner resides. This will perpetuate the judicial relationship in all cases where necessity exists for judicial determination of any disputed point of law. These commissioners of naturalization should be given the necessary adjudicating powers and constitute a naturalization court to accomplish the purposes of the naturalization law. The dignity which it is so important to surround the solemn act of divesting an old allegiance and assuming allegiance to the new Constitution and country can become a uniform reality only when Congress authorizes an entirely new procedure and one in conformity with the plan generally outlined herein. The many thousands of aliens who come across the international boundaries of the United States illegally can not go unnoticed in their relation to American citizenship. Restrictions to their admission to citizenship should be enacted in no uncertain language by Congress. Such aliens in their first actions toward America commit unlawful acts to secure their unlawful entry into the United States. None of these should be allowed to become citizens of the United States until they have resided here five years after their presence has been disclosed to the naturalization authority. They should be made subject to deportation for the period of not less than five years after unlawful entry or discovery of such unlawful entry. A declaration of intention made by them during that period should be declared invalid. They are now making declarations of intention for a double purpose—not only to secure a foothold here but also to enable them to bring in others under the preference extended by the immigration laws to alien declarants. As the naturalization law is now construed by the majority of the courts, an alien who enters the country unlawfully may declare his intention in the same manner a lawful entrant does, and after the expiration of five years file his petition for naturalization and be admitted to citizenship. This places him upon the same footing as the alien who enters the United States lawfully, so far as the procurement of naturalization is concerned. Some States and communities have for years been supporting-classes solely for adult foreigners out of the proceeds of taxes paid by the citizen taxpayers. Plans by which funds for the public schools may be raised to carry on this most laudable work have been proposed whereby the foreign born will themselves support these classes in the public schools. From among the many plans that have been submitted to Congress it is recommended that a working'plan be devised through which each alien eligible to citizenship may pay into the public-school treasury at the place of his residence a uni 112 REPORT OF THE SECRETARY OF LABOR. form amount, the proceeds of which shall be available for the employment of teachers to teach the foreigners English and citizenship duties and responsibilities; the expense of administering such a law should be included in such legislation. The uniform annual enrollment of all aliens, with a fee to be paid upon each enrollment, seems to be the best practical manner of promoting the welfare of all aliens throughout the United States. We make careful and exacting provisions for the education of our own children and the children of alien parents by virtue of our compulsory education laws. The opportunities, however, offered the adult alien for education in the principles of American free government, American institutions, and American language are inadequate and desultory. The service for education of the alien in Americanism and in the American language should be encouraged by the Federal Government and should be so performed as to enable us to suppress the vicious teachings and propaganda of anarchy and lawlessness among our alien population. We should enact legislation that would enable us to deport the alien who enters in defiance of our laws through illicit and irregular channels or by fraud, deception and stealth, regardless of the number of years that have expired since his entry. Any limitation as to time within which he may be deported should begin with the time of the discovery of the facts of unlawful entry. Most of these unlawful entrants are physically, mentally, or morally subnormal, and many have criminal records. Many do not apply for naturalization because of the fear that it may lead to the discovery of their unlawful entry, their disqualification at entrance either lawful or unlawful, and their records of delinquency in the countries from which they came. Many are of nonnaturalizable races. During the war certain legislation was enacted by the Congress for the purpose of facilitating the naturalization of those then in the military forces. This method of naturalization is unnecessarily simple for peace times. Remedial legislation should therefore be enacted, more appropriate to the normal times. This should include seamen in the American merchant marine as well as those in the military and naval forces. Particular attention should be given to those in the American merchant marine in order to eliminate a most chaotic condition existing in the method of issuing discharges to seamen and a form of discharge prescribed which will prevent the use of letterheads of steamship companies some of which at the date of presentation no longer exist, as now is the custom and practice, as shown by the papers presented to the naturalization examiners by those claiming exemptions extended to seamen from the general provisions of the law. Discharges, or papers purporting to be discharges, are signed now not only by the master or mate of the vessel but by others. REPORT OF THE SECRETARY OF LABOR. 113 Alterations of discharges are of not uncommon occurrence, and when :such papers are presented to the naturalization examiners the issuing officer almost invariably is at some distant port or upon a voyage ■and thereby action which would discontinue such practice is prevented. Nonnaturalizable aliens. Under existing law but two races of people can be naturalized, viz, the Caucasian, or white race, and the African Negro. Generally speaking, our laws not only deny the privilege of naturalization to all -other races of men but also bar as immigrants the people from the lands populated by these other races. Our immigration statutes provide for a barred zone. People living within that zone—which 'covers, roughly, western and southern Asia, with certain described ^exceptions, and some of the Asiatic islands—may not enter the United States for the purpose of becoming permanent residents. We also bar from the privilege of becoming permanent residents or citizens the Chinese and Japanese. Outside of the excepted classes of these countries and races the natives thereof or the peoples of the races inhabiting them may not be admitted to the United States at all. Exceptions for all barred zones and barred races and -countries are made in behalf of government officers, members of learned professions, merchants, travelers for curiosity or pleasure, and in some instances some additional specified classes. Section 3 of the immigration law, describing and defining the barred zone, specifically provides that the exempts of that zone must, while in the United States, maintain their status, and that their wives and minor children must similarly maintain while in the United States a status placing them within the excepted classes, and that failure to maintain such a status shall subject them to deportation. In the case of the Chinese exclusion law and the Japanese gentlemen’s agreement that requirement does not appear, although it would seem that the clear intent of Congress was that the exempts of these countries and races shall maintain their exempt .status and be subject to deportation when that status is lost. By the decisions of courts, however, a different rule now obtains as to the Chinese and Japanese, and as a result great numbers are annually added from the representatives of these races who enter as exempts to the wage-earning population of the United States by virtue of those admitted as exempts becoming wage earners, and their wives and children similarly entering industry as wage earners. Nothing can be more certain from all the legislation on the subject than that it was the intent of Congress and the policy of this Nation for years that only the Caucasian, or white race, and the African Negro coming from foreign lands shall become permanent residents 114 REPORT OF THE SECRETARY OF LABOR. of the Nation and shall ultimately, if qualified, be made citizens, and that all other races shall be barred except the specifically named exempt classes, and that these shall not become permanent residents. It would be a strange doctrine and queer statesmanship that would provide for the presence in the digestive machinery of the body politic of a large lump of indigestible material. Another unexpected result is found in the fact that under the provision of the fourteenth amendment to the Constitution of the United States all people born within the country are citizens, regardless of the race of the parents. This whole subject constitutes a serious problem in our fundamental policy with reference to immigration and with reference to our national destiny as a people. Corrective legislation should be enacted, so far as that may be done under present constitutional provisions, and an amendment to the Constitution probably should be adopted conferring upon Congress the power to determine what is necessary to constitute one a citizen of the United States. I refer to all this again by way of a resume in order more fully to impress upon Congress the necessity for early comprehensible and systematic legislation on the whole subject of the relation of this Government to the alien within our gates and the precious boon of citizenship. Once more I say, let us enact a comprehensive alien code that will make for consistent, humane, and enforceable laws on this important subject. Summary. In brief, I recommend the enactment of an alien code, and suggest as the prime features of it the following: Definite, clean-cut provisions as to citizenship, consistent with our laws on immigration and our national destiny. The exclusion, as permanent residents or immigrants, of all non-naturalizable aliens of all races. The requirement that aliens admitted as exempts under our immigration laws must maintain their exempt status while here, and must when that status is lost either qualify as immigrants under our immigration laws, if of the admissible races and classes, or depart. Selection of immigrants of the admissible races and qualified classes on the basis of our needs as a Nation and economically. Selection and inspection abroad sufficient to avoid the return to the land whence they came of large numbers of prospective immigrants after they arrive at our ports. The annual enrollment of all aliens so long as they remain alien. The deportation promptly of aliens found within the United States in violation of our laws regardless of the length of time they may have been within the United States. REPORT OF THE SECRETARY OF LABOR. 115 The speedy and efficient Americanization of all naturalizable aliens within our gates and the elimination of those who can not be Americanized or naturalized for any reason. I am convinced that an alien code based upon these broad principles and carefully framed would make for better aliens for America and a better America for both aliens and citizens. RAILWAY LABOR BOARD. When the railroads were returned to their owners following Government operation during the war, legislation was enacted hastily for the purpose of facilitating private operation. Title 3, section 300, of the so-called transportation act deals with the labor problem of the transportation lines. Apparently the differences between the management of the railroads and their employees have been increased and complicated rather than diminished by the operation of the machinery provided by section 300 of the law. The practical operation of that plan brings about unreasonable delays in the adjustment of minor disputes and accentuates to the dignity of a contest petty differences with reference to wages and conditions of labor. The machinery has proved unwieldly. It seems to me that some machinery less complicated and less cumbersome should be set up to provide for the equitable and expeditious settlement of these disputes through well-known and oft-used channels in order that our transportation system may function at its highest rate of efficiency in the interests of the country. “TO IMPROVE THEIR WORKING CONDITIONS.” In one direction the activities of the Department of Labor should at once be enlarged and extended. This is toward the accomplishment of that provision of the act creating the department which charges it in its relations with the wage earners of the United States “ to improve their working conditions.” This provision, it seems to me, can only be construed to mean that it is the duty of the department to safeguard the industrial environment of the men, women, and children who labor. At present about all that can be done by the department is to investigate and report on conditions surrounding the worker in any given industry and to recommend the establishment of the proper machinery for alleviating unfavorable conditions. Even in this restricted activity the department is hampered by lack of specific authority and by meager appropriations. In this connection there is at present one outstanding need. That is the need for protecting from industrial accidents the men, women, and children who work. Several years ago an officer of the National Safety Council placed the total number of industrial acci 116 REPORT OF THE SECRETARY OF LABOR. dents annually which caused at least one day’s disability at 3,000,000, of which 23,000 were fatal and 115,000 caused complete or partial permanent disability. He estimated direct loss in the first instance of 50,000,000 days, with a secondary loss of potential earning power of 296,000,000 days. The money loss based on this potential earning power was estimated to be $1,184,000,000. One of the difficulties in dealing with this situation is the inadequacy of industrial accident statistics. Comparatively few States have accurate or complete systems of reporting industrial accidents. About half the States make no such reports. We could do no greater thing toward the improvement of the working conditions surrounding the American employee than to take steps which will end a situation which can cost 23,000 lives a year and which results in the maiming of 115,000 able-bodied workers, with a huge consequent economic loss to the whole country. As a preliminary step I would recommend that the department be authorized to organize a thorough and complete survey of industrial health and accident conditions in order that we might have the necessary facts upon which to base an intelligent, effective program of health conservation and accident prevention in industry. About nine million women and children are toiling in America’s mines, mills, fields, and factories. Toward them we owe a special duty in the improvement of their conditions. It is vital to the future of America that we see to it that they are protected in theirs occupations. We must not permit them to be overworked or to work for wages which force down their standard of living. But above all we must protect their moral life from the evil influences which everywhere menace the woman and child who have been foiced by economic necessity out into the world away from the uplifting influence of home and family life. Upon them ultimately depends the perpetuity of our Nation. No nation which systematically exploits its childhood and womanhood in industry can expect to hold a permanent place in the world’s civilization. It is doomed to destruction. We can not expect women and children ground down beneath the juggernaut of industrial exploitation by the power of greed to furnish strong, virile fathers and mothers for future American citizens. Therefore any steps taken toward the improvement of their working conditions should have especially in view the betterment of the surroundings of women and children in industry. Seasonable employment. In the improvement of working conditions generally there is one American worker who is sadly handicapped. He is the so-called migratory worker—the lumberman, the harvest hand, the cannery employee, the fruit picker. As a class these migratory workers are REPORT OF THE SECRETARY OF LABOR. 117 generally of a high type of citizenship. The bulk of them, so far as can be ascertained, are native-born Americans. They perform a service vitally necessary to the country’s prosperity and they work under the most adverse conditions. On an average their earnings are low. Their days of employment during the year are comparatively few. They must finance themselves through long periods of idleness. The men in the lumber industry and those who work in the harvest fields may be seen when their season of employment is over haunting the slums of our great cities, eking out a precarious existence, undernourished, and sleeping in the cheap lodging house. We might do well to attempt something for their relief. Their number is large, for it is estimated that in harvesting the grain crops alone 400,000 men moved through the wheat and corn belt of the Middle West last fall. It has been suggested that means might be found to insure the employment of these men in some other industry when their season of regular work has ended. At present we are without sufficient facts upon which to deal with this problem properly. Here, too, I would suggest a complete investigation. Much has been done in placing the migratory worker in employment by the United States Employment Service, which has made a special effort to provide harvest hands for the handling of our great Middle West crop. Last year this service placed 140,000 workers on farms in the wheat and corn belt and aided materially in supplying labor for other crops. This service has proved a real success in bringing worker and employer together in almost all of our industries. It cooperates with the States in making employment service free to the worker and the employer, and it has done much to combat the evil of the mercenary private employment agency. Last year it placed 2,156,466 employees out of 2,887,697 applications. It is clear that the service should be encouraged. VOCATIONAL BOARD. By virtue of his office, the Secretary of Labor is also a member of the Federal Board for Vocational Education, and I have the honor to be its elected chairman. A great work has been accomplished by this board, and great opportunities lie before it in the rehabilitation not only of our war heroes but also in the rebuilding of men disabled in our industrial life. This work is worthy of the encouragement and support of Congress and the activities of the board should be broadened and extended as rapidly as possible. WOMEN AND CHILDREN. Child labor. * It is a humiliating fact and crying disgrace to our civilization that we have not so far succeeded in eradicating the employment of 118 REPORT OF THE SECRETARY OF LABOR. children of tender years as wage earners. There is no possible defense for the breaking of our future citizens on the torture wheel of industry before they have had time to become physically, mentally,, and morally fitted to enter the lists of the toilers. Apparently some States are very successfully handling this problem, while others fail utterly to give it any attention. Unless a plan can be devised for uniform legislation by the several States to suppress this evil, an amendment to the Constitution of the United States may be necessary in order to confer authority on Congress to enact legislation calculated to eliminate from our civilization this evil so fraught with danger to our future national life. Federal legislation on this subject should, however, be carefully considered and painstakingly drawn, lest in freeing ourselves of one evil we unknowingly court another. No legislation should be adopted which will in any way interfere with the constantly growing tendency toward the training of our youth during their school years in the useful crafts and trades. We must preserve and extend all that we have of vocational education throughout the country. We- are now making a real start in our effort to get away from a system of education which trains all of our youth for the so-called white-collar occupations—occupations which can only supply 10 per cent of each generation with jobs. We must continue to do all that we can to dignify the work of the craftsman and to eliminate the false notion that work with the hands is menial and degrading.. This phase of our educational problem should not be lost sight of in considering Federal child-labor legislation. The collapse of Federal legislation designed to meet this evil and the return of business prosperity seem to have accentuated the need for action. Available figures seem to indicate an increase in the employment of children. This is shown in a recent analysis of the number of children receiving work permits or employment certificates during the period 1920 to 1923 in some 30 cities prepared by the Children’s Bureau of the department. These cities, because of their size, location, and diversified industries, may be considered fairly representative. It should be borne in mind that certificate figures, do not show the number of children actually employed at any one time, but merely the number presumably intending to go to work. It should be noted, also, that these figures show only the numbers who are going to work legally, and give no indication of the numbers going to work in violation of the law. For this reason an inciease in the number of certificates issued in any particular city may not indicate a corresponding increase, or, in fact, any increase, in the number of children going to work, but may mean, rather, that the certificate provisions of the State child labor law are being more strictly enforced or have been strengthened by new legislation. REPORT OF THE SECRETARY OF LABOR. 119 In spite of their limitations, employment certificate figures do serve to indicate in a general way the trend in the numbers of children going to work during any specified period, and furnish practically the only source of current information on the extent of the gainful employment of children between 14 and 16 years of age. The increase in child labor which occurred during the war years in practically every important industrial and commercial city in the United States and which reached its peak in 1918 began to decline in the late summer of 1920 at the beginning of the recent business and industrial depression. Of 28 cities furnishing statistics on the number of children taking out work permits in 1920 and 1921 only 3—• Washington, New Bedford, and New York—reported an increase in 1921, and in New York alone was the- increase more than negligible. The 37 per cent increase reported for New York may be accounted for, and was in fact so explained at the time, by the fact that during the “ hard times ” of 1921 children who were able to get messenger and errand jobs were sent to work when their parents •could find no employment. The smallest decrease reported—in Passaic—amounted to 20 per cent, and very large decreases occurred in Connecticut and Massachusetts cities which had handled large war contracts and as a consequence had suffered the largest increases in child labor during the war. In Waterbury scarcely more than one-fifth as many children between 14 and 16 years of age received work permits in 1921 as had received them during the preceding year. In Bridgeport there was a decrease of 55 per cent, in Springfield a decrease of 69, and in Somerville of 72 per cent as compared with 1920. Jersey City and Wilmington, which, owing to shipbuilding, munitions, and steel and iron industries, had given work permits to greatly increased numbers of children, reported a decrease in 1921 of 62 and 65 per cent, respectively, as compared with the preceding 12 months. A reduction of approximately one-half or more in the numbers of permits issued was common, being reported for 13 of the 28 cities. With better times in 1922 the number of children taking out their first work permits began to mount. Of 31 cities for which statistics were secured, 20 reported increases and only 11 decreases. In at least six cities—Boston, Bridgeport, Indianapolis, New York City, Somerville, and Yonkers—of the 11 reporting decreases, new childlabor legislation was probably responsible for fewer children going to work than in 1921. Five of the 20 cities showing an increase in the number of certificates issued reported increases of over 100 per cent. These cities—Waterbury, Wilmington, Lowell, Springfield, and Worcester—are all ones which had felt most keenly the industrial slump following the armistice, and had had the largest decline in the employment of children in 1921. New Jersey cities, which 120 REPORT OF THE SECRETARY OF LABOR. likewise had suffered from the business depression beginning in the late summer of 1920, reported an increase in 1922 of approximately 50 per cent over 1921. The increases reported for 1922 were more marked in the latter half of the year. Thus, while the number of children receiving certificates during the first half of the year was larger than in the first half of 1921 in 14 of the 24 cities furnishing monthly statistics, the total increase for all the cities combined amounting to 11 per cent; in 20 of the 24 cities there was an increase during the second half of 1922 over the corresponding period in 1921, the total increase being 47 per cent. Even in New York City, which reported a decline of 53 per cent for the entire year 1922 as compared with 1921, the number of children receiving work permits in the last quarter of the year 1 was 50 per cent greater than in the last quarter of 1921. Especially large increases reported for the latter half of 1922 were in Waterbury (308 per cent), Worcester (221 per cent), Wilmington (181 per cent), Springfield (179 per cent), Louisville (140 per cent), Milwaukee (124 per cent), Fall River (121 per cent), New Haven (111 per cent), and Yonkers (110 per cent). The latest figures indicate still further decreases, generally accounted for by the fact that factories and mills are busy and business is prospering. Of the 24 cities supplying data for the first half of 1923 and also for the corresponding period in 1922, all except Washington reported increases in the numbers of 14- and 15-year-old children taking out permits to go to work. The largest increase was in Waterbury, where almost eight times as many children received employment certificates during the first half of 1923 as during the first six months of 1922. Other Connecticut cities reported increases of from 98 to 178 per cent. In Manchester, Milwaukee, and Louisville from four to five times as many certificates were issued as during the first half of 1922. Other cities reporting strikingly large increases are Springfield (215 per cent), Pittsburgh (127 per cent), San Francisco (85 per cent), Indianapolis (75 per cent), Baltimore (56 per cent), and Philadelphia (51 per cent). For the 24 cities furnishing comparable data the total percentage of increase in the half yeai ]ust completed over the corresponding six months in 1922 is 37 per cent. These figures do not include special permits issued only for vacation employment. From cities where such special permits are required word comes that the number of school children taking a job for the summer months is much larger than usual. Thus, in Philadelphia it is asserted in regard to vacation permits that “ the number of certificates this year is far greater than last”; in Paterson the chief attendance officer is reported as saying that “ judging from Statistics for the second half of 1921 were not secured for New York. REPORT' OF THE SECRETARY OF LABOR. 121 present indications, this year’s total will almost double that of last year ”; and certificating officials in Brooklyn are said to have “ estimated that more school children will be working this summer than at any time during the past 10 years.” Maternity and infancy act. It has been suggested that the benefits of the maternity and infancy act be extended to the island possessions of the United States on the same terms which are now applied to the States. The last available reports show an infant mortality rate (death of infants under 1 year of age per 1,000 live births) of 153 in Porto Rico, of 120 in Hawaii, and while statistics for the Philippine Islands are incomplete they indicate an even higher rate than in either Porto Rico or Hawaii. The rate in the United States birth-registration area in 1922 was 76. Both Porto Rico and Hawaii have officially indicated a desire to* share in the benefits of the act. The Philippines have not officially indicated a desire to share in the benefits of the act, but if the act is extended to the other island possessions the Philippines should be included. This suggestion is worthy of serious consideration. Procedure of Federal courts in children’s cases. I take fhis occasion to repeat the recommendation which I made in my last annual report, that steps be taken to make a clear distinction between delinquent children and adult offenders in the Federal courts. The principles governing juvenile courts have been accepted in almost all the States, but the Federal statutes make no distinction between juvenile and adult offenders. United States courts, Except in the District of Columbia, are still proceeding against little children by the ordinary methods of arrest, detention in jail with adults, indictment by the grand jury, and subsequent discharge or conviction, followed by fine or imprisonment. Modern practice has demonstrated the evil of this system, so apt to turn a child into the paths of law-breaking and to wreck a whole life. Under our present Federal procedure the prosecution of a child of 8 or 10 years of age who mischievously and without real criminal intent violates a Federal statute follows the same lines as the prosecution of the inveterate offender who knowingly and willfully breaks the law. There is a real need for reform in this direction. The Federal Government is far behind the individual States in this matter. Women in industry. The importance of women in our industrial life is constantly increasing, as with it there increases the influence of the gainful employment of our mothers and prospective mothers on the whole social fabric of the Nation. The Women’s Bureau of the department is charged with the duty of formulating policies and standards of employment for women. In order to formulate policies and stand 122 REPORT OF THE SECRETARY OF LABOR. ards which “ shall promote the welfare of wage-earning women, improve their working conditions, increase their efficiency, and advance their opportunities for profitable employment,” these standards and policies must be based on very comprehensive as well as current facts relating to women in industry. In addition it is not only necessary to study all phases of the conditions surrounding women in employment and the wages earned in such employment but it is highly desirable to extend the scope of such studies so as to include certain phases of the conditions surrounding them in their home life, for there is great need to establish definitely the fact that women are in industry not only to support themselves but to contribute to the support of others. The 1920 census gives the number of women 10 years of age and over in gainful occupations as 8,549,511, or 21.1 per cent of the woman population of the country. This means that, roughly speaking, one in every five women is a wage earner. We further find that there were in 1920, 41,614,248 persons in the United States gainfully employed, and that 20.5 per cent of these were women. However, it is not only their importance in numbers but the special problems of their employment, on one hand, and of their family life and the welfare of their children, on the other hand, which necessitates provision by the Federal Government of a clearing house of facts and policies relating to women’s position in industry. The majority are potential mothers, but many are already both mothers and wage earners. Hence the fact that “America can only be as strong as her women ” makes it of paramount importance that adequate provision be made for the scientific investigation of the conditions surrounding the employment of women in such vast numbers in certain industries and occupations. It is urgently important that the basic and current facts as to women’s earnings and their social and economic significance should be made available by an unbiased agency, so that general policies can be established. In other fields questioning has arisen as to the whole theory of special legislation and protection for women. Women all over the country are asking these questions, and they are looking to this department for facts upon which they can depend. The Women’s Industrial Conference held in January, 1923, was a tangible evidence of the general interest of women in industrial subjects. This interest has been developed greatly during the years since the war until it has become one of the leading questions before almost every organization of women in the country. If the Women’s Bureau is to fulfill in even small measure the functions outlined in its creative act, it must be enabled to extend its work so that it can give the comprehensive and REPORT OF THE SECRETARY OF LABOR. 123 diverse information which it was created as a Government bureau to collect. The demands for special studies and for information on all phases of the work of the bureau have far exceeded the capacity of the organization. State departments of labor, associations of employers and workers, national, international, and State organizations of women, research bureaus, colleges and universities, and the public in general repeatedly turn to this department for information and data pertaining to the occupational progress of women wage earners and their economic and social status. The department is constantly asked questions about women wage earners which by every right it should be able to answer but can not, as the information is not available. The .following may be cited as examples: How many married women in the United States work outside the home? How many married women working outside the home have young children at home? How many married women work outside the home to support sick husbands? How many widows in industry have young children at home? To what extent does employment of married women affect the wages of unmarried women? What effect has legislation regulating hours Qf employment of women on their chances to advance to positions in management? Have minimum wage laws affected the opportunities for employment of women? In States having minimum wage legislation has the standard of wages been brought to the level of the minimum? How many women in the United States work an 8-hour day schedule? How many women work more than an 8-hour day schedule? How many establishments operate on an 8-hour schedule? How many women work at night? Although studies of some of these questions would be too expensive to consider at this time, we should be in position to furnish much of this information. APPENDIXES. Attention is invited to three appendixes hereto, including the act creating the Department of Labor, copy of a letter I wrote to President Harding on the subject of immigration, and statistical data and charts telling the story of a century of immigration in the United States. I call particular attention to the two last mentioned as worthy of very thorough and careful consideration by Congress in connection with the legislative program dealing with practically all phases of the Department of Labor. James J. Davis, Secretary of Labor. Washington, D. C., October 7, 1923. 71372—23----9 ■ ■ APPENDIXES Appendix 1.—A CENTURY OF IMMIGRATION—STATISTICS AND CHARTS Appendix IL—LETTER TO THE PRESIDENT OF THE IMMIGRATION PROBLEM Appendix III.—ACT CREATING THE DEPARTMENT OF LABOR 125 APPENDIX I. TABLE 1 .^-IMMIGRATION TO THE UNITED STATES, 1820 TO 1923, BY COUNTRIES OF ORIGIN. [Figures for 1820 to 1910 are from Report of Immigration Commission, vol. 1, p- 66, and for 1911 to 1923 from reports of the Commissioner G eneral of Immigration. For 1820 to 1867 the figures 'are for alien passengers arriving, for 1868 to 1903 for immigrants arriving, for 1904 to 1906 for aliens admitted, and for 1907 to 1923 for immigrant aliens admitted. In using these figures allowance should he made for “Countries not specified.” From 1820 to 1868, the figures for Norway and Sweden are combined. From 1886 to 1891 the figures for British North America include only the Bermudas and British Honduras, no records for other British North American possessions being given. From 1899 to 1919, Poland is included under Austria-Hungary, German Empire, and Russian Empire. In 1906 under “Countries not specified” the figures include 32,897 persons returning to their homes in the United States. This year was the first in which persons entering the United States were recorded by country of last permanent residence instead of country whence they came, and since this year persons reporting their residence as the United States have not been included in immigration statistics. Southern America includes Central America, Mexico, South America, and the West Indies. From 1920 to 1923 the number reported by the Bureau of Immigration for Czechoslovakia and 60 per cent of the number for Yugoslavia have been included with Austria and Hungary. The remaining 40 per cent of Yugoslavia has been included with Bulgaria. Servia, and Montenegro. The figures for 1920 to 1923 for Poland have been allowed to stand as reported by the Bureau of Immigration. Were the numbers for Poland distributed according to pre-war political lines, approximately 60 per cent would be included with Russia, 33 per cent with Austria-Hungary, and 7 per cent with Germany. Because of changes in boundary lines through the century as well as in the character of the orignal data, the figures of this table must be accepted as fairly indicative rather than as exactly accurate.] N orthern and western Europe. Year ending— United Kingdom. France. Netherlands. German Empire. Denmark. Norway. Sweden. Switzerland. Belgium. Other northern and western Europe. Total. Sept. 30, 1820 6,024 371 49 968 20 3 31 1 7,467 Sept. 30, 1821 4,728 370 56 383 12 12 93 2 5,656 Sept. 30, 1822 3,488 351 51 148 18 10 110 10 4,186 Sept. 30, 1823 3,008 460 19 183 6 1 47 2 3,726 Sept. 30, 1824 3,609 377 40 230 11 9 253 1 4,530 Sept. 30, 1825 6,983 515 37 450 14 4 166 1 8,170 Sept. 30, 1826 7,727 545 176 511 10 16 245 2 9,232 Sept. 30, 1827 13,952 1,280 245 432 15 13 297 7 16,241 Sept. 30, 1828 17,840 2,843 263 1,851 50 10 1,592 2 24,451 Sept. 30, 1829 10,594 582 169 597 17 13 314 12,286 Sept. 30, 1830 3,874 1,174 22 1,976 16 3 109 7,174 Sept. 30, 1831 8,247 2,038 175 2,413 23 13 63 1 12,973 Dec. 31, 1832 * 17,767 5,361 205 10,194 21 313 129 33,990 Dec. 31, 1833 13,564 4,682 39 6,988 173 16 634 26,096 Dec. 31,1834 34,964 2, 989 87 17,686 24 42 1,389 3 57,184 Dec. 31, 1835 29,897 2,696 124 8,311 37 31 548 1 41,645 Dec. 31, 1836 43,684 4,443 301 20,707 416 57 445 70,053 Dec. 31, 1837 40, 726 5,074 312 23,740 109 290 383 70,634 Dec. 31, 1838 18,065 3,675 27 11,683 52 60 123 14 33,699 Dec. 31, 1839 34,234 7,198 85 21,028 56 324 607 1 63,533 Dec. 31,1840 42,043 7,419 57 29,704 152 55 500 2 79,932 Dec. 31,1841 53,960 5,006 214 15,291 31 195 751 106 75,554 Dec. 31, 1842 73,347 4,504 330 20,370 35 553 483 44 99,666 Sept. 30, 1843 8.... 28,100 3,346 330 14,441 29 1,748 553 135 48,682 Sept. 30, 1844 47,843 3,155 184 20,731 25 1,311 839 165 74,253 Sept. 30, 1845 64,031 7,663 791 34,355 54 928 471 541 108,834 Sept. 30, 1846 73,932 10,583 979 57,561 114 1,916 698 43 145,826 Sept. 30, 1847 128,838 20,040 2,631 74,281 13 1,307 192 1,473 228,775 Sept. 30, 1848 148,093 7,743 918 58,465 210 903 319 897 217,548 Sept. 30, 1849 214,530 5,841 1,190 60,235 8 3,473 13 590 285,880 Dec. 31, 18501 215,089 9,381 684 78,896 20 1,569 325 1,080 307,044 Dec. 31,1851 272,740 20,126 352 72,482 14 2,424 4,103 427 368,565 Dec. 31,1852 200,247 6,763 10,770 1,719 145,918 3 2,788 8 361,549 Dec. 31, 1853 200,225 600 141,946 32 3,361 2,748 87 359,772 Dec. 31, 1854 160,253 13,317 1,534 215,009 691 3,531 7,953 266 402,554 Dec. 31, 1855 97,199 6,044 2,588 71,918 528 821 4,433 1,506 185,037 Dec. 31, 1856 99,007 7,246 1,395 71,028 173 1,157 1,780 1,982 183,768 Dec. 31, 1857 112,840 2,397 1,775 91,781 1,035 1,712 2,080 627 214,217 Dec. 31, 1858 55,829 3,155 2,579 185 45,310 232 2,430 1,056 184 108,381 Dec. 31, 1859 61,379 290 41,784 499 1,091 833 25 108,480 Dec. 31, 1860 78,374 3,961 351 54,491 542 298 913 53 138,983 Dec. 31,1861 43,472 2,326 283 31,661 234 616 1,007 153 79,752 Dec. 31, 1862 47,990 3,142 432 27,529 1,658 892 643 169 82,455 Deo. 31,1863 122,798 1,838 416 33,162 1,492 1,627 690 301 162,324 Dec. 31, 1864...... 116,951 3,128 708 57.276 712 2,249 1,396 389 182.809 Dec. 31, 1865 112,237 3,583 779 83,424 1,149 6,109 2,889 741 210,911 Dec. 31, 1866 131,614 6,855 1,716 115,892 1,862 12,633 3,823 1,254 275,649 Dec. 31, 1867 125,520 5,237 2,223 133,426 1,436 7,055 4,168 789 279,854 June 30, 1868 4.... 56,195 1,989 345 55,831 819 11,166 1,945 14 128,304 June 30, 1869 125,221 3,879 1,134 131,042 3,649 16,068 21,224 3,650 1,922 310,792 June 30, 1870 160,673 4,009 1,066 118,225 4,083 13,216 13,443 3,075 1,002 318,792 June 30, 1871 142,894 3,138 993 82,554 2,015 9,418 10,699 2,269 774 1 254,755 June 30, 1872 153,644 9,317 1,909 141,109 3,690 11,421 13,464 3,650 738 15 338,957 June 30, 1873 166,844 14,798 3,811 149,671 4,931 16,247 14,303 3,107 1,176 10 374,898 June 30, 1874 115,728 9,644 2,444 87,291 3,082 10,384 5,712 3,093 817 10 238,205 June 30, 1875 85,862 8,321 1,237 47,769 2,656 6,093 5,573 1,814 615 159 160,099 June 30,1876 48,866 8,004 855 31,937 1,547 5,173 5,603 1,549 515 28 104,077 June 30, 1877 38,150 5,856 591 29,298 1,695 4,588 4,991 1,686 488 45 87,388 June 30,1878 38,082 4,159 608 29,313 2,105 4,759 5,390 1.808 354 111 86,689 June 30, 1879 49,968 4,655 753 34,602 3,474 7.345 11,001 3,161 512 211 115,682 June 30, 1880 144,876 4,314 3,340 84,638 6,576 19,895 39,186 6,156 1,232 411 310,624 June 30, 1881 153,718 5,227 8,597 210,485 9,117 22,705 49,760 11,293 1,766 1,431 66 472,734 Juno 30, 1882 179,423 6,004 9,517 250,630 11,618 29,101 64,607 10,844 38 563,213 June 30, 1883 158,092 4,821 5,249 194,786 10,319 23,398 38,277 12,751 1,450 36 449,179 June 30, 1884 129,294 3,608 4,198 179,676 9,202 16,974 26,552 9,386 1,576 262 380,728 June 30, 1885 109,508 3,495 2,689 124,443 6,100 12,356 22,248 5,895 1,653 15 288,402 June 30, 1886 112,548 3,318 2,314 84,403 6,225 12,759 27,751 4,805 1,300 60 255,483 June 30, 1887 161,748 5,034 4,506 106,865 8,524 16,269 42,836 5,214 2,553 139 353,688 June 30, 1888 182,205 6,454 5,845 109,717 8,962 18,264 54,698 7,737 3,215 26 397,123 June 30, 1889 153,549 5,918 6,460 99,538 8,699 13,390 35,415 7,070 2,662 17 332,618 June 30, 1890 122,754 6,585 4,326 92,427 9,366 11,370 29,632 6,993 2,671 23 286,147 June 30,1891 122,311 6,770 5,206 113,554 10,659 12,568 36,880 6,811 3,037 38 317,834 June 30, 1892 93,598 4,678 6,141 119,168 10,125 14,325 41,845 6,886 4,026 300,792 June 30, 1893 78,767 3,621 6,199 78,756 7,720 15,515 35,710 4,744 3,324 234,356 June 30,1894 52,751 3,080 1,820 53,989 5,003 9,111 18,286 2,905 1,709 60 148,714 June 30,1895 75,137 2,628 1,388 32,173 3,910 7,581 15,361 2,239 1,058 24 141,499 June 30, 1896 64,827 2,463 1,583 31,885 3,167 8,855 21,177 2,304 1,261 137,522 June 30, 1897 41,173 2,107 890 22,533 2,085 5,842 13,162 1,566 760 90,118 June 30, 1898 38,022 1,990 767 17, 111 1,946 4,938 12,398 1,246 695 79,113 June 30,1899 45,129 1,694 1,029 17,476 2,690 6,705 12,797 1,326 1,101 89,947 June 30, 1900 48,239 1,739 1,735 18,507 2,926 9,575 18,650 1,152 1,196 103,719 June 30,1901 45,564 3,150 2,349 21,651 3,655 12,248 23,331 2,201 1,579 115,728 June 30, 1902 46,073 3,117 2,284 28,304 5,660 17,484 30,894 2,344 2,577 138,737 June 30, 1903 68,952 5,578 3,998 40,086 7,158 24,461 46,028 3,983 3,450 203,694 June 30, 1904 87,590 9,406 4,916 46,380 8,525 23,808 27,763 5,023 3,976 143 217,530 June 30, 1905 137,134 10,168 4,954 40,574 8,970 25,064 26,591 4,269 5,302 13 263,039 June 30,1906 102,193 9,386 4,946 37,564 7,741 21,730 23,310 3,846 5,099 48 215,863 June 30,1907 113,567 9,731 6,637 37,807 7,243 22,133 20,589 3,748 6,396 107 227,958 June 30,1908 93,380 8,788 5,946. 32,309 4,954 12,412 12,809 3,281 4,162 97 178,138 June 30, 1909 71,826 6,672 4,698 25,540 4,395 13,627 14,474 2,694 3,692 46 147,664 June 30,1910 98,796 7,383 7,534 31,283 6,984 17,538 23,745 3,533 5,402 151 202,349 June 30,1911 102,496 8,022 8,358 32,061 7,555 13,950 20,780 3,458 5,711 377 202,768 June 30,1912 83,027 8,628 6,619 27,788 6,191 8,675 12,688 3,505 < 169 243 161,533 June 30,1913 88,204 9,675 6,902 34,329 6,478 8,587 17,202 4,104 7,405 371 183,257 June 30,1914 73,417 9,296 6,321 35,734 6,262 8,329 14,800 4,211 5; 763 967 165,100 June 30,1915 41,422 4,811 3,144 7,799 3,312 7,986 6,585 1,742 2,399 1,180 80,380 June 30,1916 24,702 4,156 2,910 2,877 3,322 5,191 6,248 663 986 ■ 1,717 52,772 June 30,1917 16,141 3,187 2,235 1,857 2,744 4,659 6,368 911 398 1,463 39,963 June 30,1918 2,847 1,798 944 447 1,630 2,578 2,298 331 73 42 12,988 June 30,1919 7,271 3,379 1,098 52 1,352 1,995 2,243 381 268 16 18,055 June 30, 1920 48,062 8,945 5,187 1,001 3,137 4,445 5,862 3,785 6,574 1,735 88,733 June 30,1921 79,577 9,552 6,493 6,803 6,260 7,423 9,171 7,106 6,166 4,894 143,445 June 30,1922 35,732 4,220 1,990 17,931 2,709 5,292 6,624 3.398 1,541 405 79,842 June 30,1923 61,499 4,380 3,150 48,277 4,523 11,745 17,916 3,349 1,590 450 156,879 Total 8,430,777 550,917 231,294 5,568,702 313,528 756,044 1,149,950 274,345 146,839 16,270 17,438,616 Eastern and southern Europe. British Other Coun- Southern America. Italy. Spain. Portugal. Austria-Hungary. Russian Empire and Finland. Poland. Bulgaria, Serbia, and Monte- Greece. Rumania. Turkey in Europe. Turkey in Asia. Total. North American possessions. China. Japan. India. specified countries. tries not specified. Grand total. negro. 30 139 35 14 5 1 224 209 178 1 1 4 301 8,385 63 191 18 7 1 280 184 119 2 2,886 9,127 35 152 28 10 3 4 232 204 174 1 2,114 6,911 33 220 24 7 3 2 1 290 167 215 1,956 6,354 45 359 13 7 4 5 2 43b 155 404 1 2,387 7,912 75 2/3 13 10 1 1 373 314 532 1 1 808 10,199 57 436 16 4 4 2 519 223 608 1 254 10,837 35 414 7 19 1 1 1 478 165 415 1 4 1,571 18,875 34 209 14 7 1 7 6 278 267 1,823 3 6 554 27,382 23 202 9 1 1 1 237 409 2,890 1 1 1 6,695 22,352 9 21 3 3 2 3 2 43 189 2,107 2 13,807 23, 220 28 37 1 66 176 2,018 1 2 7,397 22,633 3 106 5 52 34 1 1 203 608 2,263 4 2 412 60, 482 1,699 516 633 159 1 1 1 3,015 1,194 2,088 3 1 26,243 58,640 105 107 44 15 54 1 326 1,020 1,759 6 1 5,069 65,365 60 183 29 9 54 7 342 1,193 2,119 8 8 15 44 45,374 115 180 29 2 53 28 3 1 412 2^ 814 2,122 4 6 831 76,242 36 230 34 19 81 5 405 1,279 2,349 11 2 4,660 79,340 86 202 24 13 41 4 1 371 1,476 1,514 1 10 1,843 38,91-1 84 428 19 7 46 1 1 615 1,926 1,691 10 294 68,069 37 136 12 5 3 1 194 1,938 1,877 1 6 118 84,066 179 215 7 174 15 6 ’662 1,816 1,613 2 1 14 627 80,289 100 122 15 28 10 1 2 ’ 279 2,078 1,916 4 2 4 616 104,565 117 145 32 6 17 4 5 1 331 1,502 1,352 3 2 12 612 52,496 141 270 16 13 36 3 10 ’ 492 2,711 1,029 3 1 16 110 78,615 137 304 14 1 6 2 3 467 3,195 1,840 6 4 25 114,371 151 73 2 248 4 3 4 ’ 489 3,855 1,670 7 4 1 2,564 154,416 164 158 5 5 8 2 342 3,827 1,404 4 8 608 234,968 241 164 67 1 1 3 477 6,473 1,516 6 12 495 220,527 209 329 26 44 4 9 621 6,890 2^ 014 3 8 3 1,605 297,024 431 429 366 31 5 2 15 1,2/9 9,376 6,392 3 4 45,882 369,980 447 435 50 1 10 2 ......... 945 7,438 2,265 2 3 248 379,466 351 391 68 2 110 10 3 935 6,352 1,343 4 1,420 371,603 555 1,091 95 3 33 12 15 1,804 5,424 606 42 5 8 984 368,645 1,263 1,433 72 2 208 1 7 ’ 2,988 6,891 1,642 13,100 658 427,833 1,052 951 205 13 462 9 2,692 7,761 1,499 3,526 6 22 334 200,877 1,365 786 128 9 20 2 5 2,315 6,493 2,565 4,733 13 7 542 200,436 1,007 714 92 25 124 4 11 1,9/I 5,670 1,141 5,944 1 25 22,301 251,306 1,240 1,282 177 246 9 17 1 2,973 4,603 1,218 5,128 5 17 801 123,126 932 1,283 46 91 106 1 10 2,469 4,163 1,303 3,457 2 13 1,395 121,282 1,019 932 122 65 82 1 4 1 2,226 4,514 1,829 5,467 5 130 486 153,640 811 448 47 51 34 48 1 5 ’1,448 2,069 694 7,518 1 6 50 380 91,918 566 348 72 111 79 63 5 11 1,255 3,275 900 3,633 5 14 448 91,985 547 500 86 85 77 94 4 16 1,409 3,464 683 7,214 1 4 1,183 176,282 600 917 240 230 256 165 5 11 2,424 3,636 971 2,975 6 38 559 193,418 924 692 365 422 183 528 7 14 ’ 3,137 21,586 1,192 2,942 5 49 8,298 248,120 1,382 718 344 93 287 412 10 18 ’ 3,267 32,150 1,432 2,385 7 17 35 3,626 318,568 1,624 904 126 692 205 310 10 26 3,897 23,379 1,336 3,863 67 2 54 3,270 315,722 891 384 174 192 141 4 1,786 2,785 630 5,157 17 161 138,840 1,489 1.123 507 1,499 343 184 8 18 2 5,173 21,120 2,647 12,874 63 3 79 17 352,768 2,891 663 697 4,425 907 223 22 6 9,834 40,414 2,244 15,740 48 24 80 27 387,203 2,816 558 887 4,887 673 535 11 23 4 10,394 47,164 1,671 7,135 78 14 54 85 321,350 4,190 595 1,306 4,410 7,112 1,018 1,647 12 20 13,198 40,204 2,001 7,788 17 12 2,465 164 404,806 8,757 541 1,185 1,634 3,338 23 53 3 22,646 37,891 2,444 20,292 9 15 1,448 160 459,803 7,666 485 1,611 8,850 4,073 1,795 36 62 6 24,584 33,020 2,319 13,776 21 17 1,269 128 313,339 3,631 601 1,939 7,658 7,997 984 25 27 1 22,863 24,097 2,543 16,437 3 19 1,361 76 227,498 3,015 518 1,277 6,276 4,775 925 19 38 8 16,851 22,505 2,181 22,781 4 25 1,526 36 169,986 3,195 665 2,363 5,396 6,599 533 24 32 3 18,810 22,137 1,928 10,594 7 17 949 27 141,857 4 344 5,791 457 1,332 5,150 3,048 547 16 29 7 14,930 25,592 1,612 8,992 2 8 629 15 138,469 457 1,374 5,963 4,453 489 21 29 31 18,608 31,286 1,757 9,604 4 15 834 36 177,826 12,354 389 808 17,267 5,014 2,177 23 11 24 4 38,071 99,744 1,948 5,802 4 21 980 63 457,257 15,401 484 1,215 27,935 5,041 5,614 19 30 72 5 55,816 125,450 2,127 11,890 11 33 1,267 103 669,431 32,159 378 1,436 29,150 16,918 4,672 126 65 69 84,973 98,366 1,763 39,579 5 10 984 99 788,992 31,792 262 1,573 27,625 9,909 2,011 73 77 86 73,408 70,274 1,455 8,031 27 9 860 79 603,322 16,510 300 1,927 2,024 36,571 12,689 4,536 37 238 150 72,958 60,626 2,713 279 20 12 1,158 98 518,592 13,642 350 27,309 17,158 3,085 172 803 138 64,681 38,336 2,867 22 49 34 884 71 395,346 21,315 344 1,194 28,680 17,800 3,939 104 494 176 15 74,061 17 3,009 40 194 17 1,309 73 334,203 47,622 436 1,360 40,265 30,766 6,128 313 2,045 206 208 129,349 9 5,261 10 229 32 1,4.58 73 490,109 51,558 526 1,625 45, 811 33,487 5,826 782 1,186 207 273 141,281 15 5,387 26 404 20 2,572 61 546,889 25,307 52,003 526 2,024 34,174 33,916 35,598 4 922 158 893 252 593 102,765 28 5,431 118 640 59 2,698 70 444,427 813 2,600 56,199 11,073 524 517 206 1,126 160,659 183 3,650 1,716 691 43 2,151 62 455' 302 76,055 905 2,999 71,042 47,426 27,497 1,105 .957 265 2,488 230,739 234 4,848 2,836 1,136 42 2,580 70 560,319 61,631 4,078 3,400 76,937 81,511 40,536 660 1,331 270,084 267 8,520 579,663 Z2, 14b 206 4,816 57,420 42,310 16,374 1,072 729 625 194,968 2,593 472 1,380 788 5,173 439,730 42,977 925 2,196 38,638 39,278 1,941 1,356 298 128,338 194 3,357 1,170 1,931 1,857 70 285,631 35,427 501 1,452 33,401 35,907 790 597 523 245 2,767 111,610 244 3,264 539 1,150 230 258,536 68,060 351 2,766 65,103 51,445 691 2,175 785 169 4,139 195,684 278 7,025 1,441 1,110 207 343,267 59,431 448 1,874 33,031 25,816 4,165 571 791 152 4,732 131,011 291 4,246 3,363 1,526 277 230,832 58,613 577 1,717 39,797 29,828 4,726 2,339 900 176 4,275 142,948 352 2,275 2,071 2,230 310 229,299 7 /, 419 385 2,054 62,491 60,982 52 2,333 1,606 80 4,436 211,838 1,322 2,994 1,660 2,844 17 876 217 311,715 100,135 355 4,234 114,847 90,787 108 3,771 6,459 285 3,962 324,943 396 5,059 1,247 12,635 9 551 13 448,572 135,996 592 4,165 113,390 85,257 657 5,910 7,155 387 5,782 359,291 560 3,856 2,459 5,269 22 732 1 487,918 178,375 975 5,307 171,989 107,347 851 8,104 7,196 187 6,223 486,554 687 6,011 1,649 14,270 93 639 103 648,743 230,622 2,080 9,317 206,011 136,093 1,761 14,090 9,310 1,529 7,118 617,931 1,139 9,884 2,209 19,968 94 2,102 25 857,046 193,296 3,996 6,715 177,156 145,141 1,325 11,343 7,087 4,344 5,235 555,638 2,946 13,474 4,309 14,264 261 4,358 90 812,870 221,479 2,600 5,028 275,693 184,897 2,043 10,515 4,437 4,542 6,157 717,391 2,291 22,926 2,166 10,331 190 8,004 161 1,026,499 273,120 1,921 8,517 265,138 215,665 4,666 19,489 4,476 9,510 6,354 808,856 5,143 19,470 1,544 13,835 216 2,796 33,012 1,100,735 285,731 5,784 9,608 338,452 258,943 11,359 36,580 4,384 20,767 8,053 979,661 19,953 21,809 961 30,226 898 3,861 22 1,285,349 128,503 3,899 7,307 168,509 156,711 10,827 21,489 5,228 11,290 9,753 523,516 38,552 21,445 1,397 15,803 1,040 2,962 17 782,870 183,218 2,616 4,956 170,191 120,460 1,054 14,111 1,590 9,015 7,506 514,717 51,983 30,225 1,943 3,111 203 1,891 49 751,786 215,53/ 3,472 8,229 258,737 186,792 4,737 25,888 2,145 18,405 15,212 739,154 56,578 32,956 1,968 2,720 1,696 4,106 43 1,041,570 182,882 5,074 8,374 159,057 158,721 4,695 26,226 2,522 14,438 10,229 572,218 56,830 37,534 1,460 4,520 524 2,694 39 878,587 157,134 6,327 10,230 178,882 162,395 4,447 21,449 1,997 14,481 12,788 570,130 55,990 39,936 1,765 6,114 175 2,514 15 838,172 265,542 6,167 14,171 254,825 291,040 1,753 22,817 2,155 14,128 23,955 896,553 73,802 30,105 2,105 8,281 179 3,587 23 1,197,892 283,738 7,591 10,898 278,152 255,660 9,189 35,832 4,032 8,199 21.716 915,007 86,139 36,556 2,502 8,929 221 3,890 136 1,218,480 49,688 2,762 4,907 18,511 26,187 1,403 12,592 481 1,008 3,543 121,082 82,215 28,991 2,660 8,613 161 2,567 31 326,700 33,665 5,769 12,259 5,191 7,842 764 27,034 90 313 1,670 94,597 101,551 35,873 2,460 8,680 112 2,750 31 298,826 34,596 10,232 9,975 1,258 12,716 151 23,974 66 152 393 93,513 105,399 42,380 2,237 8,991 109 2,734 77 295,403 5,250 4,295 2,224 61 4,242 19 1,910 59 15 43 18,118 32,452 32,966 1,795 10,213 130 1,909 47 110,618 1,884 1,573 1,222 53 1,403 22 386 19 10 19 6,591 57,782 44,504 1,964 10,064 171 1,955 46 141,132 95,145 18,821 15,472 4,911 1,751 4,813 845 11,981 1,890 1,933 5,033 162,595 90,025 72,641 2,330 9,432 300 3,243 702 430,001 222,260 23,818 19,195 67,655 10,193 95,089 9,999 28,502 25,817 6,391 11,735 520,654 72,317 51,801 4,009 7,878 511 4,483 130 805,228 40,319 665 1,950 26,944 19,910 28,635 2,716 3,457 10,287 1,660 1,998 138,541 46,810 30,638 4,406 6,716 360 2,218 25 309,556 46,674 841 2,384 31,556 21,151 26,538 2,864 3,333 11,947 3,743 2,183 153,224 117,011 82,961 4,986 5,809 257 1,777 15 522,919 4,505,133 1 163,231 246,250 4,199,527 3,332,259 320,257 78,307 405,697 133,479 152,271 201,786 2,209,403 916,821 360,739 262,584 8,619 103,357 254,008 35,292,506 i Including Malta. 15 months ending Dec. 31; 9 months ending Sept. 30; 6 months ending June 30. 71372—23. (Follows p. 125.) REPORT OF THE SECRETARY OF LABOR. 127 Table 2.—Immigration to the United States from northern and western Europe, southern and eastern Europe, and other countries, 1820 to 1923. I Figures for 1820 to 1910 are from Report of Immigration Commission, vol. 1, p. 66, and for 1911 to 1923 from reports of Commissioner General of Immigration. For 1820 to 1867 the figures are for alien passengers arriving, for 1868 to 1903 for immigrants arriving, for 1904 to 1906 for aliens admitted, and for 1907 to 1923 for immigrant aliens admitted. In using these figures allowance should be made for “Countries not specified.” A slight revision has been made in the immigration figures in regard to Malta. Following: the commission classification “Other Europe” has been counted as “Other northern and western, Europe.”] Year ending— Total number of immigrants. Number from— Per cent1 from— Europe. Other specified countries. Countries not specified. Europe. Other specified countries. Northern and •western.1 2 Southern and eastern.3 Total. Northern and western.2 Southern and eastern.3 Total Sept. 30,1820.. 8,385 7,467 224 7,691 393 301 92.4 2.8 95.1 4.9 Sept. 30,1921.. 9,127 5,656 280 5,936 305 2,886 90.6 4.5 95.1 4.9 Sept. 30, 1822.. 6,911 4,186 232 4,418 379 2,114 87.3 4.8 92.1 7.9 Sept. 30, 1823.. 6,354 3,726 290 4,016 382 1,956 84.7 6.6 91.3 8.7 Sept. 30,1824.. 7,912 4,530 435 4,965 560 2,387 82.0 7.9 89.9 10.1 Sept. 30, 1825.. 10,199 8,170 373 8,543 848 808 87.0 4.0 91.0 9.0 Sept. 30, 1826.. 10,837 9,232 519 9,751 832 254 87.2 4.9 92.1 7.9 Sept. 30, 1827.. 18,875 16,241 478 16,719 585 1, 571 93.9 2.8 96.6 3.4 Sept. 30, 1828.. 27,382 24,451 278 24,729 2,099 554 91.1 1.0 92.1 7.8 Sept. 30, 1829.. 22,520 12,286 237 12,523 3,302 6,695 77.6 1.5 79.1 20.9 Sept. 30, 1830.. 23,322 7,174 43 7,217 2,298 13,807 75.4 .5 75.8 24.2 Sept. 30,1831.. 22,633 12,973 66 13,039 2,197 7,397 85.1 .4 85.6 14.4 Dec. 31, 1832 <. 60,482 33,990 203 34,193 2,877 23,412 91.7 . 5 92.2 7.8 Dec. 31, 1833.. 58,640 26,096 3,015 29, 111 3,286 26,243 80.6 9.3 89.9 10.1 Dec. 31, 1834.. 65,365 57,184 326 57,510 2,786 5,069 94.8 .5 95.4 4.6 Dec. 31, 1835.. 45,374 41,645 342 41,987 3,343 44 91.9 .8 92.6 7.4 Dec. 31, 1836.. 76,242 70,053 412 70,465 4,946 831 92.9 .5 93.4 6.6 Dec. 31, 1837.. 79,340 70,634 405 71,039 3,641 4,660 94.6 .5 95.1 4.9 Dec. 31, 1838.. 38,914 33,699 371 34,070 3,001 1,843 90.9 1.0 91.9 8.1 Dec. 31, 1839.. 68,069 63,533 615 64,148 3,627 294 93.7 .9 94.6 5.4 Dec. 31, 1840.. 84,066 79,932 194 80,126 3,822 118 95.2 .2 95.4 4.6 Dec. 31, 1841.. 80,289 75,554 662 76,216 3,446 627 94.8 .8 95.7 4.3 Dec. 31, 1842.. 104,565 99,666 279 99,945 4,004 616 95.9 .2 96.1 3.9 Sept. 30, 18436. 52,496 48,682 331 49,013 2,871 612 93.8 .6 94.5 5.5 Sept. 30,1844.. 78,615 74,253 492 74,745 3,760 110 94.6 .6 95.2 4.8 Sept. 30,1845.. 114,371 108,834 467 109,301 5,045 25 95.2 .4 95.6 4.4 Sept. 30,1846.. 154,416 145,826 489 146,315 5,537 2,564 96.0 .3 96.4 3.6 Sept. 30,1847.. 234,968 228,775 342 229,117 5,243 608 97.6 .1 97.8 2.2 Sept. 30,1848.. 226,527 217,548 477 218,025 8,007 495 96.2 .2 96.5 3.5 Sept. 30,1849.. 297,024 285,880 621 286,501 8,918 1,605 96.8 .2 97.0 3.0 Dee. 31,18504. 369,980 307,044 1,279 308,323 15,775 45,882 94.8 .4 95.1 4.9 Dec. 31,1851.. 379,466 368,565 945 369,510 9,708 248 97.2 .2 97.4 2.6 Dec. 31,1852.. 371,603 361,549 935 362,484 7,699 1,420 97.7 .3 97.9 2.1 Dec. 31,1853.. 368,645 359,772 1,804 361,576 6,085 984 97.9 .5 98.3 1.7 Dec. 31,1854.. 427,833 402,554 2,988 405,542 21,633 658 94.2 .7 94.9 5.1 Dec. 31,1855.. 200,877 185,037 2,692 187,729 12,814 334 92.3 1.3 93.6 6.4 Dec. 31,1856.. 200,436 183,768 2,315 186,083 13,811 542 91.9 1.2 93.1 6.9 Dec. 31,1857.. 251,306 214,247 1,977 216,224 12,781 22,301 93.6 .9 94.4 5.6 Dec. 31,1858.. 123,126 108,381 2,973 111,354 10,971 801 88.6 2.4 91.0 9.0 Dec. 31,1859.. 121,282 108,480 2,469 110,949 8,938 1,395 90.5 2.1 92.5 7.5 Dec. 31,1860.. 153,640 138,983 2,226 141,209 11,945 486 90.7 1.5 92.2 7.8 Dec. 31,1861.. 91,918 79,752 1,448 81,200 10,338 380 87.1 1.6 88.7 11.3 Dec. 31,1862.. 91,985 82,455 1,255 83,710 7,827 448 90.1 1.4 91.4 8.6 Dec. 31,1863.. 176,282 162,324 1,409 163,733 11,366 1,183 92.7 .8 93.5 6.5 Dec. 31,1864.. 193,418 182,809 2,424 185,233 7,626 559 94.8 1.3 96.0 4.0 Dec. 31,1865.. 248,120 210,911 3,137 214,048 25,774 8,298 87.9 1.4 89.3 10.7 Dec. 31,1866.. 318,568 275,649 3,267 278,916 36,026 3,626 87.5 1.0 88.6 11.4 Dec. 31,1867.. 315,722 279,854 3,897 283,751 28,701 3,270 89.6 1.2 90.8 9.2 June 30,18686. 138,840 128,304 1,786 130,090 8,589 161 92.5 1.3 93.8 6.2 June 30,1869.. 352,768 310,792 5,173 315,965 36,786 17 88.1 1.5 89.6 10.4 June 30,1870.. 387,203 318,792 9,834 328,626 58,550 27 82.3 2.5 84.9 15.1 1 Based on number reporting country of origin. * Northern and western Europe comprises Belgium, Denmark, France (including Corsica), German Empire, Netherlands, Norway, Sweden, Switzerland, United Kingdom, and “other northern and western Europe.” 3 Southern and eastern Europe comprises Austria-Hungary, Bulgaria, Serbia, Montenegro, Greece, Italy (including Sicily and Sardinia), Poland, Portugal (including Cape Verde and Azores Islands), Rumania, Russian Empire (including Finland), Spain (including Canary and Balearic Islands), Turkey In Europe, and Turkey in Asia. 415 months ending Dec. 31. s 9 months ending Sept. 30. 6 6 months ending June 30. _________,21__ 128 REPORT OF THE SECRETARY OF LABOR. .Table 2. Immigration to the United States from northern and western Europe, southern and eastern Europe, and other countries, 1820 to 1923—Continued. Number from- Per cent from— Y oar ending— Total number of immi- Europe. Other specified Countries not Europe. Other grants, North- South- North- specified ern and western. ern and eastern. Total. countries. specified. ern and western. ern and eastern. Total. countries. June 30,1871.. 321,350 254,755 10,394 265,149 56,116 85 79.3 3.2 82.5 17 5 June 30,1872.. 404,806 338,957 13,198 352,155 52,487 164 83.8 3.3 87.0 13 0 June 30, 1873.. 459, 803 374,898 22,646 397,544 62,099 160 81.6 4.9 86.5 13. 5 June 30, 1874.. 313,339 238,205 24,584 262,789 50,422 128 76.0 7.8 83.9 16.1 June 30,1875.. 227,498 160,099 22,863 182,962 44,460 76 70.4 10.0 80.4 19 6 June 30, 1876.. 169, 986 104,077 16,851 120,928 49,022 36 61.2 9.9 71.2 28.8 June 30. 1877.. 141,857 87,388 18,810 106,198 35,632 27 61.6 13.3 74.9 25.1 June 30, 1878.. 138,469 86,689 14,930 101,619 36,835 15 62.6 10.8 73.4 26.6 June 30, 1879.. 177,826 115,682 18,608 134,290 43,500 36 65.1 10.5 75.5 24 5 June 30, 1880.. 457,257 310,624 38,071 348,695 108,499 63 67.9 8.3 76.3 23.7 June 30, 1881.. 669,431 472,734 55,816 528,550 140,778 103 70.6 8.3 79.0 21. 0 June 30, 1882.. 788,992 563,213 84,973 648,186 140,707 99 71.4 10.8 82.2 17.8 June 30, 1883.. 603,322 449,179 73,408 522,587 80,656 79 74.5 12.2 86.6 13.4 June 30, 1884.. 518,592 380,728 72,958 453,686 64,808 98 73.4 14.1 87.5 12.5 June 30, 1885.. 395,346 288,402 64,681 353,083 42,192 71 73.0 16.4 89.3 10.7 June 30, 1886.. 334,203 255,483 74,061 329,544 4,586 73 76.5 22.1 98.6 1.3 June 30, 1887.. 490,109 353,688 129,349 483,037 6,999 73 72.1 26.4 98.6 1. 4 June 30, 1888.. 546,889 397,123 141,281 538,404 8,424 61 72.6 25.8 98.4 1. 5 June 30, 1889.. 444,427 332,618 102,765 435,383 8,974 70 74.9 23.1 98.0 2. 0 June 30, 1890.. 455,302 286,147 160,659 446,806 8,434 62 62.8 35.3 98.1 1.8 June 30, 1891.. 560,319 317,834 230,739 548,573 11,676 70 56.7 41.2 97.9 2.1 June 30, 1892 . 579,663 300,792 270,084 570,876 267 8,520 51.9 46.6 98. 5 1. 5 June 30, 1893.. 439,730 234,356 194,968 429,324 5,233 5,173 53.9 44.9 98.8 1.2 June 30, 1894.. 285,631 148,714 128,338 277,052 8,509 70 52.1 44.9 97.0 3. 0 June 30, 1895 258, 536 141,499 111,610 253,109 333,206 221,129 5,427 10,061 9,703 7,238 9,713 54.7 43.2 57.0 56.8 97.9 97.1 95.8 96.8 96.9 2.1 2.9 4.2 3.2 3.1 June 30, 1896 343,267 137,522 195,684 40.0 39.0 June30i 1897.. 230,832 90,118 131,011 June 30, 1898.. 229,299 79,113 142,948 222,061 34.5 62.4 June 30, 1899.. 311,715 89,947 211,838 301,785 217 28.9 68.0 June 30, 1900.. 448,572 103,719 324,943 428,662 19,897 13 23.1 72.4 95.6 4.4 June 30, 1901.. 487,918 115,728 359,291 475,019 12,898 1 23.7 73.6 97.4 2.6 June 30, 1902.. 648,743 138,737 486,554 625,291 23,349 103 21.4 75.0 96.4 3.6 June 30, 1903.. 857,046 203,694 617,931 821,625 35,396 25 23.8 72.1 95.9 4.1 June 30,1901.. 812,870 217,530 555,638 773,168 39,612 90 26.8 68.4 95.2 4.9 June 30,1905.. 1,026,499 263,039 717,391 980,430 45,908 161 25.6 69.9 95.5 4.5 June 30, 1905.. 1,100,735 215,863 808,856 1,024,719 43,004 33,012 20.2 75.7 95.9 4.0 June 30, 1907.. 1,285,349 227,958 979,661 1,207,619 77,708 22 17.7 76.2 94.0 6.0 June 30, 1908.. 782,870 178,138 523,516 701,654 81,199 17 22.8 66.9 89.5 10.4 June 30, 1909.. 751,786 147,664 514,717 662,381 89,356 49 19.6 68.5 88.1 11.9 June 30,1910.. 1,041,570 202,349 739,154 941,503 100,024 43 19.4 70.9 90.4 9.6 June 30, 1911.. 878,587 202,768 572,218 774,986 103,562 39 23.1 65.1 88.2 11.8 June 30, 1912.. 838,172 161,533 570,130 731,663 106,494 15 19.3 68.0 87.3 12.7 June 30, 1913.. 1,197,892 183,257 896.553 1,079,810 118,059 23 15.3 74.8 90.1 9.9 June 30,1914.. 1,218,480 165,100 915,007 1,080,107 138,237 136 13.6 75.1 88.7 11.3 June 30, 1915.. 326,700 80,380 121,082 201,462 125,207 31 24.6 37.1 61.7 38.3 June 30,1916.. 298,826 52,772 94,597 147,369 151,426 31 17.7 31.7 49.3 50.7 June 30.1917.. 295,403 39,963 93,513 133,476 161,850 77 13.5 31.7 45.2 54.8 June 30, 1918.. 110,618 12,988 18,118 31,106 79,465 47 11.7 16.4 28.1 71.9 June 30,1919.. 141,132 18,055 6,591 24,646 116,440 46 12.8 4.7 17.5 82.5 June 30,1920.. 430,001 88,733 162,595 251,328 177,971 702 20.7 37.9 §8.5 41.5 June 30, 1921.. 805,228 143,445 520,654 664,099 140.999 130 17.8 64.7 82.5 17.5 June 30, 1922.. 309,556 79,842 138,541 218,383 91,148 25 25.8 44.8 70.6 29.4 June 30,1923.. 522,919 156,879 153,224 310,103 212,801 15 30.0 29.3 59.3 40.7 Total.... 35,292,506 17,438,616 13,738,332 31,176,948 3,861,550 254,008 49.8 39.2 89.0 11.0 REPORT OF THE SECRETARY OF LABOR. 129 Table 3.—Immigration to the United States: 1899 to 1923, t)y races. GENERAL RACE CLASSES. [For years earlier than 1899 figures are not available.] Year. Northern and western Europe. Eastern and southern Europe (including Hebrew). Southern American. Oriental. Other races. All races. 1899 100,187 203,890 1,791 5,070 777 311,715 1900 116,454 314,071 3,114 13,958 975 448,572 1901 128,924 348,100 2,330 7,768 796 487,918 1902 162,840 464,795 3,771 16,198 1,139 648,743 1903 236,105 589,708 5,905 22,880 2,448 857,046 1904 247,066 532,969 8,866 20,874 3,095 812,870 1905 288,295 705,475 10,692 18,066 3,971 1,026,499 1906 269,936 801,054 8,793 16,126 4,826 1,100,735 1907 281,322 956,019 8,007 32,705 7,296 1,285,349 1908 233,235 512,882 11,178 19,417 6,158 782,870 1909 209j 418 510,168 20,885 5,464 5,851 751,786 1910 276,272 727,431 23,141 6,369 8,357 1,041,570 1911 269,701 567,431 24,992 6,407 10,056 878,587 1912 232,404 559,738 27,630 7,978 10,422 838,172 1913 271,419 889,627 16,587 10,576 9,683 1,191,892 1914 253,855 921,160 19,568 11,619 12,278 1,218,480 1915 142,168 148,798 16,885 11,306 7,543 326,700 1916 127,990 128,214 23,469 11,184 7,969 298,826 1917 122,927 127,545 23,822 11,031 10,078 295,403 1918 42,892 27,991 21,744 11,954 6,037 110,618 1919 71,202 17,628 34,328 11,898 6,076 141,132 1920. 165,871 184,903 58,032 11,659 9,536 430,001 1921 206,995 537,144 36,004 11,962 13,123 805,228 1922 129,434 141,621 21,366 11,137 5,998 309,556 1923 274,507 162,695 67,513 9,986 8,218 522,919 Total 4,863,419 11,081,057 500,413 323,592 162,706 16,929,107 NORTHERN AND WESTERN EUROPE. Year. Dutch and Flemish. United Kingdom. French. German. Scandinavian Norwegians, Danes, and Swedes. Total. English. Irish. Scotch. Welsh. Total. 1899 1,860 2,702 3,299 4,117 6,496 7,832 8,498 9,735 12,467 9,526 8,114 13,012 13,862 10,935 14,507 12,566 6,675 6,443 5,393 2,200 2,735 12,730 12,813 3,749 5,804 10,712 10,897 13,488 14,942 28,451 41,479 50,865 45,079 51,126 49,056 39,021 53,498 57,258 49,689 55,522 51,746 38,662 36,168 32,246 12,980 26,889 58,366 54,627 30,429 60,524 32,345 35,607 30,404 29,001 35,366 37,076 54,266 40,959 38,706 36,427 31,185 38,382 40,246 33,922 37,023 33,898 23,503 20,636 17,462 4,657 7,910 20,784 39,056 17,191 30,386 1,752 1,757 2,004 2,432 6,219 11,483 16,144 16,463 20,516 17,014 16,446 24,612 25,625 20,293 21,293 18,997 14,310 13,515 13,350 5,204 10,364 21,180 24,649 15,596 38,627 1,359 762 674 760 1,278 1,820 2,531 2,367 2,754 2,504 1,699 2,244 2,248 2,239 2,820 2,558 1,390 983 793 278 608 1,462 1,748 956 1,622 46,168 49,023 46,570 47,135 71,314 91,858 123,806 104,868 113,102 105,001 88,351 118,736 125,377 106,143 116,658 107,199 77,865 71,302 63 851 23,119 45,771 101,792 120,080 64,172 131,159 2,278 2,095 4,036 4,122 7,166 11,557 11,347 10,379 9,392 12,881 19,423 21,107 18,132 18,382 20,652 18,166 12,636 19,518 24,405 6,840 12,598 27,390 24,122 13,617 34,371 26,632 29,682 34,742 51,686 71,782 74,790 82,360 86,813 92,936 73,038 58,534 71,380 66,471 65,343 80,865 79,871 20,729 11,555 9,682 1,992 1,857 7,338 24,168 31,218 65,543 23,249 32,952 40,277 55,780 79,347 61,029 62,284 58,141 53,425 32,789 34,996 52,037 ’ 45,859 31,601 38,737 36,053 24,263 19,172 19,596 8,741 8,261 16,621 25,812 16,678 37,630 100,187 116,454 128,924 162,840 236,105 247,066 288,295 269,936 281,322 233,235 209,418 276,272 269,701 232,404 271,419 253,855 142,168 127,990 122,927 42,892 71,202 165,871 206,995 129,434 274,507 1900 1901 1902 1903 1904 1905 1906 1907 1908 1909 1910 1911 1912 1913 1914 1915 1916 1917 1918 1919 1920 1921 1922 1923 Total. 198,070 973,720 766,398 379,845 40,457 2,160,420 366,612 1,220,987 915,330 4,861,419 130 REPORT OF THE SECRETARY OF LABOR. Table 3.—Immigration to the United States: 1899 to 1923, by races—Continued. EASTERN AND SOUTHERN EUROPE. Year. Armenian. Bohemian and Moravian (Czech). Bulgarian, Serbian and Montenegrin. Croatian and Slovenian. Dalmatian, Bosnian, and Herzegovinian. Finnish. Greek. 1899 674 982 1,855 1,151 1,759 1,745 1,878 1,895 2,644 3,299 3,108 5,508 3,092 5,222 9,353 7,785 932 964 1,221 221 282 2,762 10,212 2,249 2,396 2,526 3,060 3,766 5,590 9,591 11,911 11,757 12,958 13,554 10,164 6,850 8,462 9,223 8,439 11,091 9,928 1,651 642 327 74 105 415 1,743 3,086 5,537 94 204 611 1,291 6,479 4,577 5,823 11,548 27,174 18,246 6,214 15,130 10,222 10,657 9,087 15,084 3,506 3,146 1,134 150 205 1,064 7,700 1,370 1,893 8,632 17,184 17,928 30,233 32,907 21,242 35,104 44,272 47,826 20,472 20,181 39,562 18,982 24,366 42,499 37,284 1,942 791 305 33 23 493 11,035 3,783 4,163 367 675 732 1,004 1,736 2,036 2,639 4,568 7,393 3,747 1,888 4,911 4,400 3,672 4,520 5,149 305 114 94 15 4 63 930 307 571 6,097 12,612 9,999 13,868 18,864 10,157 17,012 14,136 14,860 6,746 11,687 15,736 9,779 6,641 12,756 12,805 3.472 5,649 5,900 1,867 968 1,510 4,233 2,506 3,087 2,395 3,773 5,919 8,115 14,376 12,625 12,144 23,127 46,283 28,808 20,262 39,135 37,021 31,566 38,644 45,881 15,187 26,792 25,919 2,602 813 13,998 31,828 3,821 4,177 1900 1901 1902 1903 1904 1905 1906 1907 1908 1909 1910 1911 1912 1913 1914 1915 1916 1917 1918 1919 1920 1921 1922 1923 Total 73,189 152,450 162,609 481,242 51,840 222,947 495,211 Year. Hebrew. 1899 37,415 60,764 58,098 57,688 76,203 106,236 129,910 153,748 149,182 103,387 57,551 84,260 91,223 80,595 101,330 138,051 26,497 15,108 17,342 3,672 3,055 14,292 119,036 53,524 49,719 1900 1901 1902 1903 1904 1905 1906 1907 1908 1909 1910 1911 1912 1913 1914 1915 1916 1917 1918 1919 1920 1921 1922 1923 Total 1,787,886 Italian (north and south). Lithuanian. Magyar. 78,730 6,858 5,700 101,662 10,311 13,777 137,807 8,815 13,311 180,535 11,629 23,610 233,546 14,432 27,124 196,028 12,780 23,883 226,320 18,604 46,030 286,814 14,257 44,261 294,061 25,884 60,071 135,247 13,720 24,378 190,398 15,254 28,704 223,453 22,714 27,302 189,950 17,027 19,996 162,273 14,078 23,599 274,147 24,647 30,610 296,414 21,584 44,538 57,217 2,638 3,604 38,814 599 981 38,950 479 434 6,308 135 32 3,373 160 52 97,800 422 252 222,496 829 9,377 41,154 1,602 6,037 48,280 1,828 6,922 3,761,777 261,286 484,585 Polish. Rumanian. Russian. 28,456 96 1,774 46,938 398 1,200 43,617 761 672 69,620 2,033 1,551 82,343 4,740 2,608 67,757 4,364 3,961 102,437 7,818 3,746 95,835 11,425 5,814 138,033 19,200 16,807 68,105 9,629 17,111 77,565 8,041 10,038 128,348 14,199 17,294 71,446 5,311 18,721 85,163 8,329 22,558 174,365 13,451 51,472 122,657 24,070 44,957 9,065 1,200 4,459 4,502 953 4,858 3,109 522 3,711 668 155 1,513 732 89 1,532 2,519 898 2,378 21,146 5,925 2,887 6,357 1,520 2,486 13,210 1,397 4,346 1,464,003 146,524 249,454 REPORT OF THE SECRETARY OF LABOR. 131 Table 3.—Immigration to the United States: 1899 to 1923, by races—Continued. EASTERN AND SOUTHERN EUROPE—Continued. Year. Ruthenian (Russnak). Slovak. Syrian. Turkish. Portuguese. Spanish. Total. 1899 1,400 2,832 5,288 7,533 9,843 9,592 14,473 16,257 24,081 12,361 15,808 27,907 17,724 21,965 30,588 36,727 2,933 1,365 1,211 49 103 258 958 698 1,168 15,838 29,243 29,343 36,934 34,427 27,940 52,368 38,221 42,041 16,170 22,586 32,416 21,415 25,281 27,234 25,819 2,069 577 244 35 85 3,824 35,047 6,001 6,230 3,708 2,920 4,064 4,982 5,551 3,653 4,822 5,824 5,880 5,520 3,668 6,317 5,444 5,525 9,210 9,023 1,767 676 976 210 231 3,047 5,105 1,334 1,207 28 184 136 165 449 1,482 2,145 2,033 1,902 2,327 820 1,283 918 1,336 2,015 2,693 273 216 454 24 18 140 353 40 237 2,096 4,241 4,176 5,309 8,433 6,338 4,855 8,729 9,648 6,809 4,606 7,657 7,469 9,403 13,566 9,647 4,376 12,208 10,194 2,319 1,574 15,174 18,856 1,867 2,802 996 1,111 1,202 1,954 3,297 4,662 5,590 5,332 9,495 6,636 4,939 5,837 8,068 9,070 9,042 11,064 5,705 9,259 15,019 7,909 4,224 23,594 27,448 1,879 3,525 203,890 314,071 348,100 464,795 589,708 532,969 705,475 801,054 956,019 512,882 510,168 727,431 567,431 559,738 889,627 921,160 148,798 128,214 127,545 27,991 17,628 184,903 537,144 141,621 162,695 1900 1901 1902 1903 1904 1905 1906 1907 1908 1909 1910 1911 1912 1913 1914 1915 1916 1917 1918 1919 1920 1921 1922 1923 Total 263,122 531,388 100,664 21,671 182,352 186,857 11,081,057 SOUTHERN AMERICAN. Year. Cuban. Mexican. Spanish American. West Indian (except Cuban). Total. 1899 1,374 163 110 144 1,791 1900 2'678 261 97 78 3,114 1901 1,622 350 276 82 2,330 1902 2,423 715 496 137 3,771 1903 2,944 486 978 1,497 5,905 1904 4, 811 447 1,666 1,942 8; 866 1905 7,259 227 1'658 1,548 10,692 1906 5,591 141 1,585 1,476 8,793 1907 5,475 91 1,060 1,381 8; 007 1908 3,323 5,682 1,063 1,110 11,178 1909 3,380 15; 591 '890 1,024 20,885 1910 3,331 17,760 900 1,150 23,141 1911 3,914 18,784 1,153 1,141 24; 992 1912 3,155 22,001 1,342 1,132 27,630 1913 3,099 10; 954 1,363 1,171 16,587 1914 3; 539 13,089 1,544 1,396 19; 568 1915 3,402 10; 993 1,667 823 16,885 1916 3,442 17,198 L881 948 23; 469 1917 3,428 16,438 2,587 1,369 23,822 1918 1,179 17,602 2,231 732 21,744 1919 1,169 28,814 3,092 1,223 34,328 1920 1,510 51', 042 3,934 1,546 58,032 1921 1,523 4 29,603 3,325 1,553 36,004 1922 698 18,246 1,446 976 21,366 1923 1,347 62,709 1,990 1,467 67,513 Total 75,616 359,417 38,334 27,046 500,413 132 REPORT OF THE SECRETARY OF LABOR. Table 3—Immigration to the United States: 1899 to 1923, by races—Continued. ORIENTAL. Year. Chinese. East Indian. Japanese. Korean. Total. 1899 1,638 15 3,395 22 5,070 1900 1,250 9 12,628 71 13,958 1901 2,452 20 5,249 47 7,768 1902 1,631 84 14,455 28 16,198 1903... 2,192 83 20,041 564 22,880 1904 4,327 258 14,382 1,907 20,874 1905 1,971 145 11,021 4,929 18,066 1906... 1,485 271 14,243 127 16,126 1907 770 1,072 30,824 39 32,705 1908 1,263 1,710 16,418 26 19,517 1909 .. 1,841 337 3,275 11 5,464 1910 1,770 1,782 2,798 19 6,369 1911 1,307 517 4,575 8 6,407 1912 1,608 165 6,172 33 7,978 1913 2,022 188 8,302 64 10,576 1914 2,354 172 8,941 152 11,619 1915 2,469 82 8,609 146 11,306 1916 2,239 80 8,711 154 11,184 1917 1,843 69 8,925 194 11,031 1918.... 1,576 61 10,168 149 11,954 1919.. . 1,697 68 10,056 77 11,898 1920 2,148 160 9,279 72 11,659 1921 ... 4,017 353 7,531 61 11,962 1922 4,465 223 6,361 88 11,137 1923 4,074 156 5,652 104 9,986 Total 54,409 8,080 252, 011 9,092 323,592 OTHER RACES. Year. African (Black). Pacific Islander. Other peoples. Total. 1899 412 714 594 832 2,174 2,386 3,598 3,786 5,235 4,626 4,307 4,966 6,721 6,759 6,634 8,447 5,660 4,576 7,971 5,706 5,823 8,174 9,873 5,248 7,554 172 188 167 160 185 41 22 13 3 2 7 61 12 3 11 1 6 5 10 17 6 17 13 7 14 193 73 35 147 89 668 351 1,027 2,058 1,530 1,537 3,330 3,323 3,660 3,038 3,830 1,877 3,388 2,097 314 247 1,345 3,237 743 650 777 975 796 1,139 2,448 3,095 3,971 4,826 7,296 6,158 5,851 8,357 10,056 10,422 9,683 12,278 7,543 7,969 10,078 6,037 6,076 9,536 13,123 5,998 8,218 1900 1901 1902 1903 1904 1905 1906 1907 1908.. 1909 1910.. 1911 1912.. 1913 1914... 1915.. 1916... 1917... 1918... 1919 1920 1921.. 1922 1923... 122,776 1,143 38,787 162,706 REPORT OF THE SECRETARY OF LABOR. 133 Table 4.—Immigration and emigration, and net gain or loss, 1908 to 1923, Oy race. . [Figures for emigration are not of record for earlier period.] Race. Immigration. Emigration. Net gain. Per cent emigration is of immigration. African 103,045 22,478 80,567 22 Armenian 58j 606 8,' 955 49,651 15 Bohemian and Moravian (Czech) 77', 737 14; 951 62,786 19 Bulgarian, Serbian and Montenegrin 104, 808 92,886 11,922 89 Chinese 36j 693 47,607 110; 914 130 Croatian and Slovenian 225', 914 114; 766 111,148 51 Cuban 41,439 24,037 17,402 58 Dalmatian, Bosnian and Herzegovinian 30,690 8,904 21,786 29 Dutch and Flemish 141,064 24,903 116,161 18 East Indian 6,123 2,126 3,997 35 English 706,681 146,301 560,380 21 Finnish 105,342 30, 890 74,452 29 French 304,240 62; 538 241. 702 21 German 669,564 119,' 554 550; 010 18 Greek 366,454 168,847 197,607 46 Hebrew 958,642 52, 034 906,608 5 Irish 432, 668 46,211 386,457 11 Italian (north) 401,921 147,334 254,587 37 Italian (south) 1,624' 353 969,754 654,599 60 Japanese ' 125j 773 4i; 781 83,992 33 Korean 1,358 995 '363 73 Lithuanian 137,716 34,605 103,111 25 Magyar . . 226' 818 149', 319 77,499 66 Mexican 356,536 68; 713 287, 823 19 Pacific Islander . . 192 58 134 30 Polish 788,957 318,210 470,747 40 Portuguese 128; 527 39; 527 89, 000 31 Rumanian 95i 689 63,126 32; 563 66 Russian 210,321 110,282 100,039 52 Ruthenian (Russniak) 17i; 823 28; 996 142, 827 17 Scandinavian (Norwegians, Danes and Swedes) 448,846 97,920 350; 926 22 Scotch 301,075 38; 600 262', 475 13 Slovak . 225,033 127,593 97,440 57 Spanish 153; 218 61,086 92,132 40 Spanish American 30,408 11,488 18,920 38 Syrian 59,260 14; 376 44,884 24 Turkish 13,147 11,330 i; 817 86 Welsh 26', 152 3; 376 22,776 13 West Indian (except Cuban) 18,761 8,475 10,286 45 'Other peoples 34', 146 15', 608 18,538 46 "Not specified 147,645 1147; 645 Total - - 9,949,740 3,498,185 6,451,555 35 11 Loss. 134 REPORT OF THE SECRETARY OF LABOR. Table 5.—Immigrant aliens admitted and aliens debarred and deported, 1899 to 1922, by races. [Figures are not available for 1923, or years prior to 1899.] Reasons for being debarred are as follows: Physical, mental, and. moral reasons.—Idiots; imbeciles; feeble minded; insane or have been insane; epi-’ leptics; constitutional psychopathic inferiority; surgeon’s certificate of mental defect which may affect alien’s ability to earn a living, other than idiots, imbeciles, feeble-minded, epileptics, insanity, or constitutional psychopathic inferiority; tuberculosis (noncontagious); tuberculosis (contagious); trachoma; favus; other loathsome or dangerous contagious diseases; surgeon’s certificate of physical defect which may affect alien’s ability to earn a living, other than loathsome or dangerous contagious diseases or non-contagious tuberculosis; chronic alcoholism; likely to become a public charge; paupers; professional beggars; vagrants; criminals; polygamists; anarchists or aliens, entertaining or affiliated with an organization advocating anarchistic beliefs: prostitutes and aliens coming for any immoral purpose; aliens who are supported by or receive proceeds of prostitution; aliens who procure or attempt to bring in prostitutes or females for any immoral purpose: had been deported within one year. A ll other reasons.—Contract laborers; assisted aliens; coming in consequence of advertisements; stowaways; accompanying aliens (under section 18): under 16 years of age unaccompanied bv parent; unable to read (over 16 years of age): geographically excluded classes (natives of that portion of Asia and islands adjacent thereto described in section 3); under passport provision section 3 under provisions of Chinese exclusion act; under last proviso section 23; without proper passport under State Department regulations; exceeded quota, act of May 19, 1921.] Race. Tmmi-grant aliens admitted. Aliens debarred for— Aliens deported. Total aliens debarred and deported. Number per 100 immigrant aliens admitted of aliens— Physical, mental, and moral reasons. AU other reasons. Debarred for— Deported. Total debarred and departed. Physical, mental, and moral reasons. All other reasons. African'(black) 115 222 3 552 2 157 760 6 469 3 08 1 87 0 66 5 61 Armenian 70 793 2 272 ’539 204 B'oin 3’ 21 76 2.0 L 26 Bohemian and Moravian (Czech) 146 913 858 117 360 1 335 58 08 25 91 Bulgarian, Serbian, and Mon- tenegrin 860,716 5,735 3,351 632 9 718 .67 39 07 1 13 Chinese 50' 335 2' 151 5 793 3 337 11 281 4 27 11 51 6 63 22 41 Croatian and Slovenian 477,079 4 824 '961 ’713 6' 498 1 01 20 15 1 36 Cuban 74,269 429 136 87 ’651 .58 18 12 ’ 88 Dalmatian, Bosnian, and Herzegovinian 51,269 619 315 102 1 036 1.21 .61 20 2.02 Dutch and Flemish 192' 266 1,652 725 519 2,896 . 86 .38 27 1.51 East Indian 7' 924 3; 262 246 348 3 856 41.17 3.10 4.39 48.66 English 913'196 18', 006 5,024 5,007 28,037 1.97 .55 .55 3.07 Finnish 219^ 860 2,172 218 '715 3 105 .99 . 10 .33 1. 41 French 332,241 11,599 5,065 2,385 19 049 3.49 1.52 . 72 5.73 German 1,155'444 li; 991 2,325 4,101 18,417 1.04 .20 .35 1.59 Greek 491J 034 13;238 2; 742 1,360 17,340 2.70 . 56 .28 3.53 Hebrew 1,738', 167 21,119 2; 555 3 440 27'124 1.22 . 15 . 20 1.56 Irish '736^ 012 9; 079 1,866 2 442 13 387 1.23 .25 .33 1.82 Italian (North) 684', 905 4,533 i;387 626 6,546 .66 .20 . 09 .96 Italian (South) 3,028j 592 4i;n2 7,228 4,415 52,755 1.36 . 24 . 15 1.74 Japanese ' 246', 359 5; 505 2 205 2 117 9'827 2.23 .90 . 86 3.99- Korean 8'988 '123 47 ' 21 197 1.37 .52 .30 2.19 Lithuanian 259,458 2,651 281 310 3,242 1.02 . 11 . 12 1.25 Magyar 477^663 3,682 430 867 4', 979 .77 .09 .18 1. 04 Mexican 296'708 24; 985 7,068 7,968 40 021 8.42 2.38 2.69 13.49 Pacific Islander1 1'129 19 ' 81 3 103 1.68 7.17 .27 9.12 Polish 1,450,793 13,702 2,109 2,408 18,219 .94 .15 . 17 1.26 Portuguese 179,550 666 '285 2', 515 .87 .37 . 16 1.40 Rumanian 145^ 127 3; 157 760 303 4,220 2.18 . 52 .21 2.91 Russian 245' 108 5; 736 1,584 1,428 8; 748 2.34 .58 3.57 Ruthenian (Russniak) 261,954 4; 778 '860 '558 6; 196 1.82 .33 .21 2.37 Scandinavian 877^ 700 4; 609 1,050 1,761 7320 .53 .12 .20 .85 Scotch 341;218 e;864 i;756 i;io4 9', 724 2.01 .51 32 2.85 Slovak 525' 158 3; 264 563 '420 4; 247 .62 .11 . 08 . 81 Spanish 183;332 2; 981 2,497 708 6; 186 1.63 1.36 .39 3.37 Spanish American 36j 344 '506 '398 122 1,026 1.39 1.10 .34 2.83 Syrian 99,457 7,148 983 604 8; 735 7.19 .99 .61 8. 78 Turkish 2i; 434 1,055 333 124 1,512 4.92 1.55 .58 7.05 Welsh 38,835 '533 179 79 '791 1.37 .46 .20 2.04 West Indian (except Cuban).. 25; 579 395 108 97 600 1.54 .42 .38 2.35 All other races 38,137 2,684 893 313 3,890 7.04 2.34 .82 10.20 1 Including Hawaiian. REPORT OF THE SECRETARY OF LABOR. 135 1.300,000 (Consult prefatory and footnotes of Table 2.) umwiii iinam** 136 REPORT OF THE SECRETARY OF LABOR. (Consult prefatory and footnotes of Table 1.) REPORT OF THE SECRETARY OF LABOR. 137 Chakt 3.—Immigration to the United States of Northern and Western European races and Southern and Eastern European races, 1988 to 1923. REPORT OF THE SECRETARY OF LABOR. 138 00ON 't CD OOOCM 't co COON Cf oocn OOOCM 't CD 00 CD CM cf CD OOOCM ^T CD CO CD fl ooo'ooi ooo'ooi a 5 xn 1 fl p a a a REPORT OF THE SECRETARY OF LABOR. 139 POPULATION - CONNECTICUT 1870 NATIVE BORN,NATIVE PARENTAGE 6 2.1^ 333,804 NATIVE BORN, FOREIGN PARENTAGE 90,011 FOREIGN BORN 113,639 OR MIXED 16.8 % 21.1 % 1920 437,454 PER CENT OF INCREASE FROM 1870 TO 1920 - NATIVE BORN, NATIVE PARENTAGE 40.9 NATIVE BORN,-FOREIGN OR MIXED PARENTAGE 492.2 FOREIGN BORN 231.9 Chart 5.—Change in population elements in Connecticut between 1870 and 1920. 71372—23-----10 APPENDIX II. LETTER TO THE PRESIDENT ON THE IMMIGRATION PROBLEM. Department of Labor, Office of the Secretary, W ashington, April 7£, 1923. My Dear Mr. President : It is my duty and my desire to lay before you certain developments in the matter of immigration to the United States. We are confronted with the need for thorough and patriotic consideration of the immigration problem. The alien who has come and is coming to the United States is developing into a problem which must be rightly solved for the benefit of the whole Nation, for the future security of the American citizen by adoption as well as of the native-born citizen. As a naturalized immigrant, I can look upon this problem through the eyes of the immigrant as well as through the eyes of a patriotic American with a deep interest in the future of our common country. No one will dispute the high character and the important services to America of the great majority of the immigrants who have come to us in the past. Their record is written clearly in our political and economic history. But I, for one, am confident that the foreign-born citizen, or the native-born citizen of foreign stock, will be quick to join with me in protecting our present and future population from evil mental, moral, or physical influences, whether those influences come to us from abroad or develop among us at home. The undesirable individual who comes to us from the older countries of the world lessens the opportunity of the worthy immigrant, as well as the opportunity of the native born. The mental, moral, or physical demoralization which he may represent is as great a menace to the worthy immigrant and his children as it is to the citizen whose progenitors have been in this country for generations. But I am sure that no one who has the best interests of America and the future of humanity at heart can disagree with me when I hold that we must bar from America every individual who is physically, mentally, or morally unsound, or whose political or economic views constitute a menace to free institutions. As long as our laws admit foreigners I feel that every honest American, native or foreign born, can subscribe with me to the principle that we must make admission to the United States easier and more gracious for the immigrant of good sound mind, good heart, and good morals, and utterly impossible for the individual who is tainted in body, mind, or morals. It is unfortunate but inevitable that in these discussions we stress the evils which have come to us with immigration, while we disregard the good which we have won from it. Like every great human development, it is the evil which advertises itself. It is the rotten apple which shows first in the barrel, but we must not forget that, unless the rotten apple is removed, the whole barrel is in danger. 141 142 REPORT OF THE SECRETARY OF LABOR. Part of our present immigration problem arises largely through the so-called “bootlegging” of aliens. I have before me estimates which place the number of aliens who enter the United States surreptitiously at 100 daily. Some estimates run as high as 1,000 a day. At this latter figure the aliens who enter the United States in violation of the law would exceed the number admitted legally under the quota law, which was 309,556 in the last fiscal year. In addition to the smuggled alien we have 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. We are now disposing of about 100 of these cases involving children certified as feeble-minded who were admitted under bond during the last days of the previous administration. I am sure you know something of the clamor by well-meaning individuals, organizations, and newspapers which these cases have aroused. But to my mind no public official 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 taint our whole level of mental and moral life. The results of such a policy are already upon us. A scientist who has made a thorough study of American mental standards testifying before the House of Representatives Committee on Immigration and Naturalization recently made some interesting statements. He estimated that if the mental tests applied to the American Army during the World War had been enforced against the foreign born now in the United States and all showing a mental level below a standard fixed between low averages and inferior intelligence had been excluded 45.6 per cent of the 13,920,692 foreign born now in the United States, or 6,347,835, would have been barred. A study of the Army intelligence tests applied to foreign-born soldiers during the war would indicate that during the last generation, the last 33 years, America has accepted nearly 14,000,000 aliens of all types in order to acquire 7,572,857 who are of the type of low average intelligence or above. In other words, each year during that period we have received about 229,480 aliens of the higher grades of intelligence, or nearly as many as the number annually admitted under the 3 per cent quota law. As a check against these figures of the 1920 census, the records of the Bureau of Immigration show that the number of immigrants admitted to the United States from 1890 to February 28, 1923, from countries other than China, Japan, India, and the Pacific islands amounted to 19,779,995. Of course, not all of these were white, but the number of persons of the colored races who came from the sources included would be too small to make any appreciable difference in the whole total. # . Our records of outgoing aliens date only from 1908, but by taking the figures since 1908 and certain steamship passenger records on file for a time previous to that it is estimated that 30 went out for every 100 who came in during the years 1890 to February 28, 1923. REPORT OF THE SECRETARY OF LABOR. 143 This puts the total number of emigrants at 6,450,656 and the number who remained in the United States at 13,329,339. I propose that we establish strict but just tests of physical and mental health and that we make those tests under the numerical restriction now placed by law on immigration. I would have those tests made abroad in order that the applicant for admission may not have to spend the savings of a lifetime on a long sea voyage in order to find out whether he can enter the United States. The solicitor of the department is now inquiring into the possibility of moving our whole examining machinery to foreign countries under our present laws. I feel that nothing would strengthen our whole immigration policy so much as this move. 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 every day confront our agents at Ellis Island and other ports of entry. Law enforcement is made particularly difficult when officials are faced with the suffering and sorrows of the unfortunates who have traveled thousands of miles, leaving behind all that life has meant to them up to that time, only to find that under the law they are barred from America, to them the promised land. Men bowed under years of oppression, women whose life has been a continued struggle for existence, children who have known little or nothing of the joys of childhood, stand with appealing hands begging for admittance. Rejection for many of them means utter poverty, a long return sea voyage, and despair. But the law is inexorable. So long as under the law we admit foreigners to this country, we could end all of these horrors if we could make our selections on the other side and transform our immigrant stations at the ports into gateways of welcome, devoid of the harshness of official delays and pains, of sorrows, and disappointment. America would then be the ideal land of the immigrant, as he has always fancied it. All of the sorrow and despair at Ellis Island arise from the cases of those immigrants who come here despite the fact that the law prevents their admittance. If we halt these cases before they leave their native countries we will end the troubles at our ports of entry. The immigrant would be qualified to land in the United States immediately upon his arrival. This I call selective immigration. So long as the United States is to admit foreigners I would have our system function to bring us the best that we can get from abroad and to make their way into America easy and comfortable. Coupled with this I would provide for the enrollment of the alien after he is here. I would have him enrolled upon his admission, and over a period of years I would provide for a census of the alien population by the Naturalization Bureau. We register every American citizen to ascertain his right to exercise the suffrage and we provide for the compulsory education of our youth. Surely there can be no objection to the enrollment of the alien who conies to us to help him acquire the qualification to be an American. This would have nothing in it that would smack of espionage or coercion. It would provide simply for helping the aliens, seeing to it that they were acquainted with the opportunities of Americanism and the meaning of American institutions. If, after a period of years, the 144 REPORT OF THE SECRETARY OF LABOR. record of the individual showed plainly that he was unfit for American citizenship, I would provide for his deportation. I am not in favor of compelling any individual to become a citizen of the United States. Merely forcing an alien to go through the formal legal ceremony of naturalization will not make him an American. True citizenship must come from the mind and the heart. To really become an American a man must feel his Americanism and must honestly want to be a citizen. Compulsory citizenship is impossible. I remember clearly the circumstances under which my family came to this country. I unhesitatingly say that my people would have welcomed the opportunity to be listed by the Government of the United States as prospective citizens. My father was, unfortunately, not an educated man, for he had begun to work for his living early in life. He became a patriotic American in spite of all the handicaps which he faced. I feel that , the system I now propose would have given him and his a better chance to absorb the spirit of America. I have given deep consideration to this matter and I am strongly in favor of this policy of selective immigration and the enrollment of the alien. I hold that whoever comes from abroad to degrade the American level of intelligence, of physical or mental or moral life, degrades every honest naturalized citizen. I have talked with the representatives of a large number of racial groups in this country, and it is surprising how few of them oppose it. It is supported by every patriotic organization, by many fraternal, social, and economic associations, by large groups of business men and workingmen. I feel certain that no racial' group which is honestly American and which thoroughly understands these proposals will reject them. I am conferring now with the representatives of several groups and am hopeful of convincing them of the wisdom of the plan. Some seem to believe it is directed against certain races or religions. I have told them that I am not interested in a man’s religion so long as he has one; that I am not interested in a man’s love affairs, except to hope that he will secure a good wife and raise a good family; and that I am not interested in a man’s race so long as he has a sincere desire to become a good American. There will be opposition, of course. I have been told that it is politically inexpedient to put this policy forward at this time. My reply is simply that we must put the country before party or political success. The clearly undesirables in this country will certainly oppose this system. The anarchists and communists who are here to preach the downfall of American institutions, the destruction of all law, order, and property, will be loud in their complaints, as they always are. The influence of the foreign-born criminals and their adherents will be against it. There will be lined up in opposition all of those who fatten upon the ignorance of the alien and who seek to keep him ignorant that they may exploit him in one way or another. , _ . , . . One source of illegal entry into the United States, which is giving us serious trouble to-day, is the operation of the seamen s law, under which alien sailors may leave their vessels in American ports for the purpose of seeking employment in other vessels. We have REPORT OF THE SECRETARY OF LABOR. 145 found hundreds of cases where individuals entering as sailors have deserted that calling immediately upon arrival, having shipped clearly for the purpose of gaining illegal admission to this country. A large number of these are Asiatics, absolutely barred by law. These cases are difficult, in some cases almost impossible to handle, with our present administrative machinery and with the funds provided for the execution of the law’. I expect to take this matter up at more length with you later. I feel that our whole administrative machinery in connection with immigration must be materially strengthened if we are properly to enforce the law and to protect our people. As approximately 1,000,000 seamen enter or leave the ports of the United States during the year, they form a problem which in point of numbers involves more than the problem of the regular immigrants who, under the present 3 per cent law, numbered only about 309,556 in the last fiscal year. Times have changed materially, Mr. President, since you entered the White House. At that time, when the 3 per cent restriction on immigration was decided upon, you will remember that we had more than 5,000,000 of our working people idle and that we faced what seemed almost certain industrial panic. Industries were closing because of lack of markets, wage scales were falling in many industries, industrial strife was spreading. Immigration restriction wa« one of the measures which helped to put an end to the industrial panic. We have come a long way through wise administrative and legislative measures since then. To-day unemployment has been reduced to a minimum, wages everywhere are rising. During the past year, even during the past few months, there have been wage increases in practically all of the 43 industries reporting to the Bureau of Labor Statistics. They have been very general in the basic industries, and have ranged from 2 to 20 per cent. Recently the larger steel plants announced general wage increases of 11 per cent, which will undoubtedly be applied throughout the industry. In the past year industrial pay rolls have increased approximately 25 per cent. Production in basic industries during January of this year reached a higher level than at any time in history, except in May, 1917. Expanding freight shipments likewise demonstrate the completeness of our industrial recovery. Under these conditions, with labor everywhere in demand, it is inevitable that there should be agitation among some for the lifting of immigration restrictions. It is unnecessary to point out the evil of throwing open the gates at a time of prosperity in order to flood the country with workers and nonworkers whose very presence would serve to bring prosperity to an end. It is a shortsighted policy to seek cheap labor through immigration. To-day, because of the demand for workers, there is a perceptible movement of common labor of a low grade from a contiguous country. Large groups of this nationality are finding their way into our mills and factories. I have talked with employers who have taken on those men and in every case they admit that an upstanding American.workman would do two and one-half times the work that is accomplished by the individual of this racial group. That being so, it is quite apparent that it is cheaper to pay an American worker twice the wages which the foreigners receive. It 146 REPORT OF THE SECRETARY OF LABOR. has been my experience since the days when I worked in the mills that cheap labor is expensive labor, both for the industry which employs it and for the community which houses it. Our immigration laws in the past have not adequately protected America. They are, however, soundly based on the principle that but two races, the Caucasian and the African Negro, are naturalizable in this country. My conclusions are, Mr. President, that our policy should be clearly defined, that it should be liberal as to the naturalizable races where the individuals applying for admittance are physically, mentally, morally, and spiritually normal and will constitute an aid to our Civilization. On the other hand, I am clear that we should absolutely bar from our shores all races which are not naturalizable under the law of the land and all individuals of all races who are physically, mentally, morally, and spiritually undesirable, and who constitute a menace to our civilization. It seems to me that the immigration laws of the future should be wholly American, drawn by Americans, enforced by Americans for the benefit of America to-day and in the future. This is due to the native-born citizen and to those immigrants who have, and who no doubt will continue to come, to contribute to this country’s industry and commerce. I am firm in the conviction that we should welcome to our country only those who come here ready to make their homes among us, to cast their lot with us for better or for worse, to support American institutions, and, above all, to take their place in that family life which after all is the basis of all social order. Faithfully yours, James J. Davis, Secretary. The President, The White House. APPENDIX III. ACT CREATING THE DEPARTMENT OF LABOR. Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled. That there is hereby created an executive department in the Government to be called the Department of Labor, with a Secretary of Labor, who shall be the head thereof, to be appointed by the President, by and with the advice and consent of the Senate; and who shall receive a salary of twelve thousand dollars per annum, and whose tenure of office shall be like that of the heads of the other executive departments; and section one hundred and fifty-eight of the Revised Statutes is hereby amended to include such department, and the provisions of title four of the Revised Statutes, including all amendments thereto, are hereby made applicable to said department; and the Department of Commerce and Labor shall hereafter be called the Department of Commerce, and the Secretary thereof shall be called the Secretary of Commerce, and the act creating the said Department of Commerce and Labor is hereby amended accordingly. The purpose of the Department of Labor shall be 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. The said Secretary shall cause a seal of office to be made for the said department of such device as the President shall approve and judicial notice shall be taken of the said seal. Sec. 2. That there shall be in said department an Assistant Secretary of Labor, to be appointed by the President, who shall receive a salary of five thousand dollars a year. He shall perform such duties as shall be prescribed by the Secretary or required by law. There shall also be one chief clerk and a disbursing clerk, and such other clerical assistants, inspectors, and special agents as may from time to time be provided for by Congress. The Auditor for the State and Other Departments shall receive and examine all accounts of salaries and incidental expenses of the office of the Secretary of Labor and of all bureaus and offices under his direction, and all accounts relating to all other business within the jurisdiction of the Department of Labor, and certify the balances arising thereon to the division of bookkeeping and warrants and send forthwith a copy of each certificate to the Secretary of Labor. Sec. 3. That the following-named offices, bureaus, divisions, and branches of the public service now and heretofore under the jurisdiction of the Department of Commerce and Labor, and all that pertains to the same, known as the Commissioner General of Immigration, the Commissioners of Immigration, the Bureau of Immigration and 147 148 REPORT OF THE SECRETARY OF LABOR. Naturalization, the Division of Information, the Division of Naturalization, and the Immigration Service at Large, the Bureau of Labor, the Children’s Bureau, and the Commissioner of Labor, be, and the same hereby are, transferred from the Department of Commerce and Labor to the Department of Labor, and the same shall hereafter remain under the jurisdiction and supervision of the last-named department. The Bureau of Immigration and Naturalization is hereby divided into two bureaus, to be known hereafter as the Bureau of Immigration and the Bureau of Naturalization, and the titles Chief Division of Naturalization and Assistant Chief shall be Commissioner of Naturalization and Deputy Commissioner of Naturalization. The Commissioner of Naturalization or, in his absence, the Deputy Commissioner of Naturalization shall be the administrative officer in charge of the Bureau of Naturalization and of the administration of the naturalization laws under the immediate direction of the Secretary of Labor, to whom he shall report directly upon all naturalization matters annually and as otherwise required, and the appointments of these two officers shall be made in the same manner as appointments to competitive classified civil-service positions. The Bureau of Labor shall hereafter be known as the Bureau of Labor Statistics, and the Commissioner of the Bureau of Labor shall hereafter be known as the Commissioner of Labor Statistics; and all the powers and duties heretofore possessed by the Commissioner of Labor shall be retained and exercised by the Commissioner of Labor Statistics; and the administration of the act of May thirtieth, nineteen hundred and eight, granting to certain employees of the United States the right to receive from it compensation for injuries sustained in the course of their employment. Sec. 4. That the Bureau of Labor Statistics, under the direction of the Secretary of Labor, shall collect, collate, and report at least once each year, or oftener if necessary, full and complete statistics of the conditions of labor and the products and distribution of the products of the same, and to this end said Secretary shall have power to employ any or either of the bureaus provided for his department and to rearrange such statistical work and to distribute or consolidate the same as may be deemed desirable in the public interests; and said Secretary shall also have authority to call upon other departments of the Government for statistical data and results obtained by them; and said Secretary of Labor may collate, arrange, and publish such statistical information so obtained in such manner as to him may seem wise. Sec. 5. That the official records and papers now on file in and pertaining exclusively to the business of any bureau, office, department, or branch of the public service in this act transferred to the Department of Labor, together with the furniture now- in use in such bureau, office, department, or branch of the public service, shall be, and hereby are, transferred to the Department of Labor. Sec. 6. That the Secretary of Labor shall have charge in the buildings or premises occupied by or appropriated to the Department of Labor of the library, furniture, fixtures, records, and other property pertaining to it or hereafter acquired for use in its business ; he shall be allowed to expend for periodicals and the purposes of the library and for rental of appropriate quarters for the accommodation of the Department of Labor within the District of Colum REPORT OF THE SECRETARY OF LABOR. 149 bia, and for all other incidental expenses, such sums as Congress may provide from time to time: Provided, however, That where any office, bureau, or branch of the public service transferred to the Department of Labor by this act is occupying rented buildings or premises, it may still continue to do so until other suitable quarters are provided for its use: And provided further, That all officers, clerks, and employees now employed in any of the bureaus, offices, departments, or branches of the public service in this act transferred to the Department of Labor are each and all hereby transferred to said department at their present grades and salaries, except where ■otherwise provided in this act: And provided further, That all laws prescribing the work and defining the duties of the several bureaus, offices, departments, or branches of the public service by this act transferred to and made a part of the Department of Labor shall, so far as the same are not in conflict with the provisions of this act, remain in full force and effect, to be executed under the direction of the Secretary of Labor. Sec. 7. That there shall be a solicitor of the Department of Justice for the Department of Labor, whose salary shall be five thousand dollars per annum. Sec. 8. That the Secretary of Labor shall have power to act as mediator and to appoint commissioners of conciliation in labor disputes whenever in his judgment the interests of industrial peace may require, it to be done; and all duties performed and all power and authority now possessed or exercised by the head of any executive department in and over any bureau, office, officer, board, branch, or division of the public service by this act transferred to the Department of Labor, or any business arising therefrom or pertaining thereto, or in relation to the duties performed by and authority conferred by law upon such bureau, officer, office, board, branch, or division of the public service, whether of an appellate or revisory character or otherwise, shall hereafter be vested in and exercised by the head of the said Department of Labor. Sec. 9. That the Secretary of Labor shall annually, at the close of each fiscal year, make a report in writing to Congress, giving an account of all moneys received and disbursed by him and his department and describing the work done by the department. He shall also, from time to time, make such special investigations and reports as he may be required to do by the President, or by Congress, or which he himself may deem necessary. Sec. 10. That the Secretary of Labor shall investigate and report to Congress a plan of coordination of the activities, duties, and powers of the office of the Secretary of Labor with the activities, duties, and powers of the present bureaus, commissions, and departments, so far as they relate to labor and its conditions, in order to harmonize and unify such activities, duties, and powers, with a view to further legislation to further define the duties and powers of such Department of Labor. Sec. 11. That this act shall take effect March fourth, nineteen hundred and thirteen, and all acts or parts of acts inconsistent with this act are hereby repealed. ADDITIONAL COPIES OF THIS PUBLICATION MAY BE PROCURED FROM THE SUPERINTENDENT OF DOCUMENTS GOVERNMENT PRINTING OFFICE WASHINGTON, D. C. AT 15 CENTS PER COPY PURCHASER AGREES NOT TO RESELL OR DISTRIBUTE THIS. COPY FOR PROFIT.—PUB. RES. 57, APPROVED MAY 11, 1922.. V I