[Reports of the Department of Labor 1920]
[From the U.S. Government Publishing Office, www.gpo.gov]
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REPORTS
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DEPARTMENT OF LABOR
REPORT OF THE SECRETARY OF LABOR
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GOVERNMENT DOCUMENTS S
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ECTION
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WASHINGTON
GOVERNMENT PRINTING OFFICE
1921
CONTENTS.
Page.
Report of the Secretary of Labor----------------------------------------------- H
Part I. The Depa rtme nt of Labor Prior to 1920.
•Agitation for an executive Department of Labor-------------------------------- 13
Beginning of the agitation----------------------------------------------------- 13
Creation of a Bureau of Labor------------------------------------------------ 14
Renewal of the agitation----------------------------- 2------------------------- 16
Creation of an inferior Department of Labor------------------------------ 17
Creation of the Department of Commerce and Labor------------------- 17
Jreation of the Department of Labor--------------------------------------------- 18
Organization of the Department of Labor---------------------------------------- 19
Financial embarrassments------------------------------------------------ 19
Departmental quarters---------------------------------------------------- 20
Office of the Secretary----------------------------------------------------------- 22
Departmental labor policy--------------------- 27
Adjustment of differences----------------------------------------------------- 29
Collective bargaining------------------------------------------------------------ 30
War-time activities-------------------------------------------------------------------- 32
The President’s Mediation Commission------------------------------------- 32
The Advisory Council------------------------x--------------------------------- 33
The National War Labor Board---------------------------------------------- 34
War Labor Pdlicies Board----------------------i------------------------------ 34
Woman in Industry Service---------------------------------------------------- 35
Information and Education Service----------------------------------------- 36
United States Training Service------------------------------------------------ 37
Investigation and Inspection Service------------------ 38
Bureau of Industrial Housing and Transportation----------------------- 38
Commission on Living Conditions---------------------------------------- 40
The Working Conditions Service______________________________ 40
Division of Negro Economics-------------- .----------------------------------- 40
War activities of the permanent bureaus------------------------------------ 41
Bureau of Labor Statistics_______________________________ 41
Bureau of Immigration----------- _--------------------------------------- 42
Children’s Bureau______________________________________ 42
Bureau of Naturalization------------------------------------------ 43
United States Employment Service------------------------------------------ 43
Conciliation_______________________________________________ 44
Departmental cabinet________________________________________ 45
Americanization_______________________________________________ 46
Labor outings_________________________________________________ 47
Public lands and employment____________________________________ 48
Departmental recommendations prior to 1920_______________________ 49
Interstate commerce in private policemen_______________________ 50
Receipts and expenditures___________________________________ 50
Destructive explosions at Ellis Island_________________________ 50
Delegation of administrative authority_________________________ 51
4 CONTENTS.
Departmental recommendations prior to 1920—Continued. Page.
Alien voting------------------------------------------------------------------------ 51
Retirement pensions-------------------------------------------------------------- 51
Employment and the public lands------------------- .------.----------------- 51
Employment Service------------------------------------------------------------- 54
■ Training Service----------------------------------------------------------------- 55
Per diem allowances for subsistence----------------------------------------- 55
Conclusion of Part I------------------------------------------------------------------ 55
Part II. Report for 1920.
Office of the Secretary---------------------------------------------------------------- 57
Chief clerk------------------------------------------------------------------------- 57
Functions _________________________________________ 57
Department quarters------------------------------------------------- 57
Personnel__________________________________________ 58
Library___________________________________________ 59
Appointment Division----------------------------------------------------- 60
Changes in personnel—Separations and changes—Transfers.
Disbursing Clerk----------------------------------------------------------- 62
Functions—Appropriations — Expenditures — Miscellaneous
receipts—Unexpended balances.
Division of Publications and Supplies---------------------------------- 65
Printing and binding—Monthly Labor Review—Children’s
Bureau publications—Women’s Bureau publications—Editorial
work—Books and blanks—Envelopes—Printed stationery—
Distribution of publications—Duplicating work—
Supplies—Contingent, 1921—Shipping—Estimated contingent
allotment for division, 1921—Centralized purchasing—
Recommendations.
Division of Negro Economics--------------------------------------------------- 70
Cooperation—Race friction and labor in 1919—Field organization—
Migration in 1918 and 1919—Report on “ The
Negro at work during the world war and during reconstruction.”
Jurisdiction of the Secretary of Labor over the exclusion and expulsion
of aliens.-------------------------------------------------------------- 73
Expulsion of alien revolutionaries-------------------------------------------- 76
Division of Conciliation--------------------------------------------------------- 80
Packing-house controversies, eastern cities—National adjustment
commission and longshoremen—Oakland (Calif.) street car
strike—Standard Steel Car Co., Butler, Pa.—Building trades
and common laborers, South Bend, Ind.—The copper industry—
Telephone companies, Cleveland, Ohio—Fort Smith
Spelter Co.—California oil workers—John Morrell & Co.
Sioux Falls, S. Dak.—Crane Co., Chicago—Ducktown Sulphur,
Copper & Iron Co.—District Council of Carpenters v. Dawson,
San Diego, Calif.—Pequanock Rubber Co., Butler, N. J.—
Eccles Drop Forge Co., Auburn, N. Y.—Underwood Typewriter
Co.. Hartford, Conn.—Virginia Railway & Power Co.—Standard
Lime & Stone Co., Martinsburg, W. Va.—Jewelry workers,
Kansas City, Mo.—Packing-house adjustments—Metal trades,
Honolulu, Hawaii—Butchers and abattoir workers, New Orleans.
La.—Packing houses. Cleveland. Ohio—Piano, organ,
CONTENTS. 5
Office of the Secretary—Continued.
Division of Conciliation—Continued. Page,
and musical instrument workers, New York City—Central
States Bridge Co., Indianapolis, Ind.—Hamilton Carhart Cotton
Mills, Rock Hill, S. C.—Scranton Pump Co., Scranton,
Pa.—United States Gypsum Co., Plasterco, Va.—Buffalo-
Springfield Roller Co., Springfield, Ohio—Demands of the fishermen’s
union for a change of the basis of settlement of
wages—Disputes in the District of Columbia—Strike of the
bituminous coal miners of the central competitive field—
Strike of bituminous miners in Illinois and adjacent States—
Situation in the anthracite coal districts of Pennsylvania—The
steel strike—Summary.
Tabulation—Statement showing number of labor disputes handled
by the Department of Labor through its commissioners
of conciliation from July 1, 1919, to June 30, 1920---------------- 115
United States Employment Service------------------------------------------ 142
Status and future—Needed legislation—Cooperation with
States—National clearing house for labor—Organization
of the service—Special activities—Soldier and sailor placement—
Grain-belt harvest—Junior Division—Professional
work—Women’s employment work.
United States Housing Corporation------------------------------------------ 156
Sales realization—Sales methods—Character of sales—Summary.
Reports of the bureaus_________________________________________ 161
Bureau of Labor Statistics----------------------1------------------------------ 161
The Monthly Labor Review—Publications other than the
Monthly Labor Review—Reports transmitted but not published.
Bureau of Immigration_____________________________________ 163
Origin and functions—General immigration—Summary of
arrivals and exclusions—Alien arrivals and departures—-
Financial ability—Ages and periods of residence of departing
aliens—Exclusion of arriving aliens—Reasons for
exclusion—Expulsion of aliens—Total deportations—Immigration
from insular United States—Induced and assisted
immigration—Contract labor—Administrative fines—Admission
of agricultural laborers under departmental exceptions—
Chinese immigration-—Japanese immigration—Asiatic
barred zone—Smuggling over borders—Seamen—Anarchist,
communist, and kindred classes—Personnel and
appropriations—Women’s Immigration Section—Origin—
Function—Women inspectors—Immigration stations—General
statement.
Children’s Bureau__________________________________________ 177
The protection of maternity and infancy—Child Hygiene
Divisions—Child-Welfare Special—Aid to mothers—The
child and the courts—Children born out of wedlock—
Child-welfare legislation—Standards of normal development
and physical fitness for working children—Child welfare
in a coal-mining community—Children engaged in industrial
home work—Rural child labor—Children entering
6 CONTENTS.
Reports of the bureaus—Continued. Page.
Children’s Bureau—Continued.
employment—Child-welfare studies in Porto Rico and
extra-continental United States—Visit to certain countries
of central Europe and suggestions based thereon.
• Bureau of Naturalization----------------------------------------------------- 189
Naturalization—Financial—Citizenship training.
Women’s Bureau___________________________________________ 197
Women in the Government service—The new position of
women in American industry—Industrial training for
women and girls—Effect of laws regulating their hours
of work on the employment of women—The responsibility
of wage-earning women for the support of others—General
industrial conditions for women in the States.
Official labor conferences------------------------------------------------------------ 201
International Labor Conference----------------------------------------------- 201
National Industrial Conference----------------------------------------------- 211
The President’s Industrial Conference—,-------------------------------- 219
Recommendations to the present and future Congresses--------------------- 221
Conclusion------------------------------------------------------------------------------ 223
Appendix_____________________________________________________ 225
Organic act of the Department of Labor------------------------------------ 225
Report on coordination of certain departmental functions-------------- 228
Activities of other departments concerning labor and its conditions
----------------------- 230
The Public-Health Service------------------------------------------------ 230
Steamboat-Inspection Service-------------------------------------------- 233
Bureau of Navigation----------------------------------------------------- 233
Interstate Commerce Commission--------------------------------------- 234
Board of Mediation and Conciliation--------------------------------- 234
Conclusion____________________________________________ 234
Report of the Industrial Conference called by the President------------- 236
Introduction------------------------------------------------------------------ 236
Prevention of disputes----------------------------------------------------- 239
Joint organization through employee representation---------- 239
Plan for adjustment,of disputes___________________________ 242
General description.:________________________________ 242
Procedure when both sides voluntarily submit disputes
for adjustment______________________________ 242
Procedure when there is no voluntary submission-------- 243
Details of the plan__________________________________ 243
National and regional boards---------- - --------------------- 243
National Industrial Board________________________ 243
Regional chairmen and vice chairmen------ .---------------- 245
Panels of employers and employees for regional boards. 245
Detailed procedure of regional adjustment conference- 245
Powers and duties of regional board of inquiry---------- 246
Transformation of the regional boards of inquiry into
regional adjustment conferences_________________ 247
Umpire________________________________________ 247
Combinations of regions__________ 247
Time of reporting findings________________________ 248
Effect of decision----------------------------- :------------------ 248
CONTENTS. 7
Appendix—Continued. Page.
Report of the Industrial Conference called by the President—Cont’d.
Plan for adjustment of disputes—Continued.
Details of the plan—Continued.
Application of awards________________ -■----------------- 248
Procedure on failure to comply with an award----------- 248
Relation of boards to existing machinery for conciliation
and adjustment-------------------------------------- 249
General provisions----------------T---------------------------- 249
Basis of decisions________________________________ 250
Protection of information------------------------------------- 250
Public utilities_____________________________________ 251
Public employees----------------------------------------------------- 253
Other problems affecting the employment relationship-------------- 254
The development of industrial relations------------------------- 254
Collective bargaining____________________ 254
Hours of labor______________________________________ 256
Women in industry__________________________________ 258
Child labor-------------------------------------------------------------- 258
Housing------------------ --------------------------------- .------------- 260
Wages_____________________________________________ 260
Profit sharing and gain sharing------------------------------------ 261
Thrift agencies_____________________________________ 262
Inflation and the high cost of living------------------------------ 263
Public employees____________________________________ 263
Agriculture_________________________________________ 266
Unemployment and part-time employment------------------------ 267
Public employment clearing house______________________ 269
Conclusion--------------------------------------------------------------- 270
Reports of the Bure aus .
Bureau of Labor Statistics-------------------------- /----------------------------- 273
Bureau of Immigration________________________________________ 283
Children’s Bureau_____________________________________________ 723
Bureau of Naturalization_______________________________________ 767
Women’s Bureau_______________________________________________ 881
Division of Publications and Supplies_____________________________ 893
United States Employment Service_______________________________ 911
Index 953
REPORT
OF THE
SECRETARY OF LABOR
EIGHTH ANNUAL REPORT
OF THE
SECRETARY OF LAROR
Depa rt men t of Labo r ,
Offic e of th e Sec re ta ry ,
IV ashington, D. C., October 31, 1920.
To the Pre sid en t :
Inasmuch as the Eighth Annual Report of the Department of
Labor is its final report for the period of your presidential administration,
with the beginning of which nearly eight years ago its own
beginning is identified, a brief historical review of the origin and
activities of the Department appears to me to be appropriate and
likely to be useful.
Such a review seems appropriate because you as President of the
United States have sympathetically furthered the statutory purposes
of the Department of Labor throughout your double term of office,
which coincides with the life of the Department thus far. It is likely
to be useful because in the further life of the Department those who
are responsible for its work may need information about its origin
and are certain to need the benefit of its experience.
I am, therefore, devoting Part I of this report to the circumstances
that led to the creation of the Department, to those that attended its
organization, and to an outline of its principal activities during the
seven annual periods preceding the period to which Part II more
particularly relates.
W. B. Wil son ,
Secretary of Labor.
11
PART I.
The Department of Labor Prior to 1920.
i
AGITATION FOR AN EXECUTIVE DEPARTMENT OF
LABOR.
Tenth among the executive departments of our National Government,
the Department of Labor came into statutory life on the 4th
of March, 1913. Its organic law,1 enacted a few days before by a
Democratic Congress, was on that day approved by a Republican
President, your immediate predecessor, whereupon the obligation of
appointing the first Secretary of Labor devolved upon you. This
was the climax of an agitation for a Department of Labor, which
had begun soon after the close of the Civil War of 1861-1865.
At that time the wageworkers of the United States, most of whom
had been soldiers on one side or the other in that intranational conflict,
found themselves victims of economic circumstances which they
could not control, and which nobody seemed to understand. Although
a more or less fortunate few of the population lived in luxury
without seeming to earn their incomes by commensurate work of
any useful kind, wageworkers and their families were suffering from
lack of opportunities for profitable employment and consequently
from inadequate wages for hard and useful service when employed.
Beginning of the Agitation.
In those circumstances a conference at Louisville, Ky., in August,
1865, attended by leading representatives of wageworking interests,
some of whom had but recently worn the Federal blue and others
the Confederate gray, adopted a resolution favoring the creation
of a national Department of Labor. The text of this resolution is
as follows:
Every department of the Federal Government is now and has been officered
by professional men, business men, or manufacturers. They are or have been
employers of labor or counselors of employers. Naturally their sympathies are
'not with labor. There should, be at Washington a Department of Labor to be
officered by men who are of and with labor, the duty of that department to be
the guarding of labor interests in every way now known or which hereafter
may become known. *
The text in full may be found in the appendix to this report.
13
14 REPORTS OF DEPARTMENT OF LABOR.
The aspirations for a labor department in the National Government
to which that resolution gave expression were emphasized a
few weeks later in a letter from the president of the National Organization
of Molders to another labor leader of national reputation
and influence. “ What we need,” he wrote, “ is a department of the
Government attending exclusively to labor matters, with its head in the
President’s Cabinet to speak for us.”
Those appear to have been the first precise demands for a labor
department in the National Government. Others followed. The
Louisville demand quoted above was repeated at a labor convention
held at Baltimore in August, 1866. It was embodied in a series of
resolutions which wTere forthwith laid before President Johnson by
a committee appointed by the convention for that purpose. At the
same meeting this convention organized the National Labor Union, a
body composed of the trade and labor unions of the United States,
and at its next convention, held at Chicago a year later (1867), this
body adopted the following further declaration on the subject:
Resolved, That as labor is the foundation and cause of national prosperity,
it is both the duty and interest of the Government to foster and protect it. Its
importance, therefore, demands the creation of an executive department of the
Government at Washington, to be denominated the Department of Labor, which
shall aid in protecting it above all other interests.
After the third convention of the National Labor Union, which
was held at New York City in 1868, its presiding officer, calling officially
upon President Johnson, informed him of the desires of the
organized labor of the country with reference to governmental recognition.
At that interview the demand of wageworkers for administrative
representation in the National Government was especially
emphasized to President Johnson by the labor representative, who
said:
We want a new department at Washington to be called the Department of
Labor, the head of said department to be called the Secretary of Labor and to be
chosen directly from the ranks of workingmen. To this department should
be referred all questions of wages and the hours of labor in the navy yards
and all other Government workshops, the registry and regulation of tradesunions
and cooperative associations, the disposition of public lands, and all
other questions directly connected with and affecting labor.
Creation of a Bureau of Labor.
Three years had passed by when Congressman George F. Hoar, influenced
probably by the National Labor Union, which, however, had
barely survived that period, introduced in the House of Representatives
in 1871 a bill to create a Commission on Labor. Although his bill was
supported by the trade-unions of the time, they made it plain that
they were supporting it only “ as a temporary expedient ” and would
ANNUAL REPORT SECRETARY OE LABOR. 15
“ continue their efforts in behalf of a Department of Labor.” Mr.
Hoar’s bill did not pass.
A tactical tendency then set in toward modifying the demand for
an executive department. The Industrial Congress, held at Cleveland,
in 1873, temporarily modified the Louisville demand of 1865 by
adopting the following declaration:
To arrive at the true condition of the producing masses in their educational,
moral, and financial condition, we demand from the several States and the National
Government the establishment of bureaus of labor statistics.
This part-way policy was affirmed in 1874 by the same industrial *
body at its second meeting, held in April at Rochester, N. Y. On
that occasion the Industrial Congress laid aside a resolution for
waging a campaign in favor of the establishment of a National Department
of Labor, doing so, however, with the understanding that
the wiser course for securing such a department lay in the direction
of first creating bureaus of labor both at Washington and in the
several States. Consequently the prudential decision of the Industrial
Congress at its first meeting, held in 1873, was affirmed at its
second meeting, held in 1874.
That was near the beginning of the hard times of the seventies,
when the Industrial Congress, which had meanwhile changed its
name to the Industrial Brotherhood, went out of existence, as had the
National Labor Union before it. During this long period of industrial
depression there was little or no active labor movement in the
United States, but with the return of normal conditions the Knights
of Labor became and for some years remained the principal national
labor organization of this country. At its first general assembly,
held in January, 1878, the Knights of Labor advocated the establishment
of labor bureaus, deciding also as matter of progressive policy
not to demand an executive department in the National Government
until labor bureaus had been established in States where industrial
plants had attracted large numbers of skilled ■ wageworkers. The
same policy was pursued by the Federation of Organized Trades and
Labor Unions, which subsequently became the American Federation of
Labor—now, as for many years, the dominant labor organization of
the United States and Canada. At its first convention, held in 1881,
this organization favored the establishment of a national bureau in
these terms:
We recognize the wholesome effect of a bureau of labor statistics as created
in several States, and we urge upon our friends in Congress the passage of an
act establishing a national bureau of labor statistics, and recommend for its
management the appointment of a proper person identified with the laboring
classes of the country.
From that time until its creation by Congress the friends of
organized labor were united and persistent in their efforts to secure
16 REPORTS OF DEPARTMENT OF LABOR.
a national labor bureau in contradistinction to an executive department.
The matter came into Congress first in 1879 with the Murch bill,
the purpose of which was to establish a Bureau of Labor. This bill
languished for five years, other bills being meanwhile introduced
from time to time but with no better results. The bills that met the
fate of the Murch bill of 1879, either before or after it,2 included one
introduced in 1864 by Hon. Gottlieb Orth, then a Representative
from Indiana. The Orth bill, probably the first with reference to
' any aspect of the subject, proposed a Department of Industry. By
1867 the House of Representatives had advanced far enough, in the
general direction aimed at by the labor organizations, to instruct its
Committee on Rules, by resolution, to inquire into the expediency of
the creation of a standing Committee on Labor. In 1871 it passed a
bill for the appointment of a commission on the subject of wages
and working hours and of capital in the United States. As time
went on a bill for a Bureau of Labor was introduced by Senator Blair,
and one for a Bureau of Labor Statistics by Representative Willis.
Another bill for a Bureau of Labor Statistics was introduced by
Representative McKinley, who afterwards became President. • Still
another for a Bureau of Labor Statistics was introduced by Representative
O’Neill, and yet another by Representative Lamb. Representative
Foran introduced one for a Department of Industry. Other
plans in the mass of proposed legislation included proposals for a
Labor Bureau in connection with the Department of Agriculture, a Bureau
of Labor with a Commissioner of Labor, and a Bureau of Labor Statistics
in the Interior Department.
Those and several other bills of similar tenor and purpose were
followed in 1884 by preliminary legislation in the direction of the
present Department of Labor, and out of them an act was framed
which passed both Houses of Congress. It was approved June 27,
1884, by President Arthur. This act created a “ Bureau of Labor in
the Department of the Interior.”
Renewal of the Agitation.
The Bureau of Labor in the Department of the Interior was the
statutory germ of what has become the executive department for
which I am now making the eighth annual report. Twenty years of
agitation over the country and of effort before Congress had brought
the wageworkers thus far toward a realization of their demands for
an executive department with a member of the President’s Cabinet
2 More than a hundred such bills, including resolutions, are summarized at pp. 13—21
of a public document, long out of print, entitled “ Organization and Law of the Department
of Commerce and Labor.” (Government Printing Office, 1904.) They cover the
period from 1864 to 1902.
ANNUAL REPORT SECRETARY OF LABOR. 17
at its head. Thirty years more were to pass before they realized
their original proposal.
Meanwhile their agitation did not cease. In his official annual address
before the General Assembly of the Knights of Labor at Minneapolis
in October, 1887, the general master workman of that body
(Terence V. Powderly) renewed the demand for an executive department.
The portion of his address in which he dealt with that
subject is as follows:
I believe the day has come for united labor to ask at the hands of Congress
the passage of a law creating a Department of Labor at the seat of the National
Government. I would respectfully ask of the committee on legislation to prepare
a bill and introduce it to Congress at the next session. We have to-day a
Department of War; we do not need it at all in comparison to a Department of
Labor. The Navy Department is not such an important one, for we do not require
the use of a very extensive national Navy. The prosperity of the whole
country rests on the broad shoulders of labor. There is now nothing so prominently
before the Nation and the world as the question of labor. Nearly every
action taken by the Executive or his Cabinet deals in one way or another with
the question of labor. Its ramifications extend everywhere, its power is felt
everywhere, and its usefulness is recognized everywhere. All this being true,
it is no more than just that the President should have as a member of his
Cabinet a man who represents more than war, more than a few vessels, more
than a sentiment, more than a class. Labor can not be called a class, for it is
everywhere and at the base of everything. With a man in his Cabinet whom he
could consult on the question of labor, the President would be in a better position
to deal with the question of capital. Labor is entitled to far more at the
seat of Government than a mere bureau. But it will not receive any more unless
it asks for it. I recommend that it ask for the establishment of a Department
of Labor.
Creation of an Inferior Department of Labor.
A bill for an executive department was consequently introduced
in Congress, but upon assurances that congressional assent to placing
a representative of wageworkers in the President’s Cabinet could not
be obtained, the promoters of this bill made their second compromise.
They thereby secured congressional action which in 1888 promoted
the Bureau of Labor to an independent status as a Department of
Labor, but without executive rank. Nevertheless, the agitation for
an executive department with a Secretary of Labor in the President’s
Cabinet continued after this independent but inferior department
had been created.
Creation of the Department of Commerce and Labor.
Prior to the creation of the independent Department of Labor in
1888, several bills for an executive department had been introduced.
Several more were introduced afterwards. In form the bills introduced
after the creation of the independent department were quite
15283—LAB 1920---- 2
18 REPORTS OF DEPARTMENT OF LABOR.
alike in title to some of those introduced prior to the creation of the
original Bureau of Labor, and to others introduced between the two.
Among them all were bills to establish, respectively, a “ Department
of Agriculture and Labor,” a “ Department of Industry and Bureau
of Labor,” a “ Department of Labor,” a “ Department of Agriculture
and Industry,” and a “ Department of Industries.” Gen. Weaver,
subsequently a prominent candidate for President but then a Member
of Congress, introduced a bill for the creation of a Department of
Labor with a Secretary of Labor at its head. Some of the bills were
more intimately related to the commercial and business side of industrial
affairs than to the wageworking side. Others, however, distinctly
anticipated the present Department of Labor and its principal
functions. None was enacted, but all of them played a part in
the ultimate creation of the present Department of Labor.
They were blended by the Fifty-eighth Congress in an act creating
the Department of Commerce and Labor, in which the independent
Department of Labor was made a bureau. This act was approved
February 14,1903, by President Roosevelt.
CREATION OF THE DEPARTMENT OF LABOR.
By the act creating the Department of Commerce and Labor the
welfare of the wage earners of the United States had been intrusted
to an executive department designed to represent also, if not indeed
primarily, the interests of employers. This amalgamated representation
of industrial interests of a kind that are often conflicting in
fact, whether so in essential principle or not, proved unsatisfactory.
Not only did the new Department fall far short of satisfying the
needs of wage earners; it had in it all the possibilities of a hostile
instead of a friendly governmental agency. An executive department
in the interest of wageworkers, such as they had urged upon
Congress for nearly half a century, was consequently demanded with
greater popular emphasis than ever before.
That historic demand finally found favor in the Sixty-second Congress.
An act was passed at the third session, in the winter of
1913, which divorced the divergent jurisdictions of the Department
of Commerce and Labor by withdrawing from it such functions as
had reference especially to wage-earning interests and placing them
under the additional executive department which this act created—
namely, the Department of Labor. Commercial functions were thereby
left to the Department of Commerce and Labor, the name of which
was altered to Department of Commerce, but all its functions with
reference to the interests of wageworkers were transferred to the
new department.
ANNUAL REPORT SECRETARY OF LABOR. 19
By that transfer the Bureau of Labor, its title altered to Bureau of
Labor Statistics,3 came under the jurisdiction and supervision of the
Department of Labor. So did the Children’s Bureau. The Bureau of
Immigration and Naturalization4 was also placed under the jurisdiction
and supervision of the Department of Labor, its title being
altered to Bureau of Immigration. To those three bureaus a fourth
was added by raising the Division of Naturalization in the former
Bureau of Immigration and Naturalization to the rank of a bureau—
the present Bureau of Naturalization. Thus the bureaus placed under
the jurisdiction and supervision of the Department of Labor by its
organic act,5 and which still remain under its jurisdiction and supervision,
are the Bureau of Labor Statistics, the Bureau of Immigration,
the Children’s Bureau, and the Bureau of Naturalization.
The act of Congress which effected that culminating labor-department
legislation was approved by the outgoing President, Mr. Taft,
on the 4th day of March, 1913. Under this act and on the same day
you honored me with a seat at your Cabinet table as the first Secretary
of Labor.
In consequence of your appointment the duty fell upon me of
organizing that executive department for which the wage-earning
interests of the United States had petitioned Congress again and
again over the period of half a century; also the duty, which has
rested upon me throughout the two terms of your historic administration,
of directing the activities of this the youngest of the ten
executive departments of the Federal Government.
ORGANIZATION OF THE DEPARTMENT OF LABOR.
Formal organization began with the date of the Department’s
creation—March 4, 1913.
Financial embarrassments.—Considerable financial embarrassment
attended the initial work. Although the equipment and appropriations
of the four bureaus transferred by Congress to the jurisdiction
of the Department of Labor came over with the bureaus, their use
was limited to the bureaus, respectively. Consequently they were
not available for general departmental functions. For those functions
the Congress that created the Department had neither supplied
equipment nor made any financial provision. Until two months after
its creation this new Department was consequently dependent upon
* The Bureau of Labor Statistics had originally been the “Bureau of Labor in the Department
of the Interior,” then the independent “ Department of Labor,” and later the
“ Bureau of Labor ” in the Department of Commerce and Labor.
* The Bureau of Immigration was originally organized in the Treasury Department, having
been transferred thence to the Department of Commerce and Labor, where it bore the
title of “ Bureau of Immigration and Naturalization.”
5 See appendix.
20 REPORTS OF DEPARTMENT OF LABOR.
the generosity of the Department of Commerce for departmental
quarters and furniture and for clerical, messenger, and elevator
service. Even the salaries of departmental officers were unprovided
for.
As to salaries, the embarrassing situation was remedied by an act
of May 1, 1913. But this act made no provision for subordinate
clerks nor for meeting other working expenses in the Office of the
Secretary. In those respects, therefore—in some others also—the
Department of Labor continued in a state of dependence upon the
Department of Commerce until the close of the fiscal year, June
30, 1913.
The expenditures for the Office of the Secretary (consisting of the
Secretary and his working force, the Assistant Secretary, the Chief
Clerk and the Disbursing Clerk with their several assistants, the
Division of Publications and Supplies, the Appointment Division,
and the Solicitor and his assistants) were, for the four months of
that fiscal year, $15,585.56—an average of less than $4,000 for each
month of the Department’s existence and at the rate of less than
$50,000 a year.
Departmental quarters.—Another embarrassing phase of the internal
organization related to departmental quarters. The bureaus
which had been transferred to the Department of Labor were occupying
rented premises, as follows: The Bureau of Labor Statistics
was located at 462 Louisiana Avenue, the Children’s Bureau at Ninth
Street and Grant Place, and the Bureau of Naturalization at 1333 F
Street. The Bureau of Immigration was the only one of the transferred
bureaus which had occupied space in the Willard Building, the
headquarters of the Department of Commerce and Labor. Those
bureaus were permitted by the organic act to continue such occupancy
until suitable quarters could be provided, but there was no
space at all for the Office of the Secretary and its divisions.
Partly to meet that difficulty, two rooms of the Bureau of Immigration
in the Willard Building were set aside. The Commissioner
General of Immigration therefore moved into extremely narrow
quarters in order to make room for the Secretary of Labor. But
this building, then occupied by both the Department of Commerce
and the Department of Labor, as it had been by the former Department
of Commerce and Labor, was already overcrowded.
It was in such congested conditions and with such limited finances
that the Department of Labor began its work.
The congestion continued until about the middle of October, 1913,
when the Department of Commerce moved from the Willard Building
to its new building at Nineteenth Street and Pennsylvania Avenue
NW. Even then the embarrassment did not end. Congress
having assumed that the four bureaus of the Department of Labor
ANNUAL REPORT SECRETARY OF LABOR. 21
could be afforded space in the new building of the Department of
Commerce, which had been erected for the accommodation of the
former Department of Commerce and Labor and all its constituent
parts, only $5,000 for rent for the Office of the Secretary during the
remainder of the fiscal year ending June 30, 1914, was appropriated
by the act of October 22, 1913. This was not enough for the emergency.
Occupancy of the new building by both Departments would
have interfered with plans of the Department of Commerce, which
contemplated occupying the entire premises to the exclusion of the
Department of Labor and all its bureaus.
Further embarrassments also arose. The leases which the Department
of Commerce, as sole successor to the Department of Commerce
and Labor, had acquired for the Willard Building, in which its executive
offices and their branches and those of this department were
quartered, ran only until October 15, 1913. There was danger, therefore,
that, with but $5,000—the amount appropriated by the act of
Congress last cited—available for rent for the remainder of the fiscal
year from October 15, 1913, to June 30, 1914, the Department of
Labor would be wholly without office accommodations.
The difficulty was finally overcome through a contract with the
owners of the Willard Building, supplemented by a concession from
the Department of Commerce. The former Department of Commerce
and Labor, having paid an annual rental of $11,830 for the
Willard Building, the owners of that building agreed to accept from
this Department for the remainder of the fiscal year (from the end
of the lease to June 30, 1914) the total amount at the disposal of
the Department for rent, i. e., $5,000. Acceptance of this offer, however,
would have accomplished little but for a further concession by
the Department of Commerce, which provided temporary quarters
in its new building for one of the bureaus of the Department of
Labor—the Bureau of Labor Statistics.
Excepting its Bureau of Labor Statistics and the Children’s Bureau,
the Department of Labor, with its constituent bureaus, was
located in the Willard Building and maintained there until the close
of the fiscal year 1914. But its difficulties continued. The owners
of the Willard Building served notice that they would demand
$11,830 for the term beginning July 1, 1914. Even if an appropriation
of that amount for rent could have been confidently hoped for,
the Department would still have been embarrassed for office accommodations
unless the Bureau of Labor Statistics could be permitted
to remain in the building of the Department of Commerce, a concession
which the Department of Commerce hesitated to offer, because
it needed the whole building for its own uses.
The logical and businesslike way of disposing of this matter, pending
the erection of proper buildings, would have been to confer upon
22 REPORTS OF DEPARTMENT OF LABOR.
the Department of Labor authority similar to that already granted
the Department of Commerce. It should have been empowered to
enter into a five-year lease of premises adequate to its uses and those
of all its bureaus, the premises to be selected by the Secretary of
Labor, at an annual rental in conformity with the legal rate per
square foot, which, for the amount of space required, would aggregate
$24,000. Under such authority this Department would have
been able to secure quarters adapted to the transaction of its business
and reasonably appropriate to the dignity of an executive department
of the Federal Government. But that course was not
adopted.
Extraordinary circumstances enabled the Department to lease
the Mills Building at the low rental of $16,500. The arrangement
being, however, for only one year, the lucky lease ended with June,
1915; and for a five-year term thereafter the rent demanded was
$26,000. Though large, this amount was not considered excessive;
but Congress prevented acceptance by limiting the rent appropriation
to $20,000 a year for five years. A thorough canvass of the city
was made, but no accommodations could be found at the rent appropriated.
Finally a compromise was effected with the owner of the
Mills Building at the appropriated sum of $20,000 on condition that
the Department make certain repairs. But this arrangement was
for one year only—the fiscal year ending with June, 1916.
With July, 1916, the difficulties with reference to departmental
quarters ended, Congress having meanwhile authorized the leasing
of a modern office building for five years at a rental of $24,000, and
also for the renewal of the lease on the Mills Building for the fiscal
year 191? at a rental of $24,000. The building at 1712 G Street NW.,
in which the Department is now quartered, was erected under the
general direction of the Department of Labor as its prospective
tenant. The Department’s occupancy of this building—which, until
the United States entered the World War, was shared by all its
bureaus, as well as the Office of the Secretary—began July 1, 1917.
The present lease will terminate June 30, 1922, but is renewable for
a further term of five years.
Office of the Secretary.
The Office of the Secretary comprises the Secretary of Labor, the
Assistant Secretary of Labor, the Solicitor, the Chief Clerk, the Disbursing
Clerk, the Division of Publications and Supplies, the Appointment
Clerk, the News-Release Office, the Division of Negro Economics,
and the Division of Conciliation. To these has recently been
added an Advisory Committee on appeals and warrants in immigration
proceedings.
ANNUAL REPORT SECRETARY OF LABOR. 23
The Secretary of Labor directs the collection and dissemination of
statistics relating to the condition of labor and the products of labor.
He has authority to call upon other departments of the Government
for statistical data obtained by them on the same subject. He
directs the correlation, arrangement, and publication of all such
matter. It is further his duty to collect and publish information
regarding labor interests and labor controversies in this and other
countries. An act of Congress for compensating certain employees
of the United States injured in the service was administered by the
Secretary of Labor until those functions were transferred by a later
act to the United States Employees’ Compensation Commission.
It has also been and still is his function to enforce the immigration
laws, the Chinese-exclusion laws, and the naturalization laws. In
connection with these he is invested with exclusive jurisdiction to
decide appeals from decisions made by immigration officials at ports
of arrival and over warrants for the deportation of resident aliens.
Matters pertinent to child life are likewise under his supervision.
In addition to these functions, formerly belonging to the Secretary
of Commerce and Labor, the Secretary of Labor is charged with the
relatively new Federal function of acting as mediator and appointing
commissioners of conciliation in labor disputes whenever in his judgment
the interests of industrial peace may require it.
The Assistant Secretary of Labor performs such duties as are prescribed
by the Secretary of Labor or may be required by law. No
other duties are required of him by law than those prescribed by the
Secretary, except that in case of the death, resignation, absence, or
sickness of the Secretary, the Assistant Secretary must, unless otherwise
directed by the President, perform the duties of the Secretary
until a successor to the Secretary shall have been appointed or his
absence or sickness shall have ceased.6
The Solicitor is an officer of the Department of Justice assigned to
the Department of Labor as its chief law officer. He examines and
advises regarding contracts, leases, and bonds affecting the administration
of the affairs of the Department, prepares legal opinions
at the request of the Secretary, and performs such other legal cervices
in connection with the administrative work of the Department as
may be required of him by or on behalf of the Department or its
bureaus. The solicitor is also authorized, pursuant to Executive
order and by direction of the Secretary, to serve as Acting Secretary
of Labor in certain circumstances.7
The Chief Clerk has general management, under the immediate
direction of the Secretary of Labor, of the clerks and employees of
the Department and the enforcement of the regulations. He super-
»B. S., sec. 177. 7 R. S„ sec. 179.
24 REPORTS OF DEPARTMENT OF LABOR.
intends all building accommodations in the District of Columbia,
supervises all expenditures of contingent appropriations and rentals,
and receives and distributes the mail of the Department and its
various bureaus. He also supervises all the miscellaneous business
of the Office of the Secretary not otherwise assigned.
The Disbursing Clerk is charged with the custody and expenditures
of Department appropriations, with the custody of receipts from
naturalization fees, with supervision of transportation requests and
vouchers, and with the auditing of all the accounts of the Department
and its bureaus.
The Division of Publications and. Supplies supervises the printing and
distribution of departmental publications and blank forms, and is
in direct charge of the business of the Department with the Government
Printing Office. It has the custody and general supervision of
the purchase and distribution of supplies, directs the Department’s
advertising, and compiles semiannual returns of all public property
under the control of the Department.
The Appointment Clerk prepares all papers connected with appointments,
transfers, promotions, reductions, details, furloughs, and
removals of employees of the Department, and is custodian of the
oaths of office and the personnel files of employees and of their
efficiency reports.
The News-Release Office was established by an order of the Secretary
dated June 12, 1914. This order directed the designation of an
official in each bureau to submit reports at regular hours daily to the
Assistant Secretary for his action with reference to their release
for general publication. At a meeting of the bureau officials so
designated, held for consultation on August 21, 1914, regulations in
the matter were established, under which news material originating
in any branch of the Department is required to pass through the
News-Release Office prior to release for publication, except such
local news as may be released in field or station service. Any information
about any of the work of the Department, so far as it may
have news value, is available for such use, provided it may be published
without prejudice to the public interest.
Other subdivisions.—The origin and activities of the Division of
Conciliation, the Employment Service, the Division of Negro Economics,
the war-work divisions, and the Advisory Committee on
appeals and warrants in immigration procedure, all of which are
or have been in the Office of the Secretary, are described elsewhere
in this report.8
The four bureaus.—The perplexities attending the formal organization
of the Office of the Secretary in this new executive department
8 See Part I and Part II, pp. 24—25, 38—39, 41—43, 52, 68—71, 78—155.
ANNUAL REPORT SECRETARY OF LABOR. 25
were only slightly accentuated—in some respects they were lessened—
by the necessity for adjusting the four bureaus to their new departmental
environment.
As already noted, the Bureau of Labor Statistics, the Bureau of
Immigration, the Children’s Bureau, and the Bureau of Naturalization,
all of which had theretofore functioned in the Department of
Commerce and Labor, were transferred to this Department upon its
statutory creation. Since each had already been internally organized—
the last, however, as a division in a bureau instead of a bureau—
the process of adaptation to their new departmental relationship
was simple in comparison with the difficulties of organizing the
Office of the Secretary. Such difficulties as this readaptation did
involve were greatly minimized by the fact that the bureaus had
been financed with more or less adequate appropriations, and the
further fact that the officials and employees of each bureau cooperated
with the Secretary cordially.
By the organic act9 each of these bureaus is placed under the
jurisdiction and supervision of the Department of Labor, its work
and duties to be executed under the direction of the Secretary of
Labor. Full reports upon their respective activities since their
transfer to this Department and until the close of the fiscal year 1919
will be found in the seven preceding annual reports of the Department
and its bureaus.10 1 1Abstract reports of their activities for the
year 1920 appear in Part II of this report.
Interdepartmental coordination.—By section 10 of the organic act of
the Department of Labor 11 the Secretary of Labor was required to
“ investigate and report to Congress a plan for coordination of 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
9 See appendix.
10 See Department Report for 1913, pp. 24-48; also 347-351 for the Bureau of Labor
Statistics, 93-344 for the Bureau of Immigration, 73-90 for the Children’s Bureau, 355-388
for the Bureau of Naturalization. Department Report for 1914, pp. 58-88 ; also 521-528
for the Bureau of Labor Statistics, 125-520 for the Bureau of Immigration. 107-123 for
the Children’s Bureau, 529-565 for the Bureau of Naturalization. Department Report for
1915, pp. 56-86 ; also 89-98 for the Bureau of Labor Statistics, 99—356 for the Bureau of
Immigration, 357—380 for the Children’s Bureau, 381—415 for the Bureau of Naturaliza
tion. Department Report for 1916, pp. 89—121 ; also 137—150 for the Bureau of Labor
Statistics, 151-401 for the Bureau of Immigration, 403-427 for the Children’s Bureau,
429-506 for Bureau of Naturalization. Department Report for 1917, pp. 120-152 ; also
163-172 for the Bureau of Labor Statistics, 173-423 for the Bureau of Immigration,
425-472 for the Children’s Bureau, 473-551 for the Bureau of Naturalization. Department
Report for 1918, pp. 160-200 ; also 235-243 for the Bureau of Labor Statistics, 245-554
for the Bureau of Immigration, 555-579 for the Children’s Bureau, 581—651 for the
Bureau of Naturalization. Department Report for 1919, pp. 225-275 ; also 315—324 for
the Bureau of Labor Statistics, 327-720 for the Bureau of Immigration, 721-750 for the
Children’s Bureau, 751-862 for the Bureau of Naturalization.
11 See appendix.
26 REPORTS OF DEPARTMENT OF LABOR.
power of such Department of Labor.” The organic act in this
respect manifestly contemplated a special report. Therefore, on
the 9th day of January, 1917, after careful preparation over a considerable
period and with the aid of experienced employees of the
classified service, a special report was made and transmitted by the
Secretary of Labor to Congress.12 As yet Congress has taken no
action on this special report.
Mediation and Conciliation.—One of the most important requirements
of the Department of Labor is that under which the Division
of Conciliation has been organized in the Office of the Secretary as
noted above. It is embodied in section 8 of the organic act13 as
follows:
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
interest of industrial peace may require it to be done.
No other provision having been made by Congress for organizing
a bureau or statutory division for the purpose of administering the
power thus created, it has been administered from the beginning by
the Secretary of Labor under his own immediate direction.
At first, from total lack of appropriations for the purpose, the Secretary
was obliged to draw such assistance as could be spared from
bureaus organized for collateral purposes. Notwithstanding that
handicap, however, and others of a kind that usually obstruct the
development in practice of novel administrative functions, appreciable
progress was made at once in conserving the interests of industrial
peace. In the following years and supported by direct though
altogether inadequate appropriations, the Division of Conciliation in
the Office of the Secretary has been established. Its work, which has
been of extraordinary value to all parties affected by industrial disputes,
has been described in considerable detail from year to year in
the reports of the Department down to and including 1919.14 For the
year 1920 the work of this departmental agency is accounted for in
Part II of the present report.
Employment Service.—In his first report the Secretary of Labor
suggested that the Division of Information in the Bureau of Immigration
might be developed into an effective national employment
agency for promoting the fundamental purpose of the Department
of Labor as defined by the organic act.
The Division of Information had been established in 1907 as part
of the then Bureau of Immigration and Naturalization (later the
Bureau of Immigration), for the purpose of promoting a beneficial
12 For full copy of this special report see Department Report for 1917, pp. 94-103;
also appendix to this report, post, pp. 226-233.
13 See appendix.
M Department Reports as follows: 1913, pp. 14-23; 1914, pp. 21—50; 1915, pp. 9—34;
1916, pp. 10-53; 1917, pp. 50-56; 1918, pp. 12-95 ; 1919, pp. 27-120.
ANNUAL REPORT SECRETARY OF LABOR. 27
distribution of aliens admitted to the country. Why not utilize it
for promoting a beneficial distribution of citizens also?
In connection with this suggestion, the Secretary insisted that
workers should not be directed to labor markets already supplied in
excess of opportunities for their profitable employment. Such a
policy, which was frequently urged upon the Department, would have
stultified the fundamental purpose prescribed by its organic act,
namely, to “ foster, promote, and develop the welfare of the wage
earners of the United States.” 15
Following the Secretary’s suggestion, the functions of the Division
of Information were experimentally utilized for employment
purposes in behalf of citizens and aliens alike. As the division had
been placed by Congress in a Department charged with promoting the
welfare of the wage earners of the United States, its function of
promoting a beneficial distribution of aliens was regarded as having
been inferentially enlarged so as to include citizens. This experiment
was first made with reference to harvest help just at the close of the
fiscal year 1914, and with reference to factory employment at about
the same period. The particulars of the experiment and its development
from 1914 to 1920 into the United States Employment Service
are set out in the annual reports from 1914 to 1919, both inclusive.16
DEPARTMENTAL LABOR POLICY.
The Department of Labor was created in the interest of the wage
earners of the United States. This is expressly declared in that
clause of the first section of the organic act, which reads:
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 profiable employment.
Accordingly the Department has been administered in all its activities
with reference to the just interests of wage earners and to the
promotion of their industrial and social welfare. In that declaration
of the organic act, there is, of course, no authority to foster, promote,
or develop for wage earners any special privileges. Nor has the Department
attempted or desired to create or foster special privileges
for anyone. Wage earners are already heavily burdened with special
privileges in favor of other interests. It should be their aim to abolish
or modify these, rather than to secure special privileges for themselves.
Organizations.—Neither has the Department regarded wage earners
who are associated together in unions as the only wage earners for
1B Department Report of 1913, p. 43.
18 Department Reports of 1914, pp. 50 57 ; 1915, pp. 34—45; 1916, pp. 53—73; 1917, pp.
67-94 ; 1918, pp. 199-219 and 673-729 ; 1919, pp. 276-302 and 885-1056.
28 REPORTS OF DEPARTMENT OF LABOR.
whom the law requires it to be solicitous. Created in the interest of
the welfare of all wage earners in the United States, whether organized
or unorganized, the Department has been administered in the
interest of all from its beginning.
Inasmuch, however, as ordinarily it is only through organization
that the many of any industrial group or interest can become articulate
with reference to their common needs and aspirations, the Department
has usually been under the necessity of turning to labor
organizations for definite and trustworthy advice with reference to
wage-earning interests. Official intercourse with individuals as such
has practical limits which organization and representation alone can
expand.
Manifestly, the Department of Labor must invite the confidence
and encourage the coopertaion of responsible labor organizations and
their accredited officers and committees if it is to serve its prescribed
purpose through an intelligent and effective administration of its
authorized functions. It has, therefore, sustained friendly relations
with labor organizations. This it had to do and ought to continue to
do in the interest not only of all wage earners but also of efficient administration
and the general welfare.
Nevertheless, the Department has not in that respect been exclusive.
Similar relations with unorganized wage earners, to the extent
that this is practicable, also with employers and their organizations,
to the extent to which they themselves permit, are likewise a
duty of the Department which it has scrupulously performed.
The great guiding purpose—the purpose that has governed the
department at every turn, the purpose that should continue to
govern it, the purpose that should be understood and acquiesced in
by everybody, is the purpose prescribed by the organic act, namely,
promotion of the welfare of the wage earners of the United States. In
the execution of this purpose the element of fairness to every interest
is of paramount importance. The Department has therefore made
fairness between wage earner and employer, between wage earner and
wage earner, between employer and employer, and between each and
the public as a whole the supreme motive and purpose of all its activities.
The act of its creation is construed by it not only as a law
for promoting the welfare of the wage earners of the United States
by improving their working conditions and advancing their opportunities
for profitable employment but also as a command for doing
so in harmony with the welfare of all industrial groups and all
legitimate interests, and by methods tending to foster industrial
peace through progressively nearer realizations of the highest ideals
of industrial justice.17
17 Department Reports of 1913, pp. 7-9.
ANNUAL REPORT SECRETARY OF LABOR. 29
Adjustment of Differences.
As an executive department devoted to the just interests of wage
earners, the Department of Labor has been guided in all its activities
by recognition of the historical fact declared in its first annual report,
18 that its establishment was demanded by the logic of industrial
progress.
Organization begetting further organization, the relation of employer
and wage earner has come to be no longer personal or individual.
It is usually a relationship between groups of employers on
one side (such as corporation stockholders) and groups of workmen
on the other. Employers act collectively through their own chosen
agents—corporation managers, factory or mine superintendents or
foremen, labor brokers, or the like—who, in hiring laborers, represent
collective or federated business interests.
This method *of employment, generally necessary for success in
modern industry, gives to employers great contractual advantages
over wage earners. Unless wage earners also act together they are
manifestly at such a practical disadvantage as seriously to menace
their industrial interests and their social welfare. Yet employers who
themselves act collectively are often averse to dealing collectively with
wageworkers. It is over this point that labor disputes frequently
spring up and become bitter. That was the question on which a majority
of the employer group, although a small minority of the whole,
overruled the labor group and the public group at the President’s
Industrial Conference of 1919, thereby preventing that unanimity of
the three groups which the rules of the conference imposed as a condition
of agreement.19
In most instances in which employers accord to workmen practical
recognition of the right of collective bargaining which they themselves
exercise, fair relations are maintained. But in any circumstances,
however honest, differences may arise. Then it is that the Department
of Labor, through public agents experienced in controversies
of like character, can probably find, as it often has found, common
grounds for agreement which the disputants, in their eagerness for
advantage or in the heat of controversy, have overlooked. From
growing experience and accumulated knowledge and skill the Department
of Labor has learned how, even in the more difficult cases,
to appeal with pacifying and prosperity-promoting effect to the good
citizenship and the sane self-interest of both parties. Though no
common grounds for compromise be discovered, the Department may
stimulate, as it often has stimulated, a conciliatory spirit on each side
sufficient to bring the two sides, each none the less convinced, perhaps,
13 Department Reports of 1913, pp. 68-69.
18 Department Reports of 1919, pp. 18—26.
30 REPORTS OF DEPARTMENT OF LABOR.
of the righteousness of its own cause, to a manly agreement to submit
their unreconciled differences to fair arbitration and to mutual and
uncoerced acceptance of awards.
In any of three ways, the welfare of wage earners can be fostered
while the prosperity of employers and the peace and good order of
society at large are conserved. First of these in order of preference
are adjustments by collective bargaining. Next comes mediation.
Arbitration is the third and final resort short of industrial warfare.
Throughout nearly eight years of responsible experience with labor
disputes, this Department has demonstrated that, wide apart as differences
may be at the start, they can be settled to the profit of all
interests whenever both sides are fairly disposed. Those demonstrations
have been made under greater embarrassments than the Department
need be hampered with as conciliatory dispositions grow
among conflicting industrial groups and Congress awakens to the
importance of promoting industrial peace. Cordially supported by
Congress, this Department should be able to make industrial mediation
(which spells industrial peace) universally popular with both
the employing and the wage-earning interests of the country. Thus
far, organized wageworking interests have as a rule accepted it,
whereas organized employing interests have as a rule opposed it.
Collective Bargaining.
Difficulties of adjustment are'of course greatly increased if either
party refuses to bargain collectively. In this connection it is not uncommon
for organized employers to overlook a controlling principle.
They urge the enforcement, against labor organizations, of collective
bargains by law. But collective bargains are not of a kind that can
be so enforced fairly.
A moment’s consideration will make the reason plain. If in collective
bargaining the representatives of the wageworkers agreed
to supply certain workmen on certain terms, and the representatives
of the employers concerned, agreed to give steady employment to
those or that number of workmen on such terms, the contract might
fairly be subject to legal enforcement. For then it would impose an
obligation upon both sides.
But there is no such mutuality in collective bargains between employers
and labor organizations. The employer does not and can
not agree to give steady employment to all the wage earners concerned,
nor to any specified number. He only agrees to certain
terms if he does employ, and to the extent that he employs. Fully
to appreciate the point one need but imagine a sales bargain between
a dealer and a manufacturer for the supply by the latter and purANNUAL
REPORT SECRETARY OF LABOR. 31
chase by the former of certain goods at certain prices. This would
be a fairly enforceable contract, because each party could be held
to account for a breach. But if the dealer engaged to pay a certain
price only if and for what he might actually buy in the future at
his own discretion there would be no mutuality of obligation. To
enforce performance by the manufacturer, since he could not enforce
correlative performance by the dealer, would then be unfair. A like
principle of fairness applies to collective bargaining between employers
and wage earners.
Employers do not agree to employ a certain number of laborers
for a certain period at certain wages. All they agree to do, and all
that collective bargaining requires of them, is to pay certain wages
for certain work to the wageworkers whom they at their own discretion
actually employ. Consequently the wageworkers who are
included in such a bargain could have no legal claim, either as groups
or as individuals, except as they were actually employed by the other
party to the bargain and at his discretion. Were he to quit employing,
he would quit paying wages without breaking any legal obligation
under his contract. But if they were to quit working, they would
not only lose their wages but they would be legally guilty of a breach
of their contract. There would be no fairness in making such contracts
enforceable at law.
Collective bargains are in the nature of “ gentlemen’s agreements,”
in contradistinction to legally enforceable contracts. They are made
in good faith by both parties, under the circumstances of the time
and upon an implied understanding that these circumstances will
not change to the serious detriment of either side. They are not to
be broken lightly; but when industrial circumstances alter, so that
their enforcement would place either side in an unexpected plight
whereby the other would unexpectedly profit, they should not be
enforceable beyond the point at which the side thus prejudiced is
willing, acting in good faith, to have them enforced. Were they
legally enforceable the employing side would be free, in a contingency
prejudicial to that side, to ignore its contract with impunity by restricting
or stopping output as unprofitable; yet if the contingency
were prejudicial to the wage earners, they could not quit work without
subjecting themselves to penalties of the law for a breach.
To permit collective bargains to be legally enforceable, would be
to discourage the making of them; to leave their fulfillment to the
good sense and good faith of each side, would encourage their making
and thereby promote industrial peace.20
20 See report of Industrial Conference called by the President, Part IV, subd. 2, in the
appendix.
32 REPORTS OF DEPARTMENT OF LABOR.
WAR-TIME ACTIVITIES.
Upon the severance of diplomatic relations between our Government
and that of Germany, February 3, 1917, this Department
began to adapt itself to war service. Modern warfare is no longer
a mere military undertaking. Although battle courage and military
skill are as necessary as ever to achieve military victories, wars are
fought not only between armed men but also between the factories,
the workshops, and the mines of contending nations. Consequently,
warfare efficiency is dependent as well upon man power in industry
as upon man power on the battle field. It follows that a central
labor administration and a consistent labor policy were of the utmost
importance to this country in its recent conflict. If at the beginning
of the war the Department of Labor had not existed, Congress
would have been obliged to create such a Department.
Departmental work had been so adapted to the new currents of
industrial activities at the time when war was formally declared,
April 6, 1917, as to enable the Department to assist other branches of
the Government, and contractors under them, with efficiency and
effect. Some of its war activities were distributed among its bureaus;
others were pursued in the Office of the Secretary. They continued
unabated and with increasing expansion and efficiency until after
the armistice.21
The President’s Mediation Commission.
Not long after the United States entered the war the President
found it necessary to appoint for war purposes an industrial mediation
commission, from the investigations of which there evolved a
large extension of the Department of Labor’s functions and numerous
additions to the number of its subdivisions for their administration.
This commission was known as the President’s Mediation
Commission. Appointed in the summer of 1917, it reported in January,
1918. The necessity for its appointment arose out of labor
controversies in the Southwest and Northwest which had seriously
checked the output of such war materials as copper, lumber, and oil.
Since those controversies were apparently due to general causes, the
commission was authorized to investigate, in its discretion, and to
make such specific adjustments as might be required. The President
designated the Secretary of Labor as chairman of this commission.
After several months of constant investigation in the copper districts
of Arizona, the oil fields of California, the Northwest timber
districts, and other sections where industry had been disturbed by
a Department Reports, 1917, pp. 9-51, 67-82, 88-94; 1918, pp. 11-148, 169-174,
182-188, 191-194, 199-200, 201-219 ; 1919, pp. 11-209, 235-236, 255, 275, 276-285.
ANNUAL REPORT SECRETARY OF LABOR. 33
labor unrest, including Chicago, where a strike in the meat-packing
establishments was threatened, the commission transmitted to the
President a report which summed up its work in a concise description
of the causes of labor difficulties in the United States.22 This
report concluded with the following recommendations:
The causes of unrest suggest their own means of correction:
1. The elimination to the utmost practical extent of all profiteering during
the period of the war is a prerequisite to the best morale in industry.
2. Modern large-scale industry has effectually destroyed the personal relation
between employer and employee—the knowledge and cooperation that come
from personal contact. It is therefore no longer possible to conduct industry
by dealing- with employees as individuals. Some form of collective relationship
between management and men is indispensable. The recognition of this principle
by the Government should form an accepted part of the labor policy of
the Nation.
3. Law, in business as elsewhere, depends for its vitality upon steady enforcement.
Instead of waiting for adjustment after grievances come to the surface
there is needed the establishment of continuous administrative machinery for
the orderly disposition of industrial issues and the avoidance of an atmosphere
of contention and the waste of disturbances.
4. The eight-hour day is an established policy of the country; experience
has proved justification of the principle also in war times. Provision must of
course be made for longer hours in case of emergencies. Labor will readily meet
this requirement if its misuse is guarded against by appropriate overtime payments.
5. Unified direction of the labor administration of the United States for the
period of the war should be established. At present there is an unrelated number
of separate committees, boards, agencies, and departments having fragmentary
and conflicting jurisdiction over the labor problems raised by the war.
A single-headed administration is needed, with full power to determine and
establish the necessary administrative structure.
6. When assured of sound labor conditions and effective means for the just
redress of grievances that may arise, labor in its turn should surrender all practices
which tend to restrict maximum efficiency.
7. Uncorrected evils are the greatest provocative to extremist propaganda,
and their correction in itself would be the best counter-propaganda. But there
is need for more affirmative education. There has been too little publicity of an
educative sort in regard to labor’s relation to the war. The purposes of the
Government and the methods by which it is pursuing them should be brought
home to the fuller understanding of labor. Labor has most at stake
in this war, and it will eagerly devote its all if only it be treated with confidence
and understanding, subject to neither indulgence nor neglect, but dealt
with as a part of the citizenship of the State.
The Advisory Council.
Partly as a result of the investigations and conclusions of the
President’s Mediation Commission and partly in consequence of
proposals from other sources, the Secretary of Labor early in 1918
organized an Advisory Council composed of men and women repre-
12 Department Reports of 1918, pp. 12-28.
15283—lab 1920-----3
34 REPORTS OF DEPARTMENT OF LABOR.
sentative of employers, wage workers, and the general public. This
council made many recommendations, nearly all of which were
adopted and put in operation either in their original form or with
necessary modifications. The general plan involved a reorganization
of the existing subdivisions of the Department of Labor so as to improve
their suitability for war-emergency purposes. It also provided
for additional subdivisions of the Department and for methods
by which they could be brought into proper administrative relations
with bureaus in other departments as well as those in the Department
of Labor. In carrying this general plan into effect frequent departures
from specific recommendations of the Advisory ’ Council
were made, but the recommendations were closely adhered to in
principle.* 23
The National War Labor Board.
Upon the advice of the Advisory Council, the Secretary called a
joint conference of employers and wageworkers, represented by five
delegates from the National Industrial Conference Board (employers)
and five from the American Federation of Labor (wageworkers),
inviting each set of delegates to choose a chairman to
preside on alternate days. This conference unanimously recommended
the creation of a National War Labor Board. The Secretary
of Labor thereupon appointed such a board, and the action of the
conference and the Secretary’s appointments were approved and proclaimed
by the President. Thereafter and until June 30, 1919, that
joint board functioned in the Department of Labor to the general satisfaction
of all interests concerned.24
War Labor Policies Board.
The organization problems considered by the Advisory Council
included one with reference to regulating certain relations of subdivisions
of the Department of Labor to subdivisions of other departments.
For instance, for fixing wages and determining working
conditions there were adjustment boards and agencies in nearly
every production branch of the Government. As their work frequently
conflicted it was extremely desirable that their varying
policies be unified so that they might function harmoniously in the
adjustment of labor disputes. To harmonize these discordant
agencies the Advisory Council recommended and the Secretary of
Labor organized the War Labor Policies Board.
_________________«______________ ___________________________ —---------------------------- 23 Department Reports of 1918, pp. 95-98. Ex-Gov. John Lind, of Minnesota was the
chairman of this council.
24 This is the board of which ex-President Taft and Hon. Frank P. Walsh were “joint
chairmen.” See Department Reports, 1918, pp. 99-111; 1919, pp. 120—132 and 1161—1298.
ANNUAL REPORT SECRETARY OF LABOR. 35
Its function was to reconcile interdepartmental differences as to
administration with reference to labor matters and to recommend
to the Secretary unified labor policies for harmonizing the industrial
activities of separate branches of the Government. Although it
was created by the Secretary of Labor and operated under his direction,
it included representatives of the War Department, the Navy
Department, the Department of Agriculture, the United States Shipping
Board, the Emergency Fleet Corporation, the Fuel Administration,
the Food Administration, the Railroad Administration, and
the War Industries Board, as well as the Department of Labor.25
Woman in Industry Service.
The Advisory Council included among its recommendations a
plan for the special consideration of such labor problems as involve
women, but lack of funds made it impossible to carry out the plan
until the beginning of the fiscal year after which it was proposed.
When organized, this service was charged with the duty of developing
standards and policies to insure effective employment of women
while conserving their health and welfare, to keep in close touch
with the other subdivisions of the Department of Labor, each of
which has a relation to women in industry, and to coordinate such
work in other Federal departments. Its aim was to unite in the
active carrying out of a consistent and rounded program by all the
agencies which touch various phases of the problem of women wage
earners. At the outset it was confronted by problems involved in a
rapidly increasing reliance upon the work of women as a reserve
labor force when men were being withdrawn for military service at
the rate of a quarter of a million a month. This rapid increase in
the employment of women constituted a peculiar war problem.
Fundamentally, however, the purpose of the Department of Labor
in its relation to women in industry is identical in peace and in wary
and while the problems of women in industry during the war differed
in form from similar problems in time of peace, the fundamental
tasks were so much alike that the experience gained in dealing with
them during the war offered a basis for postwar organization.
This service was therefore continued by Congress upon the recommendation
of the Department from the beginning of the fiscal year
1920 as the Women’s Bureau.26
2C This is the beard of which Felix Frankfurter, as Assistant to the Secretary of Labor,
was chairman. See Department Reports of 1918, pp. 115-118 ; 1919, pp. 135-139.
2» Department Reports of 1917, pp. 71-74: 1918, pp. 118-124; 1919, pp. 139-159 and
1131-1159.
36 REPORTS OF DEPARTMENT OF LABOR.
Information and Education Service.
A more immediate and extensive diffusion of informative and
educational matter than could be effected through the statistical
bureau of the Department becoming imperative in the emergency of
war, the Information and Education Service was established in July,
1918. Its function was to assemble and give proper publicity to
war activities of the Department during the war period and to
stimulate public sentiment with reference to the utilization of labor
in production. Besides the multifarious routine work in which this
service engaged, it was instrumental in procuring a valuable report,
through the Gundlach commission of employers, on the attitude of
European employers toward adjustments of labor disputes, the views
of European working groups and their leaders, and methods and
plans of European Governments for allaying labor unrest. It also
brought about, under the direction of the Secretary of Labor, the
Conference of Governors and Mayors, which was held at the White
House in the spring of 1919.27
The work of this service included a News Division, whereby material
was supplied to the 5,000 largest newspapers, special feature
stories to the Sunday newspapers, and material to prominent magazine
writers who used it for stories produced in their own way; an
Information Division, which sent public speakers to business, labor,
and civic organizations; an Industrial Plants Division, which operated
exclusively among workers in factories and other industrial
plants to familiarize them with war policies of the Government and
to promote the sale of Liberty bonds; and an Economics Division,
which prepared material furnished by the other three divisions,
thereby serving as a check on the work and to prevent the various
divisions from overlapping. The Economics Division issued various
reports, the most important, The Economics of Construction, being
the most complete study of the construction industry ever issued by
any governmental or private agency.
The home-building campaign was carried on by the Information
and Education Service through its Economics Division. At the
close of the war the country was confronted by absolute stagnation
in the building trades. At the same time there wks a great
shortage of dwellings. Considering these conditions, and also the
fact that the building industry stimulates every other industry—it
being almost impossible to build and furnish a house without making
demands upon almost every other line of business—the Department
of Labor authorized the Information .and Education Service
to institute a campaign for both public and private construction.
^Department Reports of 1918, pp. 129-132 ; 1919, pp. 171-186 and 1091-1129. The
director general of this service was Roger W. Babson.
ANNUAL REPORT SECRETARY OF LABOR. 37
In consequence of this campaign, public works throughout the
country which had been held in abeyance were begun and completed;
private interests also were encouraged to begin building.
The home-building campaign was promoted not only by means of
publicity but also through conferences with interests controlling
materials, with banks controlling money, and with labor unions.
Unfortunately, some real-estate interests in a few cities twisted the
campaign into a home-buying campaign, with a view to promoting
the purchase of homes already built. But these instances were few,
and on the whole the campaign was far-reaching and effective in
promoting construction. Had the Department been permitted to
continue its work there would now be fewer complaints of house
shortage. By building their own homes wageworkers would be creating
homes for themselves, saving money, and stimulating employment.
They would also be conserving good order.
When the home-building campaign was begun the cost of building
was 25 per cent more than before the war. There was also a downward
tendency in some prices, a decline which was predicted also in
building lines. This operated as a check upon the movement. Some
of the best economists of the country were, therefore, requested to
analyze the situation with care and report. These men came to the
unanimous conclusion that whatever might happen to other commodities,
the cost of the cement, bricks, lumber, and labor required
for building would increase rather than decrease during 1919 and
1920. The Department of Labor announced this conclusion through
the Information and Education Service. It was criticized for it,
but subsequent events have fully justified its course. Instead of decreasing
in price, building materials have continually risen, until
now it costs about 50 per cent more to build a house than when the
home-building campaign was begun. As it was a mistake to infer
that building materials would decline in price, so it was a mistake
to suppose that an era of home-building would increase the prices of
homes, as some of the opposition implied. House rentals and prices
increase with an inadequate rather than with an adequate supply.
It is to be regretted that a continuance of the home-building campaign
was prevented by circumstances over which the Department
had no control.
United States Training Service.
Among the instructions of the President to the Secretary of Labor
directing him to form a war labor administration was one calling for
“ a satisfactory method and administration for training of workers ”
and “ an agency for dilution of skilled labor as and when needed.”
The United States Training Service (at first called the Training and
38 REPORTS OF DEPARTMENT OF LABOR.
Dilution Service) was accordingly instituted in July, 1918. Its
organization and activities are described in the annual reports of the
two years of its existence, during which it stimulated industrial
training.28 Among the most valuable contributions to the practical
literature of industry are its series of bulletins, which comprises the
following: “ How to start a training department in a factory,”
“ British methods of training workers in war industries,” “ Training
employees for better production,” “ Training labor for peace time,”
il Labor turnover and industrial training,” “ Industrial training and
foreign trade,” “ Some advantages of industrial training,” “ Efficient
training in a large plant,” “ How training departments have betteredproduction,”
“ Industrial training in representative industries,”
“Training in industrial plants,” “Training workers in the women’s
cloak and skirt industry,” “ Training in the rubber industry,” “ Training
in the shoe industry,” “ Courses of instruction in piano making,”
and “ Foremanship training courses.” This service found that “ labor
wants an open way to self-development, a real opportunity for selfadvancement,
and that through a system of practical industrial training,
intensive but thorough, lies more of such opportunity than in
any of the present accepted types of education.” For lack of appropriations
this valuable industrial service was abandoned with the
close of the fiscal year 1919.29
Investigation and Inspection Service.
The object of this war service was to make quick investigations of
acute industrial situations, reporting the facts promptly to such other
subdivisions of the Department as were authorized to deal with the
subject matter. It did not make investigations upon its own initiative,
but only upon authoritative requests. Such requests came from
the Office of the Secretary, the Division of Conciliation, the Employment
Service, the Division of Negro Economics, the Bureau of Immigration,
the Training Service, the Woman in Industry Service, and
the Working Conditions Service. Extensive investigations were
made also for the War Industries Board and the Ordnance Department
of the Army. With the close of the fiscal year 1919 the Investigation
and Inspection Service was discontinued.30
Bureau of Industrial Housing and Transportation.
War emergencies necessitated and Congress authorized the establishment
of this agency for building houses for industrial workers
and providing for their transportation. To fulfill contracts, war in-
28 Department Reports of 1918, pp. 125-129 ; 1919, pp. 163—171.
28 Department Reports of 1919, pp. 168 and 171.
80 Department Reports of 1918, pp. 124—125 ; 1919, pp. 159—163.
ANNUAL REPORT SECRETARY OF LABOR. 39
dustries were obliged to add thousands and tens of thousands to their
armies of wageworkers. These additional workers had to be drawn
from all parts of the country, and to be provided with homes near
their places of work. That was the emergency. How it was met is
told in detail in the reports of the Department of Labor for 1918 and
1919.31
The initial expenses were paid out of emergency war-funds which
Congress had placed at the disposal of the President. But definite
authority from Congress was early granted to the President to
provide housing for war needs through such agencies as he might
direct, and pursuant to this authorization the President placed the
work under the direction of the Secretary of Labor. In order to
facilitate promotion of the gigantic enterprise the Secretary of Labor
organized a corporation under the laws of the State of New York.
This was necessary for two principal reasons.
If all the details of the work had been done by or under the direction
of the Secretary in his official capacity, the current income
from rents, etc., would have gone directly into the Treasury as received
and could have been paid out only upon congressional appropriation.
There would, therefore, have been no current income
out of which to meet current expenses in a businesslike way. This
embarrassment was obviated by incorporating a business establishment
which, resting upon congressional appropriations for working
capital, could use its current receipts for current expenses and pay
over into the Federal Treasury from time to time such profits as
might be realized.
The other principal reasons for incorporating lay in the fact that
these housing operations, if managed as an enterprise for the Federal
Government (which is not subject to local taxation), would be
dependent upon the public utilities of the localities in which the
operations were carried on, yet with no pecuniary responsibility
for a just share in the maintenance of those utilities the cost of
which its operations would have greatly enhanced. Counsel for
the Housing Bureau advised that a corporation owning and operating
the housing properties would be subject to local taxation for
local purposes, while the Government would not be, thereby placing
the Department in a position where it could properly contribute
its share toward maintenance of the utilities which it must use.
The United States Housing Corporation was therefore organized.
The Secretary was later advised by counsel for the corporation that
the corporation itself was but an agency of the Government and
was not subject to local taxation. Consequently, the second principal
reason for the creation of the corporation was not achieved,
31 Department Reports of 1918, pp. 132-138 ; 1919, pp. 187-196.
40 REPORTS OF DEPARTMENT OF LABOR.
and later Congress directed that all money collected by the corporation
for rentals, lodging, board, salvage, sales, or from other
sources should be covered into the Treasury and its operations conducted
solely through appropriations.
As the corporation was completely under the control of the Secretary
of Labor, to whom its stock was issued and who held the
resignations of its officials, expenditures of congressional appropriations
were at all times subject to his official direction. The purpose
and effect of incorporating was to give business mobility to an undertaking
which, though governmental in its objects and capitalization,
was a business enterprise in its operative details. There can
be no question that in the development of the housing projects the
creation of the corporation, which had been authorized by Congress
itself, served a useful purpose.
Commission on Living Conditions.
This adjunct to the Housing Service did not come into existence
until a few days before the armistice. Its plans for war work were
therefore soon altered to adapt them to postwar conditions, and with
the close of the fiscal year of its organization it dissolved.32
The Working Conditions Service.
Safety of labor conditions especially in the production of munitions
was one of the emergencies of the war. To meet it Congress
authorized the Working Conditions Service. It was organized at the
beginning of the fiscal year 1919, but, notwithstanding its importance
as a peace-time as well as war-time agency, it was allowed by
Congress to dissolve with the close of the fiscal year of the armistice.
The Department’s Annual Reports for 1918 and 1919 show how valuable
an adjunct to the Department of Labor this service was while
it lasted.33
Division of Negro Economics.
Early in the war—even before our country entered it—a stream of
Negro migration from the Southern States caused much concern with
reference to the planting and harvesting of crops in that region.
The attention of this Department had been called to the movement in
June, 1916, when it appeared that employers at the North, chiefly
railway corporations, were inducing an exodus in aid of their labor
supply which had fallen off enormously. Some of this Negro migration
northward had been effected through agencies of the United
States Employment Service already established in the Department.
Upon being informed of the circumstances the Department’s facili-
82 Department Reports of 1919, pp. 196-198.
88 Department Reports of 1918, pp. 138-140; 1919, 198-204, 1057-1089. The late
Grant Hamilton was director general of this service.
ANNUAL REPORT SECRETARY OF L/VBOR. 41
ties were withdrawn from group migration, although they were
continued at the service of individual citizens regardless of race. In
addition the Department set on foot, in the summer and fall of 1916,
an investigation into.the causes of the exodus. For that purpose it
utilized competent Negro investigators as well as immigration and
employment officials. This exodus even then presented an acute
phase of labor war-problems. It became more acute upon our entering
the war. Great concern was immediately expressed at the
probable loss of southern crops through the Negro migration northward.
For this reason the Department instituted a further and more
systematic investigation. This investigation was supervised by
James H. Dillard, of Charlottesville, Va. (formerly a professor and
the dean in Tulane University, and at the time of his call to this war
service president of the Jeanes and Slater funds for Negro education
in the South), who, at the special request of the Secretary of Labor,
undertook the work as a volunteer. The report is an illuminating
public document.
Later, upon recommendation by the Advisory Council, a Division
of Negro Economics was established in the Office of the Secretary for
investigating and advising the Secretary with reference to labor problems,
both north and south, in which the interests of the 10,000,000
Negro citizens of this country might be involved. The work of that
division demonstrated the importance—if not, indeed, the absolute
necessity— of maintaining this war-emergency agency in the Department
of Labor in times of peace, and accordingly Congress was asked
to provide for its continuance. The Appropriations Committee of
the House of Representatives recommended it along with like recommendations
regarding the Women’s Bureau and the Employment
Service, but all three were excluded from the appropriations bill in
the House as matter of parliamentary procedure, by one objection;
and although the Women’s Bureau and the Employment Service appropriations
were restored to the bill by the Senate, "that body failed
to restore the appropriation for the Negro service. This service, however,
has been continued by the Secretary as a necessary but temporary
postwar service until the 4th of March, 1921. It will then dissolve
automatically unless Congress may meanwhile provide for its
continuance.34
War Activities of the Permanent Bureaus.
Bureau of Labor Statistics.—War emergency work in the Department
of Labor was not done alone by subdivisions established especially
for that purpose. The regular and permanent subdivisions
31 Department Reports of 1917, pp. 79-81; 1918, pp. 111-115 ; 1919, pp. 132-135. As
director of this division the Secretary appointed Dr. George E. Haynes, a graduate of
Yale, a postgraduate of Columbia University, and at the time of his appointment a professor
at Fiske University.
42 REPORTS OF DEPARTMENT OF LABOR.
also, to the fullest extent of their limited powers, turned the currents
of their several activities into war channels. The Bureau of
Labor Statistics, the oldest bureau of the Department, and, as already
explained, the statutory nucleus of the Department itself, was especially
serviceable in war time through its gathering and classification
of facts bearing upon war-labor necessities and policies.30
Bureau of Immigration.—Another of the permanent bureaus of this
Department, which engaged in war-emergency work, was the Bureau
of Immigration. This bureau had the care of certain interned alien
enemies,36 supervision of maintaining the integrity of the seamen’s
law under disturbing war conditions,37 and enforcement of passport
regulations.38 It was also concerned with employment problems and
a variety of other services incidental to war conditions.39
Children’s Bureau.—This permanent bureau also had its full share
of war responsibilities, its most conspicuous being its “ Children’s
Year Activities.”40
Less conspicuous among its activities was its service with reference
to war-risk insurance. When the United States entered the war, this
bureau immediately began a study of child welfare in the belligerent
countries so far as information could be gathered from official reports
and other sources accessible in this country. The welfare of children,
evidently of profound importance to warring nations, is seriously
menaced both by absence of fathers at the front and hardships incident
to civilian life; and in the various countries studied it was found
that special war allowances for dependents were made and that
Canada, our nearest neighbor, with whom we have many standards
of life in common, had developed some new features in an effort to
provide adequately for soldiers and their families. Especially unique
was the Canadian provision for insuring the live$ of soldiers. It
was not governmental. Certain municipalities paid premiums for
their soldiers, and at least one city insured directly. These examples
in Canada appeared so important that it seemed wise to study them
at first-hand because of their bearing on a possible governmental insurance
for the military forces of the United States, and this country
is indebted to S. Herbert Wolfe, an actuary of recognized standing,
for his generous services in going to Canada at the request of
the Children’s Bureau of this Department in April, 1917, and press
Department Reports of 1917. pp. 165—172 ; 1918, pp. 160—162 and 235-243 ; 1919, pp.
225—227.
“ Ibid., pp. 103-107 and 175-178 ; 1918, pp. 172 and 141-143.
s? Department Reports of 1918, pp. 170-172 and 487-497 ; 1919, pp. 236-237 and 581-
588.
» Ibid., p. 169 ; 1919, pp. 235-236.
“Department Reports of 1917, pp. 173-178; 1918, pp. 169-177 and 247-258, 470-482,
1919, pp. 235, 330-334.
« Ibid., p. 425 ; 1918, pp. 180, 191-194, 567-568. and 573-577 ; 1919, pp. 255, 724-730.
ANNUAL REPORT SECRETARY OF LABOR. 43
paring the report on “ The Care of Dependents of Enlisted Men in
Canada,” which was published by the Department of Labor about 60
days after war was declared by the United States. That report shows
that Canada had developed certain elements in a system of care for
the soldier, including insurance, rehabilitation, and allowances to dependents
wThich should be included in any complete governmental
scheme designed to make the economic status of the soldier and his
family at home secure. It was seen that the Canadian method could
be extended and adapted so as to form a universal governmental provision
creating a plan of voluntary insurance and recognizing the
right of the soldier to compensation benefits upon a scientific basis
analogous to that which the compensation laws for industrial workers
had already recognized. A further report, “ Governmental Provisions
in the United States and Foreign Countries for Members of the
Military Forces and their Dependents,” was prepared at the special
suggestion of the Secretary of Labor by Mr. (then Capt.) Wolfe, who
had been detailed for the purpose to the Department of Labor by the
Secretary of War. This latter report assembles the data regarding
provisions in foreign countries which might be of value in drafting
a provision for the United States. To effect its purpose a committee
was formed under the committee on labor of the Council of National
Defense, and the measure which resulted in the war-risk insurance
law was drafted. While many distinguished authorities and specialists
contributed to that final action, the preliminary work embodied
in the reports mentioned above was a basic contribution.
Bureau of Naturalization.—The war services of this, the youngest
permanent bureau of the Department and the only one the creation
of which as a bureau was coincident with the creation of the Department,
had to do principally with facilitating the naturalization
of aliens in the military and naval service of the United States.41
United States Employment Service.
The nucleus for a national employment agency as a war service
had been created in the Bureau of Immigration as early as 1907. But
in the enactment of the immigration law of that year, recognition
of the need for a Federal employment service had not gone further
than the desirability of making a wise distribution of aliens. As
already explained in this report, however,42 subsequent circumstances
dictated the extension df that policy to citizens also. A public employment
service having been organized in a limited way in the
Bureau of Immigration in 1907, under the direction of the Division
41 Department Reports of 1917, pp. 475-477 ; 1918, pp. 199—200 and 583-584 ; 1919, pp.
275, 753-754.
42 Ante, pp. 24—25.
44 REPORTS OF DEPARTMENT OF LABOR.
of Information, when it became necessary in 1914 to meet an industrial
emergency requiring a national service, the Secretary of Labor
adopted the Division of Information as the departmental agency for
that purpose. His statutory authority for doing so appears in part
in the section of the immigration law of 1907 creating the Division
of Information, and in part in the organic law of the Department.
Continued thus through the Secretary’s action under the urge of industrial
need, the United States Employment Service had grown from
its one agency in New York in 1914 to an extensive national organization
with scores of public employment stations, when the United
States entered the World War. At that time, however, it had become
evident that the connection of this service with the Bureau of Immigration
was a handicap for general employment purposes and might
be a serious one under war conditions. As a war measure, therefore,
it was divorced from the Immigration Service in the autumn of 1917
and made a service in the Office of the Secretary. Its activities in
war time were too many and too much complicated with peace-time
functions to permit of restatement and reinterpretation in this summary.
For full and trustworthy information and a clear understanding,
reference must be had to the Department’s annual reports.43
Conciliation.
With the beginning of the war the number of labor disputes calling
for departmental mediation increased suddenly and enormously,
and a majority of the employers and employees involved showed a
keen desire to secure the good offices of Department of Labor conciliators.
In many instances the conciliators were able to bring
about agreements and to avert threatened strikes. Governmental
necessity for full production stimulated the commissioners of conciliation
to make every effort to secure satisfactory adjustments,
with the special purpose of preventing stoppages of work and consequent
loss to the country in output. Vastly increased production
was thus facilitated. Though employers often refused to deal with
committees representing their own employees, none refused to discuss
the merits of their labor disputes with the conciliators of this
Department.
The opportunities thus afforded each side to learn the real position
of the other soon bore fruit. Strikes that would have involved
thousands of workers were quietly averted and industrial peace maintained.
All this was accomplished without publicity and the consequent
excitement which invariably attends industrial disturbances
43 Department Reports of 1917, pp. 67—94 and 339-359; 1918, pp. 173—174, 201—219,
459-486, and 673-729; 1919. pp. 276-302 and 885-1056.
ANNUAL REPORT SECRETARY OF LABOR. 45
when heralded in the press. Reqnests for conciliators came to the
Department from governmental agencies as well as from unofficial
employers and employees. These applications increased fourfold in
an amazingly brief period following the declaration of war. They
came from the Department of War, the Department of the Navy,
the Council of National Defense, the Shipping Board, the War
Industries Board, and other agencies which had been created for the
conduct of the war. It was the policy of the Department of Labor
not to endeavor to impose its viewpoint upon either the worker or
the management, but rather to find some basis mutually acceptable
even though not mutually satisfactory. The work of mediation is
not judicial in character; it is not to listen to both sides and then
determine the rights and wrongs of the matter, nor to pass judgment
and then enforce its decision. Its work is diplomatic rather than
judicial. It is in this spirit that problems of conciliation in labor
controversies have always been approached* by the Department—
not only in peace time but also in war time. In line with that
purpose the conciliators were often able to remove banners which
kept employers and employees from meeting on common ground.
This paved the way for more friendly relations and a broader grasp
of conflicting interests. The fact was brought home to each side
that there may be another side to any dispute. Seed was thus sown
which bore fruit in modifications of working conditions, greater consideration
on one side for the rights of employees, and, on the other,
better understandings of problems of employers. Labor discovered
that it had a standing in the Government machinery of its country
whenever its demands were based on its industrial and constitutional
rights, while employers found in the Department a barrier to unreasonable
exactions.44
Departmental Cabinet.
W ith the increased number of subdivisions of the Department of
Labor which war emergencies necessitated, and the interlacing of
their functions, the Secretary found it desirable to hold' regular
cabinet meetings composed of the heads of all the subdivisions. The
members of this cabinet, which continued to function until after
the close of the fiscal year 1919, were the Assistant Secretary, the
Solicitor (both as such.and as Acting Secretary), the Chief Clerk, the
C hief of the Division of Conciliation, the Director of the Division of
Negro Economics, and the heads of the statutory bureaus and of the
war-emergency services.45
44 Department Reports of 1917, pp. 11-66 ; 1918, pp. 30 95 ; 1919, pp. 27-120.
45 Department Reports of 1918, pp. 140-141; 1919, p. 204.
46 REPORTS OF DEPARTMENT OF LABOR.
AMERICANIZATION.
As early as 1915 this Department, through its Bureau of Naturalization,
engaged actively in the work of qualifying aliens for American
citizenship as soon as they declare their intention of abjuring
their native allegiance and assuming American allegiance in its
stead.
For a governmental department to engage in such work with
aliens who have not declared that intention might be regarded as
unfriendly by their own Governments. It could be understood as
implying that our Government does not welcome immigrants unless
they intend to become citizens. But when a resident alien formally
abjures his native allegiance and declares his intention of becoming
an American as soon as our laws permit, the time is ripe, for training
him up to the citizenship he has voluntarily declared his intention
of applying for. It is not enough for the Bureau of Naturalization
merely to oppose applicants who are not qualified when they apply;
it should encourage and assist them to devote the two years or more
between their declarations of intention and their formal application
for citizenship, to recognizing the rights that American citizenship
confers and learning the duties it demands.
In that spirit the Bureau of Naturalization, under the direction of
the Secretary of Labor, began its work of Americanization by bringing
declarants for citizenship directly in contact with the public
schools of the United States. Theretofore the only attention given by
public-school authorities directly to candidates for citizenship had
been to petitioners for naturalization. Until they petitioned for
citizenship, declarants were neglected. The story of the development
of this and further work is a long one. Beginning at a time
when the declarant received no welcome, no official attention, the
bureau had in its fifth year of this work brought into immediate
cooperation with it over 3,000 public school administration units.
Although the story is a long one, it is nevertheless intensely interesting,
and the work of which it tells is likely to increase in civic usefulness
as Americanization under the act of Congress of May 9,1918, proceeds.
Under that act a Director of Citizenship has been appointed
in the Bureau of Naturalization. So far as voluntary organizations
cooperate with this official directorate, they contribute to the realization
of that ideal of Americanization which demands that all shall
be governed, that they shall be governed by all, and that their governing
shall be for all.48
« Department Reports of 1916, pp. 459-506; 1917, pp. 507 -551; 1918, pp. 198-199 and
604-610; 1919, pp. 272-275 and 783-862.
ANNUAL REPORT SECRETARY OF LABOR. 47
LABOR OUTINGS.
In developing methods for supplying help in harvest time the Department
was confronted with a special problem. Not only is the demand
for help in the grain belt intense during the harvest season but
so far as it is supplied from outside the workers usually have no employment
to which they may return when the harvest season ends.
The problem thus presented might be solved, and other employment
problems with it, by arrangements with industrial establishments for
making their not unusual but irregular suspensions' of work at
such times and for such periods as would permit their employees to
engage in suitable seasonal work. Not only would this assist in solving
seasonal problems; it would tend to make steadier the work of
the industrial establishments themselves. To make up for their
shortages of output from these seasonal suspensions, the industrial
establishments would increase their output the rest of the year and
therefore their demand for labor. It is true that the seasonal demands
for harvesters can not be filled from all kinds of industrial
establishments, the physical strain of harvesting being exceptionally
severe upon workmen unaccustomed to it. But a sufficient supply
could be obtained to meet harvesting needs; and, by rational organization
for the purpose, those who went to the harvest could be returned
to their regular work at the season’s end. For workers incapable of
doing heavy harvest work there are other seasonal employments.
Rationally organized, some such system could be made beneficial
alike to the employers of both city and country and to the workers
themselves. Nor need it be all work and no play. Going to seasonal
employments in organized clubs or groups, and under the supervision
of competent officials of this Department, workers who volunteered
would soon find that industrially useful system taking on the better
characteristics of “ personally conducted ” excursions.
Experiments in the grain belt would have been made but for the
expense of transportation. Inasmuch as railroads could not give
special rates to this Department for the promotion of its labor-distribution
work without making those rates universal, the Department
found it impossible to arrange for transporting workers on practicable
terms, no matter how willing the railroads themselves might
have been to cooperate. This is one of the reasons why the Department
in its annual recommendations repeatedly asked for an amendment
to the interstate-commerce law enabling the commission in its
discretion to approve such special arrangements as the Department
might find it possible to make between itself and railroad companies
for the transportation of workers under its official charge or
guidance.47
47 Department Reports of 1915, pp. 41-42: 1916, p. 128.
48 REPORTS OF DEPARTMENT OF LABOR.
PUBLIC LANDS AND EMPLOYMENT.
Another special problem with reference to appointments for profitable
employment challenged the attention of the Department in 1915.
In the Department’s report of that year, this problem was explained
and suggestions made for solving it as follows:
The labor-distribution work of this Department should extend to some such
development of the natural resources of this country as will tend to make opportunities
for workers greater than demands for work and to keep them so. For
this purpose further legislation will be necessary. But it need not be either
voluminous or revolutionary. Nothing more is required than a judicious utilization
of Government lands.
Title to some of the old public domain still remains in the Government. By
a recent decision of the Supreme Court Congress is soon to have the power,
and to be under an obligation, to treat with land-grant railroads regarding the
terms on which large areas of that domain heretofore granted away may be
restored. There are extensive areas of privately owned but unused farming
land in most or all of the States, which might be acquired by the General
Government for promoting labor opportunities as advantageously as other areas
have been acquired or retained by it for the creation of public parks. If Congress
were to adopt, with reference to those lands, a policy of utilizing them
for promoting opportunities for employment, the benefits of the labor-distribution
work of this Department, and of State and municipal public employment
offices throughout the United States, would be vastly augmented.
For such a policy the homestead laws seem to afford a legislative basis and
their history to furnish valuable suggestions. Those laws relieved the industrial
congestions of their day by opening the West to workers of pioneering
spirit who set up individual homes and created independent farms in waste
places. But the day of the individual pioneer is over. From the Atlantic he
has moved westward until the Pacific throws him back again into crowded
spaces, and new forms of industrial congestion have consequently developed.
To the relief of these, the old form of homesteading is not adapted; but the
homesteading principle persists. The problem is how to adapt that principle to
changed circumstances.
One necessary condition is that the General Government shall retain title to
the public lands it already holds. Another condition is that from time to time
it shall reacquire title to such lands, formerly owned by it but now privately
owned, as are held out of use and may be reacquired upon reasonable terms.
Still another condition is that the Government from time to time shall acquire
title to such privately owned lands in different States as may be usefully devoted
to the purpose of opening opportunities for employment. All this need not
be done at once. A satisfactory beginning may be made with public lands
already available for the purpose in question. But it is necessary that the
Government shall not lightly divest itself of title to any lands it may set aside
for labor opportunities. Regulation of private tenures created pursuant to this
purpose should fit the circumstances of particular cases. It is therefore suggested
that private titles to lands set aside for the indicated purpose be so adjusted
by the Department of Labor to its work of laboi- distribution as to prevent
inflation of land values. This precaution is of extreme importance. Wherever
inflation of land values might enter in, the proposed method of promoting
labor distribution would be obstructed.
ANNUAL REPORT SECRETARY OF LABOR. 49
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There is still another essential condition. Equipment for farming and education
in farming, as well as a place for farming, are needed. All three, however,
could be met by an appropriate unification of some of the activities of the Departments
of the Interior, of Agriculture, and of Labor. Pursuant to such unification,
Congress might provide a “ rotary fund ” for lending purposes; that
is, a fund to be used over and over again for those purposes, and to be maintained
by repayments of loans. Out of this fund Congress could authorize the
departments named above to make loans, through the Department of Labor, to
settlers placed by this Department upon lands set aside for that purpose in accordance
with the authorized plan for thus augmenting labor opportunities.
Those loans could be safeguarded, without commercial collateral, by resting
them upon the best possible basis of industrial credit-ability, opportunity, and
character—and by establishing in connection with them a system of community
credits adapted to the circumstances.
By their educational processes the Department of the Interior and of Agriculture
could make efficient farmers of inexperienced but otherwise competent
workers seeking that vocation. By its marketing plans the Department of
Agriculture could guard borrowers from the “ rotary fund ” against commercial
misfortune in disposing of their crops. By its labor-distribution functions the
Department of Labor could bring the right men to the right places on the soil
and settle them there under favorable circumstances. And by their several appropriate
functions these three departments, cooperating under appropriate
legislation, could multiply demands for labor in rural regions and minimize
labor congestion at industrial centers.
It is a reasonable prediction that such a policy would develop in country and
city an economically independent and socially progressive population. The results
would be analogous in our time to those of the homestead laws at an
earlier period.48
This “subject, growing in importance with succeeding years, attracted
general attention toward the close of the war and with reference
especially to provision for returning soldiers. Meanwhile, expert
investigations resulted in two reports on the subject which this Department
has published in pamphlet form. One is entitled “ Disposition
of the Public Lands of the United States with Particular
Reference to Wage-Earning Labor ” and the other “ Employment
and Natural Resources.” Further investigation became impossible
from lack of appropriations, but those reports lay a firm foundation
for legislative action and offer abundant material for general as well
as official thought.49
DEPARTMENTAL RECOMMENDATIONS PRIOR TO 1920.
From the period of its organization the Department of Labor has
made recommendations to Congress on various subjects related to
its functions. Attention may properly be recalled to them at this
time and in this place.
Department Reports of 1915, pp. 43-45.
49 Department Reports of 1916, pp. 70-73 ; 1917. p. 153 ; 1918, pp. 145-148 ; 1919, pp
205-209.
15283—lab 1920---- 4
50 REPORTS OF DEPARTMENT OF LABOR.
Interstate Commerce in Private Policemen.
Inasmuch as by the white-slave act, which the courts have sustained,
Congress has recognized the principle that interstate commerce
is not confined to commodities, the subject of interstate commerce
in private policemen, troops, guards, etc., for industrial purposes
was presented to Congress in the first annual report of this
Department, from which the following quotation on the subject is
made :
There would seem to be no reason now why the transportation of private
troops, or private police, or armed guards, or armed mobs, whether by employers
or strikers, from one State to another, under commercial contracts,
should not be regarded as coming fully within the scope of congressional
authority over interstate commerce. Though Federal control of such interstate
traffic was regarded as unconstitutional in 1893, it would appear by
analogy to be regarded as within constitutional sanction now. The evil being
still great enough to demand such congressional legislation as may be constitutional,
I hereby commend the subject to Congress for consideration.
This recommendation was repeated in 1916.50
Receipts and Expenditures.
In 1914 the Department called attention to the fact that by some
of its work it passes into the Treasury large sums annually which
ought to be credited to its support.51 This subject is more definitely
referred to in Part II of this report. •
Destructive Explosions at Ellis Island.
A recommendation proposed in the report of 1913 and repeated in
that of 1914 called attention to the fact that the immigration station
at Ellis Island was in almost daily danger from the near-by loading
and unloading of explosives.
Congress had lodged no power anywhere to regulate the handling
of explosives in interstate commerce on water, although it had regulated
the handling of explosives on land. This recommendation and
its repetition were inspired by a damaging explosion near Ellis Island
prior to 1913. A subsequent explosion—July 30, 1916—caused the <
recommendation to be again repeated and with added urgency in t
the Department’s Reports of 1916 and 1917.52 * Congress has not yet 1
acted on the subject. 1
60 Department Reports of 1913, p. 67 ; 1916, pp. 121-126.
51 Department Reports of 1914, pp. 17, 89, and 90.
52 Department Reports of 1913, pp. 39-40 ; 1914, pp. 96-97 ; 1916, pp. 101-103 and 126;
1917, pp. 195 and 367-368.
ANNUAL REPORT SECRETARY OF LABOR. 51
Delegation of Administrative Authority.
To facilitate administration a recommendation was made in 1915
and subsequently repeated, asking that section 179 of the Revised
Statutes be amended by adding a clause empowering any official assigned
by Executive order to perform such duties as the head of the
department to which the President assigns him may prescribe.53
Alien Voting.
In 1916 a former recommendation that Congress take steps to put
an end to voting by aliens who have gone no further toward citizenship
than making the required preliminary declaration was repeated.
54
Retirement Pensions.
Another recommendation of 1916 subsequently repeated was to the
effect that there be provided through legislative enactment an equitable
system of retirement from the classified service of the Government,
a system which would best subserve the interests of efficiency
and economy, and at the same time insure fair financial provision for
those who, through long and faithful service, are entitled to some
consideration in their declining years.55 This has now been done,
though somewhat imperfectly.
• Employment and the Public Lands.
A recommendation of the same year, made to enable this Department
to improve its work of labor distribution, proposed legislation
with reference to the utilization of public lands and community
credits so as to enable the Department not only to seek “ manless jobs ”
for “jobless men,” but to open opportunities for “jobless men” to
employ themselves.56 This recommendation was again urged by the
Department with reference to probable demands upon the public
domain for soldier settlements. In the latter recommendation the
following statement was made:
Land grants to soldiers of earlier wars have passed into the hands of land
speculators without much benefit to the soldiers for whose relief they were intended.
A better system would seem desirable now. Returned soldiers should
be placed upon public land and helped to make their living there, but without
investing them with absolute tenure rights, useless to them, but attractive to
63 Department Reports of 1915, p. 87 ; 1916, pp. 127-128 ; 1917, p. 153 ; 1919, p. 303.
M Department Reports of 1914, p. 98 ; 1916. p. 127.
BB Department Reports of 1916, pp. 128-129 ; 1917, p. 153 ; 1919, p. 304.
56 Department Reports of 1915. pp. 43-45 ; 1916, p. 128 ; 1917, p. 153 ; 1918, pp. 221-
224 ; 1919, pp. 305-306.
52 REPORTS OF DEPARTMENT OF LABOR.
speculators. For this purpose the Grosser colonization bill, now pending in
the House of Representatives, seems well adapted in principle and easily
adaptable in terms. Without explicitly recommending the enactment of this
particular bill, the Department urges legislation of the colonization type for
rehabilitation of soldiers who earn such recognition in the war, as well as for
wage earners in general.67
In a recommendation of 1918 the Department explained that it had
been for more than three years engaged upon a comprehensive study
of the problem of discovering new and profitable opportunities for
employment, and proceeding it said:
In the course of its investigations it has availed itself of the expert assistance
and advice of many persons in other departments. Although the war has intensified
the basic problem and introduced certain new factors, it has in no essential
respect altered any of the chief elements. Consequently, I believe that
the plans already formulated will require extension rather than alteration.
Although novel expedients have been suggested, it has seemed best to proceed
in accordance with historical precedents, and to pursue a course that is justified
by our own experience and by that of other nations. Such experience, as
well as the undoubted necessity for a continuous augmentation of the world’s
food supply for many years to come, indicates that a more extensive as well
as a more intensive use of our natural resources must be made. The soil is
and must remain the chief working opportunity for large numbers of the Nation’s
wage earners. It is therefore desirable and imperative that a comprehensive
policy with regard to the public domain be established. The same
problem was before us more than a half century ago. Access to the public
domain was provided by the homestead law of 1862 and further privileges extended
specifically to soldiers in 1872. The results of this policy were beneficial
in that they provided work for unemployed persons, but such benefits
were also accompanied by grave evils. Too frequently the efforts of t1?e settler,
who was not inured to the hardships of the frontier or familiar with agriculture,
resulted in failure.
Isolated from his fellows and remote from the advantages of the city, the
pioneer achieved only after a long struggle such form of organization as rural
life now possesses. Other nations have profited by our bitter experience in
this respect and have, in consequence, abandoned homesteading or the method
in which the settler is merely provided with a land title and left like Robinson
Crusoe to work out his own salvation. For the uncertainties of homesteading
there should be substituted an orderly, properly planned scheme of colonization,
in which the Federal Government shall establish and equip not only
individual farms but also link them together into organized communities.
Rural planning should be brought into play in order to make life in the rural
districts attractive and in order to stem the movement from the farms to the
cities. Settlers should likewise be protected from the evils of land speculation.
The liberal grants of former years to soldiers were of almost no value to the
supposed beneficiaries, because of the speedy transfer to persons who were
primarily interested in the resale of such lands at higher prices. Speculation
and inflation are evils which it has been found possible to correct in the
experience of our associated belligerents. I therefore favor the adoption of
some form of tenure which will lay less stress upon titles and more upon actual
use by occupants. The absolute tenure does not seem to be well adapted to
public colonization since it is useless to the working settler and attractive to
57 Department Reports of 1917, p. 3 53.
ANNUAL REPORT SECRETARY OF LABOR. 53
the speculator. There are several other forms of tenure, including the perpetual
leasehold, better adapted for our purposes. I therefore recommend the
early enactment of such legislation as may be necessary to permit the preparation
of the public domain for this purpose. Such legislation should provide
for the purchase of such privately owned areas as it may be found desirable
to add to the public areas. Nor should our efforts be considered as limited
to agriculture. Great areas are, by reason of natural adaptation, necessarily
destined for forest uses. The wasteful methods in vogue in the past in the
lumber industry have resulted in the practical destruction of bur finest forest
areas. The policy has been to treat trees as deposits of wood above the
surface and of the same nature as mines, which are deposits of mineral below
the surface. These deposits have been destroyed one after the other without
regard for the needs of the future.
At the same time the industry has been a movable one, operated in the main
by men the nature of whose work denies them homes or marriage or even votes.
No one who has the interest of America at heart can look forward with tolerance
to the growth or continuance of a body of migratory workers who in the
nature of the case must have lower social and moral standards than their fellows
and a hatred for the law which they have never known except in its repressive
aspect. Happily, the possession of the national forests gives us an
opportunity to apply the principles of colonization to timberlands also. The substitution
of scientific silviculture for timber mining will give us an opportunity
to establish permanent forest communities where local self-government, marriage,
and education are possible. In presenting these recommendations at this time,
I regard it unnecessary to point out further possibilities, of which the foregoing
will serve as an example. In setting forth the necessity for land settlement I am
not unmindful of the vast numbers who must again find places in our complex
industrial organization. It is too early at present to forecast accurately the industrial
organization or needs of our Nation after the war. All the properly
adapted facilities of the Department of Labor are at present engaged in the study
of those problems of reconstruction peculiar to manufacturing and secondary
industry; and from time to time I shall have recommendations and conclusions
to present based upon such studies. No such doubt, however, exists with regard
to primary industry, and I urge legislation in accordance with the principles
laid down in the foregoing paragraphs. Legislation upon this important subject
should include three minimum provisions: (1) Possibilities of commercialized
speculation in titles must be guarded against. (2) Colonists must be
given access not only to land but to farms, not the bare soil, but fully equipped
agricultural plants ready to operate. (3) The farms themselves must be
welded together into genuine communities by provision for roads, schools, and
markets, under the general supervision of the Federal Government. The
primary principle involved is not the use of men for the development of land,
but the development of land for the use of men. With regard to machinery
for putting these provisions into effect, I reccommend the organization of a
board consisting of the Secretaries of the Departments of Agriculture, Interior,
and Labor for the further organization and supervision of the general
plan. Regardless of the machinery by which it is put into operation,
whatever legislation is granted should recognize the cardinal principle that the
natural resources of the Nation are for the common good of all and should be
accessible on such terms as to discourage speculation and exploitation and to
reward diligence and thrift.58
Department Reports of 1918, pp. 221-224.
54 REPORTS OF DEPARTMENT OF LABOR.
Employment Service.
In connection with its employment work the Department has recommended
that the Interstate Commerce Commision be vested with
authority to authorize exceptional rates of railroad fare for the purpose
of enabling the Department of Labor to place unemployed persons
where their labor is in demand.59 Also that labor exchanges engaged in
interstate business be placed under the supervision of this Department,
60 and that a Federal Employment Bureau be created.61 On
this general subject the Department in 1918 made the following statements
and recommendations with special reference to employment for
returning soldiers:
The Department looks forward to the day when our victorious soldiers will
return to their peaceful and customary pursuits and join once more in the
upbuilding through industry of the Nation which they have defended by force
of arms. Nor is the Department unmindful of the fact that the overwhelming
mass of our armies is drawn from the ranks of wage earners, and that when
their military task is done these men will return to the ranks of wage earners.
It would be an ungrateful Nation, indeed, which did not deem it its first duty
to assure to its returned soldiers honorable and profitable employment. It has
been the unfortunate experience of the armies of other nations that gratitude
has been too frequently confined to words, and men who have risked their lives
have too often been released from military life to find an industrial condition
where there were more men than opportunities for work. In consequence, such
men have frequently submitted to the humiliation of accepting alms. The
Department, therefore, believes that the problem of providing profitable employment
for our returned soldiers is its first duty. To believe otherwise would
be to violate the spirit of the organic act of the Department. “ Th*> purpose
of the Department of Labor.” says this act, “ 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.”
It is in furtherance of this injunction that the Department has created
and extended the United States Employment Service. The duties of this service,
in brief, are to bring together the manless job and the jobless man. It is therefore
contemplated to use its full resources in minimizing such unemployment as
shall occur. And, indeed, if there were an equality between the numbers of men
wishing employment and the opportunities for employment, this liaison would
be sufficient. Even in the most prosperous periods, however, there is a disparity
between the actual number of wage earners and the number that our industries
can absorb. Under the most favorable circumstances this unemployed surplus
is such as to give rise to grave social and industrial problems. So long as this
basic condition persists, it is apparent that the mere bringing together of men
and jobs is not sufficient. In order to provide for this surplus, we must do more
than seek for employment among opportunities already existing. We must correct
the disparity itself. Consequently, the Department faces the further duty
of creating new opportunities for employment.62
59 Department Reports of 1915, p. 88; 1916, p. 128.
60 Department Reports of 1914, p. 97 ; 1916, pp. 126—127.
61 Department Reports of 1916, p. 127.
62 Department Reports of 1918, pp. 221-222.
ANNUAL REPORT SECRETARY OF LABOR. 55
In the year 1919 the Department recommended legislation permanently
establishing the Employment Service with liberal appropriations.
63
Training Service.
In 1919 the Department recommended legislation to continue the
work formerly conducted by the Training Service, with the idea of
establishing a means whereby wage earners may continuously advance
in industrial growth and development.64
Per Diem Allowances for Subsistence.
Also in 1919 the Department recommended an increase of the per
diem allowance for subsistence to officials and employees when traveling,
such allowance having continued to be the prewar allowance of
$4 a day, which, at the time of the recommendation, was equivalent
to only $2.27. The recommendation was for an increase of from $4
to $6.66 No increase has been made.
CONCLUSION OF PART I.
With the fiscal year that ended June 30, 1919, the same fiscal year
in which hostilities in the great World War were suspended by the
armistice of November, 1918, the first division of this report comes to a
close. It has told the story of the long agitation for an executive
department devoted to the interests of wageworkers as the Department
of Agriculture is to farmers and the Department of Commerce
to business interests.
It also explains, though briefly in the text yet fully by footnote
references to previous reports, the difficulties of organization and the
proposals and accomplishments of the Department in its infancy.
No other department of the Federal Government has been organized
and developed under such trying circumstances. Before this
Department had been fairly organized the greatest war of history
broke out in Europe, and in a. little while our own cis-Atlantic
Republic was involved not only in the industrial turmoil but in the
fighting, too. The industrial life of America shifted overnight. To
meet that emergency a virtual reorganization of the Department on
a gigantic scale in comparison with its peace-time adjustments was
forced upon it.
Its business with other departments was multiplied in importance
and complexity as well as in volume. Its statistical bureau was
plunged into fact-gathering work for warfare instead of peace.
03 Department Reports of 1919, pp. 305-306.
64 Ibid., pp. 304-305.
«Ibid., p. 305.
56 REPORTS OF DEPARTMENT OF LABOR.
Its Immigration Bureau had its regular functions of supervising
immigration diverted to defensive activities with reference to enemy
aliens. The Children’s Bureau faced novel and extraordinarily vexatious
problems. The Naturalization Bureau was drawn into the
work of naturalizing legions of aliens who had come into our military
service. In the Office of the Secretary the work of the Conciliation
Division assumed new and extremely difficult forms, while
the Employment Service expanded from a skeleton organization to a
work-finding and man-placing agency of national magnitude intensely
organized.
Besides those permanent subdivisions of the Department which
were irawn into wider and more difficult channels of service by the
war, there were many temporary subdivisions which it became necessary
to create and harmonize. Interdepartmental complication^
called for an interdepartmental labor-adjusting agency; labor disputes
in activities involving war efficiency necessitated a board for
speedy and unprejudiced decisions upon the merits of such disputes;
the coming of women into war industries involved a women’s subdivision
in the Department; the relations of Negroes to industry made
a Negro subdivision necessary; the importance of industrial training,
of expert investigations, and of keeping the public properly and
promptly informed, demanded subdivisions especially charged with
those responsibilities.
All that was done with reference to those and all other activities
of the Department during the war may be learned in detail by
reference to the preceding part of this report and the annual reports
to which it refers for verification and amplification. So also of the
peace-time work of the Department prior to the war and of its postwar
work since the armistice.
From a dream of American wageworkers more than half a century
ago, the Department of Labor, securely established and efficiently
organized, holds its intended place in our National Government—
a truly American agency for promoting the prosperity of
wage workers in harmony with the just interests of all other workers.
PART II.
4 Report for 1920.
Having had so many new and perplexing problems thrust upon it
in the course of its original organization and in connection with
the World War, the Department of Labor was hardly able to adjust
itself to its normal peace-time functions until the present fiscal year,
beginning with July, 1919, and ending with June, 1920. It was then
for the first time fully free to turn to the task of perfecting the one
executive department of our Government that deals intimately and
sympathetically with the men, women, and children of our country
whose living depends wholly upon their own work.
OFFICE OF THE SECRETARY.
The Office of the Secretary now comprises the Secretary of Labor,
the Assistant Secretary, a News-Release Officer, the Solicitor (who is
also Acting Secretary under certain circumstances), the Chief Clerk,
the Disbursing Clerk, a Division of Publications and Supplies, an
Appointment Division, a Division of Negro Economics, an Advisory
Committee on alien appeals and warrants, a Bureau of Industrial
Housing and Transportation, and the Division of Conciliation.
The Chief Clerk.
Functions.—The Chief Clerk has general supervision of the clerks
and employees of the Department and the superintendency of all
buildings occupied by the Department in Washington. He supervises
expenditures of appropriations for the contingent expenses and
rents, and attends to such miscellaneous business in the Office of the
Secretary as is not otherwise assigned.
Department quarters.-—The Department proper occupies a 9-story
modern building at 1712-1722 G Street NW. This is a modern fireproof
building containing 63,994 square feet net of floor space. The
lease on this building expires on July 1, 1922, but is renewable for
five years additional. At the beginning of the fiscal year the Children’s
Bureau, the United States Employment Service, and the
Women’s Bureau occupied space in Food Administration Building
No. 2. On February 1, 1920, the Public Buildings Commission di-
57
58 REPORTS OF DEPARTMENT OF LABOR.
rected the Department to move these bureaus to Fuel Administration
Building No. 3, known as temporary building No. 4, in which building
they occupy 27,313 square feet net of floor space. At the present
time this is adequate for their needs. The occupancy of one of these
temporary buildings by bureaus of the Department is viewed with
alarm by its officials. The buildings are not fireproof and the valuable
records of the Department are in constant danger. Danger to
life also, while minimized by the fact that the buildings are only two
stories high, is always an outstanding feature. The Department is
in accord with and will do everything to assist the Public Buildings
Commission in the effort to reduce the amount of rented space occupied
by the Government buildings in Washington; but one of two
things should be done—the Government should either erect modern
fireproof structures to house its employees, or rent sufficient space of
that description for the purpose.
During the fiscal year the Bureau of Industrial Housing and
Transportation was provided for in the Homer Building, Thirteenth
and G Streets. Upon the failure of Congress to provide for rent
for the fiscal year 1921 the Department was forced to request an
assignment of space from the Public Buildings Commission, and
the commission was allotted 4,662 feet of space in the Hooe Building,
1330 F Street, for this purpose, effective July 1, 1920. This is a
modern, fireproof building, and the bureau reports that it is well
suited to its use. The local office of the United States Employment
Service, which during the previous fiscal year occupied the entire
four-story building at 1410 Pennsylvania Avenue, a Governmentowned
store and residence building, has, because of the decrease in
the appropriation, been forced to curtail its activities, and now uses
but two floors in that structure.
Personnel.—The Department during the year has been seriously
handicapped by inability to secure competent help, and in a number
of cases by failure to retain the services of many competent employees
whose services were bid for by private employers, offering greater
remuneration and opportunities. It is very difficult to secure competent
stenographers and typists at the salaries available. It has been
the policy of the Department to fill the higher-grade places by promotion.
This leaves the vacancies in the lower grades, and it is
almost impossible to secure competent employees to fill these vacancies.
The Department in its estimates for the fiscal year 1921 requested
an increase of 22 clerks to replace the 17 clerks detailed from
the various bureaus and to take care of the additional work left by
the war services discontinued the first of that year. None of these
places were granted. The Secretary’s Office has been forced to retain
most of these details, and now has 15; the services of these clerks
ANNUAL REPORT SECRETARY OF LABOR. 59
are much needed by the bureaus to which they belong. The Department
has suffered an additional hardship in the loss of seven clerks
through the operations of the retirement act, and under the law these
places can not be filled. It is hoped that Congress will act favorably
on the report of the Reclassification Commission or take some
other means of increasing the compensation of the employees, as the
salaries now paid are not comparable wTith those paid in private
employment for like service, nor are they adequate to a proper standard
of living as shown by statistics of this Department.
Library.—The need of increased assistance for the library of the
Department to enable it to keep up with its current work has become
very pressing. No increase in the staff has been made since the organization
of the library over three years ago, although the volume
of work to be done has more than doubled in that period. The library
now serves a much larger group than before, and there has been a
steady increase in the use of its unique resources by other Government
offices, as well as by investigators from outside the Government
service. The pressing importance of labor problems makes it more
than ever essential to the research work of the Department that its
library should keep its files of current publications up to date and
fully indexed. The cataloguing at present is very seriously in
arrears. The library needs immediately three additional assistants.
Equally urgent is the need of providing more adequate salaries for
the library staff. These are at present much below the prevailing
Government rates of compensation for work requiring equivalent
training and experience. The positions transferred from the bureau
rolls, which were assigned to library work some years ago, can not
now secure thoroughly trained library assistants who will stay in
the service. During the last two years the staff of the library has
completely changed with the exception of the librarian. On the side
of efficiency this is particularly serious, because a library requires
continuous service. The developing knowledge of the collection
which comes with years of experience is something which can not
be turned over to a new assistant, and its withdrawal represents a
serious loss in efficency. The library needs an increase in the appropriation
for books and periodicals to meet the greatly increased cost
of all such publications, amounting in the case of some of the foreign
publications to almost 100 per cent. There has been, moreover, an
enormous increase in the number of books an^ periodicals published
that deal with economic problems, which should be added to the
collection; but owing to lack of appropriation only a limited number
of these can be purchased.
60 REPORTS OF DEPARTMENT OF LABOR.
Appointment Division.
There was an increase of 58 employees in the Bureau of Naturalization,
5 in the Women’s Bureau, and 1 in the Office of the Secretary,
making a total increase of 64 employees, though there was a reduction
in the force of the Department both in Washington and in the
field of 3,568 employees, making a net reduction of 3,504 employees,
or 55 per cent. It is to be noted that a very large proportion of the
employees of the United States Employment Service are paid a
nominal salary, due to the fact that State, county, and municipal
offices are cooperating with this service in its various activities.
Officials and employees in the Department of Labor, 1919 and 1920.
Bureau or office. Statutory.
Nonstatutory.
In District
of
Columbia.
Outside
District
of Columbia.
Total
July 1,
1920.
Total
July 1,
1919.
Increase
(+) or
decrease
(—) during
year.
Office of the Secretary................ 119 119 119 118 + 1
Commissioners of conciliation.
.. 23 23 23 79 - 56
Bureau of Labor Statistics......... 112 19 108 23 131 251 - 120
Children’s Bureau 75 100 75 100 175 175
Bureau of Immigration.............. 65 1,710 78 1,697 1,775 1,838 - 63
Bureau of Naturalization........... 70 '197 125 142 '267 '209 + 58
U. S. Employment Service....... 375 30 345 375 3,704 -3,329
Women’s Bureau........................ 22 22 22 17 + 5
Tota1................................... 441 2,446 557 2,330 . 2,887 6,391 -3,504
Changes in personnel.-dha following tables indicate the number
of changes in personnel throughout the executive offices and bureaus
of the Department during the fiscal year ended June 30, 1920.
Appointments, year ended June 30, 1920.
Bureau or office.
Permanent.
Temporary.
Grand
Competi- total.
tive.
Excepted.
Unclassified.
Total.
19
33
19
66
227
87
327
6
Office of the Secretary...................................
Commissioners of conciliation..............
Labor Statistics.............................................
Children’s Bureau........................................
Bureau of Immigration................................
Bureau of Naturalization.............................
U. S. Emnloyment Service.........................
Women’s Bureau..................... '...................
Total....................................................
______________________________■______
17
5
19
26
170
78
10
6
2
28
40
56
7
317
12
6
82
122
177
468
336
140
12
27
35
141
243
695
423
467
18
331 450 9 784 2,049
> P
1,265
The total number of appointments during the year aggregated
2,049, of which number 1,265 were of a temporary character. The
latter includes short-term appointments, a large number of which
were extensions, each action being considered an appointment, due to
the fact that the same procedure was required in making an extension
ANNUAL REPORT SECRETARY OF LABOR. 61
as in issuing a new appointment. In the total figure of permanent
appointments are included changes of employees from one position
to another either by transfer from one bureau to another or temporary
promotions, reductions, etc., each case requiring the issuance
of a new certificate of appointment.
Separations and changes.—There was a total of 4,209 separations,
2,960 from permanent positions and 1,249 from temporary positions.
The temporary employees were appointed for a short period and
necessarily separated at the conclusion of the term, record being
made of this fact. Thus, during the fiscal year, many persons are
employed and separated several times. There were 4,420 miscellaneous
changes, which include transfers from one station to another,
cancellations, amendment of appointments, and similar actions.
Separations and miscellaneous changes in personnel during the year.
Bureau or office.
Separations.
Grand
total.
Miscellaneous
changes.
From permanent positions.
From
temporary
Com- positions.
petitive.
Excepted.
Unclassified.
Total.
Office of the Secretary................
Commissioners of conciliation..................................
Labor Statistics...........................
Children’s Bureau.......................
Bureau of Immigration..............
Bureau of Naturalization...........
U.S. Employment Service.......
Women’s Bureau........................
Housing and Transportation....
Total...................................
11
2
28
43
239
67
122
1
8
51
3
49
65
2
2,256
9
3
1
19
53
31
92
307
69
2,379
1
9
40
5
317
112
339
317
U35
1
59
58
348
'204
646
386
2,4944
10
98
31
347
272
1,496
486
1,457
31
2
513 2,443 4 2,960 1,249 4,209 4,220
Transfers.—The following table shows the number of transfers
from and to the Department during the fiscal year ended June 30,
1920. They were few in number, only 25 being transferred to this
Department from other establishments and two going from this
Department to other establishments.
From—
Bureau or office. Treasury
De- War
Depart-
Department
of
Navy
Depart-
Interior
Depart-
Department
of
Cott i- Total.
ment. ment. Justice. ment. ment. merce.
Treasury
Department.
Navy
Department.
Total
Office of the Secretary.....................
1
Children’s Bureau... 1
Bureau of Immigration
..................................
Bureau of Naturalization................................
Women’s Bureau...................
Total............... 2
12 2 1 1 1
1 .......................................................
1 ........................................................
18 2 1 1 1
33
17
1
1
25
62 REPORTS OF DEPARTMENT OF LABOR.
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 follows:
Appropriations.—For the fiscal year ended June 30, 1920, the appropriations
by Congress to the Department and its services were as
follows:
Salaries, Office of the Secretary of Labor_____________________ $139,180. 00
Salaries and expenses, commissioners of conciliation__________ 200,000.00
Contingent expenses, Department of Labor___________________ 50, 000. 00
Rent, Department of Labor________________________________ 24, 000. 00
War Labor Administration, 1919___________________________ 39, 912. 00
Salaries, Bureau of Labor Statistics________________________ 217,140. 00
Miscellaneous expenses, Bureau of Labor Statistics___________ 104, 250. 00
Library, Bureau of Labor Statistics___________1_____________ 300. 00
Salaries, Bureau of Immigration___________________________ 93. 540. 00
Expenses of regulating immigration________________________ 2, 600, 000. 00
Expenses of regulating immigration, 1919___________________ 263, 072. 04
Immigrant station, Ellis Island, N. Y________________________ 175, 000. 00
Expenses of interned aliens, 1919-20________________________ 25, 000. 00
Enforcement of laws against alien anarchists________________ 750,000.00
Expenses of deporting aliens_______________________________ 100, 000. 00
Refunds:
Guanica Central of Ensenada, P. R______________________ 10. 00
W. C. T. Jones Steamship Co__________________________ 100. 00
Salaries, Children’s Bureau________________________________ 106, 040. 00
General expenses, Children’s Bureau________________________ 94, 000. 00
Investigation of child welfare, Children’s Bureau_____________ 80, 000. 00
Salaries, Bureau of Naturalization_________________________ 97, 010. 00
Miscellaneous expenses, Bureau of Naturalization____________ 550, 000. 00
Naturalization fees, publishing of Citizenship Textbooks, Bureau
of Naturalization________________________________ 11, 082. 26
Woman in Industry (Women's Bureau)_____________________ 40,000.00
U. S. Employment Service_______________'_________________ 400, 000. 00
Increase of compensation, Department of Labor_______________ 511, 200. 00
Printing and binding_____________________________________ 200, 000. 00
Salaries and expenses, International Conference of Labor_______ 64, 462. 46
Salaries and expenses, First Industrial Conference____________ 9,147. 57
Total-------------------------------------------------------------------- 6. 944, 446. 33
Expenditures.—Expenditures, arranged according to items of appropriation,
are as follows:
Office of the Secretary:
Salaries, Office of the Secretary of Labor—
1919------------------------------------------------------------------ $5, 032. 02
1920________________ __________________________ 131,357.27
ANNUAL REPORT SECRETARY OF LABOR. 63
Office of the Secretary—Continued.
Contingent expenses, Department of Labor—-
1918___________________________________________ $2,730. 52
1919___________________________________________ 34, 913. 26
1920___________________________________________ 34, 576. 64
Salaries and expenses, commissioners of conciliation—
1918___________________________________________ 19. 49
1919__________ _________________________________ 24, 596. 30
1920___________________________________________ 176, 921. 25
Rent, Department of Labor—
3919___________________________________________ 2,000.00
1920'___________________________________ _ ______ 22,000.00
War Emergency Employment Service, 1919---------------------- 48. 22
Housing for war needs, 1918-19_______________________ 5, 570. 41
National security and defense-------------------------------------- 1, 745. 47
National security and defense, 1919_____________________ 209, 648. 92
War Labor Administration, 1919________________________ 150. 665. 69
Salaries and expenses, International Conference of Labor------ 51, 952. 38
Salaries and expenses, First Industrial Conference. 1920---- 8, 213. 27
Increase of compensation. Department of Labor—
1919___________________________________________ 11, 268. 04
1920_______,____________________________________ 484,107.83
Total_________________________________________ 1, 357, 276. 98
Bureau of Labor Statistics:
Salaries, Bureau of Labor Statistics—
1919__________________________________ _________ 7, 061. 97
1920___________________________________________ 203, 779. 20
Miscellaneous expenses, Bureau of Labor Statistics—
• 1918___________________________________________ 36.41
3919_________________________________ _ ________ 9,064.74
1920___________________________________________ 91, 477. 25
Library, Bureau of Labor Statistics—
1919___________________________________________ 61.50
3920 ___________________________________________ 265.20
Total_________________________________________ 311, 726. 27
Bureau of Immigration:
Salaries, Bureau of Immigration—
1919___________________________________________ 2, 858. 20
1920___________________________________________ 85, 646.10
Expenses of regulating immigration—
1917-18_________________________________________ 3,126. 74
1918___________________________________________ 30. 00
1919___________________________________________ 352, 473. 25
1920__________________________________ «-_______ 2, 347, 200. 60
Expenses of interned aliens—
1917-18_________________________________________ 1. 95
1919-20_________________________________________ 1'0, 589. 55
Enforcement of laws against alien anarchists, 1920----------- - 147, 439. 42
Immigration stations—
Ellis Island, N. Y________________________________ 140,513.87
Philadelphia, Pa_________________________________ 5, 451. 50
64 REPORTS OF DEPARTMENT OF LABOR.
Bureau of Immigration—Continued.
Refunds—
Guanica Central of Ensenada, P. R__________________ $10. 00
W. C. T. Jones Steamship Co_______________________ 100. 00
Head tax_______________________________________ 584. 00
Total-------------------------------------------------------------- 3, 097, 312.18
Children’s Bureau:
Salaries, Children’s Bureau-
1919 ------------------------------------------------------------------ 4, 025. 42
1920------------------------------------------------------------------ 98, 252.13
General expenses, Children’s Bureau—
1918-------------------------------------------------------------- 2, 075. 97
1919----------------------------------------------------------------- 13,006. 62
1920------------------------------------------------------------------ 72,421. 43
Enforcement of child-labor law—
1917-18_________________________________________ 37. 49
1918___________________________________________ 20. 53
Investigation of child welfare-
1918 ___________________________________________ 468.57
1919------------------------------------------------------------------ 11,163. 54
1920___________________________________________ 71,115. 99
Total_________________________________________ 272, 587. 69
Bureau of Naturalization:
Salaries, Bureau of Naturalization—
1919___________________________________________ 3, 793. 59
1920___________________________________________ 91, 002.16
Miscellaneous expenses, Bureau of Naturalization-
1918 ___________________________________________ ■ 40. 08
1918-19_________________________________________ 51,197. 24
1919___________________________ 26, 948. 46
1920___________________________________________ 462, 977. 75
Total_________________________________________ 635, 959. 28
Woman in Industry, 1920_ ;_______________________;_______ 29, 568. 94
U. S. Employment Service, 1920___________________________ 125, 258. 82
Grand total_______________________________________ 5, 829, 690.16
In addition to disbursements by the disbursing clerk, the following
expenditures in behalf of the Department were specifically made:
By special disbursing agents for—-
U. S. Employment Service_________________________ __ $1, 017, 878. 73
Children’s Bureau___________________________________ 13,247. 40
Immigration Bureau_________________________________ 41,227.54
Claims settled by the Auditor for the State and Other Departments_____________________________________________
178, 413. 36
Total________________________ __________________ 1, 250, 767. 03
Miscellaneous receipts.—The following receipts from miscellaneous
sources have been recorded during the year:
ANNUAL REPORT SECRETARY OF LABOR. 65
Gratuitous refund from private concerns account of travel------- $28. 63
Bureau of Immigration:
Head tax______________________________ $2, 925, 459. 00
Fines_________________________________ 126, 749. 29
Court costs— ----------------------------------------- 58. 58
Rentals and sale of exclusive privileges--------- 2, 466. 70
Telephone service------------------------------------ 915.12
Forfeiture of bonds--------------------------------- 6, 850. 00
Sale of Government property---------------------- 166. 62
----------------- *- 3, 062, 665. 31
Bureau of Naturalization:
Naturalization fees---------------------------------- 491, 538. 50
Interest on naturalization fees-------------------- 119. 84
------------------- 491, 658. 34
Miscellaneous:
Proceeds of sales of government property---------------------- 9,438.89
Total____________________________________________ 3, 563, 791.17
Unexpended balances.—In accordance with the act of Congress of
June 20, 1874 (18 Stat. L., 110, 111), the following unexpended balances
of appropriations were covered into the surplus fund of the
Treasury Department June 30, 1920:
Contingent expenses, Department of Labor, 1918-------------------------- $1, 834. 27
Salaries and expenses, commissioners of conciliation, 1918----------- 2. 50
War Emergency Emploj^nent Service, 1918-------------------------------- 100. 09
National security and defense, Department of Labor--------------------- 5,123. 35
Expenses of regulating immigration, 1917-18------------------------'------ 2, 215. 71
Expenses of regulating immigration, 1918----------.---------------------- 7,675.48
Expenses of interned aliens, 1917-18----------------------------------------- 3, 254. 75
Miscellaneous expenses, Bureau of Naturalization, 1918-------------- 940. 78
Salaries, Bureau of Labor Statistics, 1918--------------------------------- 18. 89
Miscellaneous expenses, Bureau of Labor Statistics, 1917---------- 520.20
Miscellaneous expenses, Bureau of Labor Statistics, 1918------------- 8. 65
Library, Bureau of Labor Statistics, 1918---------------------------------- 11. 42
General expenses, Children’s Bureau, 1918--------------------------------- 44.19
Enforcement child-labor law, 1917-18---------------------------------------- 62. 51
Enforcement child-labor law, 1918-------------------- .————— 320. 99
Investigation of child welfare, 1918----------------------------------------- 490. 87
Increase of compensation, Department of Labor, 1918-------------------- 40. 38
Total 22, 665. 03
Division of Publications and Supplies.
Printing and binding.—The allotment to the Department of Labor
for printing and binding made in the sundry civil act for 1920
amounted to $150,000. The deficiency act approved March 6, 1920,
carried an additional $50,000, making a total for this fund of
$200,000 for the year, which was apportioned by the Secretary as
follows:
Office of the Secretary------------------------------------------------------------ $12, 500
Bureau of Labor Statistics-------------------------------------------------------101,000
15283—lab 1920—5
66 REPORTS OF DEPARTMENT OF LABOR.
Bureau of Immigration________________________________________ $6, ggg
Immigration Service_____________________________________ 19, ggg
Children’s Bureau___________________________________________ 3q ggg
Bureau of Naturalization_____________________________________ 3, goo
Naturalization Service and examiners________________________ 25, 000
Women’s Bureau______ 1_____________________________________ 3, 50g
Total--------------------------------------------------------------------------- 200, 000
Requisitions were macle on the Public Printer for work covering
the entire appropriation, on which he submitted bills for work done
up to and including June 30, 1920, of $199,999.66, leaving an unexpended
balance of 34 cents. Uncompleted and unbilled work remaining
at the Government Printing Office on July 1, 1920, which will
become a charge against the 1921 appropriation, aggregated $52,487.80.
Requisitions for printing and binding to the number of 1,405 were
written during the year as against 2,959 for the fiscal year 1919, a
decrease of 1,554, or 53 per cent.
1 he Monthly Labor B eview.—The demand for this publication continued
to increase during the year to such an extent that in order to
meet it an edition of 21,000 became necessary. The great expense of
printing this number, coupled with the serious shortage of paper,,
forced the Department to convert the Review into a subscription periodical.
Arrangements were perfected with tie superintendent of
documents under which he will furnish the Review to subscribers at
the nominal price of $1.50 a year or 15 cents a copy. The Department
will maintain a small free list which will include all labor departments
and bureaus, workmen’s compensation commissions, and organizations
exchanging publications with the Department.
C hildren's Bureau publications.—The child-care series of Children’s-
Bureau publications still maintains the phenomenal popularity to
which attention was called last year. That bureau also is distributing
a very large number of leaflets and small pamphlets dealing with
various phases of the same subject. These smaller publications are
in very great demand, several millions of them having been distributed
during the year.
Women’s Bureau publications.—The Women’s Bureau, created by
act of Congress approved June 5,1920, is, like the Children’s Bureau,
a publishing bureau. Its activities are expected to increase greatly
during the coming fiscal year.
There were printed during the year for the United States Housing
Corporation, United States Employment Service, Bureau of Naturalization,
and the various labor conferences which were held here
during the year 70,900 publications, 2 volumes miscellaneous binding,
3,555,500 blank forms, 375,500 letterheads, 52,500 envelopes, 22,000
index cards, 3,000 guide cards, and 50,000 memorandum sheets, for
which bills in the amount of $22,723.93 were received up to June 30y
ANNUAL REPORT SECRETARY OF LABOR. 67
1920, which sum was paid from appropriations other than the printing
and binding allotment of the Department.
Editorial work.—The editorial work of the division has been somewhat
less in volume, and the high standard established during the
incumbency of the former chief of the division has been maintained
and in some respects still further improved. This is true, notwithstanding
the fact that the force is entirely too small to handle, except
by the most diligent and constant effort, the work that must be done.
There were 20,036 folios of copy handled during the year, as
against 30,765 the year before, a decrease of 33 per cent. Galley
proofs increased from 4,870 to 5,071 (4 per cent) and page proofs
from 11,586 to 13,873 (20 per cent). Proofs of miscellaneous jobs
decreased from 948 to 253 (73 per cent).
Books and blanks.—Requisitions for books and blanks filled during
the year numbered 8,210, fewer by 4,836 than the year before. These
requisitions included 6,002 from clerks of courts for naturalization
blanks and 177 from representatives of the State Department for
blanks for use in issuing passports.
Shipments of books and blanks numbering 89,772 and weighing a
total of 513,264 pounds were macle during the year; there were 8,223
shipments of supplies, weighing 408,217 pounds.
To fill the 8,210 requisitions for books and blanks, 11,484 books ami
19,379,390 blanks were required.
Twenty-eight thousand five hundred and thirty packages of blanks,
weighing 330,207 pounds, and 6,236 packages of supplies, weighing
437,381 pounds, were received, while shipments reached the number
of 97,995, weighing 921,481 pounds.
Envelopes.—The Department placed, during the year, 165 orders
for 3,002,175 envelopes, costing $7,600.97, as compared with 470 orders
for 18,552,857 envelopes costing $39,770.06 in 1919; a decrease of
$32,169.09. The decrease during the year was due to the discontinuance
of the war services at the end of the previous fiscal year. The
envelopes remaining after the closing up of the work of the war
bureaus, together with a large number secured from other discontinued
war services, were overprinted and used, the number being
approximately*400,000, at a saving of approximately $1,200.
Printed stationery.—Requisitions for printed stationery to the
number of 373 were filled during the fiscal year. Of these, 176 were
from offices and bureaus of the Department in Washington, while
197 were received from services outside of Washington.
Distribution of publications.—On mailing lists and franks there
were issued 1,989,994 publications as compared with 3,161,456 in 1919,
a decrease of 37 per cent. Of these publications 510,100 wTere sent on
mailing lists and 1,479,894 on individual franks which numbered
131,212.
68 REPORTS OF DEPARTMENT OF LABOR.
Duplicating work.—Due to the abolishment of the various services
organized for war activities the duplicating work was reduced something
more than half as compared with the preceding year. Requisitions
handled numbered 1,585; impressions taken, 2,449,549; photostatic
reproductions 1,618; sheets folded, 752,536; envelopes sealed,
608,488; and envelopes addressed 387,494.
Supplies — By act approved March 1,1919, known as the legislative,
executive, and judicial appropriation act, the sum of $50,000 was
appropriated for the contingent expenses of the Department for the
fiscal year ended June 30, 1920. This act further provided that a
sum not in excess of $13,500 be taken from the appropriation “ Expenses
of regulating immigration, 1920 ” and added to the Department’s
contingent appropriation in order to enable the central purchasing
agency of the Department (Division of Publications and
Supplies) to provide certain supplies for the immigration field service.
This made available a total of $63,500 to constitute the contingent
fund of the Department.
More supplies were purchased in the open market during the fiscal
year than in any similar period since the creation of the Department.
This was due partly to the fact that many of the contracts entered
into by the General Supply Committee, being limited to specific
quantities, expired before the close of the fiscal year and partly to
the fact that in some instances the General Supply Committee was
unable to contract at all for certain supplies. Were it not for the
most rigid practice of economy the Department would not have been
able to supply the needs of its several bureaus and officials from this
appropriation.
During the fiscal year there were filled a total of 1,596 requisitions
for supplies, which necessitated the placing of 2,038 orders involving
3,292 items, at an aggregate cost of $46,770.90. There remains at the
present time a balance of $3,229.10 available to offset any outstanding
liabilities that may be properly chargeable to this appropriation, an
amount which is deemed sufficient for that purpose.
Contingent, 1921.—In the legislative, executive, and judicial appropriation
act approved May 29,1920, $50,000 has been provided for the
contingent expenses of the Department during the fiscal year 1921.
Together with the allotment of $13,500 made by the same act from
the appropriation “ Expenses of regulating immigration, 1921,” this
sum makes $63,500 available for the contingent expenses of the Department.
Due to the constantly increasing cost of supplies, both
those contracted for by the General Suppy Committee and those purchased
in the open market, together with the increase in the cost of
fuel and telephone service, it is doubtful whether the needs of the
Department can be met with this sum, even though the Department’s
established practice of rigid economy be closely adhered to.
ANNUAL REPORT SECRETARY OF LABOR. 69
Skipping.—A motor cycle with side van was purchased to augment
the present motor equipment of this section and expedite the delivery
of mail and the handling of the lighter delivery work. The acquisition
of this equipment permitted the release of a motor truck to the
General Supply Committee. This new equipment, together with the
two motor trucks now in use, will in all probability be sufficient to
permit the department to handle expeditiously the incoming and outgoing
mails and its shipment of supplies.
Estimated contingent allotment for division, 1921.—It is estimated
that the sum of $6,500 will be required for the contingent expenses
of the division for the fiscal year 1921. Of this sum it is proposed
to reserve $4,000 for the purchase of distinctive safety paper with
special watermark upon which to print engraved certificates of naturalization.
Experience previously gained leads to the belief that the
balance can, with careful management, be made to meet the necessary
expenditures of the division.
Centralized pv/rckasing.—During the last session of Congress
there was introduced, in both the Senate and the House, bills looking
toward the establishment of a central purchasing agency to purchase,
store, and issue supplies for all of the departments and independent
establishments of the Federal Government and for the District government.
Both bills contemplated a large clerical force, including
specialist in each line of supplies purchased, together with huge
warehouses, Government-owned wharves, and railroad trestles and
spurs and sidings, the acquisition of which would, of course, call
for the outlay of vast sums of money. In view of this enormous
expense and the fact that regardless of what manner of centralized
purchasing is employed there must always be maintained in each
department and independent establishment a force practically equivalent
to the supply force now being maintained, I am unable to see
how any benefit or saving can accrue to the Government through the
adoption of this measure. Such saving as may be effected through
the purchase of large quantities at one time would undoubtedly be
more than offset by the additional expense incident to this new
scheme. Furthermore, another step would be added to the already
slow and cumbersome procedure now necessary in the purchase of
supplies, thus further retarding the work and placing a greater hardship
on all branches of the service.
Recommendations.—During the year the division lost several
trained employees. In view of the fact that employees in this
division do not become of real value until after one or more years
of training, it can readily be seen that the loss of such trained employees
is a serious matter. Indeed with the present inadequate
wage paid by the Government for practically all manner of services,
the matter of maintaining a competent clerical force has become a
70 REPORTS OF DEPARTMENT OF LABOR.
most serious problem. In fact, unless some means can be found
whereby employees may be paid a living wage, it will be absolutely
impossible to attract worth-while employees and hold their services
in this work.
Division of Negro Economics.
The Division of Negro Economics,66 established during the war t
of Labor made the same ruling with reference to the Communist
Labor Party.
As to the Communist Party, however, he held that its constitution
was such as to make mere membership mandatory ground for deportation.
73 To the same effect was his decision with reference to the
Union of Russian Workers. Consequently aliens proved to be members
of the Union of Russian Workers or of the Communist Party
were ordered deported, no matter how ignorant they may have been
of any unlawful purpose on the part of either organization, nor how
well disposed they themselves were to the United States and its Government.
But in all cases the Secretary and his lawful representatives
held, in accordance with court decisions and a vital sense of
justice, that it would be treachery to official duty to order the deportation
of any alien without a fair hearing and upon reasonable
proof of actual and conscious membership in one of the proscribed
organizations, or of some individual act, individual advocacy, individual
teaching, individual belief, or individual disbelief, such as the
acts of Congress require that resident aliens shall not be guilty of
without subjecting themselves to deportation.
A very large proportion, therefore, of all the warrants of arrest
in these cases, have been canceled. They were rightly canceled because
the charges upon which they had been issued were not sustained by
lawful proof at the hearings.
73 Hou. George W. Auderson, judge of the First Judicial Circuit of the United States,
decided at Boston that the Secretary erred in his ruling as to the Communist Party.
(See Colyer v. Skeffington, 265 Fed. Rep., 17—80.) On the other hand Hon. John Clark
Knox, Federal district judge for the Southern District of New York in the Third Circuit,
has sustained the Secretary’s ruling in a case not yet officially reported.
80 REPORTS OF DEPARTMENT OF LABOR.
Division of Conciliation.
Since the inception of the Division of Conciliation, March 4, 1913,
the number of cases presented for conciliation has shown a substantial
increase year by year.
A review of the records of the division during the more than seven
years that have elapsed since its creation shows that the Department
has upon request utilized its good offices in over 4,100 industrial disputes
involving directly more than 3,125,000 workers and indirectly
over 3,500,000 others. Of the total number of cases presented for
conciliation, the commissioners of conciliation of the Department of
Labor adjusted or assisted local and State agencies in adjusting
approximately 3,500, referred upward of 300 cases to the National
War Labor Board, and has pending 73 cases, and during the time
specified above has been unsuccessful in adjusting about 335 cases.
The foregoing does not include the very important services of the
commissioners who, as they travel about the country, have, by their
advice and assistance, been the means of averting hundreds of
threatened strikes which would have seriously interfered with industrial
life in many communities. Nor does the record of the first
seven years of this service take into account the cooperative assistance
rendered by the division and its commissioners to the War and
Navy Departments, the Fuel Administration, Railroad Administration,
Shipping Board, and other boards and agencies created during
the past three years.
In the early days of the Division of Conciliation, in 70 per cent of
the cases when intervention was asked strikes were already in effect.
During recent years a most gratifying change has taken place, so
that now less than 30 per cent of the cases presented have reached
the stage of a strike or lockout. It must be borne in mind that
under the policy laid down by the Secretary of Labor in the establishment
of this service it was deemed wise not to intervene in an
industrial dispute unless requested to do so by one of three parties—
the employer, the employee, or the public directly affected. This
policy has proved to be an excellent one, as the first concern is the
successful settlement of an industrial dispute, and therefore it has
been considered unwise to intervene so long as any successful termination
of the case in question was being worked out by the employer
and his employees.
As has been stated in previous reports, the Department of Labor
has no power, and exercises none, to make decisions or awTards in
disputes submitted for adjudication. It can not hand down an award
and then demand that the parties at interest abide by its decision.
The work of the.conciliators therefore is diplomatic; it is not judicial.
They are really industrial peacemakers endeavoring to get contending
ANNUAL REPORT SECRETARY OF LABOR. 81
parties together so that they may more readily solve their own problems
in their own way. They suggest methods and alternatives that
have proved successful in other instances and that will tend to bring
about the resumption of peaceful relationship between the employer
and his workers. The Department does not endeavor to impose its
viewpoint upon the employer or the worker, but seeks to find some
basis of just settlement that will be acceptable even though sometimes
it might not be entirely satisfactory. In a majority of the
cases handled by our conciliators it is found that by pursuing this
line of policy a better feeling between the employer and the employees
exists when the case is terminated. In that way barriers that kept
employer and employee apart have been removed, and the way paved
for freer relations and a better and proper grasp of the respective
rights and corresponding obligations of all parties concerned.
A summary by months during the past fiscal year of the number
of workers affected in all cases presented is shown in the following
table:
Month.
Workmeh affected.
Month.
Workmen affected.
Directly. Indirectly.
Directly. Indirectly.
July........................................... 48,643
88,462
52,188
94,690
65,657
61,264
26,654
41,558
163,229
51,159
26,535
11,269
12,628
4,962
February.................................. 16,091
37,304
57,195
25,218
43,055
26,765
168,980
101,960
21,445
55,758
August...................................... March........................................
September................................. April..........................................
October..................................... May...........................................
November................................. June...........................................
December..................................
January..................................... Total.....6..1..6..,.4..2.1..........6..8..5..,.2.4..8
Reference to the preceding annual reports of this division will
show the number of cases handled year by year, although some
allowance must be made for deviation on account of the war. The
growth of the Division of Conciliation of the Department of Labor
is indicated in the table appended.
J Mar. 4,
1913, to
June 30,
1914.
1915 1916 1917 1918 1919 1920
Number of cases................ 33 42 227 378 1,217 1,780 802
Adjusted...................................... 28 26 178 248 865 1,223 596
Unable to adjust......................... 5 10 22 47 71 ' 111 96
Pending....."............................... 5 21 42 7 13 9
Unclassified................................. 1 6 41 66 1 214 101
National War Labor Board .... 208 219
1 In 64 of the cases reported as unclassified in the table, commissioners of conciliation found upon arrival
that the disputes were in satisfactory process of adjustment without departmental aid; in 37, conciliators’
services were no longer necessary by reason of the fact that strikers had secured.employment elsewhere and
did not care to resume relations with their former employers; 32 cases were terminated through the closing
of plants by employers either for repairs or because of retirement from business; in 32 cases satisfactory
settlements had been reached prior to the arrival of the conciliators assigned; in 59 cases adjustments were
reached but are not credited to the Department because its commissioners ol conciliation acted in conjunction
with representatives of State boards, local committees, or local municipal officials.
15283—la b 1920----- 6
82 REPORTS OF DEPARTMENT OF LABOR.
It has been the practice of the Department to report in detail upon
the more important cases in which its good offices were exercised, but
due to the large number of cases now handled it is no longer possible
to do this because of the limited space. Typical examples of the work
performed during the past fiscal year follow:
Packing-house controversies, eastern cities.-—Following the decision of Judge
Samuel Alschuler, Federal administrator in the Chicago packing-house controversies,
a series of disputes arose in the packing houses in a number of eastern
cities where the award handed down by Judge Alschuler had not been put into
effect.
The Department of Labor was requested to use its good offices in bringing
about adjustments of these disputes in the following cities: Baltimore, Md.;
Philadelphia, Pa.; Passaic, Harrison, Jersey City, and Newark, N. J.; New
York City, N. Y.; Bridgeport and New Haven, Conn.; Springfield, Worcester,
Cambridge, Somerville, and Brighton, Mass. The Department assigned Commissioners
H. J. Skeffington, J. A. Sullivan, Charles J. Fury, L. R. Thomas, and
Patrick F. Gill to take up these matters in the various cities.
Conferences were arranged in the different cities affected and efforts were
made to arrive at a satisfactory solution of the difficulties and get the men
back to work. It soon bcame apparent that a possible settlement of the whole
difficulty hinged upon the situation in the plants of Swift & Co. and Armour &
Co. at Jersey City, and the combined efforts of the conciliators were directed
toward securing a settlement in that city. Innumerable conferences were held
in an effort to arrive at a satisfactory conclusion. Finally, Swift & Co. declared
a willingness to accept the award of Judge Alschuler and apply it to their Jersey
City plant. Similar action was then agreed to by the Armour Co. It was
stipulated, however, that there should be no retroactive pay and that the strikers
should receive payment from the time of their return to work. It was also
provided that as many of the strikers would be employed as places could be
found for. Recognition of the union was denied, as was the proposition of
the closed shop. This agreement, while mutually acceptable, was not altogether
satisfactory to the men, but the strike was declared off and work was resumed.
The strikes were then taken up in the other cities concerned, and, using the
Jersey City settlement as a basis, settlements were finally worked out. Nearly
12,000 men were directly involved.
These agreements promised peace in the industry for the period of a year.
National Adjustment Commission and longshoremen.—Commissioner of Conciliation
Benjamin M. Squires, who acted as advisory member and executive
secretary of the National Adjustment Commission, submits the following report
on the activities of that commission:
“The National Adjustment Commission was first constituted as a war-time
agency of adjustment for the determination of wages and conditions in the
loading and unloading of ships. It was reconstituted on a peace-time basis in
September, 1919, being in fact the only wage tribunal set up during the war
that has not since ceased to function.
“ Under the new agreement the commission is made up of five active members—
a neutral chairman, named by the Shipping Board; two members representing
private shipping interests; and two members representing the International
Longshoremen’s Association. Employer and employee representation
is by a system of alternates, two members representing employers and two
representing employees being named by each of several districts. Advisory representation
is accorded the Departments of War, Navy, Commerce, and Labor.
ANNUAL REPORT SECRETARY OF LABOR. 83
On occasion all members including advisory may meet as a general dock council
for the consideration of matters affecting the entire industry.
“Practically all deep-water steamship lines of the Atlantic and Gulf coasts,,
including foreign lines and contracting stevedores, are parties to the agreement.
The coastwise lines have not subscribed to the agreement, due in part to the
fact that s<5me of the lines were not released from Federal control until March
1, 1920, and in part to the financial condition of the lines, which seemed to preclude
arbitrary determination of wage rates. Pacific coast shipping interests
alone have refused to accept the arrangement.
“ The agreement provides for the setting up of local commissions in the more
important ports for the determination of matters of local interest. Where questions
involved are of common interest to two or more ports, the national
commission has original jurisdiction. Thus far local commissions have been
set up in six Atlantic and Gulf ports.
“ No power is given to enforce awards, but it is provided that no stoppage
or lockout of any kind whatever shall take place until the difference or
dispute between the parties shall have been referred and dealt with according
to the agreement. The several parties obligate themselves to give effectiveness
to the recommendations and awards and to take such steps as may
be necessary to assure the carrying out of the agreement. The arrangement,
in short, is not unlike that recommended to Congress in 1917 by the Secretary
of Labor as a plan of adjustment for all basic industries.
“ In the longshore industry as in other industries, the past year has been
one of considerable unrest. Continued high prices have served to aggravate
dissensions. The occasion has been seized by enemies within and without the
ranks of organized labor to foment discord and to bring orderly procedure
into disrepute. Thus the strike of deep-sea longshoremen at the port of New
York, shortly after the commission was reorganized, can not be divorced absolutely
in its inception and conduct from the wave of strike propaganda of the
past year. It is encouraging to note, however, that not only shipping interests
and the Government but also organized labor in general insisted that the agreement
be carried out. The support given by shipping companies to authorized
representatives of the longshoremen during' the strike is evidence of the confidence
of the companies in the intention of the longshoremen to honor their
obligations.
“ The coastwise strike now in progress in all Atlantic and Gulf ports presents
a difficult problem. Before the war the coastwise lines were a paying
proposition. The war disturbed normal routes of traffic, and a considerable
part of the freight that formerly went coastwise now goes by all-rail routes.
During Federal control a big deficit in coastwise operation had to be made
up out of the Public Treasury. Released from Federal control and without
the guaranty extended to rail lines, the coastwise companies find it impossible
to operate without heavy loss. Any wage increase would, of course, increase
the burden. Until an increase in freight rates is possible, or unless a return
is guaranteed, the coastwise lines are unwilling to submit the question of a
wage increase to arbitration. On the other hand, the coastwise longshoremen
have not had a wage increase since October, 1918, whereas the deep-sea longshoremen
have had an increase approximating 25 per cent. The justice of
their claim has been recognized by the commission, though the commission is
not now empowered to act, and, in fact, in exercising limited jursdiction several
months before the strike occurred, declared that it could not further
jeopardize coastwise service by adding to operating losses.
“ The situation is complicated at present by sympathetic action on the part
of truckers and teamsters. Martial law has been declared in Galveston, and an
84 REPORTS OF DEPARTMENT OF LABOR.
independent trucking service has been organized in New York. This does not
strike at the root of the trouble, howeyer. If the coastwise service is essential,
it must be maintained not at the sacrifice of coastwise labor or capital but at
public expense.
“ It is with respect to another phase of the commission’s work that the
greatest future usefulness of such an agency may be demonstrated. During the
hearings before the commission claims and counterclaims have been made as
to the irregularity of employment and the probable monthly and yearly earnings
of longshoremen. Information appeared wholly lacking, however, from which
to draw definite conclusions. The need of such information was so obvious that
the Shipping Board authorized the commission to make an investigation of
longshore conditions at the port of New York. The results of the investigation
thus far point to large irregularity of employment which is fraught with all
sorts of dangers quite apart from the heavy charge on the industry to compensate
in a measure for enforced idleness. If the commission can help to
place the industry on a more sound economic basis it will have demonstrated its
usefulness beyond question.
“ This brief recital of some of the problems of the commission in peace time
would be significant viewed only as the working out of a voluntary arrangement
seeking to avoid dislocation in an industry of such importance, and concerning
which so much has been said in the name of the American merchant marine.
It is significant also in its bearing on industrial relations in general and in proposals
for establishing industrial tribunals of whatever name.
“ The commission can not be said to have hit upon any novel way of arriving
at just decisions or enforcing them. Nor does the experience prove that voluntary
agreements, however painstakingly the effort to make them truly expressive
of the will of the majority, are necessarily inviolable. What is clearly
demonstrated is that public opinion can be marshaled to a surprising degree in
favor of an award to which the parties have subscribed in good faith and on
which they are represented. In spite of temporary defection such an award
is generally observed.
“The future of the commission under the present agreement rests with the
industry and with the Shipping Board. At any time after the expiration of
one year any party may withdraw by giving the required notice. The agreement
is binding only so long as the parties thereto comprise employer groups,
employee groups, and the Shipping Board. Whether this provision will prove
a source of strength or of weakness remains to be seen. On the one hand is
the greater binding force of an award that partakes more nearly of the nature
of an agreement; on the other hand is the uncertainty and instability arising
inevitably from the possibility of withdrawing from the arrangement and
thereby terminating it. It may be that the public interest in the shipping
industry demands a greater safeguard than an agreement terminable at will.
Machinery of enforcement could be set in motion more readily if the agency
of adjustment were governmental. It is probable, too, that permanent Government
machinery would be more effective in carrying out any program of
standardizing wages or regularizing employment.
“ The whole problem is, of course, but one phase of a larger problem, namely,
the extent to which self-government is desirable in an industry affecting so
intimately the public interest. Whether it is preferable to establish for the
shipping industry an arbitrary tribunal similar to that constituted for the
determination of railway wages and conditions, or to give a definite and permanent
status to the present arrangement is a matter of policy which will
be determined, in part at least, by the attitude of the industry itself. Certain
it is that the industry can ill afford to be without the stabilizing influence of
ANNUAL REPORT SECRETARY OF LABOR. 85
a tribunal to which controversies may be referred and which has authority to
intervene in case of threatened interruption by strike or lockout. It is pleasing
to note in this connection that private shipping interests and the International
Logshoremen’s Association have expressed their desire to continue the commission.”
Oakland (Calif.) street-car strike.—One of the most spectacular and bitterly
contested strikes occurring on the Pacific coast during the fiscal year was that
of 1,100 platform men against the San Francisco-Oakland Terminal Railway
in October, 1919.
The strikers were fully unionized and had been working under a signed agreement.
In August, 1918, both sides joined in submission to the War Labor Board
of a demand of the men for increased wages, an eight-hour day and changed
working conditions. Some months later the board granted a wage increase
retroactive to November, 1918, and refused the eight-hour demand, the award
to continue in effect for the duration of the war with a proviso that the wage
question might be reopened at six-month intervals, beginning October 1, 1919.
The War Labor Board having ceased to function the men submitted new demands
direct to the company August 31, 1919. Conferences were held without
result and a strike vote overwhelmingly carried. The company offered arbitration
on September 30, but the offer was rejected, and the men went out immediately.
Commissioners E. P. Marsh and Charles T. Connell entered the case October
3 and joined forces with the Oakland city administration and the Oakland
Chamber of Commerce in an effort at mediation. The company stood upon
the clause in the union’s constitution which provided arbitration before resort
to strike and alleged inability to meet the demands without financial disaster.
It alleged violation of agreement upon the part of the union. The men contended
that the eight-hour day was the paramount issue; that all previous
efforts to obtain it had failed; that arbitration subjected them to long delay;
that the temper of the men had reached the breaking point and they had become
convinced their only hope lay in their economic power. Professional
armed strike breakers were imported, and the usual bitter community spirit
engendered, resulting in violent outbreaks.
The State railway commission, impressed with the gravity of the situation,
played a leading part in effectipg a final settlement, bringing both parties
together in a conference at which the conciliators were present. The settlement
provided immediate return to work, with the prestrike status of the men restored,
the points at issue to be arbitrated. The commissioners of conciliation
addressed a mass meeting of the men, at which the terms of settlement were
unanimously approved.
There has been here and there evident since the signing of the armistice a
disposition upon the part of workers to hold their agreements lightly, possibly
one of the aftermaths of war, due to a reaction from a high industrial tension
during the war period. Whatever the cause or the animus, broken agreements
undoubtedly hurt labor’s cause. In this connection it is well worth repeating
here an excerpt from the award handed down by the arbitration board sitting
in this case: “ In regard to the date as of which this award shall become effective,
under normal circumstances the award would almost as a matter of course
be made effective as of October 1, 1919, so that the men would receive back pay
from that time to the present. But the circumstances are not normal. The
men went out on strike in violation of their contract and the rules of their
organization and in the face of an offer by the company to arbitrate. It
caused the company a loss of about $350,000, very seriously inconvenienced the
public, impaired the theretofore friendly relations between the men and the
86 REPORTS OF DEPARTMENT OF LABOR.
company, injured confidence in the willingness of labor unions to live up to their
contracts, and was a serious blow to the principle of collective bargaining. The
matter is too serious to be ignored or passed by. We have, therefore, determined
that our award snail be effective only as of January 1, 1920.”
Standard Stc:l Car Co., But1”:, Pa.—On August 8, 1919, at the request of
representatives of the employees and the Pennsylvania Department of Labor
and Industry, Commissioner of Conciliation James A. Smyth was assigned
to assist in an effort to bring about an adjustment of a strike of 4,000 employees
of the Standard Steel Car Co., located at Butler; Pa.
Commissioner Smyth upon his arrival at Butler found the plant closed and
was advised that the employees had presented demands for a signed agreement,
which provided for an eight-hour work day, increase in the wage rate,
and oetter working conditions. Upon refusal of the representatives of the car
company to sign the agreement the men left the plant.
In pursuance of the policy of the Department to cooperate with State departments
of labor a conference was arranged for with the officials of the
car company, representatives of the Pennsylvania Department of Labor, a
committee of the employees, and the commissioner of conciliation present.
The conferences were productive of much good, many concessions being
made by each side, but failed in getting them to a satisfactory or final agreement.
The position of the company was set forth by the manager in the following
statement:
“ But le r , Pa ., August 12, 1919.
“ In accordance with the expressed wish of representatives of both State and
Federal labor departments, the Standard Steel Car Co. and affiliated companies
in the Butler district have agreed to meet with a committee representing their
employees, and believe that a statement of their position in the present controversy
may prove beneficial.
“ 1. The policy of these companies, since their inception, has been to maintain
an open shop and to meet individually or collectively any employee or employees
having grievances, and the management will make no change in this
policy.
“ 2 Since the signing of the armistice, November 11, 1918, orders have been
taken for only 500 new cars, while, on the other hand, we have been compelled
to accept cancellations for nearly 12,000 cars, and were only able to
prevent cancellation of a considerable larger number by making a substantial
reduction in the prices at which the orders had been taken.
“ 3. The conditions at the present time are such as to warrant reduction
rather than increases in wages; therefore, the companies can grant no wage
increases at this time.
“ 4. These companies have made all possible efforts to keep the various departments
in operation, and at the plant of the Standard Steel Car Co. have
continued to build cars in order to afford employment to its employees, notwithstanding
the fact that the cars built could not be shipped, but had to be
palced in storage, entailing considerable hardship and loss to the company.
“ 5. At the Forged Steel Wheel Co., since the signing of the armistice, orders
for more than 32,000 tons of steel have been canceled, and new orders have
been, and are, so few in number and quantity that the company can scarcely
operate 6 open-hearth furnaces instead of the usual 10, although it has done
everything in its power to obtain orders to enable it to maintain its production,
and such orders as are obtainable must be taken at prices which do not
permit of any increases in the cost of manufacture.
“ 6. It has always been the policy of the companies to deal fairly and as
liberally as conditions permit with its employees in the establishing of rates
and working conditions, and the management feels that the employees should
have sufficient confidence in it to warrant them in feeling that its policy will
be continued.”
The employees, who were of many different nationalities, refused to accept
the statement of the manager or the several counter propositions, results of
the conferences, and insisted upon their original demands.
ANNUAL REPORT SECRETARY OF LABOR. 87
•
While the commissioner’s efforts to bring about an adjustment of the strike
condition were not successful, a better understanding between employer and
employee exists, with, a guaranty of either individual or collective bargaining
for any employee or employees who may feel that they have a grievance.
Builaing trades and common laborers, South Bend, Ind.—'’This strike involved
directly 3,500 employees and threatened at various times during the negotiations
to include common labor in various industries to the extent of about 23,000 who
were in sympathy and who knew that whatever settlement was made the same
would have its effect upon them as to wages and working conditions. This
strike asserted itself during March, 1920, due to questions of wages, hours, and
open shop. For several years the building contractors of South Bend had
recognized the closed shop as it pertained to the skilled crafts, and the common
laborers, who had recently affiliated with the Building Trades Council, demanded
a closed shop, together with an eight-hour day and a wage rate of 75
cents per hour. The employers immediately served notice through the newspapers
that they would never submit to the closed agreement for common labor.
Practically all manufacturing concerns in South Bend, whose common-wage
scale was about 50 cents per hour and who were running on the open-shop
basis, became directly involved in the controversy. The dispute became so
sweeping in its character that it included the entire city. This was due to the
attitude assumed by the State associaion, which has jurisdiction over buildingcontract
work done throughout the State and which was fearful that if the
closed shop were put into effect at South Bend it would be only a question
•of time when all cities throughout the State would become involved in strikes,
due to the common-labor unions making demands for the closed shop similar
to the demands made at South Bend.
The strike was finally adjusted upon the basis of a closed shop for the skilled
crafts, the common laborers’ organizations waiving the right of closed shop
and accepting hours, working conditions, and a 67|-cent per hour rate in wages.
During the negotiations officials of the State and city became involved.
Notice was served on Commissioner Fred L. Feick several times by both sides
asking that negotiations be broken off. The strike itself was one of the largest
and most bitterly fought in the State during the year. Business men, teachers
•of economics from the various colleges, and prominent attorneys became involved
from time to time during its pendency.
The copper industry.-—The dove of peace released by the President’s Mediation
Commission in 1917 still hovers over the Arizona copper industry, according
to the report of Labor Adjuster Hywel Davies.
No industry has suffered a greater relapse since the war, nor have the employers
and employees of any other basic industry handled their problems of
readjustment with more intelligence or displayed a greater mutual readiness
to cooperate in the establishment of the needful ways and means to bridge over
a 40 per cent loss of business, a 30 per cent depreciation in product market
values, and over 50 per cent increase in cost of production.
The only discordant notes in the copper industry during the current fiscal
year came from Butte, Mont., the Ely district in Nevada, and at the International
Smelter at Miami, Ariz.
Butte had two strikes: The first strike involved about 1,050 craftsmen in
August and September, 1919, over a demand for an advance of $1.50 a day.
It was settled by the acceptance of the $1 advance offered by the mining companies
and already accepted by the engineers, miners, muckers, and mill and
smelter men. The peculiarity of this strike was that it did not stop operations of
mines, mills, and smelters, and only about 7| per cent of the employees of the
■copper industry were out on strike. The second strike was precipitated by a
88 REPORTS OF DEPARTMENT OF LABOR.
handful of I. W. W. organizers who invaded the Butte district in April, 1920.
and succeeded in closing the mines for a few days, but after an unfortunate
shooting affair during an I. W. W. parade inarching toward the Anaconda
Smelter, in which over a dozen men were wounded and which in turn brought
Federal troops to the district, everything quieted down in a very short time
to normal conditions and work was resumed in all the mines.
The Ely strike affected all the operations of the Nevada Consolidated Copper
Co. for nearly a month in August, 1919. Work was resumed on an advance
of 75 cents a day instead of the $1 demanded, the company cooperating
in the reduction in the cost of living by the establishment of a grocery store
where provisions were sold at cost.
Reference to the report for 1918-19 will show that the employees of the
copper industry in all the Western States manfully cooperated with the employers
after the armistice was signed by accepting a reduction of $1 a day
in wages in February and March, 1919, which prevented a general suspension
of the industry, owing to the fact that there was practically no market
for copper between November, 1918, and April, 1919.
With the return of better demand and better prices by July, 1919, and the
unexpected increase in the cost of living, wages were advanced in July, 1919,
75 cents a day in Utah and Nevada, $1 a day in Montana, and 75 cents to $1.25
a day in Arizona.
The variation of 75 cents to $1.25 a day in Arizona caused a three-day suspension
at the International Smelter in the Miami district through the cranesmen
demanding $1 a day instead of the 75 cents due under the sliding-scale
rates. The strike on the part of about 12 cranesmen threw about 250 men idle,
but it was promptly settled as soon as Commissioner Davies got in touch with
the situation. This was the only discordant note in Arizona during the current
fiscal year, and this State furnishes 40 per cent of all the copper production in
the United States.
It is pleasing to report that at this writing peace prevails in the entire copper
industry of the Western States.
The hope of the copper industry lies in some form of final restoration of a
world peace and the reestablishment of credits that will enable the industry to
resume its foreign trade. It is only necessary to note that copper prosperity
depends on its export trade, which before the Great War ranged from 40 to 50
per cent of our production. Restoration of the industry to normal conditions,
therefore, depends on a combination of peace-credits exchange and transportation.
Given these and the markets will be found, and once more this great
industry will catch up with the onward industrial march in prosperity, in which
the employers will share with their employees in a great measure the “ ways
and means ” that make for neighborliness and continued industrial peace.
Telephone companies, Cleveland, Ohio.—Discrimination against the members
of local unions Nos. 38, 39, 78, and 134-A, employees of the Cleveland Telephone
Co. and the Ohio State Telephone Co., of Cleveland, Ohio, was charged,
the alleged discrimination being in violation of the provisions of order No. 3209,
issued by the Postmaster General, June 14, 1919, and consisting of the discharge
of employees without cause; coercion and intimidation of members of
the union, compelling them to withdraw therefrom; and preventing other employees
from joining.
The situation was very complex and adjustment was difficult, owing to the
fact that a goodly proportion of these employees were not members of the electrical
workers’ union, but were members of a company welfare association,
inaugurated and fostered by the company in opposition to the employees’ union.
ANNUAL REPORT SECRETARY OF LABOR. 89
Under the Postmaster General’s order above referred to the employees were
privileged to organize, bargain collectively, and deal through their committees
with their employers, all of which it was alleged was being denied them. Total
number of employees involved, 5,200.
An affirmative strike vote was taken by the local union and indorsed by the
International Brotherhood of Electrical Workers. Mediation was requested
by the employees, and Commissioner A. L. Faulkner was assigned to the case
July 1, 1919.
Adjustment of the controversy was effected July 7, 1919, the general managers
of the companies agreeing to recognize committees of their employees
in the adjustment of grievances presented, according to the provisions of the
Postmaster General’s order above cited.
Adjustment was accepted by the local unions involved in the controversy
at a special meeting July 8, 1919.
A strike in this instance would have paralyzed practically the entire commercial
activity of the city of Cleveland, besides embarrassing the Government
under whose supervision the telephone companies involved were operating
at that time.
Fort Smith Spelter Co.,—The Fort Smith Spelter Co., operating a zinc
spelter plant at Fort Smith, Ark., and the Fort Smith Spelter Workers’
Union No. 257 of the International Union of Mine, Mill, and Spelter Workers,
entered into an agreement which provided, among other things, that should
a grievance or dispute occur between the company and the union which could
not be adjusted, the matter in dispute should be submitted to the Department of
Labor for decision, the award of the Department to be binding on both parties.
In February, 1920, the Department was requested to assign an arbitrator
to settle a dispute which had arisen. Commissioner John J. Walsh was detailed
on the case. The dispute in this instance arose from the discharge of
a single employee. It was contended by the union representatives that this
man had been discharged without cause. Investigation by Commissioner
Walsh developed the fact that the company had a reasonable excuse for the
action taken, inasmuch as the discharged employee had violated certain working
regulations. The commissioner requested the company to reinstate the
discharged employee without compensation for the time lost, as the employee
had been guilty of certain indiscretions. The company graciously complied
with the commissioner’s request and the threatened trouble was averted.
California oil workers.—The oil workers in California organized during
April, 1917. At that time they were working 12 hours a day, with no uniform
scale or classification of work and the minimum wage being about $2.50 a day.
In August, 1917, the organized oil workers of California sent invitations to
200 operators to attend a conference at Bakersfield, Calif., to be held on
November 1, for the purpose of arranging a readjustment of wages and working
conditions; United States Commissioner of Conciliation Charles T. Connell
was also invited to be present. The operators did not accept the invitation.
Commissioner Connell was then requested to arrange for a conference between
operators and workers and was given a reasonable time to do so. The
workers had taken a referendum vote and had decided to demand an eighthour
day, and a minimum wage of $4 a day, together with certain changes in
working conditions. This referendum vote also authorized the State executive
board to call a strike if peaceful methods failed.
Commissioner Connell took up the matter with G. M. Swindell, secretary
of the Chamber of Mines and Oil, in Los Angeles. At this time the oil workers
claimed that from 40 to 50 per cent of the workers were organized, while the
operators stated that not over 25 per cent were in the organization.
90 REPORTS OF DEPARTMENT OF LABOR.
After some time taken up in preliminary negotiations, a conference was
arranged for the workers to meet the President’s Mediation Commission in San
Francisco on November 13, 1917.
The President’s Mediation Commission turned over the whole oil problem
to one of its members, Commissioner Verner Z. Heed, with Commissioner of
Conciliation Connell as adviser. Commissioners Reed and Connell met the oil
workers’ committee in Bakersfield, Calif., on November 19 and 20, 1917, for a
preliminary conference.
On November 23, 1917, Commissioners Reed and Connell met about 25 operators
at the Belvedere Hotel, Santa Barbara, Calif. These operators represented
about 75 per cent of the oil production of the State, outside the Standard
Oil Co. (not participating).
On November 25, 1917, separate conferences were held by the commissioners
with the oil workers’ committee; in the evening a joint conference between the
commissioners, representing the Government, L. P. St. Clair, representing the
operators, and Walter J. Yarrow, representing the workers, succeeded in coming
to an agreement with the following results: The establishment of a $4 minimum
wage beginning December 1, 1917, and an eight-hour day beginning on January 1,
1918.
The Secretary of Labor, acting through Commissioner Reed, appointed a board
of three members known as the Federal Oil Inspection Board. The members
were L. P. St. Clair, representing the operators; W. F. Byrne, representing the
workers; and G. M. Swindell, secretary of the Chamber of Mines and Oil,
chosen to represent the public.
This board functioned in making awards and adjusting grievances based on
the agreement made in Santa Barbara by Commissioner Reed, assisted by Commissioner
Connell (see copy in Department of Labor files in Washington, D. C.)
until the date of the board’s resignation on May 18, 1919.
This resignation restored the jurisdiction of the California oil industry to the
President’s Mediation Commission, which then called for a series of joint and
separate conferences between representatives of both operators and workers in
July, August, and September, 1919. Conferences were held in San Francisco,
Santa Barbara, and Los Angeles, with the result that the present memorandum
of terms was unanimously agreed to on September 9, 1919, the stipulations of
which were made effective as of July 1, 1919, and to remain in full force and
effect until June 30, 1920. The personnel of the President’s Mediation Commission
conducting these hearings was as follows: Col. J. L. Spangler, Hugh L.
Kerwin, and E. P. Marsh.
It will be noted that while the memorandum of terms has all the earmarks
of a joint agreement it really represents two agreements made jointly by representatives
of employers and employees in conference with the President’s Mediation
Commission but signed separately with the President’s Mediation Commission,
the operators not being willing to join in an agreement which could be
construed as a direct recognition of the oil workers’ union.
Thus we have the interesting experiment of the Department of Labor, through
the President’s Mediation Commission, becoming a partner not only in the
making of a joint agreement (jointly except in name) but also in assuming the
responsibility to see that the agreement (named Memorandum of Terms”)
'is fairly carried out by both parties, through the naming of an adjuster,
acceptable to both sides.
The inclusion of the agreement, etc., makes them available for reference to
satisfy all inquiries as to the details of an agreement that continues to maintain
peace in the oil industry, ancK through its “ contingent-pay ” clause about
ANNUAL REPORT SECRETARY OF LABOR. 91
$1,000,000 will be distributed next August among some 12,000 employees solely
because the workers have added another year to their splendid no-strike record
in the oil industry.
During the year Labor Adjuster Hywel Davies handled nearly. 600 cases,
involving about 1,000 men, or about 8 per cent of the number of men involved
in the agreement, and when the joint conference reconvenes in San Francisco
in the latter part of July, 1920, it is expected the adjuster’s docket will be
clean so far as his jurisdiction covers.
John Morrell J- Co., Sioux Falls, S. Dak.—A telegram was received from Mr.
C. B. Uncapher, representative of the Amalgamated Association of Meat Cutters
and Butcher Workmen, dated January 19, 1920, advising of labor troubles at
the plant of John Morrell & Co., Sioux Falls. S. Dak., and requesting the assignment
of a conciliator. Commissioner W. H. Rodgers was assigned to take up
the matter.
The company had raised the wages of machinists, plumbers, and steam fitters
to 84 cents an hour. However, the machinists contended that they were
entitled to 87| cents an hour, as that was the wage rate paid the plumbers and
steam fitters employed by building contractors in the city. The dispute led to
a strike, which occurred January 8. Practically all the employees, about 750,
qhit on this date and remained idle until January 16, when work was resumed
pending settlement of the disputed point. The company had increased the
carpenters’ wages to 84 cents an hour, which,was 4 cents an hour above the
carpenters’ wage scale prevailing in building operations in the city, and it had
also fixed the machinists’, plumbers’, and steamfitters’ wages at 84 cents an hour,
as it was the desire of the company to have all the mechanics herein mentioned
placed on a uniform wage basis.
The offer of settlement made by the company appeared very fair to Commissioner
Rodgers, who strongly recommended its acceptance. A mass meeting
of the employees was called, and it was unanimously decided to accept the
company’s proposition, thus happily ending the disturbed situation.
Crane Co., Chicago, III.—On July 15 the Department was advised that the 8,000
employees of this concern were out on strike. Commissioner Oscar F. Nelson
was assigned to the situation and on taking up the matter learned that the
strike was of a spontaneous nature; starting in the machine shop the men suddenly
quit in the forenoon of July 11, formed a parade, marching through all the
departments in the plant calling on the others until all walked out. No organization
existed and no demands had been made on the management prior to the
walkout. The workers enrolled into various trade-unions, such as machinists,
blacksmiths, molders, etc., within a few days after the strike.
Commissioner Nelson in taking the situation up with the directors of the
Crane Co. suggested a joint conference between the management and the
strikers and was informed “that the strike had been without notice and that the
company had not been made aware of any demands by the workers, even since
the walkout, and that therefore, they would not hold any conference until they
had been presented with demands.” This information was conveyed by Mr.
Nelson to the mass meeting of the strikers and resulted in bringing order out of
chaos to the extent that within aK few days the men presented their demands
in writing.
Upon further conference with the directors of the company they advised Mr.
Nelson, “ that as an object lesson to the men, who had left without notice, they
would take the demands under consideration for 10 days,” and agreed that he
arrange a joint conference with the representative committee of the workers
for August 2.
92 REPORTS OF DEPARTMENT OF LABOR.
On that day a committee of 35 strikers, the directors of the company, and the
shop superintendents, with Mr. Nelson presiding, held a four-hour conference.
At this meeting it developed that the main grievances was the matter of wages
and the lack of a channel of expression between the employees and the management.
The directors admitted in meeting with the workers’ committee that
inequalities as to wages and classification that should not exist had been clearly
shown.
Some days later the management submitted an offer of a flat increase of 15
per cent on all piecework and 8 cents an hour on day work, with assurance that
individual cases of inequalities would be taken up after the men returned to
work. That offer was at first rejected by the strikers’ mass meeting and a compromise
proposition tendered, which the company rejected, and after Mr. Nelson
reported back to the strikers that the company would submit no further proposition
the men accepted the increase tendered and called the strike off with the
understanding that all workers would be reinstated to their former positions
and that hearings would be granted to take up their grievances after they returned
to work. Both the management and the strikers’ committee expressed
appreciation of the Department’s services in the situation.
Ducktown Sulphur, Copper & Iron Co.—On August 7, 1919, after unsuccessful
efforts to negotiate a signed agreement with their employers, providing for'a
wage increase and changes in working conditions, about 600 employees of the
Ducktown Sulphur, Copper & Iron Co. (Ltd.), at Isabella, Tenn., went on strike,
resulting in a suspension of the mining and railroad operations and the closing
down of the smelting and acid plants. After about two months of shutdown,
the company management undertook to resume operations by bringing labor
from outlying districts. This resulted in a conflict between the union and nonunion
men which resulted in violence and damage to property. The company
appealed to the Chancery Court of Polk County, Tenn., for protection and
Judge T. L. Stewart granted an injunction restraining certain individuals
(former employees, officials and members of the Mine, Mill, and Smelter Workers’
Union) from trespassing upon the property of the company or interfering
by threats, insults, unlawful persuasion, intimidation, or violence with the company
or any of its agents or employees.
Having secured legal protection, the company had a large number of men
sworn in as deputy sheriffs to police and patrol their property. Efforts were
then made to secure additional outside labor to operate their plants. Notwithstanding
the court order, personal encounters between the union and nonunion
men continued and resulted in some of the union men being arrested for contempt
of court. This only served to intensify the feeling between the company and
its former employees.
On Octobei1 10, the Department of Labor was asked to intercede and Commissioner
William C. Liller was assigned to the case. He proceeded to Copper
Hill, Tenn., and immediately got in communication with both sides to the controversy,
with the result that after several days’ efforts an agreement was
reached which resulted in the men declaring their strike off and returning to
work, the company agreeing to take prompt steps to start their plants in operation
and furnish employment to former employees without prejudice or
discrimination. It was agreed that the general standard of wages and working
conditions established at the plant of the Tennessee Copper Co. under a
contract of agreement with the Mine, Mill and Smelter Workers’ Union should
be put into effect, namely, a standard eight-hour day with payment of time and
a half for overtime, the establishment of a minimum scale of wages with a sliding
scale based upon the market price of copper, and that in the operation of
ANNUAL REPORT SECRETARY OF LABOR. 93
its plants in the future the company should not discriminate between union and
nonunion workmen. It was also agreed by the employees that they should not
use coercive measures or resort to intimidation to further their union activities.
Furthermore, the company and its employees agreed that in the future all
grievances or misunderstandings should be adjusted through joint conference,
pending which there should be no cessation of work or operation. In the event
of inability to reach an agreement, either party may appeal to the Department
of Labor to mediate and adjust such grievances or misunderstandings.
Through the efforts of Commissioner Liller, the charges pending against
certain former employees in the Polk. County courts were not pressed and
were dismissed at the next session of the court.
After the plant had resumed operations for several weeks, certain misunderstandings
arose and both the company and its employees requested Commissioner
Liller to return to Copper Hill and adjust the difficulties. On his return
there in November, Mr. Liller worked out a plan of shop committee representation
which has proved highly successful. In a recent letter to the Department,
Mr. J. H. Taylor, assistant general manager of the company, stated that
the shop committee representation plan, inaugurated by the commissioner, had
reduced labor troubles to the minimum and had established friendly and harmonious
relations between the company and its employees, and heartily commended
Mr. Liller’s tact and diplomacy in handling the situation.
District Council of Carpenters v. Dawson or Federal Construction Co., San
Diego, Calif.—At the request of the Building Trades Council of San Diego,
Calif., Commissioner Charles T. Connell was assigned to the controversy which
directly involved construction work on the marine base, San Diego, Harbor.
The commissioner found the carpenters and laborers had walked off the construction
work because of an alleged violation of an agreement by the contractor,
who reverted to the old scale of $6 a day to carpenters instead of paying $7 a
day on and after a certain period, as agreed.
The laborers demanded an increase in wages, and later sympathetic action
was taken by the ironworkers, pile drivers, and others. Conferences were held
covering a period from August 15 to early in December 1919, but without results.
It became necessary for the president of the State building trades of California
to appoint a committee of three to make a survey of the entire situation.
This committee, with Commissioner Connell, conferred with the management,
and on December 9, 1919, a satisfactory settlement was reached, which was approved
by the building trades of San Diego.
This controversy involved the construction of the important marine base being
erected under supervision of the naval construction officers, extended over a
long period, became very tense, and bade fair to involve some 17 crafts affiliated
with the building trades of San Diego; but the satisfactory adjustment brought
about eventually continuous operations on an important Government project.
Pequanock Rubber Co., Butler, N. J.—On March 5, 1920, Commissioner Joseph
R. Buchanan left New York under instructions to proceed to Butler, N. J., to
serve as a conciliator in a controversy which had arisen at the plant of the
Pequanock Rubber Co. One hundred and fifty—slightly more than one-half of
the employees of the company-had gone on strike and were being supported
in their action by the State representative of the American Federation of Labor,
to which organization the local union of the strikers was affiliated, as a Federal
labor union.
The initial cause of the strike was the alleged deliberate violation by the
company of a clause in the written agreement between it and its union employees,
which provided for the payment of time and one-half for all labor
performed on legal holidays.
94 REPORTS OP DEPARTMENT OF LABOR.
Washington’s Birthday was observed on Monday, February 23, this year.
Announcement was made by the proper authorities that the Pequanock Rubber
Co. would operate its plant on that day. Just before the time for starting to
work a whisper was heard in one of the departments to the effect that only
single time was to be paid for work that day. The whisper quickly developed
into a general murmur, with the result that the shop chairman was urged to
call upon the superintendent for the purpose of learning if the rumor were well
founded. The chairman returned, stating that the report was true; the company
intended to pay only straight time for work that day.
Whereupon the 30 meh employed in that department refused to go to work
and all of them walked out, saying that they preferred to take the holiday to
working for straight time, especially as their agreement with the company
called for time and one-half on holidays.
The following morning, when the 30 who had walked out repaired to the mill
for work with the rest of the force, they found that their numbers had been
removed from the board and upon inquiry learned that they had been discharged
for refusing to work the preceding day.
At a meeting of the union that evening the discharge of the 30 men was
taken up and by unanimous vote a strike of all members of the union was
ordered. The strike took out 120 more men, raising the total out to 150.
This was the situation when the conciliator reached the battle ground.
After hearing the story of the strikers, from the lips of the union officials,
the conciliator called at the company's offices and interviewed the president
and the manager. Little progress toward an adjustment was made with the
company officials at that meeting, although they expressed willingness to take
the men back if they would return as individuals—not as members of the
union and in a body.
Other conferences were as barren of results until March 8. The commissioner
opened a conference with the president of the company on the latter
date by saying that, as the business men and the citizens generally were very
much disturbed over conditions growing out of the strike of the town’s principal
industry, he had thought of appealing for assistance to the chamber of
commerce, but had found that there is no such body in the town. “ Therefore,”
he said, “ I am going to appeal, Mr. President, to the mayor of the
city.”
“ But,” replied the president, “ I am the mayor.”
“ Very well,” said the commissioner. " Mr. Mayor, what have you to say
about a request of your fellow citizens and constituents, supported by a representative
of the Federal Government, that you use your influence as first citizen
of this municipality in an effort to induce the president of the Pequanock
Rubber Co. to respect signed agreements and to at once restore normal industrial
conditions in this community? ”
After remaining silently thinking for a minute or so the president-mayor
jumped to his feet, saying: “It’s all right. This dual role I am playing has
perplexities I did not comprehend before; but, if the men will come back to the
mill they will all be given (heir old positions as fast as we can adjust the
work to that end.”
And that was the way it was settled, and, as evidence of his good faith, the
company paid the men who worked on March 23 the half day’s pay that was due
them for working on a holiday. The president afterward told the conciliator
that back pay amounted to a little more than $1,000.
Eccles Drop Forge Co., Auburn, N. Y.—A controversy at the plant of the
Eccles Drop Forge Co. was reported to the Department in January, 1920, and
its good offices invoked. Commissioner James Purcell was detailed.
ANNUAL EEPORT SECRETARY OF LABOR. 95
It appeared that the SO blacksmiths and helpers in the employ of the company
had made a demand for a 20 per cent increase in wages. Thirty machinists
and helpers were also interested in the dispute. The company in reply to the
demand for increased wages stated that they were willing to pay as high as
any other competing company in the city of Auburn, but refused to advance
their rates unless such increase should also be put into effect by the competing
shops.
In a conference with the employees Commissioner Purcell pointed out to them
the inadvisability of attempting to compel this company to pay wages in excess
of that, prevailing in the other plants. The matter was amicably adjusted
through an increase of 10 per cent which was finally allowed. The threatened
suspension of operations was therefore averted.
Underwood Typewriter Co., Hartford, Conn.—This was a long drawn out
strike of nine weeks and its settlement one of extreme difficulty. Commissioners
of Conciliation Charles J. Fury and L. R. Thomas were assigned on July 21,
1919, upon request of the metal polishers employed by the company.
It developed, however, that various other crafts were also involved, about
4,500 men altogether being concerned in the dispute. The strikers maintained
that they had received but two 10 per cent bonuses during the entire period of
the war. After considerable difficulty a conference was arranged at the office
of the Underwood Typewriter Co., which was attended by representatives of
both sides and the commissioners of conciliation. This conference disclosed the
fact that the company won d not concede any of the demands, would not meet
with committee of the men, and had a list of 10 men whom they would not
take back under any circumstances.
Other conferences were held from time to time, however, and an adjustment
was finally secured which was quite satisfactory to the employees. The
agreement provided for an increase of 10 per cent in wages, a reduction in
hours from 55 to 48 a week, and recognition of shop committees. It was also
agreed that there should be no discrimination against union employees. The
strike was declared off and on September 15, the men returned to work.
Virginia Railway J Power Co.—At the instance of W. D. Mahoa, president
of the Amalgamated Association of Street and Electric Railway Employees of
America, Messrs. Thomas J. Williams and Homer J. Brown were appointed
commissioners of conciliation to mediate a threatened strike of street railway
employees of the Virginia Railway & Power Co.
Four divisions of the association operating in the cities of Norfolk, Portsmouth,
Petersburg, and Richmond met in conference with the company’s officials
and presented a new proposed agreement for the four divisions. This proposition
contained important changes in the working hours and requested increases
in wages from the minimum of 41 cents then in effect to a minimum of
50 cents an hour, and from a maximum of 45 cents to a maximum of 60 cents
an hour. It also provided that all disputes which might arise in the future,
including the matter of wages, should be settled by arbitration. The company
declined to accept the provisions of the proposed agreement. The four divisions
then voted to suspend work unless the company receded from this
position.
This was the situation when the commissioners of conciliation arrived on
the ground. Separate conferences were arranged by the conciliators with
both sides, and finally a joint conference of the contending parties was arranged.
This conference remained in almost continuous session for three days,
and prospects of an adjustment at times seemed remote. The best of good
feeling, however, prevailed between the parties, and this culminated in a settlement
finally being reached.
96 REPORTS OF DEPARTMENT OF LABOR.
The company agreed to sign a general agreement covering the four divisions
which granted a material increase in wages, with the stipulation that the company
confer with a committee of its employees representing the four divisions
at any time to discuss possible differences and to arbitrate all matters in
which the two parties could not agree, excepting wages, hours, and questions
affecting the operating costs. Tt was provided that this agreement should
remain in force for a period of one year and continue thereafter from year
to year unless a change should be desired by either party, when 30 days’ notice
must be given.
The acceptance of the proposition proved satisfactory to both parties, and
very good feeling was established. This is all the more commendable in view
of the fact that the relations prior to the reaching of the agreement were
strained and talk of a strike which would have tied up the street-car service of
the four cities was prevalent.
The commissioners attended the mass meetings held by the street railway
men in the different cities of the divisions and assisted in explaining the provisions
of the agreement.
The number' of men directly affected was 1,449.
Standard Lime d Stone Co., Martinsburg, W. Va.—Representations regarding
trouble at the plant of the Standard Lime & Stone Co. at Martinsburg were
made to the Department in .Tune, 1920, and its good offices requested. Commissioner
Charles Bendheim was detailed.
The charge was made that several men had been dropped from the employ
of the company for alleged union activities and a strike had been ordered,
effective June 10. Between 250 and 300 men were involved. Commissioner
Bendheim arranged conferences in an effort to bring the contending parties
together. Representatives of the strikers finally agreed to call off the strike
if the company would take back the strikers in a body. The company finally
agreed to this proposition with the added assurance that there would be no
discrimination against union employees. The strike was then declared off and
operations resumed.
Jewelry workers, Kansas City, Mo.—A strike of 100 jewelry workers at Kansas
City, Mo., was reported to the Department on April 24, 1920, and its
good offices requested. Commissioner John B. Lennon was assigned to take up
the matter. The dispute arose over the question of wages and working conditions
in the various shops. Negotiations had been on for some time prior
to the arrival of the conciliator, and no adjustment seemed possible. After
hearing both sides in conference, Commissioner Lennon was able to secure
an adjustment of the difficulties. A wage increase from $2.50 to $5 a week
was granted, and the strike was declared off.
Packing-house adjustments.-—The Department was largely instrumental in
maintaining peace in the packing-house industry throughout the country during
the past year. The machinery previously established was continued. A total
of 194 packing-house controversies in various cities were taken up and passed
upon by Federal Judge Samuel Alschuler, assisted by Daniel O. Cargill and
other commissioners of conciliation of the Department. In addition 75 minor
disputes were adjusted on short notice. Uninterrupted production has been
the story in Chicago and other packing-house centers during the fiscal year.
A continuation of these satisfactory conditions are in prospect for the immediate
future.
Metal trades, Honolulu, Hawaii.—A strike of machinists, boiler makers, blacksmiths,
molders, and pattern makers in the shops of the Honolulu Iron Works and
Catton, Neill & Co. (Ltd.), Honolulu, Hawaii, was reported to the Department
in September, 1919, by the International Association of Machinists and the
ANNUAL REPORT SECRETARY OF LABOR. 97
assignment of a commissioner of conciliation was requested. Mr. Richard
Halsey, commissioner of immigration of the port of Honolulu was designated
as commissioner of conciliation and instructed to use his good offices in bringing
about an adjustment.
It was reported that this was the first strike of importance in the islands in
20 years. The trouble arose over the discharge of the president of the machinists’
union. It was also alleged that he had been threatened with deportation
from the islands. Another complaint was that a blacklist was in effect in
the shops concerned, and that a number of the employees had been unable to
secure employment in the islands after being discharged by the companies concerned.
The question of wages was not involved in the controversy.
Mr. Halsey found that the plants were being picketed, but that fio disorder
had ensued. A number of conferences were held with both sides and a joint
conference was finally arranged and held in the office of the commissioner of
immigration. All matters in dispute were carefully gone over and an amicable
adjustment was secured. The matter of securing the reinstatement of the
discharged president of the machinists’ union was dropped, as that official
expressed his desire to leave the islands.
The agreement calls for the appointment of shop committees to take up all
matters in dispute. It also provides that eight hours shall constitute a day’s
work with four hours on Saturday. All work in excess of eight hours to be
paid at the rate of double time.
The adjustment of the strike was hailed with great satisfaction by both the
companies and the men involved, and the Department was congratulated upon
the successful outcome of its efforts.
Butchers and abattoir workers of Neto Orleans, La.—The Bureau of Markets,
United States Department of Agriculture, requested the Department of Labor
to mediate a strike of butchers and abattoir workers in New Orleans, La., on
Angus 29, 1919. Commissioner Joseph S. Myers was assigned.
It appeared that this strike took place on August 11 and had been pending for
nearly three weeks before the good offices of the Department of Labor were requested.
A serious situation existed in the yards of the Cooperative Abattoir
Co. and the Crescent City Stockyards and Slaughterhouse Co., where cattle,'
sheep, and hogs had been confined for several days. No conferences had been
held between the contending parties, and the case was deadlocked. Commissioner
Myers immediately arranged conferences with representatives of both
sides. The companies had previously refused to meet committees of their employees
if such committees were accompanied by the union organizer who was
not an employee. The committees were equally firm in refusing to go into conference
without the organizer.
After innumerable conferences, all differences were adjusted save the demand
for a wage increase. At this period of the negotiations the commissioner urged
arbitration as a solution, which suggestion was finally adopted. Two members
were appointed from each side, and Commissioner Myers was jointly agreed
upon as the fifth member.
The following increases were allowed by the board of arbitration: For employees
receiving $17 per week or less, 12| cents an hour; for employees receiving
$25 to $30 a week, 7 cents an hour; all employees under 18 years of age, 5
cents an hour.
This decision of the arbitrative board was satisfactory to both sides and peace
was restored in the industry in New Orleans.
Packing houses, Cleveland, Ohio.—Pursuant to a request from Mr. P. J. Guest,
an official of the Amalgamated Meat Cutters and Butcher Workmen of North
15283—la b 1920----- 7
98 REPORTS OF DEPARTAIENT OF LABOR.
America, the Department assigned Commissioner John J. Walsh to take up the
dispute involving the packing-house employees at Cleveland, Ohio.
This controversy developed from the interpretation of the award made by
Judge Alschuler, whose decision in the Chicago packing-house cases had been
accepted and put into effect in Cleveland. Eight hundred men. members of the
meat-cutters' union, had walked out as a result of a misunderstanding as to the
terms of the award. Suspicions as to the motives of the contending parties had
created a feeling of unrest and discontent which had culminated in a walkout
of the men in the early days of March.
Commissioner Walsh was able to gather together in conference representatives
of both sides, and after considerable discussion prevailed upon them to submit
their differences to Judge Alschuler who had made the original award. The
men then agreed to return to work pending official action by that official.
In the midst of his onerous duties as administrator in Chicago, Judge Alschuler
found time to proceed to Cleveland and hold a hearing. A prompt decision was
then handed down which was acceptable to both sides and had the effect of establishing
much better feeling.
Piano, organ, and musical instrument workers, New York City—A strike of
musical instrument workers involving between 9,000 and 10,000 workers occurred
in New York City in the fall of 1919. Many of these workers were affiliated
with the Piano, Organ, and Musical Instrument Workers’ International Union,
of Greater New York.
The strikers demanded recognition of their union and closed shop; a 44-hour
week, with a minimum wage of $36 for journeymen workmen and $42 for all
pieceworkers. Double time was also demanded for overtime over eight hours
and assurances of no Sunday work. Commissioner Robert M. McWade was
assigned by the Department to endeavor to adjust the difficulties. Commissioner
McWade found that the strike had been pending for nearly three months
and that about 3,500 of the strikers had returned to work under the old conditions.
The employers maintained that the leaders of the strike were men of
radical tendencies, affiliated with the I. W. W. and anarchistic organizations.
For this reason they refused to deal with the leaders of the strike and posted
notices in their shops providing the terms on which the strikers might return.
A few of the smaller companies granted the demands made upon them, but the
others held firm, and after a long period of idleness the strikers gradually
returned to work under the same terms which existed when the strike began.
Central States Bridge Co., Indianapolis, Ind.—A lockout of the employees
of the Central States Bridge Co., of Indianapolis, Ind., was reported to the
Department on January 15, 1919. Commissioners James J. Barrett and Frank
T. Hawley were assigned to the matter. The construction work being done by
this company was for the Railroad Administration, but an appeal to that
service met the reply that the employees concerned were working for a contractor
and not for the railroad, and therefore the Railroad Administration
had no jurisdiction.
About 200 men were directly and indirectly concerned in the dispute. Conferences
were arranged by the commissioners at Indianapolis on January 20.
The men demanded an increase from 92 cents an hour to $1 an hour.
The dispute was finally adjusted by granting all the demands of the men and
the establishment of a $1 rate for structural work at Indianapolis.
Hamilton Carhart Cotton Mills, Rock Hill, S. C.—In April, 1920, the Department
received a request from the Hamilton Carhart Cotton Mills, of Rock
Hill; S. C., for an investigation to be made of the alleged activities of agitators
who were said to be disturbing the peaceful conditions existing in that plant.
ANNUAL REPORT SECRETARY OF LABOR. 99
It appeared that this corporation was an employer of union as well as nonunion
labor and had no objection to its employees joining the union, but protested
against the alleged pernicious activities of a few of its employees. Commissioner
J. W. Bridwell was detailed to conduct an investigation. The difficulties
had arisen over the discharge of two employees who had been active
in the labor organization. As a result of this action by the company a strike
had been called to take effect on April 23. At Commissioner Bridwell’s suggestion,
this action was rescinded tintil an investigation could be made.
Upon taking the matter up with the officials of the company it was ascertained
that the discharged employees would not be reinstated, as it was alleged that
they were troublesome characters and had been the cause of considerable inconvenience
and annoyance to the company. Assurances were given, however,
that the company was willing to deal fairly with its employees and would not
discriminate because of union affiliations.
Commissioner Bridwell then conferred with representatives of the employees
and counseled them to remain at work. The matter was final1 y satisfactorily
settled by the discharged employees securing work elsewhere.
Scranton Pump Co., Scranton, Pa.—This was a long-drawn-out and stubbornly
fought case in which the Department was unable to secure an adjustment.
The trouble dated back to 1918, when the machinists requested an increase in
wages. 'No agreement was reached and the president of the company communicated
with two other companies doing similar work in Scranton, suggesting
that the questions as to wages and hours of labor, etc., be submitted to the
War Labor Board, both sides agreeing to abide by its decision. The three plants
then signed and forwarded to the War Labor Board a submission of their case,
and the employees, by their representatives and the machinists’ local union, also
agreed to submit their differences to the board.
The section of the War Labor Board delegated to hear the case was unable
to arrive at a decision, and in accordance with the rules of the board the
matter was placed before an umpire for final action. Judge J. Harry Covington
was chosen by lot as the umpire and proceeded to hand down his decision. The
award of Umpire Covington was accepted and put into effect by the two other
companies at Scrapton, but the Scranton Pump Co. refused to accept its provisions,
claiming that the decision was couched in ambiguous terms and questioning
the authority of the umpire to act.
At this stage of the proceedings the good offices of the Division of Conciliation
were requested, and Commissioner John J. S. Rodgers was detailed. Conferences
were arranged without result. Appeals were made to the chamber of commerce,
board of trade, and other agencies in Scranton, but an adjustment could
not be secured. An appeal by the employees to the Department of Justice was
met by the statement that there was no basis for legal qction. On the assumption
that the actions of the company constituted a breach of contract, suits were
insituted in the Lackawanna County courts for the recovery of wages alleged
to be due certain employees. Decision in these cases is expected at the next
term of court in September or October, 1920.
United States Gypsum Co., Plasterco, Va.—A threatened strike of 200 employees
of the United States Gypsum Co., at Plasterco, Va., was adjusted in
April, 1920. Mediation in this case was requested by Mr? Fred W. Suitor, secretary-
treasurer of the Quarry Workers’ International Union of North America.
■ It was alleged by the quarry workers that they were compelled to work 10
hours a day in the quarry and 12 hours a day in the mill. Commissioner F. G.
Davis was assigned by the Department with instructions to bring about an
adjustment if possible.
100 REPORTS OF DEPARTMENT OF LABOR.
Commissioner Davis conferred with the officials of the company and procured
from them a statement, a copy of which follows:
“ We will make an increase of 5 cents per hour to all men, working either
under ground or on the surface, who work on the hourly basis. We will increase
the price of loading cars underground 6 cents per car. We will increase
the price paid to the mixing crew for sacking and loading material one-half
cent per ton. We will not recognize or deal with any union committee, but
will at any time talk to the men as employees of the United States Gypsum
Co. This means that we recognize no right of the employees to interfere in
any way with our hiring or discharging whomsoever we please, if we consider
that we have just reason for such proceeding. Our working hours will remain
the same as formerly.”
The provision of the above statement proved satisfactory to the employees
and they returned to work.
Buffalo-Springfield Roller Co., Springfield, Ohio.—A lockout at the plant of
the Buffalo-Springfield Roller Co., at Springfield, Ohio, was reported in May,
1920, and the good offices of the Department requested. Commissioner James
A. Smyth was delegated to adjust the matter if possible.
The charge was made by the discharged employees of this company that
they had been blacklisted and were unable to secure employment in the other
shops at Springfield. The trouble arose over demands for an increase in wages
and change in working conditions and an eight-hour day. A 10-hour day had
previously obtained in the shop. The committee presenting the demands had
requested an answer within 12 days. No answer having been received at the
expiration of this period of time a committee of the employees had contemplated
calling at the office of the company the following morning to ascertain
what the intentions of the company were. The company, however, posted
notices stating that until further notice the plant would be closed down.
The boiler makers, sheet-metal workers, and painters, however, continued at
work. A conference was arranged b^ Commissioner Smyth with the officials
of the blacksmiths and machinists, and later with the general manager of
the plant. The general manager maintained that they had never discriminated
against union employees and had no intention of doing so in the future.
They also agreed to take back all employees as soon as the work and the conditions
in the shop would permit. This arrangement was satisfactory to the
idle employees and operations were resumed.
Demands of the Fishermen’s Union for a change of the basis of settlement
of wages.—For 75 years or more the method of employment in the fishing industry
was on what was called a system of “ lays ”; that is, where only one
man went from the vessel in each dory to fish one-fifth of the total proceeds of
the sale of the total catch at the market was paid to the owner before any
expenses were paid, the remaining four-fifths was divided among the fishermen
after all food, bait, ice, gasoline, oils, and gear was paid for. On schooners
that employed what is known as double-dory fishermen—that is, where two
fishermen went out in a boat—one-fourth of the total proceeds was paid to
the owners of the boat; in the halibut fishing one-half was paid to the owner
of the boat and the remainder divided among the fishermen after all expenses
were paid. Up to the year 1917 all fishing gear placed aboard schooners,
amounting to an average of $750 to $800 for a trip fit for the fishing grounds,
all had to be paid for by the fishermen out of their “ lays.” In that year the
fishermen struck against paying for this new gear, and the strike was finally
settled by reference to Hon. Henry B. Endicott, whose settlement was as
follows: That the vessels should be ready for fishing trip and pay for all fishing
gear, then the lost and condemned gear, hooks, etc., should be counted
ANNUAL, REPORT SECRETARY OF LABOR. 101
as stock charge,; that is, should be taken out of the gross stock before the
owners received their one-fifth, one-fourth, etc., also the 10 per cent for the
use of their lines each trip was eliminated by Mr. Endicott and his board.
Up to about 11 years ago the fishing .was done by sailing vessels, but with
auxiliary gasoline engines, and about that time steam trawlers began to make
their appearance. Steam trawlers in Europe, especially in England, were already
established; but for several years steam trawlers were unsuccessful on
the Atlantic coast; finally American captains and crews were successful, and
during the war a number were on the ways being built, but immediately after
the armistice was signe^ a large number were purchased from France and
England and began operation on the Atlantic coast.
A large number of the firms engaged in the fishing industry on the State
Fish Pier in Boston had formed a trust, and during the war had advanced the
price of fish to such an extent as to attract the Department of Justice, which
brought proceedings in the United States courts, dissolved the trust, and had
some of its members sentenced to prison, which sentences are before the higher
courts of appeal at the present time.
Fishermen on the trawlers were paid an extra bonus during the war to compensate
for the dangers of German U-boats along the coast. Immediately
after the signing of the armistice this bonus was withdrawn and the fishermen
faced the high cost of living without an adequate return for his labor. Thereupon
the five unions engaged in the trade, namely, the Fishermen’s Union, the
Captains, Mates, and Pilots, the Engineers, the Firemen, and the Fish Handlers’
Unions, the latter of which does shore work only, all made demands for increased
wages and regulations of the hours and conditions. These several
matters were handled by H. J. Skeffington, as commissioner of conciliation,
and were finally referred to the National War Labor Board. That board in
the spring of 1919 heard the cases and adjudicated the wages and conditions
for all the unions except the Fishermen’s Union. The latter union demanded
that the price of fish from the vessel to the owner on the wharf be fixed at
certain figures, their wages to be based upon that figure. The Massachusetts
State Board of Arbitration had previously refused to make such a decision,
and the National War Labor Board also refused, whereupon the fishermen
withdrew their case from the board. Immediately after withdrawing their
case from the War Labor Board the union formulated a new demand.
This led to a strike of the Fishermen’s Union at the Atlantic ports, such as
Boston, Gloucester, and other smaller ports, involving 4,500 fishermen directly
and 5,700 others in the industry indirectly. The strike took place July 3, 1919.
This was the condition on August 4, 1919.
The conciliator thereupon called a meeting of various representatives of firms
in the fishing industry on the eastern coast, as well as various unions engaged
in the industry, to meet in the United States Circuit Court room, post office
building, Thursday, August 7, 1919, and read to them the recommendation
of the National War Labor Board of May 28, 1919, to the effect “ that the
representatives of the fishing industries should meet in conference with the
view of (1) the establishment of fair and equitable machinery for prevention
and adjustment of grievances and disputes which may arise in the industry;
(2) the promotion generally of amicable relations between employers and employees;
(3) the negotiations of wage agreements for the industry as a whole.
It is the judgment of the board that the parties engaged in this industry are
best fitted by training and experience to work out the details in connection with
these recommendations and urge that they be given serious consideration.”
There were present representatives of fishing companies, Fishing Masters’
.Association, Master Mariners’ Association, Gloucester Board of Trade, and a
102 REPORTS OF DEPARTMENT OF LABOR.
number of individual vessel owners of Gloucester, Portland, Boston, and
Provincetown.
For a long time having operated with the Massachusetts State Board of
Arbitration and Conciliation in many cases in Massachusetts in the person of
Mr. J. Walter Mullen, the conciliator had invited him to come into this case.
A thorough open discussion was had, and at a certain point the newspapers
and public were excluded. Several meetings were held in the same room on
different dates, and in the meantime the representatives of the fishing companies
suggested that Hon. Edward F. McClennen, former special assistant
to the Attorney General of the United States in thq^ prosecutions against the
fishing trust, be added to the board and that the board be made permanent.
The proposition was accepted with a proviso that no part of this addition
interfere with the assignment of the commissioner of conciliation. Mr. McClennen
was elected chairman.
On August 12 another meeting was held in the same place and the board
having drawn up an agreement to the effect that all parties concerned would
submit their grievances and demands to the board for final settlement and
would accept whatever decisions were rendered, including an agreement that
tnere would be no strikes, lockouts, or cessation of work from any cause, which
was agreed to. Subsequently, all the fish handling companies gnd all of the
unions agreed with the exception of the Gorton & Pew Co. and the vessel owners
of Gloucester, Mass. The board thereupon met, heard all of the parties and
handed down a decision August 14, 1919.
It will be observed that this decision was for 60 days only. Meanwhile the
number of steam trawlers had increased to 50. Some of these vessels were
capable of taking 450,000 pounds of fish to the market in 10 days’ work at sea.
With that fleet working it was inevitable that there would be a very bad condition
from overproduction. The price of fish went to the lowest point ever
known in Boston. The fish-curing establishments in Gloucester were wholly
unable to take care of what is known as old fish, and the owners and fish
dealers were wholly unable to ship fresh fish .throughout the country because
of railroad troubles. Under these circumstances there was very great dissatisfaction
among the fishermen and particularly those on the steam trawlers.
An appeal to the board was made, numerous meetings were held, and finally
on February 20, 1920, a second decision was made.
This decision is regarded as the most important ever rendered in the fishing
industry. It stabilizes the basic wages and through the bonus of $3 a
thousand in summer and $4 a thousand in winter gives a stimulus to the fishermen
to care for their catch and present the fish to the market in good, merchantable
condition. In view of the fact that deep-sea fishing is a very
hazardous calling where loss of life is frequent and accidents not uncommon,
but particularly in view of the fact that fishermen for many years had returned
to their homes from vessels, not only without wages for their families,
but actually in debt to the vessel for food, it will be seen that the board,
recognizing the fact that the industry was in the process of being revolutionized
by application of steam, had set a wage rate and other conditions commensurate
with the industry of the fishermen. Owing to the condition of the constantly
glutted market, the board was called upon to consider another phase of the
difficulty and on February 20, 1920, issued a second, and on April 3, 1920, a
third decision supplementary to the above.
The last decision is a modification of the decision which preceded it and
was called for by the rapidly changing conditions of the business caused by
the introduction of the steam trawlers.
ANNUAL REPORT SECRETARY OF LABOR. 103
Reference has been made to the refusal of the Gloucester fishing interests
to come under the board of arbitration. After the first decision was rendered
it was resisted by the owners at Gloucester and a threatening condition arose,
but was happily averted by the acceptance of the terms and the subsequent
acceptance of the arbitration agreement; thus about all the fishing interests
on the Atlantic coast east of New York are lined up with the Board of
arbitration.
The conditions in the business are exceedingly complex, but up to date have
been successfully handled by the board, though not without very frequent conferences
and a great deal of close application and study. The standard of the
men going fishing from the Atlantic coast ports has been benefited and the
character of the men changed. The families of the men are much better cared
for than heretofore, and altogether the work so far accomplished bids fair to
greatly benefit all concerned in the industry.
The only requisite at the present time is the marketing of the product in
the inland cities, the project being to ship fresh fish, as far west as Omaha,
the railroad situation alone preventing that development. There are hopes,
however, that this will be overcome and those engaged in the industry are
looking forward anxiously to that time.
Disputes in the District of Columbia—Hon. Rowland B. Mahany, interdepartmental
commissioner of the Department of Labor, was designated by the Secretary
of Labor to act as commissioner of conciliation in many of the industrial
disputes arising in the District of Columbia. Controversies affecting the employees
of the Washington Railway & Electric Co., Potomac Electric Power Co.,
the baking industry, and municipal employees of the District were all taken
up by Mr. Mahany and adjusted before reaching the strike stage.
Through the efforts of the Department, industrial peace was maintained in
the District of Columbia during the fiscal year, and many controversies that,
had they reached the stage of strike or lockout would have seriously hampered
the Government in the prosecution of its work and would have directly affected
the business interests of the city of Washington, were happily averted.
The work of the Division of Conciliation in the successful adjudication of
these important cases has been commended by the employers and employees
concerned and by the local press as well.
Strike of the bituminous coal miners of the central competitive field and
outlying districts— In the month of February, 1919, President Frank J.
Hayes, of the United Mine Workers of America, called a meeting at Indianapolis
of the policy committee of that organization for the purpose of taking
action on demands to be presented to the miners at their next convention.
Considerable unrest had developed in the various coal fields of the country,
principally on account of the rapid increase in the cost of living and the
increase in the price of coal caused by the- abnormal demand. The policy committee
at the conclusion of its sessions adopted a report embodying demands
for a substantial increase in wages, a six-hour day, and nationalization of the
coal mines. On September 22, 1919, a convention of the United Mine Workers
was held in the city of Cleveland, Ohio, for the purpose of placing an interpretation
on the demands already formulated by the policy committee at Indianapolis.
A joint conference of coal miners and operators of the central competitive
field was called at Buffalo on September 23, 1919, at which conference
the miners submitted the demands of the Cleveland convention to the
operators.
104 REPORTS OF DEPARTMENT OF LABOR.
These demands were as follows:
1. That thereIbe a 60 per cent increase upon all classifications by day labor,
tonnage, yardage, and day work in the central competitive field. That, of
course, carries with it that the basis of understanding reached in the central
competitive field on the part of the mine workers would be satisfactory in all
outlying coal-producing districts.
2. That a six-hour day, five days per week, be established.
3. That the day labor be paid time and a half for overtime and double time
for Sundays and holidays.
4. That pay days shall be upon a weekly basis.
5. That the double shift of work on coal for commercial tonnage be abolished.
6. That the automatic penalty clause be abolished.
7. That the internal differences not covered by interstate joint agreement shall
be referred back to the respective districts for adjustment.
8. That any contract negotiated be effective from and after November 1,
1919, to run for a period of two years from that date.
The joint conference recessed at Buffalo on October 2 to reconvene in Philadelphia
on October 9, 1919, for the purpose of continuing negotiations, but
adjourned without agreement two days later, October 11.
The Cleveland convention had instructed Acting President John L. Lewis,
in the event of failure to secure an agreement at the joint conference, to issue
a strike order effective midnight of October 31, 1919. On October 14 Secretary
Wilson, having learned that the strike order w’as about to be issued, sought
to have it withheld until after he had had an opportunity to confer with Mr.
Lewis and Mr. Thomas T. Brewster, president of the Coal Operators’ Association.
The request of the Secretary of Labor was made in a telegram as
follows:
“ Octo ber 14, 1919.
“ John L. Lewis , •
“ Acting President United Mine Workers of America,
“ Merchants' Bank Building, Indianapolis, Ind.:
“ Section 8 of the law creating the Department of Labor provides that ‘ The
Secretary of Labor shall have power to act as a 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.’ I have been very much disturbed
by the reports to the effect that the operators and miners have failed to
reach an agreement and have adjourned without making arrangements for
further conference, and that a strike is therefore likely to take place in the
bituminous coal fields of the United States on the 1st day of November. As the
executive officer of the Government intrusted with the responsibility of mediation,
I would like to have you meet me in the office of the Secretary of Labor at
Washington at 11 o’clock Thursday nrorning, October 16, for the purpose of considering
the situation as it exists in the bituminous coal fields. I would respectfully
request that no strike order be issued until after I have had an
opportunity of-a conference with you. I have also asked Mr. Brewster, president
of the Coal Operators’ Association, to meet me at the same time and place.
“ W. B. Wils on ,
“ Secretary of Labor."
On the following day, October 15, Mr. Lewis wired the Secretary that the
order had already been issued as per instructions of the Cleveland convention.
Two days later, or on October 17, the Secretary of Labor invited a conference
between a scale committee of the operators and miners to meet in the DepartANNUAL,
REPORT SECRETARY OF LABOR. 105
ment of Labor on Tuesday, October 21, which conference convened on the date
set and continued in session for four days. On October 24 the conference adjourned
without reaching an agreement. On November 1 the strike began, and
nearly 400,000 union miners ceised work. In the meantime, on October 21,
1919, the Attorney General filed a bill in equity at Indianapolis, Ind., before
the United States district court praying for an injunction to restrain the miners
from striking. Federal Judge Anderson issued the order, and it was followed
by a writ of temporary injunction, dated November 8, calling upon the union
officials to cancel and revoke the strike order, which order was revoked in the
form and manner approved by the court. However, the men did not return
to work, and to all intents and purposes the strike was in effect.
On October 30 President Wilson asked Federal Fuel Administrator Garfield
to reassume his duties, and the administrator at once put into effect an order
restoring war-time prices and distribution of bituminous and anthracite coal.
The miners contended that their contract with the operators had expired because
the war, to all practical purposes, was at an end, while the operators
contended that the miners had broken their contract, because they had agreed
to work to April 1, 1920, or until peace was declared. The Secretary of Labor
on November 18 invited the coal miners and operators from all bituminous-coal
producing fields in the United States to meet at Washington, and a conference
resulted in which the Secretary of Labor made several suggestions, among
them, first, that a joint conference of all the fields of the United States be held;
second, that the central competitive field hold its joint conference and the other
producing districts hold their joint conferences concurrently with the central
competitive field; third, that the central competitive field take up and begin
negotiations again. The last of these propositions was accepted, and the joint
conference reconvened.
On November 20 the operators made a proposition giving an advance of 15
cents a ton for pick and machine mining and 20 per cent on day work contingent
upon the Federal fuel administrator granting an increase in the selling
price. The miners rejected this offer and reasserted their former demands.
On November 21 the miners modified their original demands by asking for a
40 per cent increase, which was voted down by the operators. At this point
the Secretary of Labor was notified by the joint scale committee that they had
reached a deadlock and were about to adjourn unless the Government had some
further suggestions to make. Upon receipt of this information Secretary
Wilson submitted a basis of settlement, as follows:
“As I view the attitude of the public toward the present dispute between the
miners and the operators in bituminous coal-mining operations, they will not
willingly submit to pay a cent more for coal than is necessary to give a just
wage to the miners and a fair profit to the operators, but they are willing to
pay any rate that is fair to all three. The question to be determined, then, is
what that rate should be.
“The figures produced by the Bureau of Labor Statistics for the three bituminous
mining towns for which the workingman’s family budget has been computed
show an increase in the cost of living in these towns since December, 1914,
of 79.8 per cent, as follows:
106 REPORTS OF DEPARTMENT OF LABOR.
Estimated per cent of increase in cost of living in Brazil, Ind., Danville, Hl.,
and Pana, III., from December, 1914, to June, 1919.
l
Items of expenditure.
Per cent of
total expenditure.
Average per
cent of increase
in
prices from
December,
1914,to
June, 1919.
Per cent of
increase
adds to the
family
budgets.
36.9 76.70 28.30
16.8 128.30 21.55
10.3 17.75 1.83
Fuel andlit 5.5 45.07 2.48
Furniture andfu^nl^tiings __ 6.8 129.62 8.81
Miscellaneous............................................................................................. 23.6 71.31 16.83
79.80
__________—
“ The run of mine pick mining price in the Pittsburgh and Hocking Valley
fields in 1914 was 64.64 cents per ton. Adding 79.8 per cent to 64.64 cents gives
an increase of 51.58 cents per ton. Since December, 1914, the miners in the
Pittsburgh and Hocking Valley fields have received an increase of 23 cents per
ton. Twenty-three cents deducted from 51.58 cents leaves a balance of 28.58
cents as the increase per ton that would be necessary to make the Pittsburgh
and Hocking Valley mine run pick mining rates equivalent to the present increase
in the cost of living.
“ In 1914 the mine run pick mining rate in the Danville district of Illinois and
the Indiana bituminous field was 61 cents per ton. Adding 79.8 per cent to 61
cents makes an increase of 48.67 cents per ton. The increase in the mining rate
since December, 1914, has been 23 cents per ton. Deducting the 23 cents from
48.67 cents leaves a balance of 25.67 cents as the increase per ton necessary to
bring the Danville, Ill., and Indiana bituminous mine run pick mining rates
up to the equivalent of the present cost of living?
“ These mining rates have always been accepted as the basic price upon which
flat advances or decreases should be computed in order to avoid changing the
differentials between different kinds of mining. Assuming that the Pittsburgh
and Hocking Valley rates and the Danville and Indiana bituminous rates have
equal weight and taking the average, we arrive at 27.12 cents per ton as the increase
that would be necessary to bring the miners to the equivalent of the
present increase in the cost of living, which would be fair to the public, fair to
the operators, and fair to the miners?
“ An increase of 27.12 cents per ton would be 30.94 per cent increase on the
present Pittsburgh and Hocking Valley rates, and 32.28 per cent increase on the
present Danville, Ill., and Indiana bituminous rates, or an average increase of
31.61 per cent. Applying this increase to the rate to drivers, which has also
always been the basic rate upon which a flat advance to day wage workers has
been computed, we get 31.61 per cent of $5, or $1.58, as the advance per day in
wages of day men.
“ On the same basis yardage and dead-work should be increased 31.61 per
cent.
“ To summarize: There should be a flat increase in mining rates of 27.12 cents
per ton, a flat increase in day wages of $1.58, and an increase in yardage and
dead-work of 31.61 per cent.”
The miners signified their willingness to accept the proposition, and the
operators also intimated that it would be acceptable to them if they could have a
definite assurance from the fuel administrator, Dr. Garfield, that he would fix
ANNUAL REPORT SECRETARY OF LABOR. 107
•a selling price for coal that would enable them to operate at a. profit. An adjournment
was therefore taken to enable them to consult with Dr. Garfield.
Three days later, on November 24, Dr. Garfield appeared before the joint conference
and enumerated the following principles:
“(1) The public must not be asked to pay more than it is now paying for coal
unless it is necessary to do so in order to provide reasonable wages to the mine
workers and a reasonable profit to the operators.
“(2) The arrangement entered into between the operators, the mine workers,
and the fuel administrator, with the sanction of the President of the United
States, in October, 1917, was intended to equalize the wages of all classes of
mine workers and to be sufficient to cover the period of the war, but not beyond
March 31, 1920; hence the only increase in cost of living which can now be considered
is the increase above that provided for by the average increase in 3917;
that is to say, the average total increase in pay over the 1913 base, which was
the base considered in 1917, should not exceed the present average increase in
the cost of living over the same base. It is also to be considered that the cost
■of living will fall rather than rise during the next few years.
“(3) The maximum prices fixed by the Government on coal were calculated to
increase production of coal for war purposes. Coal was basic and the increase
imperative. The public ought not be asked to pay and will not now pay the
increase over normal profits then allowed for the purpose of stimulating
production.
“(4) Any increases in wages now arrived at on the basis of the foregoing principles
should be borne by the operators or the public or both, as may be determined
by the application of these principles, and should take effect as of the
date when the men returned to work.
“(5) The needs of the United States are not alone to be considered; Europe is
in desperate need of coal and should have all that we can spare.”
On November 26 he stated his conclusions as follows:
“Applying the principles set forth in paragraph 2 of the statement of November
24, when the average increases in wages since 1913 for the various classes of
mine workers are deducted from the increase in the cost of living since that
time, we arrive at the amount of additional increase in wages justifiable at the
present time. I have taken the figures of the Bureau of Labor Statistics for
both cost of living and for the weighted averages of wage increase. According
to these figures the cost of living has risen 79.8 per cent since 1913, and the
amount necessary to bring the average wages of mine workers up to this point
at the present time is 14 pei' cent.”
The miners rejected this proposition, but expressed their willingness to accept
that of the Secretary of Labor. The operators immediately issued a statement
accepting Dr. Garfield’s proposition. In the meantime the leaders of the United
Mine Workers of America were summoned to appear before Judge Anderson
December 9 at Indianapolis to answer charges of contempt of court in not
obeying the mandate of the court to withdraw the strike order. Through a
series of conferences with Attorney General Palmer and the officials -of the
United Mine Workers an understanding was reached on December 6 for the
settlement of the strike controversy by the creation of a commission, and the
same was accepted for the miners through their representatives at Indianapolis
on December 10. The contempt proceedings were canceled and work was
resumed as soon as possible. On December 20 President Wilson created the
United States Bituminous Coal Commission to take up, consider, and hand
down an award on all matters in dispute. The personnel of the commission
was as follows: Henry M. Robinson, of California, chairman; Rembrandt Peale,
108 REPORTS OF DEPARTMENT OF LABOR.
of Pennsylvania; and John P. White, of Iowa. The report of the commission
was submitted to the President on March 3, 1920, and the principal points in
the award follow:
“ THE AWARD.
“We hereby award that all the terms, conditions, and provisions, mining
rates, and wage schedules in effect on October 31, 1919, in what is known
as the Washington agreement, dated October 6, 1917, and the agreements preceding
the Washington agreement, to which the Washington agreement is supplemental
and upon which it is predicated, applying to the central competitive
field and the outlying districts, shall be written into the agreement for which
these findings constitute a basis, except as the same may be modified by the
awards and recommendations hereinafter set forth.
“ As a modification of the terms of the agreements above recited, we award:
“ A. That the following specific awards shall constitute the basis upon which
wage agreements in all districts shall be predicated. They are not subject to
negotiations, but shall be written into all agreements and schedules of wages.
“ B. That the 14 per cent average increase in wages fixed by the United States
Fuel Administration shall be eliminated on March 31, 1920, and in lieu thereof
the wage scale of the Washington agreement referred to shall be increased as
set forth herein.
“ C. That the agreement for which this award constitutes a basis shall take
effect April 1, 1920, and continue in effect up to and including March 31, 1922.
“ D. That the mining prices for mining mine-run coal, pick and machine, shall
be advanced 24 cents per ton.
“ E. That in the block-coal field of Indiana, and in other localities that are
still on the screened-coal base, the usual methods of applying the tonnage rates
shall continue. This also has its application to districts that have a joint
understanding in applying wage increases to low coal.
“ F. That all day labor and monthly men (the advance to each monthly man to
be based on an average of the usual number of days he is required to work in a
month), except trappers and other boys, be advanced $1 per day. Trappers
and boys receiving less than men’s wages to be advanced 53 cents per day.
“ G. That all yardage, dead work, and room turning be advanced 20 per cent:
Provided, however, That nothing shall prevent the representatives of the
miners and operators in any district, in joint conference, from taking the flat
equivalent of the 20 per cent and applying it to yardage, dead work, and room
turning, if by so doing they will make for uniformity and maintain the differentials.
Failing, however, to agree to such application, then the 20 per cent
shall be applied on the existing rates, effective October 31, 1919.
“ H. That the decisions, which hereinbefore appear in the body of this report
and which are hereinafter summarized, are to be incorporated, according to the
letter and spirit of the said decisions, in the agreements to be drawn between
the miners and operators; and that the said decisions shall constitute the
basis upon which the wage agreements in all districts shall be predicated.
They are not subject to negotiations, but shall be written into all agreements
and schedules of wages. However, the several joint-scale committees may, by
mutual agreement, make such proper adjustment of local conditions as may
come within the terms and scope of this award, and of the Washington agreement,
dated October 6, 1917, and of the agreements preceding the Washington
agreement, to which the Washington agreement is supplemental, as more fully
set forth in clause No. 6 of the joint agreement of- the central competitive
field, dated March 9, 1916.”
Strike of bituminous miners in Illinois and adjacent States.—Claiming that
the award of the Bituminous Coal Commission did not provide a just increase
ANNUAL REPORT SECRETARY OF LABOR. 109
in wages for day laborers in and about the mines, considerable unrest developed
in Illinois, Ohio, and Indiana, and in July, 1920, at a conference in Chicago
officials of the United Mine Workers of the State of Illinois presented a
demand for a $2 a day increase in wages for day laborers, including drivers,
timbermen, and pump men. The operators refused to yield to the demands,
although it was alleged that some of the operators in the State of Illinois,
either personally or through their superintendents, had stated that the day
laborers were entitled to a substantial increase. Following the Chicago conference
and the refusal of the operators to grant an increase, strikes were
precipitated in many of the mines in Illinois.
On July 21 representatives of the Illinois coal operators came to Washington
and appealed to President Wilson to take some action to check the strike of
laborers employed at their mines. In a memorandum left at the White House
for the President’s consideration the operators expressed fear that the strike
might spread from Illinois throughout the central competitive field, stopping
the bituminous coal production in Indiana, Ohio, and western Pennsylvania
as well as in Illinois. The operators’ memorandum explained that they felt
bound not to depart “ except through some governmental action ” from the
existing contract with the men based on the wage scale fixed by the Government
commission named to settle the coal strike last fall. The matter was referred
by. the President to the Department of Labor, and on July 23 the Secretary
of Labor selected Commissioners of Conciliation W. H. Rodgers, John B.
Lennon, and John J. Walsh to take up the case, and directed them to proceed
at once to Springfield, Ill., and put forth every effort to induce the men on
strike to return to work and also to prevent the strike from spreading to mines
then at work.
The situation was further aggravated by the threatened shortage of coal
in this section because large portions of the country were dependent on the
Illinois coal production for the winter’s use.
On July 26 the commissioners of conciliation reported that they had had a
conference with Mr. Frank Farrington, president of the Illinois miners, and
associate resident officers of the organization regarding the resumption of work
in idle mines, and stated that “ their position is they have endeavored to have
the men remain on the job, and it is useless to attempt to have men resume
work unless they first have assurance from the Government that the day-wage
question will be reopened to readjust it; that they can not prevail on the men
to return to work on account of press reports; also statements made to the men
by mine foremen, superintendents, and coal operators to the effect that the
day men are entitled to a higher wage rate.” On July 27 the commissioners
reported that 60,000 mine workers were idle. In the meantime many mines had
become idle in Indiana and Ohio.
On July 30 President Wilson issued the following statement addressed to the
United Mine Workers of America :
“To the Members of th e Unit ed Mine Worke rs of Amer ic a .
“ Gen tle men : It is with a feeling of profound regret and sorrow that I have
learned that many of the members of your organization, particularly in the
State of Illinois, have engaged in a strike in violation of the terms of the
award of the Bituminous Coal Commission and your agreement with the
Government that the findings of the commission would be accepted by you as
final and binding. I am distressed not only because your action in refusing
to mine coal upon the terms which you had accepted may result in great suffering
in many households during the coming winter and interfere with the
continuation of industrial and agricultural activity, which.is the basis of the
prosperity which you in common with the balance of our people have been
110 REPORTS OF DEPARTMENT OF LABOR.
enjoying, but also, and what is of far more importance to you, because the
violation of the terms of your solemn obligation impairs your own good name,
destroys’ the confidence which is the basis of all mutual agreements, and
threatens the very foundation of fair industrial relations. No government, no
employer, no person having any reputation to protect can afford to enter into
contractual relations with any organization that repeatedly or systematically
violates its contracts.
“ The United Mine Workers of America is the largest single labor organization
in the United States, if not in the world, but no organization can long endure
that sets up its own strength as being superior to its plighted faith or its duty
to society at large. It has in the past built up an enviable reputation for
abiding by its contracts, which has been one of its most valuable assets in
making wage agreements. It may now make temporary gains by taking advantage
of the dire necessities of the balance of the people through the violation
of these contracts, but what of the future?^ How can it expect wage
■contracts with the employers to be continued, in the face of such violations
when normal conditions have been restored, and the country is free from the
fear of immediate shortage of coal? How will it be able to resist the claims
of the operators in the future who take advantage of the precedent which the
miners have established and decrease wage rates in the, middle of a wage
contract under the plea that they are unable to sell the coal at the then
existing cost of production? A mere statement of these questions ought to be
sufficient to awaken the mine workers to the dangerous course they are
pursuing and the injuries they are inflicting upon themselves and the country
at large by the adoption of these unwarranted strike policies.
“ In the consideration of the Nation-wide w’age scale, involving many different
classes of labor by the Bituminous Coal Commission in the limited time at its
disposal, some inequalities may have developed in the award that ought to be
corrected. I can not, however, recommend any consideration of such inequalities
as long as the mine workers continue on strike in violation of the
terms of the award which they had accepted as their wage agreement for a
definite length of time. I must, therefore, insist that the striking mine
workers return to work, thereby demonstrating their good faith in keeping
their contract. When I have learned that they have thus returned to work, I
will invite the scale committees of the operators and miners to reconvene for
the purpose of adjusting any such inequalities as they may mutually agree
should be adjusted.”
Immediately following the receipt of the President’s statement President
Lewis, of the mine workers, called upon every local in Indiana and Illinois
to return to work in accordance with the President’s request, and issued an
order instructing and directing that the miners on strike in Illinois and Indiana
immediately return to work so as to permit normal operation of the mines.
On July 31 President Farrington, of the Illinois miners, issued telegraphic
instructions to the presidents "of local unions in that State, instructing them
to notify their members to return to work on Monday morning, August 2, or as
soon as possible thereafter. The miners, in response to these orders, immediately
began to resume work, so that on August 3, 50 per cent of the
mines in Illinois were in operation. The situation cleared up daily until on
August 9 practically all of the mines in Indiana were working and all in
Illinois with two or three exceptions. On August 10 President Wilson, in
conformity with his promise, called the joint scale committee of the operators
and miners of the central competitive field to meet in the city of Cleveland on
August 13. The conference met on the day set in the President’s communication.
The four States comprising the central competitive coal field were unable
ANNUAL REPORT SECRETARY OF LABOR. Ill
to reach an agreement as a unit, but a satisfactory disposition was made of the
matters in dispute by the miners and operators of each of the States separately.
Situation in the anthracite coal districts of Pennsylvania.—On May 5, 1916,
an agreement was executed by representatives of the anthracite operators and
mine workers which provided for increases in wages, modification of certain
conditions of employment, and a continuation of the award of the Anthracite
Coal Strike Commission and subsequent agreements excepting as the same were
modified by said agreement for a period of four years ending March 31, 1920.
The conditions brought about by the war during the life of the agreement made
it advisable to increase the wage compensation of the mine workers, so that
supplemental agreements were made in conjunction with the United States
Fuel Administration, increasing the compensation of. the workers, but in other
respects retaining the terms and conditions of the agreement of May 5, 1916.
These modifications or changes were executed under dates of April 25, 1917,
November 17, 1917, and November 15, 1918. The increases provided in the
last agreement were in lieu of increases provided in the two preceding supplemental
agreements.
At the tridistrict convention of the anthracite miners, held August 19 to 23,
1919, certain demands for increases in wage rates and changes in conditions of
employment were adopted. These demands were presented to the operators
at a joint conference of operators and mine workers held in New York City
March 9, 1920. The demands were referred by the joint conference to a scale
subcommittee of four operators and four mine workers to consider and report
back with definite recommendations on all demands presented. The scale subcommittee
met in New York City March 11 to April 29, 1920, at which time it
developed that no agreement could be reached upon the matters in dispute, and
the Secretary of Labor thereupon laid a request before the committee inviting
them to meet with him at Washington. Both the operators and mine workers
accepted the invitation, and the scale subcommittee met with the Secretary of
Labor for the purpose of continuing their efforts to reach an agreement, beginning
on May 1, 1920, and at different periods up to and including May 20,
1920. On May 19, convinced that the operators and miners’ committee would
be unable to reach an agreement, the Secretary of Labor called the matter to
the attention of the President of the United States in the following communication
:
“ May 19, 1920.
“ My Dea r Mr . Pres iden t : For the past two weeks or more I have been in
negotiation with the anthracite coal miners and operators in an effort to reach
an agreement. The operators are willing to accept an agreement on the basis
of a $4 per day minimum and a $6 per day maximum for day labor that had a
minimum of $1.50 and a maximum of $3 per day in 1914. The scale, committee
of the mine workers has rejected this proposition and is insisting upon a still
further increase. I have been unable to get the operators to concede the further
increase, and I do not feel that I could justify my position before the public in
insisting that the additional concession should be made.
“ If the miners persist in their* position, I fear it will mean a strike of the entire
anthracite coal field by June 1. I would like to know if I may say to the miners’
scale committee that it.is your desire that there should be no interruption of
anthracite coal production and that the miners should either accept the terms
that have been presented by me as a compromise and accepted by the operators,
or submit the matters in dispute to a commission to be appointed by you and
continue at work pending its decision.
“ Faithfully, yours,
“ W. B. Wils on , Secretary.
“ The Pres iden t ,
“ The White House."
112 REPORTS OF DEPARTMENT OF LABOR.
In the meantime the Secretary had submitted to the operators’ scale committee
a memorandum showing the basis upon which the mine workers were
willing to enter into an agreement. Representatives of the mine workers, on
May 20, expressed the desire of consulting with a convention of the anthracitecoal
miners relative to the policy to be pursued. The convention was called at
Wilkes-Barre, Pa., on the following Monday morning, May 24. Prior to this,
on May 21, the President of the United States issued a statement to the operators
and miners of the anthracite wage-scale committee as follows:
“ May 21, 1920.
“ To the Opera to rs an d Min ers of the Anthr acite Wag e Scal e Committee .
“ Gen tl eme n : I have watched with more than passing interest your efforts to
negotiate a new wage scale for the anthracite coal fields. The arrangement to
continue work at the mines after April 1, pending the adoption of a new agreement,
which you entered into when the previous wage scale was about to expire,
was highly commendable and filled us all with hope that a new contract would
be mutually worked out and the supply of anthracite coal continued without
interruption. I sincerely trust that the hope will be fully realized.
“ I have, however, been advised that there is a possibility you may not come to
an agreement. I am sure I need not remind you that we have not yet recovered
from the economic losses incident to the war. We need the fullest productivity
of our people to restore and maintain their own economic standards and to
assist in the rehabilitation of Europe. A strike at any time in a great basic
industry like anthracite coal mining would be a very disturbing factor in our
lives and industries. To have one take place now while we are actively engaged
in the problems of reconstruction would be a serious disaster. Anthracite coal
is used principally in domestic consumption. Any shortage in the supply would
affect a multitude of homes that have been specially equipped for the use of
this kind of fuel. It would have to be supplemented by the use of substitutes
such as bituminous coal or oil, diverting these commodities from transportation
and manufacturing industries which they now supply, using more cars because
of the longer hauls, and thereby reducing the efficiency of our transportation
systems that are already burdened beyond their capacity. Such a condition
must not occur if there is any way of avoiding it.
“ I am not familiar with the technical problems affecting the making of your
wage scale. You are. You should therefore be able to effect an agreement. If
for any reason you are unable to do so, I shall insist that the matters in dispute
be submitted to the determination of a commission to be appointed by me, the
award of the commission to be retroactive to the 1st of April in accordance with
the arrangement you have already entered into, and that work be continued
at the mines pending the decision of the commission. I shall hold myself in
readiness to appoint a commission similarly constituted to the one which I
recently appointed in connection with the bituminous coal mining industry as
soon as I learn that both sides have signified their willingness to continue at
work and abide by its decisions.
“ Respectfully, yours, • “ Woo dr ow Wilson .”
The Secretary of Labor assigned as commissioners of conciliation to proceed
to Wilkes-Barre to be present at the time of the miners’ convention and
assist in any way possible in bringing about a settlement, Messrs. Rowland B.
Mahany, James Purcell, and Hugh L. Kerwin. The convention was in session
three days and finally decided to accept the offer of President Wilson, made
in his statement of May 21, for the appointment of a commission, and that work
in the mines would be continued under the understanding agreed to between
the operators and miners and reiterated by the President, which would protect
the mine workers in any increases granted as of April 1. The operators also
ANNUAL REPORT SECRETARY OF LABOR. 113
accepted the recommendation of the President, and accordingly on June 3,
1920, President Wilson selected as members of the commission, Dr. William O.
Thompson, of Columbus, Ohio; Neal J. Ferry, of McAdoo, Pa.; and William L.
Connell, of Scranton, Pa. The commission held hearings at Scranton and
Washington, D. C., over a period of several weeks, and in August, 1920, submitted
a report of its findings and award to the President, the same being approved
by the President on August 30, 1920, with the exception of one section
in which the commission exceeded the terms of the submission. On August 30
Secretary Wilson submitted to John L. Lewis, president of the United Mine
Workers, and to the representatives of the operators and mine workers a telegram,
as follows:
“Aug ust 30, 1920.
“John L. Lew is ,
“ President United Mine Workers of America,
“ Merchants' Bank Building,
“Indianapolis, Ind.:
' “ The President has to-day accepted the award of the Anthracite Coal Commission
submitted by the majority, in so far as it is within the limits of its
jurisdiction under the terms of the submission. He takes the ground, however,
that inasmuch as the question of back pay was a matter of mutual agreement
and not in dispute, the majority could not make a decision providing for the
payment in installments, and therefore that portion of the award should be
stricken out and the balance accepted. Under the terms of the submission it
was provided that when the award of the commission is made it will be written
into an agreement between the anthracite operators and the miners in such
manner as the commission may determine. The commission has decided ‘ and
directs that the form of contract entered into as provided in this award shall
be between Districts 1, 7, and 9 of the United Mine Workers of America, as
represented by the presidents. of the three districts, and the anthracite operators.’
In accordance with this decision and by direction of the President,
the scale committee of Districts 1, 7, and 9, United Mine Workers of America,
and the scale committee of the anthracite mine operators are hereby requested
to meet in joint session in the city of Scranton, Pa., at 10 a. m., September
2, 1920, for the purpose of writing the award into contractural relations between
Districts 1, 7, and 9 of the United Mine Workers of America and the
anthracite mine operators.”
Representatives of the mine workers in three anthracite districts met on
September 3, and, in compliance with the President’s message, wrote into an
agreement the award of the Anthracite Coal Commission.
Strong opposition, however, developed on the part of the workmen to the
award, and request was made on September 3, 1920, to the President and Secretary
Wilson for a reopening of the same, contending that the award of the
commission was inadequate, and stating that in view of what had transpired
recently in the bituminous coal-mining industry in the adjustment by the scale
committees of inequalities, the same policy should be pursued with regard to the
anthracite fields. This request for a reopening was signed by Phillip Murray,
Thomas Kennedy, John Collins, and C. J. Golden, representing the anthracite
mine workers. In the meantime many of the mine workers, dissatisfied with
the award, refrained from work, under the pretense of taking a vacation, and
this unrest continued to spread throughout the anthracite fields until practically
all of the mines were idle and a most serious situation confronted the
public.
On September 9 President Wilson, replying to a request of the representatives
of the anthracite workers that he convene a joint scale committee of the opera-
15283—lab 1920----- 8
114 REPORTS OF DEPARTMENT OF LABOR.
tors and miners for the purpose of adjusting certain inequalities, refused to call
such a meeting while the men remained away from their work. The President’s
statement follows:
“ Sept embe r 9, 1920.
“ Messrs. Phil lip Murra y , John Coll ins , Thom as Kenned y , C. J. Gol de n ,
“ Representing the Anthracite Mine Workers, Scranton, Pa.
“ Gen tl eme n : I am in receipt of your telegram of September 3, informing me
that you have written the award of the Anthracite Coal Commission into an
agreement with the anthracite operators despite the fact that you are convinced
that the award in itself does not provide that measure of justice to which you
believe your people are entitled. I sincerely thank you for the promptness
with which you have acted, notwithstanding your disappointment. It is a
policy of that kind, carried into effect by the rank and file of the workers, that
has made for the steady improvement of the conditions of the anthracite miners
in recent years and which lays the foundation for still further progress.
“ You ask me to convene the joint scale committee of anthracite operators and
miners for the purpose of adjusting certain inequalities which you assert exist
in the award of the Anthracite Coal Commission. In that connection your
attention is called to a telegram which I sent to Enoch Williams and others in
reply to a telegram I received from them stating that the anthracite miners
would refrain from working unless I set aside the award of the Anthracite
Coal Commission on or before September 1. In that telegram I said:
“ ‘ If your communication, declaring your intention to refrain from working
unless I set aside the award of the Anthracite Coal Commission on or before
September 1, 1920, is intended as a threat, you can rest assured that your challenge
will be accepted and that the people of the United States will find some
substitute fuel to tide them over until the real sentiment of the anthracite mine
workers can find expression and they are ready to abide by the obligations
they have entered into.’
“ Notwithstanding the plain warning contained in that telegram, which was
given wide publicity, the majority of the anthracite coal miners, following the
leadership of these men, have refrained from work under the guise of taking
a vacation. In doing so they have not deceived anyone, not even themselves.
When a body of men collectively refrain from working by mutual understanding,
however arrived at, it is a strike, no matter what name may be given to it.
Our people have fought a great war and made untold sacrifices to insure, among
other things, that a solemn agreement shall not be considered as a mere scrap
of paper. We have declined to enter into friendly relations with Governments
that boast of their readiness to violate treaties whenever it suits their own
convenience, and under these circumstances we could not look the world in
the face or justify our action to our own people and our own conscience if we
yielded one iota to the men in the anthracite coal fields who are violating the
contract so recently entered into between themselves, the coal operators, and
the Government of the United States.
“ I appreciate the earnestness of your efforts to get the men to return to
work and commend your stand in support of the obligations of your contracts
which all men must honor, but for the reasons stated above I regret that I can
not grant your request to reconvene the joint scale committee of operators and
miners.
“ Sincerely, yours, “ Woo dro w Wilson .”
On September 13, in accordance with the President’s request, the officials of
the miners’ organization ordered all men to return to work. On October 5 the
Secretary of Labor met a committee of the anthracite miners at Canton, Ohio,
and it being ascertained that the men had practically all returned to work, the
Secretary communicated that fact to President Wilson, who, on October 12,
Issued an invitation to the representatives of the operators and mine workers
ANNUAL REPORT SECRETARY OF LABOR. 115
calling upon them to meet at Scranton, Pa., on October 18. Subsequent meetings
have been held in Philadelphia from time to time, and the negotiations
are still being considered in that city (November 10, 1920) by the joint scale
committee of the operators and miners.
The steel strike.—On September 22, 1919, a strike was called in the steel industry
of the United States. It continued for several weeks and vitally affected
the entire steel industry of the country, particularly in the States of Pennsylvania,
Ohio, Indiana, and Illinois. The number of workers involved, according
to testimony before the Senate committee, approximated 365,000. The
Department of Labor survey showed between that number and 367,000, while
the employers stated that 40 per cent of that number actually went on strike.
Pursuant to the policy of the Department not to intervene in any labor
dispute unless and until either the employers or employees or the public directly
interested requested its good offices, the strike was not at any time
brought within the jurisdiction of the Department. Gradually the men returned
to work and the strike came to an end on January 8, 1920.
Summary.—During the fiscal year the Department of Labor has assigned commissioners
of conciliation to 802 cases, made up of 413 strikes, 347 disputes and
threatened strikes, 34 lockouts, and 8 walkouts. Of these it has succeeded in
adjusting 596. In only 96 instances have the commissioners failed to make
settlements. Nine cases are still pending. The number of disputes and the
disposition of each is shown in the following tables, together with a summary
by months, a record of the action taken in cases pending at the time of the last
annual report, and a statement of the geographical distribution of cases as
reported by months.
The above summary does not include the cases handled by the Department
through its labor adjuster in the copper fields of the West, the California oil
fields, or those of the Federal administrator in the packing-house industry.
If these cases were included the total would be upward of 1,200.
TABULATION.
1 Part of demands granted. Case died from inanition.
’ Some returned to work and some secured work elsewhere.
• Men would not take legal steps to secure money and no other plan was feasible, so commissioner dropped
case.
Statement showing number of labor disputes pending at end of fiscal year 1919.
Name. Commissioners of
conciliation.
Workmen
affected.
Result.
Directly-
Indirectly.
Threatened strike: All crafts, Pacific Electric
Railway Co., Los Angeles, Calif.
Strike:
C. T. Connell............ 1,350 2,500 Unable to adjust.
Employees of glazing department, New
Castle Leather Co., Wilmington, Del.
F. G. Davis.............. 196 ............ Adjusted.
Employees of glazing department,
McEwen Manufacturing Co., Tulsa,
Okla.
R. M. McWade........ 75 150 Do.
Threatened strike: Firefighters, Jacksonville,
Fla.
J. W. Bridwell......... 95 ............ Unable to adjust.
Strike: All crafts, Willys-Overland Co., Toledo,
Ohio.
J. J. Walsh............... 12,000 1,500 Do.
Threatened strike: All crafts, Atlantic Refinery,
Brunswick, Ga.
J. W. Bridwell......... 1,400 ............ Do.
Strike: Thos. G. Plant Co., Roxbury, Boston,
Mass.
H. J. Skeffington.... 1,600 2,000 Do.
Controversy: Boss butchers, Kansas City, Mo.
Strike:
P. F. Gill.................. 165 ............ Adjusted.
Electrical workers, Water Users’ Association,
Phoenix, Ariz.
Laundry workers and drivers, Model
Laundry Co., Nashville, Tenn.
Hywel Davies..........
W. C. Liller..............
35 350 (9
Unable to adjust.
Otis Steel Co., Cleveland, Ohio................ 225 70 (2)
Ohio Light &'Traction Co., Lima, Ohio.
Summitt Silk Co., Summitt, N.J.............
T. J. Williams......... 25 Unable to adjust.
J. R. Buchanan....... 120 ............ (•)
116 REPORTS OF DEPARTMENT OF LABOR.
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July i, 1919, to June 80, 1920.
i Company refused conciliation.
’ Both men are employed elsewhere, and will not reapply to railroad company.
a Men secured work elsewhere.
Name.
4
Commissioners of
conciliation.
Worl
affe
Directlynnen
cted.
Indirectly.
Result.
JULY.
Threatened strike: Plumbers and steamfitters,
Master Plumbers Association and
Master Steamfitters Association, Portland,
Me.
Controversy: Machinists, Draper Co., corporation,
Hopedale, Mass.
Strike: Electrical workers for electrical contractors,
Evansville, Ind.
Controversy: Wm. F. Mosser Co., Cherry
River Extract Co., Richwood, W. Va.
Strike:
Employees, Squire Dingee Co., Chicago,
Ladies’ garment workers’ union, Berman
& Co., Los Angeles, Calif.
All crafts, Savage Arms Co., Sharon, Pa..
Carpenters, contractors, Wilmington, Del-
Lathersand carpenters, Hammond, Ind..
Machinists and blacksmiths, Union Drop
Forge Co., Chicago, Ill.
Controversy:
Mineral Refining and Chemical Corporation,
St. Louis, Mo.
Stationary engineers and firemen, beverage
plants, Omaha, Neb.
Strike:
Machinists and specialists, M. Klein &
Sons, Chicago, Ill.
Telephone operators and electrical workers,
Citizens Telephone Co., Lansing,
Mich.
All crafts. Southwestern Mechanical Co.,
Fort Worth, Tex.
Blacksmiths, forgemen, hammermen,
machinists, helpers, Cleveland Hardware
Co., Cleveland, Ohio.
Lockout: Slag workers, Standard Slag Co.,
Jackson, Ohio.
Controversy: Boilermakers and helpers, Cosden
& Co., Tulsa, Okla.
Threatened strike: Sheet-metal workers, all
employers, Portland, Me.
Strike:
Linemen, blacksmiths, machinists, engineers,
pipe fitters, firemen, millmen,
Donner Steel Plant, Buffalo, N. Y.
Telephone operators, linemen, electricians,
Central Union Telephone Co.,
St. Louis, Mo.
Carmen, Cleveland Railway Co., Cleveland,
Ohio.
Controversey: Sumpter Valley Railway Co.,
Baker, Oreg.
Strike: Machinists, Lapointe Machine Tool
Co., Hudson, Mass.
Threatened strike: Bewley Mills, Fort
Worth, Tex.
Strike:
Leather workers, Graton & Knight Co.,
manufacturing, Worcester, Mass.
Machinists’ union. James Clark, jr., Electric
Co., Louisville, Ky.
Union Iron Works, Decatur, Ill................
Controversy:
Motormen and conductors, street rail-
*ways, Norfolk and Portsmouth, Va.
Davy Pocahontas Coal Co., Roderfield,
W. Va.
Strike: Shamokin & Mount Carmel Trolley
. Co., Mount Carmel, Pa.
Controversy: Chicago Rubber Clothing Co.,
Racine, Wis.
C. W. Woodman....
H. J. Skellington....
F. J. Rohde..............
F. G. Davis.............
0. F. Nelson............
C. T. Connell............
Chas. Bendheim....
L. R. Thomas..........
J. B. Lennon............
0. F. Nelson............
P. F. Gill.................
F. L. Feick..............
0. F. Nelson............
J. J. Barrett.............
J. S. Myers...............
W. C. tiller, A. L.
Faulkner, T. J.
Williams.
T. J. Williams.........
J. S. Myers...............
C. W. Woodman....
W. D. Davidge........
J. J. Barrett..............
W. C. Liller..............
G. Y. Harry.............
H. J. Skeffington....
J. S. Myers.............
H. J. Skeffington....
F. T. Hawley...........
F. L. Feick...............
J. R. Buchanan.......
F. G. Davis..............
J. Purcell..................
J. J. Barrett..............
130
67
450
170
8
800
125
30
370
25
80
140
75
400
10
65
32
100
30
2,800
2
198
60
1,500
41
115
458
2
54
265
1,000
400
50
5
200
5,000
50
200
60
225
1,000
1,250
1,000
2,700
2,000
65
40
1,800
74
250
Adjusted.
Do.
Do.
Do.
Do.
Do.
Do.
Do.
Do.
(*)
Adjusted.
Do.
Do.
Do.
Settled.
Adjusted.
Unable to adjust.
Adjusted.
Do.
Settled.
Adjusted.
Do.
(2)
Settled.
Adjusted.
Do.
Do.
Do. '
Do. .
(a)
Adjusted.
Do.
ANNUAL REPORT SECRETARY OF LABOR. 117
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
* Committee failed to ratify agreement because of an effort to foist a meaning upon commissioner’s proposition
which was not intended.
4 Company granted wages and hours, but refused to permit strikers to return to work.
Name. Commissioners of
conciliation.
Workmen
affected.
Result.
Directly.
Indirectly.
JULY—continued.
Lockout: Furnace workers, Jackson Iron &
Steel Co., Globe Iron Co., Star Furnace,
Jackson, Ohio.
T. J. Williams.......... 300 200 Unable to adjust.
Strike: Metal polishers, buffers, sheet metal
workers, machinists, drop hammermen,
woodworkers, upholsterers, 56 shops,
Jamestown, N. Y.
W. D, Davidge........ 7,000 (»)
Threatened strike: Carpenters on concrete
ships, Harrison Shipbuilding Co.,
Athens, N. Y.
C. J. Fury................. 200 .....S...e..t.t.led.
Strike: Motormen and conductors, Oklahoma
Union Ry. Co., Tulsa and Sapulpa,
Okla.
J. S. Myers................ 49 20 Adjusted.
Controversy: Metal trades, Vulcan Iron
Works, Sheldon Co., Hazard Manufacturing
Co., et al., Wilkesbarre, Pa.
J. R. Buchanan....... 3,800 ...........D. o.
Threatened strike: Molders, Niles-Bement-
Pond Co., Ridgeway Dynamo &
Engine Co., Elk Foundry and Tannery
and other small concerns, Ridgeway,
Pa.
....... do........................ 65 500 Do.
Controversy: Machine hands, Yale & Towne
Manufacturing Co., Stamford, Conn.
Strike:
C. J. Fury................. 200 4,500 Do.
Bakers & confectioners local, The Hot
Bread Baking Co., St. Louis, Mo.
F. J. Rohde, J. J.
Barrett.
4 9 , Settled.
Employees, Keystone Wire Mill Co.,
Peoria, Ill.
Lockout:
F. L. Feick............... 700 50 Adjusted.
Metal polishers, Irvington Manufacturing
Co. or Red Devil Tool Co., Irvington,
N. J.
H. J. Brown............. 46 115 Unable to adjust.
Car repairers, Indian & Central Refinery,
Lawrenceville, Ill.
Controversy:
Employees, Ohio Cities Gas & Oil Co.,
Cabin Creek, W. Va.
J. B. Lennon............ 37 1,300 Settled.
James Purcell........... 30 120 Adjusted.
Staley Starch Co., Decatur, Ill................
Strike:
F. L. Feick............... 3 122 Do.
Machinists, blacksmiths, molders, etc.,
Crane Co., Chicago, Ill.
0. F. Nelson............ 7,500 500 Do.
Members of United Brewery, F.Our,
Cereal and Soft Drink Workers Union,
Corn Products Co., Argo, Ill.
....... do.................... 2,600 200 Unable to r djust.
Controversy: Punxsutawney Furnace Co.,
and Adrian Co., Du Bois and Punxsutawney,
Pa.
Strike:
F. G. Davis.............. 240 Adjusted.
City laborers, Jamestown, N. Y................
Street car men, Macon, Ga.........................
W. D. Davidge........
J. W. Bridwell.......
100 200 Do.
Pilling Shoe Co., Spaulding Shoe Co.,
Foster Shoe Co., Mowhinney Co., Low-
H. J. Skeffington.... 700 1,000 Adjusted.
ell. Mass.
Machinists and helpers, Kendric & Davis
Co., Lebanon, N.H.
C. W. Woodman....... 58 ............ (4)
Threatened strike: Employers, Virginia Bridge
& Iron Co., Memphis, Tenn.
F. J. Rohde......... . 220 250 Adjusted.
Strike: Foundry employees, A ben droth Stove
Co., Port Chester, N: Y.
B. M. Squires........... 140 145 Do.
Walkout: Textile workers, Empire Worsted
Mills, Jamestown, N. Y.
W. D. Davidge........ 2 Do.
Strike: Pattern makers and machinists, Red
Wing Motor Co., Red Wing, Minn.
W. H. Rodgers, J. J.
Walsh.
37 10 Do.
All crafts, Western Steel Car & Foundry
Co., Hedgewich, Ill.
0. F. Nelson, F. L.
Feick.
1.500 ...........D. o.
Blacksmiths, hammermen, heaters, helpers,
Champion Machine & Forging Co.,
Cleveland, Ohio.
W. C. LiBer, 0. F.
Nelson, A. L.
Faulkner.
52 400 Do.
Employers, candy manufacturing Industries,
Chicago, Ill.
F. L. Feick............... 5,000 1,000 Do.
Boiler makers and helpers, Wellman-Seaver-
Morgan Co., Akron, Ohio.
W.C.Liller............... 125 1,300 Do.
118 REPORTS OF DEPARTMENT OF LABOR.
Statement showing num ber of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
Name. Commissioners of
conciliation.
Workmen
affected.
Result.
Directly-
Indirectly.
JULY—continued.
Threatened strike: Track repair men. Cincinnati
Traction Co., Cincinnati, Ohio.
J. J. Walsh................ 60 1,750 Adjusted.
Strike:
Metal polishers, McKinney & Waterbury
Co., Tarbell & Co., Barnstead Still &
Sterilizer Co., Boston, Mass.
H. J. Skellington.... 13 60 Do.
Standard Steel Car Co., Hammond, Ind.. W. H. Rodgers, F. L.
Feick.
1,800 200 Do.
Mechanics of all kinds, Underwood Typewriter
Co., Hartford, Conn.
C. J. Fury.................. 800 3,700 Do.
Employees, Wm. Gahschow Gear Co.,
D. 0. James Gear Co., Foote Bros. Gear
F.L. Feick................ 700 ............ Do. y
Co., Chicago Gear Manufacturing Co.,
Chicago, III.
Stockyard employees, Union Stockyards,
Omaha, Nebr.
P.F. Gill................... 200 ............ Do.
Employees, F. H. Hill Casket Co., Chi- cago, Ill. F. L. Feick................ 400 30 Do.
Threatened strike: Machinists, Atlas Tack L. R. Thomas........... 100 500 Do. Co., Fairhaven, Mass.
Strike: Metal crafts, Hoyt Metal Co., Granite
City, Ill. J. J. Barrett.............. 400 500 Unable to adjust.
Controversy: Typographical Union, R. R.
Donnelley & Sons Co., Chicago, Ill.
0. F. Nelson............ 1 1,200 Do.
Strike: Machine-shop employees, Iowa Dairy
Separator Co., Waterloo Gasoline En-
W. H. Rodgers......... 1,200 ...........D. o.
gine Co., Wm. Galloway Manufacturing
Co., Waterloo, Iowa.
Threatened strike:
Street railways employees. Auburn &
Syracuse Electric Co., Auburn, N. Y.
James A. Smyth.... 260 ....A...d..j.u..sted.
Carmen et al., Oklahoma, Kansas & Mis- F. T. Hawley........... 42 18 Do. souri Rwy., Miami, Okla.
Lockout: Cigar clerks, United Cigar Stores 0. F. Nelson............ Do. Co., Chicago, Ill.
Strike: Employees, Haskell & Barker Car
Co., Michigan City, Ind.
F. L. Feick............... 2,000 1,000 Do.
Controversy: Freight handlers, Boston & Albany
R. R., Boston, Mass.
B. M. Squires........... 100 Do.
Strike:
Coopers, paint, oil plants, barrel dealers,
Cleveland, Ohio.
W. C. Liller.............. 95 800 Do.
Springmakers, blacksmiths, helpers, Perfection
Spring Co., Cleveland, Ohio.
W. C. Liller, T. J.
Williams.
250 ....S..e..t.t..l.ed.
Timber workers, Blackwell, Rutledge & R. M. McWade........ 600 800 Do. Winton Lumber Cos.,Cceur d’Alene,
Idaho.
Molders and core makers, Smith Wheel
Co. (Inc.), Syracuse, N. Y.
W. D. Davidge........ 100 1,000 Adjusted.
Threatened strike: Drop forge men, toolmakers,
diemakers, Blakeslee Drop
Forge Co., Southington, Conn.
C. J. Fury, L. R.
Thomas.
50 150 Unable to adjust.
Strike:
Freight handlers, Michigan Ry. Co.,
Grand Rapids, Mich.
John B. Lennon....... 32 ....M...e..n.. .w. orking elseStreet
car men, Western New York & where.
Pennsylvania Traction Co., Olean,
James Purcell........... 130 ............ Adjusted.
Bradford, and Salamanca, N. Y.
Controversy: Engineers, firemen, carpenters,
bricklayers, etc., League Island Navy
Yard, Philadelphia, Pa.
J. J. S. Rodgers....... ............. Unable to adjust.
AUGUST.
Strike: All employees, Bryant Electric Co., L. R. Thomas, C. J. 1,200 Adjusted. Bridgeport, Conn.
Threatenedstrike: Machinists,Eastern Screw
Co.. New Haven, Conn.
Fury.
....... do......................... 150 100 Unable to adjust.
Employees, Shore Line Electric Railways,
in various towns of Connecticut.
L. R. Thomas.......... 450 ...........D..o.
ANNUAL REPORT SECRETARY OF LABOR, 119
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
* Commissioner was advised that negotiations were pending and there wai no need for outside aid.
Name. Commissioners of
conciliation.
Workmen
affected.
Result.
Directly-
Indirectly.
au gu st —continued.
Strike:
Drop forge men, die sinkers, Machinists,
Peck-Stone & Wilcox Co., Southington,
Conn.
Machinists, National Lamp Works,
C. J. Fury................. 200 250 Adjusted.
T. J. Williams......... 168 Do.
Cleveland, Ohio.
Threatened strike: Street car men, Cincin- J. J. Walsh............... 24 10 Do.
nati, Lawrenceburg & Aurora Traction
Co., Cincinnati, Ohio.
Controversy: Eastern Pennsylvania electric
railways, Lansford and Pottsville, Pa.
Threatened strike: Cable telegraph operators.
Western Union and other companies,
New York, N. Y.
Strike:
Electrical workers and telephone operators,
Central Union Telephone Co.,
Rock Island, Moline, and East Moline,
Ill.
Waiters, cooks, bartenders, bellboys,
barbers in hotels, Buffalo, N. Y.
Mine, smeltermen, union shop and railway,
Nevada Consolidated Copper Co.,
Ely, McGill, Ruth, Nev.
Fishermen’s Union, Boston, Mass., and
whole Atlantic coast.
Film exchange employees, Cincinnati,
Ohio.
'Lockout:
Employees, Jessop Steel Co., Washington,
Pa.
Iron and steel workers, Pittsburgh Steel
Products Co., Monessen, Pa.
Strike: Track laborers and pavers, Chicago
Surface Lines, Chicago, Ill.
-Controversy: Certain employees, canning and
factory department, Waples-Platter
Grocery Co., Fort Worth, Tex.
Strike:
Steelworkers and carmen, Standard Steel
Car Co., Butler, Pa.
Lumber mill employees, Eureka Lumber
Co., Eureka, Mont.
Lockout: Cyclops Steel Co., Titusville, Pa...
.Strike: Motormen, conductors, power-house
men, ticket agents, etc., Chicago, Aurora
& Elgin Electric Railway, Chicago,
Threatened strike:
Teamsters, Pioneer Truck Co., California
F. G. Davis.............. 450 Do.
B. M. Squires........... 1 1,100
300
(‘)
J. J. Barrett.............. 250 Adjusted.
W. D. Davidge........
Hywel Davies, Joseph
Lord.
H. J. Skeffington.__
300
2,000
1,000
500
Settled.
Adjusted.
Do.
J. J. Walsh............... 112 50 Do.
W. C. Liller.............. 200 25 Unable to adjust.
.......do........................ 1,100 100 Do.
0. F. Nelson............ 1,400 300 Adjusted.
J. S. Myers.............. 70 30 Do.
J. A. Smyth............. 4,000
40
Unable to adjust.
Adjusted.
Do.
Do.
W. C. Liller.............. 162
L. R. Thomas, F. G.
Davis.
0. F. Nelson............
137
600
100
50
C. T. Connell............ 250 3,000
1,400
Do.
Truck Co., Citizen Truck Co., Paul
Kent Truck Co., Star Truck Co., Merchants
Truck Co., Los Angeles, Calif.
Engineers and switchmen, Pullman Car
Co., Chicago, Ill.
Strike: Employees, Woodstock Typewriter
Co., Woodstock, Ill.
Threatened strike: All crafts, Lucey Mfg. Co.,
Chattanooga, Tenn.
Strike: Plate glass workers, Pittsburgh Plate
Glass Co., Atlanta, Ga.
Threatened strike: Painters, decorators, paperhangers,
New York City, N. Y.
Telephone operators, Southern Bell Telephone
& Telegraph Co., Jacksonville,
0. F. Nelson............ 16 Do.
....... do........................ 325 Do.
J. J. Walsh............... 700 50 Unable to adjust.
J. W. Bridwell.......... 100 Adjusted.
B. M. Squires........... 1,400 1,800 Settled.
F. T. Hawley........... 216 300 Unable to adjust.
Employees, Columbia Graphophone Co.,
Bridgeport, Conn.
Threatened strike: Locomobile Co., Bridgeport,
Conn.
L. R. Thomas, C. J.
Fury.
.... do.......................
4,000
1,800
1,000 Adjusted.
Do.
120 REPORTS OF DEPARTMENT OF LABOR.
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
b Commissioner’s services not required.
• Some of the men returned on company’s terms, others secured employment elsewhere.
1 President of company is satisfied with existing conditions and feels no need of Government action.
Name. Commissioners of
conciliation.
Workmen
affected.
Result.
Directly-
Indirectly.
au gu st —continued.
Strike:
Electricians and machinists, Campbell H. J. Skellington.... 61 7 Settled.
Electric Co., Lynn, Mass.
Mine, mill, smelter and acid workers, C. Bendheim, W. C. 535 40 Adjusted.
Ducktown Sulphur, Copper & Iron Co.,
Ducktown, Tenn.
Molders and helpers, Murray Iron Works,
Liller.
J. B. Lennon............ 70 400 Do.
Burlington, Iowa.
Iron workers, Haeger Hinge Co., St. Louis
Mo.
Electrical workers, Coeur d’Alene Mines
J. J. Barrett.............. 300 Do.
R. M. McWade........ 50 3,000 Do.
& Mills, Coeur d’Alene, Idaho. .
Cranemen. International Smelter Co., Hywel Davis............ 9 6,000 Do.
Globe, Miami, Inspiration, Ariz.
Teamsters, employers, Des Moines, Iowa.
Laborers, Standard Oil Refinery, Sugar
J. B. Lennon............ 400 (&)
P. F. Gill.................. 800 1,000 Adjusted.
Creek, Mo.
Toolmakers and die makers, Russell & J. R. Buchanan....... 38 1,025 (•)
Ervine Co., New Britian, Conn.
Machinists, metal polishers, other metal
trades, W. W. Woodruff & Sons Co.,
Mount Carmel and New Haven, Conn.
Metal polishers and grinders, Winchester
....... do........................ 70 Commissioner s
C. J. Fury, L. R. 55 800
aid refused.
Men working else-
RepeatingArms Co., New Haven, Conn.
Marine base workers, Federal Construction
Co., San Diego, Calif.
Machinists, Klipfer Manufacturing Co.,
Chicago, Ill.
Controversy: Tug firemen and linemen, Great
Lakes Towing Co., Great Lakes.
Strike: Employees, all departments, Libby,
McNeil & Libby Co., Vegetable Canning,
Blue Island, Ill.
Controversy: Jewish bakers, Jewish bakeries,
Cleveland, Ohio.
Strike: Blacksmiths, helpers, carpenters,
Thomas.
C. T. Connell.... 35
where.
Adjusted.
F. L. Feick......... 28 Do.
B. M. Squires.........
0. F. Nelson............ 600 50
Do.
Do.
T. J. Williams.......... 150 Do.
J. J. Barrett.............. 60 5,000 Do.
machinists, painters, Chicago, Illinois
& Midland R. R., Taylorville, Ill.
Controversy:
Tug firemen and linemen, Milwaukee
Tug Boat Line, Great Lakes.
Employees, American Tobacco Co., Dur-
B. M. Squires...........
F. T. Hawley........... 300 1,500
Do.
(7)
ham, N. 0.
Strike:
Actors Equity Assn., New York City, B. M. Squires, R. B. 5,000 Adjusted.
N.Y.
Cigarmakers, 84 shops, Philadelphia and
Mahany.
E. E. Greenawalt... 9,322 Do.
vicinity, Pennsylvania.
Chippers, calkers, boiler makers,riveters, James Purcell........... 100 550 Do.
Ferguson Steel and Iron Shipbuilding
Co., Buffalo, N. Y.
Controversy: Employees, Marion Steam T. j. Williams.......... 14 1,200 Do.
Shovel Co., Marion, Ohio.
Strike:
Gold mining district, Oatman, Ariz......... Hvwel Davies........ . 500 Do.
J.’S. Myers................ 24 50 Do.
Controversy:
Coopers, Sinclair Refining Co., Cofieyille, G. Y. Harry............. 4 390 Do.
Kans.
■Watchmen on dredges, Dredging Companies,
Great Lakes.
Strike: Coal dock operators, Duluth, Minn.,
Superior, Wis.
Controversy: Boiler makers, Steacy-Schmidt
Mfg. Co., York, Pa.
Strike: Patapsco & Back River Rwy., engineers,
firemen, conductors and brakemen,
Sparrows Point, Md.
Controversy: Dock workers and longshoremen,
Georgia Stevedoring Co., and
others, Brunswick, Ga.
B. M. Squires...........
W. H. Rodgers....... 2,000
Do.
Unable to adjust..
Adjusted.
Unable to adjust.
Adjusted.
W. D. Davidge... 31
J. J. S. Rodgers___ 120
B. M. Squires........... 250
ANNUAL REPORT SECRETARY OF LABOR, 121
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
Name. Commissioners of
Workmen
affected.
conciliation. Result.
Directly-
Indirectly.
aug ust —continued.
Strike: Employees, Illinois Glass Co., Gas
City, Ind.
Threatened strike: Industrial insurance
J. J. Walsh................ 500 150 Unable to adjust.
Adjusted.
Do.
0. F. Nelson............ 400 700
agents, Metropolitan and Prudential
Insurance companies, Chicago, Ill.
Strike:
Employees, Stearns Lumber Co., on
Indian reservation, Odanah, Wis.
Building trades, Chicago, Ill......................
F. J. Rohde.............. 400 1,000
P. F. Gill, H. J. 15,000
263
90,000 Do.
Street and electric railways. Southern
Utilities Co., Charlotte and Winston-
Salem, N. C., Grfeenville, S. C.
Threatened strike: Pierce Oil Corporation,
Fort Worth, Tex.
Strike:
Grain handlers, seven flour mills, To-
Skeffington, and
F. J. Rohde.
J. W. Bridwell......... Do.
J. S. Myers................ 60 Do.
G. Y. Harry, P. F.
Gill.
J. R. Buchanan.......
200 Do.
peka, Kans.
Maintenance of way and shop laborers,
Hudson Valley Electric Co., Lake
George, N. Y.
Controversy: Oil workers, Empire Oil Co.,
Eldorado, Kans.
Strike: Street railway employees, Pittsburgh,
Pa.
Lookout: Franklin Steel Works, Franklin,
80 Do.
G. Y. Harry............. 5 4,000 Do.
E.E. Greenawalt, C. 3,000
190
Do.
P. Howard.
James Purcell........... 60 (8)
Pa.
Strike: Machinists, machine shops and rubber
companies, 26 plants, Akron, Ohio.
Controversy: Box makers, Boxmakers’ Association,
Chicago, Ill.
Strike:
Tonopah miners, Tonopah operators,
Tonopah, Nev.
Kier Construction Co., North Island Base,
San Diego, Calif.
Machinists, Black Rock Manufacturing
Co., Bridgeport, Conn.
Controversy: Tug firemen and linemen,
Edward E. Gillen Towing Co., Great
Lakes.
Threatened strike: Molders, laborers, Acme
Shear Co., Bridgeport, Conn.
Strike: Sprague Meter Co., Bridgeport, Conn
Chas. Bendheim.__ 3,000
1,900
1,500
24
(9)
0. F. Nelson............ 350 (10)
Joseph Lord.............. Adjusted.
Unable to adjust
Adjusted.
Do.
C. T. Connell............
C. J. Fury, L. R.
Thomas.
B. M. Squires...........
26 60
C. J. Fury, L. R.
Thomas.
....... do.........................
63
150
200 Do.
Do.
Lockout: Connecticut Electric Co., Bridgeport,
Conn.
Threatened strike: Remington-Yost Typewriter
Co., Bridgeport, Conn.
Strike:
Cudahy Packing Co., Cudahv, Wis..........
....... do........................ 75 Do.
....... do..................... . 608 Do.
F. J. Rohde.............. 800 1,000
300
Unable to adjust.
Street railways, Louisville, Ky.................. J. B. Lennon............ 1,400 Mediation refused.
Timber workers, Bellingham lumber 900
companies and Puget Sound Stevedoring
Co., Bellingham, Wash.
Controversy: District Council Carpenters,
Pacific Marine Construction Co. (plant
of U. S. Shipping Board), San Diego,
Calif.
Walkout: Cooks, waiters, waitresses, Union
Club, Cleveland, Ohio.
Threatened strike: Waiters, cooks, helpers,
dishwashers, restaurants and caffe,
Wallace, Idaho.
Strike:
Shop workers, Motor Products Co., Ann
Arbor, Mich.
Telephone operators and maintenance
men, Independent Telephone Co.’s of
southern California.
W. H. Urmy........... 350 Unable to adjust.
C. T. Connell............ 13 40 Settled.
T. J. Williams......... 24 Adjusted.
Do.
Do.
R. M. McWade........
J. A. Smyth..............
121
150
400
250
C. T. Connell, E. P.
Marsh.
285 3,105 Do.
8 Men all working elsewhere.
’ Commissiner’s aid not desired.
“Aid of commissioner not desired.
122 REPORTS OF DEPARTMENT OF LABOR.
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
ii Company informed commissioner that firm had gone into jobbing business, and were doing practically
nothing in a manufacturing way.
la'Commissioner’s services not required.
IS About 78 nonunion men remained on pay rolls of company after the agreement made was abandoned.
. Name. Commissioners of
Workmen
affected.
conciliation. Result.
Directly-
Indirectly.
aug ust —continued.
Controversy Oil situation, California............. H. L. Kerwin, E. P. 12,000 20,000 Adjusted.
Strike:
Machinists, blacksmiths, carpenters,
helpers and others, mills and on surface
of mines, Mullan, Burke, Wallace, Kellogg,
and other camps, Idaho.
Molders and helpers, Bilton Machine
Tool Co., Bridgeport, Conn.
Threatened strike:
Molders and helpers, Requonocik
Foundry Co., Bridgeport, Conn.
Molders and helpers, Coughlter Mackenzie
Co., Bridgeport, Conn.
Controversy: Blacksmiths, carpenters, painters,
carbuilders, machinists, American
Car Co., Granite City, Ill.
Strike: Laborers, butchers, meat cutters,
New Orleans Cooperative Abattoir Co.,
Crescent City Stock Yards & Slaughter
House Co., New Orleans, La.
Threatened strike: Asbestos workers in local
shipyards, Seattle, Wash.
Lockout: Steel workers, C. F. Baker Co.,
Framingham, Mass.
Marsh, J. L. Spangler,
C. T. Connell,
James Lord, H.
Davies, and T.
Barker.
R. M. Me Wade........
C. J. Fury, L. R.
Thomas.'
.. . .do........................
700
50
60
5,000
200
200
Do.
Do.
Do.
....... do........................ 45 200 Do.
J. J. Barrett............. 1,500 2,000 Do.
J. S. Meyers.............. 260 25 Do.
W. H. Urmy 100 Do.
L. R. Th pm as_ 25 Unable to adjust.
SEPTEMBER. .
Strike:
Leather workers, Ohio Leather Co., Girard,
Ohio.
Worcester Machine Screw Co., Worcester,
T. J. Williams .. 300 Unable to adjust.
J. A. Sullivan........... 165 185 Adjusted.
Leather workers, Seitz & Sons Co., Philadelphia,
Pa.
E. E. Greenawalt -.. (u)
....... do........................ 64 31 (12)
piatform men, Los Angeles Railway, Los
Angeles, Calif.
Controversy: R. M. Bassett Co., Shelton,
Conn.
Threatened strike:
Machinists and helpers, New London
Ship & Engine Co., New London, Conn.
E. P. Marsh, C. T.
Connell.
C. J. Fury, L. R.
Thomas.
. .do........................
800
400
2,000
700
Adjusted.
Do.
Do.
C. P. Howard........... 20,000 Do.
W. D. Davidge........ 25 78 (13)
....... do........................ 75 100 Adjusted.
Strike:
Cereal workers, Mead-Johnson Milling
Co., Evansville, Ind.
Plate glass workers, Atlanta Mirror &
Glass Co., Atlanta, Ga.
Art glass workers, Empire Glass Co.,
Atlanta, Ga.
Controversy: Blacksmith sand carmen, American
Car & Foundry Co., Buffalo, N. Y.
J. J. Barrett, F. J.
Rohde.
J. W. Bridwell.........
65
25
110 Unable to adjust.
Adjusted.
.do....................... 7 Settled.
H. J. Brown............. 225 75 Unable to adjust.
ANNUAL REPORT SECRETARY OF LABOR. 123
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
14 Many of the men secured work elsewhere.
c Men secured work elsewhere.
16 Men placed elsewhere by employment service, so commissioners dropped case.
16 Company refused conciliation.
Name. Commissioners of
conciliation.
Workmen
affected.
Result.
Directly.
Indirectly.
Septem ber —continued.
Strike:
Machinists, Hermas Machine Co., Watson
Machine Co., Van Vlaanderen Co.,
Benj. Eastwood Co., McNab & Harlon
Co., Lyons Piece Dye Works, Lacharney
Carburetor Co., Sipp Machine Co.,
Barbour Flax Spinning Co., Granite
Machine Co., National Silk Dyeing Co.,
John Rovle & Sons, Hart Mill, Spruce
St. Mill. Hu idly Machine Co., Bogart &
Carlough, Searing & Terhune, General
Equipment Co., East Jersey Pipe Corporation,
Standard Silk Dyeing Co.,
Co., National MillSupply Co., Morrison
Machine Co., Uehling Instrument Co.,
Paterson, N. J.
J. J. S. Rodgers....... 1,100
•
Request for interview
refused.
Miami Paper Co., Miamisburg Paper Co.,
West Carrollton, Ohio.
F. T. Hawley........... 162 410 Adjusted. >
Lyon Lumber Co., Garyville, La............ J. S. Mvers................ 900 500 Do.
Mahogany workers, Otis Manufacturing
Co., New Orleans, La.
Threatened strike:
....... do........................ 167 8 Do.
Molders, Sanitary Co. of America, Linfield,
Pa.
J. A. Smyth.............. 100 150 Do.
Brick and clay workers,Denison ClayCo.,
Coffeyville, Kans.
Strike:
G. Y. Harry............. 33 90 Do.
Sawmill employees, Bon Air Lumber
Manufacturing Co., Collinwood, Tenn.
J. B. Lennon, W. C.
Liller.
48 40 Settled.
Controversy: Woodworkers, Knox & Hutchinson
Furniture Co., Paoli, Ind.
Strike:
J. J. Barrett.............. 4 100 Adjusted.
American Car & Foundry Co., Berwick,
Pa.
James Purcell, W.
D. Davidge, T. J.
Williams.
2,100 1.200 (“)
Machinists, Underwood Computing
Machine Co.. Hartford, Conn.
C. J. Fury, L. R.
Thomas.
450 ...A....d..j.u..sted.
Engineers, firemen, switch men, telegraph
operators, flagmen, Chicago, Illinois
& Midland Rwy., Taylorville, Ind.
J. J. Barrett.............. 43 ...........D. o.
Machinists, Peters Cartridge Co., Kings
Mills, Ohio.
Controversy: Coopers, sugar refinery, Gramercy,
La.
Strike: Wisconsin Motor Co., Milwaukee,
Wis.
F. T. Hawley...........
J. S. Myers................
700 650 (c)
Settled.
F. J. Rohde.............. 1,100 1,200 Adjusted.
Controversy: Smelter workers and miners,
Detroit Copper Co., a subsidiary of
Phelps Dodge Corporation, Morenci,
Ariz.
Strike:
Hywel Davies.......... 350 500 (15)
Kreuter & Co. drop forge department,
Newark, N. J.
B. M. Squires.......... 11 ............ (”)
Hodcarriers for several brick contractors,
Richmond, Va.
Chas. Bendheim.... 200 ...U....n..a..b. le to adjust.
Blacksmiths, Schuylkill Forge Co., Philadelphia,
Pa.
Controversy: Checkers, Pacific Steamship
Co., Seattle. Wash.
E. E. Greenawalt...
B. M. Squires...........
67 ....A...d..j.u..sted.
Do.
Threatened strike: Iron and steel workers,
National Tube Co., Wheeling, W. Va.
Controversy: Plumbers and steamfitters,
Buffalo, N.Y.
W.D. Davidge.........
H. J. Brown..............
2 5,000 Settled.
Do.
Strike: Foreman & Clark Clothing Co., Chicago,
Ill.
F. L. Feick.............. 50 75 Adjusted.
Threatened strike: Box makers, Texas Co.,
Morgan City, La.
J. W. Bridwell......... 150 ...........D. o.
124 REPORTS OF DEPARTMENT OF LABOR,
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
d Board of directors decided to abandon operation of mine indefinitely, prior to commissioner’s arrival"
n Some of the men secured work elsewhere.
18 Neither side would accept any offers of mediation.
» Company would not meet with anyone.
Name. Commissioners of
Workmen
affected.
Result.
\ , •
conciliation.
Directly-
Indirectly.
Sept emb er —continued.
Strike:
Machinists, Rutenber Motor Works,Marion,
Ind.
Machinists, Tilton Optical Co., Tilton,
N.H.
Centerville Gypsum Co., Centerville, Iowa
Controversy: St. Louis Local Packers and
Provision Association, 13 packing
houses, St. Louis, Mo.
Threatened strike: Hodcarriers, bricklayers,
house carpenters, and laborers, Buhl,
Idaho. ‘
Lockout: Car workers, American Car & Foundry
Co., Madison, Ill.
Strike:
Chemical workers, Lannan & Kemp, New
York, N. Y.
Chemical workers, McKesson & Robbins,
Brooklyn, N. Y.
Controversy: Steam and operating engineers
on lighters, Coastwise Steamship Cos.,
Boston, Mass.
Threatened strike: Employees, Waterbury
Wire Rope Co., Brooklyn, N. Y.
Strike:
Molders, Twin City Foundry Association,
Minneapolis, Minn.
Machinists, Schutte & Koerting Co.,
Philadelphia, Pa.
Lockout: Textile workers, Liondale Bleachery,
Rockaway, New York.
Strike: Patternmakers, molders, machinists,
boilermakers, blacksmiths, Honolulu
Iron Works Co., and Canton, Neill &
Co. (Ltd.), Honolulu, Hawaii.
Controversy: Paper makers union, Kimberly
Clark Paper Co., Appleton, Wis.
Strike:
Leather workers, Surpass & Forderer
Leather Co., Philadelphia, Pa.
Eggers Manufacturing Co., Kohlenberg
Marine Engine Co., Hamilton Manufacturing
Co., Aluminum Goods Co.,
TextileManufacturing Co., Two Rivers
Plating Works, Two Rivers, Wis.
Barge and River Transportation Workers
Union, Steamboat Owners Association,
San Francisco, Calif.
Threatened strike:
La Belle Iron Works, Steubenville, Ohio.
Machinists, Cincinnati Metal Trades Association,
Cincinnati, Ohio.
Controversy: Tug firemen and linemen, Great
Lakes Towing Co., Great Lakes.
Strike: Boonton Rubber Works, Boonton,
N.J.
Controversy: Wagner Electric Co., St. Louis,
Mo.
Strike:
Machinists, Bowser Manufacturing Co.,
Fort Wayne, Ind.
Wire rope makers and helpers, A. Leschen
& Sons Rope Co., St. Louis, Mo.
Checkers, classers, inspectors of railway
clerks, United Fruit Co., New Orleans,
La.
Threatened strike: Machinists, Scranton
Pump Co., Scranton, Pa.
Lockout: Machinists and molders. United
Cigarette Machine Co., Lynchburg, Va.
J. J. Walsh................
L. R. Thomas...........
W. H. Rodgers.........
P. F. Gill...................
R. M.-McWade........
W.C. Liller...............
C. P. Howard............
....... do........................
B.M. Squires............
C.P. Howard............
F. L. Feick................
J. J. S. Rodgers.........
J. R. Buchanan.........
Richard L. Halsey..
W. H. Rodgers.........
J. J. S. Rodgers.........
0. F. Nelson............
C. T. Connell, E. P.
Marsh.
W. D. Davidge........
T. J. Williams..........
B.M. Squires............
J. R. Buchanan.......
J. J. Barrett, G. Y.
Harry.
J. J. Walsh...............
J. J. Barrett, G. Y.
Harry.
J. W. Bridwell, J. R.
Buchanan, J. S.
Myers, H. J. Skeffington.
James A. Smyth....
J. Purcell..................
450
150
25
50
284
25
200
10
400
300
200
200
717
800
192
850
850
3
8,000
120
1,000
200
80
125
150
50
250
875
14
500
50
200
4,000
4,500
4,000
75
50
1,100
145
Adjusted.
Do.
(d)
Adjusted.
Do.
Do.
Settled.
Adjusted.
Do.
Do.
Do.
Do.
(17)
Adjusted.
Do.
Do.
Do.
Do.
Do.
(18)
Adjusted.
Settled.
Adjusted.
Unable to adjust,
(19)
Unable to adjust.
Adjusted.
Unable to adjust.
ANNUAL REPORT SECRETARY OF LABOR. 125
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
Name.
Septe mbe r —continued.
Strike: Molders, Claymorgan Pipe & Foundry
Co., Lynchburg, Va.
Threatened strike: Northern Woods Products
Co., Glidden, Wis.
Strike: Leather workers, Indianapolis Saddlery
Co., Indianapolis, Ind.
Controversy: Drop forgers, J. H. Williams
Drop Forge Co., Buffalo, N. Y.
Lockout: Willow Grass Rug Co., Green Bay,
Wis.
Strike:
Cleveland Worsted Mills Co., Cleveland,
Ohio.
Carpenters employed in the city of Newark,
and Essex County, N. J.
Drop forgers, helpers, blacksmiths, Western
Drop Forge Co., Marion, Ind.
Box makers, G. B. Lewis Co., box factory,
Watertown, Wis.
Machinists, Spacke Machine Co., Indianapolis,
Ind.
Jewelry workers union, jewelry manufacturers,
Cincinnati, Ohio.
Sewer pipe workers, The Cambria Clay
Products Co., Blackfork, Ohio.
Carpenters and timber workers, eight box
factories, New Orleans, La.
Controversy:
Louisiana Railway & Navigation Co.,
Shreveport, La.
Machinists, Yale & Towne Manufacturing
Co., Stamford, Conn.
Threatened strike: Equity Packing Co.,
Fargo, N. Dak.
Controversy: Plumbers, Florence, Ala............
Strike:
Leather workers, Hide, Leather & Belting
Co., Indianapohs, Ind.
Lead workers, Eagle Pitcher Lead Co.,
Cincinnatti, Ohio.
Metal polishers, Regina Music Box Co.,
Rahway, N. J.
Pattern makers, Philadelphia, Pa............
Threatened strike: Street car men, Lynchburg
Traction Co., Lynchburg, Va.
Strike:
Employees, 13 packing companies, Pittsburgh,
Pa.
Machinists, Rockwood Manufacturing
Co., Indianapolis, Ind.
Machinists, Home Oil & Refining Co.,
Fort Worth, Tex.
Metal trades, Anaconda Copper Co., and
others, Butte, Anaconda, Great Falls,
Mont.
Machinists, Jamestown, N. Y...................
OCTOBER.
Threatened strike: Iron workers’ union,
Hansell & Elcock Co., Chicago, Ill.
Controversy: Deep-sea longshoremen, Deepwater
Steamship lines and Contracting
Stevedores, Baltimore, Md.
Strike: Linemen and operators, Santa Barbara
Telephone Co., Santa Barbara,
Calif.
Commissioners of
conciliation.
Workmen
affected.
Result.
Directly-
Indirectly.
J. Purcell.................. 45 Unable to adjust.
F. L. Feick...,....... 1 74 Adjusted.
G.Y. Harry............. 50 100 Unable to adjust.
H. J. Brown............. 6 600 Adjusted.
W. H. Rodgers........ 80 40 Do.
J. B. Lennon............ 24 1,400 Do.
J. R. Buchanan, H.
J. Skeffington.
J. J. Walsh................
2,600
180
3,000
50
Do.
Do.
F. J. Rhode........... ■.. 64 84 Do.
G. Y. Harry............. 150 350 Unable to adjust.
T. J. Williams......... 240 10 (20)
Chas. Bendheim.... 42 ............ (21)
J. W. Bridwell......... 600 Settled.
....do........................ 100 ...A....d..j.u..sted.
C. J. Fury, L. R.
Thomas.
W. H. Rodgers.........
16
200
1,800 Do.
Do.
J. B. Colpoys............ ............ Do.
G. Y. Harry............. 36 50 Settled.
T. J. Williams......... 158 ............ (22)
J. J. S. Rodgers....... 16 ...U....n..a..b. le to adjust.
L. R. Thomas..........
James Purcell........... 150 ............
Adjusted.
Do.
James Purcell, P. F.
Gill, J. A. Smyth,
L. R. Thomas.
G. Y. Harry.............
1,100
40 400
Do.
Unable to adjust.
J. S. Myers................ 11 190 Adjusted.
Hywel Davis............ 1,043 14,000 Do.
J. A. Smyth.............. ............ Do.
0. F. Nelson............ 300 25 Adjusted.
B. M. Squires........... 2,300 ...........D. o.
C. T. Connell, E. P.
Marsh.
76 50 Do.
20 Company would not accept any offer of mediation made by commissioner.
51 When commissioner took up case many of the men had found work elsewhere. Plant to be closed
some time for repairs.
22 General manager would not meet commissioner. Company is putting on new force of men.
126 REPORTS OF DEPARTMENT OF LABOR.
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
>8 Employers refuse to meet union representatives, asserting present conditions were satisfactory.
m Girls received no concessions whatever and are being hired individually.
» Men have found work elsewhere.
m Company refused to grant any request or demand. Would not meet representatives of employees.
Name. Commissioners of
conciliation.
Workmen
affected.
Result.
Directly-
Indirectly.
Octo ber —continued. •
Lockout: J. W. Garter Shoe Co., Nashville,
Tenn.
Controversy: McPhee & McGinnity Co.,
Denver, Colo. •
Strike:
Engravers, finishers, polishers, machinists,
etc., Keystone Watch Co., Riverside,
N. .1.
Box makers, sawyers, etc., Cleveland,
Ohio.
Telephone operators, Connecticut Telephone
Co., Stamford, Conn.
Packing house employees,-Macon Pack
ing Co., Macon, Ga.
Lockout: Firemen and oilers, Iowa Falls
Electric Co., Iowa Falls, Iowa.
Strike:
Platform men, San Francisco-Oakland
terminal railways, Oakland, Calif.
Textile workers, Susquehanna Silk Mills
and Sunbury Converting Works, Sunbury,
Pa.
Threatened strike: Furniture packers and
helpers, Bekin Fireproof Storage Co.,
Lyon Storage Co., California Storage
Co., Fidelity Storage and Moving Co.,
Hollywood Fireproof Co., L. A. Warehouse
Co., Los Angeles, Calif.
Controversy: Deep-sea longshoremen, Deepwater
Steamship lines & contracting
stevedores, Boston, Mass.
Lockout: Oil workers,Standard Oil Co., Richmond,
Calif.
Controversy: Power plant employees, International
Shipbuilding Co., Pascagoula,
Miss.
Strike:
Railway carmen. Public Belt Railway,
New'Orleans, La.
Machinists, Hoopes & Townsend Co.,
Philadelphia, Pa.
Controversy: Deep-sea longshoremen, Deep
Water Steamship lines and contracting
stevedores, New York and vicinity.
Strike: Pattern makers in jobbing pattern
industry, Boston, Mass.
Threatened strike: Glazers, stakers, sorters,
151ight leather plants, Philadelphia, Pa.
Strike:
Waitresses, Leonhardt Bakery Co., St.
Louis, Mo.
Blacksmiths, hammermen, finishers,
pressmen, Warren Tool & Forge Co.,
Warren, Ohio.
Barret Manufacturing Co., Peoria, Ill.......
Schuylkill Iron Works of the Alan Wood,
Iron & Steel Co., Conshohocken, Pa.
Atwood Machine Co., Stonington, Conn..
Threatened strike: Virginia Railway & Power
Co., Norfolk, Portsmouth, and Richmond,
Va.
Controversy:
Deep-sea longshoremen, War Department,
New York.
Weighers, weighmasters, New York.........
J. L Walsh...............
.T. S. Myers................
Charles Bendheim..
A. L. Faulkner........
C. .1. Fury, L. R.
Thomas.
W. C. Liller..............
G. Y. Harry, 0. F.
Nelson.
E. P. Marsh, C. T.
Connell.
W. D. Davidge........
C. T. Connell............
B. M. Squires...........
W. H. Urmy............
J. W. Bridwell.........
....... do........................
E. E. Greenawalt...
B. M. Squires...........
L. R. Thomas..........
F. G. Davis..............
J. J. Barrett..............
A. L. Faulkner........
F. T. Hawley...........
J. J. S. Rodgers........
C. J. Fury.................
T. J. Williams, H. J.
Brown.
B. M. Squires...........
....... do.........................
351
700
237
52
81
12
1,150
2,100
250
1,500
68
15
300
30,000
100
2,000
10
100
140
104
250
1,449
600
30
300
47
4
2,000
100
300
4,000
68
800
450
Unable to adjust.
Adjusted.
Commissioner’s aid
not desired.
(23)
(24)
Adjusted.
(24)
Adjusted.
Unable to adjust.
Adjusted.
Do.
Many of the men
secured work
elsewhere.
Adjusted.
Do.
Unable to adjust.
Adjusted.
Do.
Do.
Settled.
(»)
Adjusted.
Unable to adjust.
Do.
Adjusted.
Do.
Do.
ANNUAL REPORT SECRETARY OF LABOR. 127
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June SO, 1920—Continued.
Name. Commissioners of
conciliation.
Workmen
affected.
Result.
Directly-
Indirectly.
oc to ber —continued.
Controvers y—Continued.
Coastwise longshoremen, Merchant & Adjusted.
Miners Transportation Co., Savannah,
Ga.
B.M. Squires........... 400 ............
Boiler makers and helpers, Jones Tank
Shop, Franklin, Pa.
James Purcell........... 25 ............ Do.
Boiler makers ana helpers, Producing Co.,
Franklin, Pa.
Mid Continent Car Co., Coffeyville, Kans
Strike: Longshoremen, Deep Water Steamship
lines and contracting stevedores,
NewYorkCity, N. Y.
....... do........................
G. Y. Harry.............
Hon. John F. Hylan,
mayor of New
Y o'rk, Paul L. V accarelli,
James L.
Hughes, B. M.
Squires.
12
............
Do.
Settled.
Adjusted.
Threatened strike: Meat cutters and butchers,
250 meat dealers, Memphis, Tenn.
Strike:
W. C. Liller.............. 175 125 Do.
Boiler makers and helpers, Atlantic Refining
Co., Franklin, Pa.
James Purcell........... 24 460 Men working elsewhere.
Federal Lead Co. mines, Flat River, Mo..
Controversy: Coke workers, Laclede Gas Co.,
St. Louis, Mo.
P. F. Gill..................
P. F. Gill, J. J. Barrett.
700 200 Unable to adjust.
Adjusted.
Threatened strike: Phosphate ore miners,
Rhum Phosphate Co., Alexander Phosphate
Co., Federal Chemical Co., Charleston
(S. C.) Mining & Manufacturing
Co., Hoover & Mason Co., International
Agricultural Chemical Co., Mount
Pleasant, Tenn.
Strike:
W. C. Liller.............. 755 275 Settled.
Box makers, sawyers, Bradley-Miller Co.,
Handy Bros., E. B. Foss Estate Co.,
E. J. Yance Co., Bay City, Mich.
A. L. Faulkner........ 75 ............ Adjusted.
Machinists, National Engineering Co.,
Camden, N. J.
Chas. Bendheim.... 24 ............ Do.
Controversy: Deep-sea longshoremen, Deep
Water Steamship lines and contracting
stevedores, North Atlantic ports.
B. M. Squires........... 1 ............ Do.
Grain handlers, Deepwater steamship
lines and contracting stevedores,
North Atlantic ports.
....... do........................ 700 ............ Do.
Coastwise longshoremen, New York,
Boston, Newport News, Norfolk.
....... do........................ 12,000 ............ Do.
Strike: Weavers and helpers, Mianus Manufacturing
Co., Mianus, Corm.
C. J. Fury................. 200 ............ Unable to adjust.
Threatened strike: Bradley and Metcalf Shoe
Co., Milwaukee, Wis.
Strike:
F. J. Rohde.............. 140 240 Adjusted.
Textile workers, Naumkeag Mills, Salem,
Mass, and Naumkeag Bleachery, Peabody,
Mass.
Denison Clay Co. Coffeyville, Kans.........
J. R. Buchanan.......
G. Y. Harry.............
1,300 1,600 Mediation refused.
Unable to adjust.
Lockout: Oil field, gas well and refinery Do.
workers, Ohio Cities Gas & Fuel Co.,
Dawes, W. Va.
T. J. Williams......... 125 ............
Strike: Journeymen tailors, Seattle, Portland,
Oreg., and San Francisco, Los
Angeles, Calif.
E. P. Marsh, C. T.
Connell.
6,000 ............ Settled. y
Threatened strike: Frank Kirchoff Lumber
Co., Denver, Colo.
J. S. Myers................ 33 30 Adjusted.
Strike: Platform men, Schuylkill Railway
Co., Girardville, Pa.
Controversy: Planing mills and lumber
yards, Denver, Col.
J. J. S. Rodgers....... 70 100 Do.
J. S. Myers................ 242 430 Do.
Strike: Textile workers, Hockanum Co.,
James J. Regan Mfg. Co., Rock Mfg. Co.,
Rockville, Corm.
Chas. Bendheim.... 800 1,200 Mediation refused.
Lockout: Millmen and furniture workers,
Standard Furniture Co., Nashville,
Tenn.
W. C. Liller....... ^... 200 50 Adjusted.
Strike: Stablemen and hostlers, mule barn
owners, E. St. Louis, 111.
J. J. Barrett............. 65 ............ Do.
128 REPORTS OF DEPARTMENT OF LABOR.
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
Name. Commissioners of
conciliation.
Workmen
affected.
Result.
Direct- Indily.
rectly.
37 All men and women at work elsewhere.
Octo ber —continued.
Controversy:
Cargo repairmen, Deepwater steamship B. M. Squires........... 650
lines, and contracting stevedores, New
York.
Coal handlers, deepwater steamship lines,
and contracting stevedores, Baltimore,
Md.
Grain trimmers, deepwater steamship
lines, and contracting stevedores, Baltimore,
Md.
Strike: Meat cutters and butcher workmen,
....do.......................
....... do........................
J. J. Walsh, J. J.
200
400
2,500 3,200
Do.
Do.
Mediation refused.
Kingan & Co., Indianapolis, Ind.
Controversy: Wallin Leather Co., Comstock
Barrett, P. F. Gill.
F. L. Feick.............. 2 100 Adjusted.
Park, Mich.
Strike: Machinists, Perth Amboy, N.J____
Threatened strike: Maryland Pressed Steel
J. R. Buchanan.......
J. A. Smyth.............
100
200 600
Do.
Do.
Co., Hagerstown, Md.
Strike: Building trades crafts, master builders F. J. Rohde, C. P. 5,500 6,500 Do.
association, Seattle, Wash.
Controversy: Carpenters union, open-shop
Howard.
G. Y. Harry............. 77 260 Settled.
association, Beaumont, Tex.
Strike: Street railway emnloyees, Tri Cities
Co., Sheffield, Ala.
Threatened strike:
Potomac Electric Power Co., Washing-
J. W. Bridewell.......
R. B. Mahany..........
34
58 46
Unable to adjust.
Adjusted.
ton, D. C.
Washington Railway & Electric Co., ....... do........................ 1,100 1,700 Do.
Washington, D. C.
Controversy: Galena Signal Oil Co., Hous- J. S. Myers............... 200 50 Do.
ton, Tex.
Strike:
Bologna meat cutters for Morris Co., C. J. Fury, L. R. 30 Places of strikers
Cudahy & Co., McNamara & Co.,
Bridgeport, Pa.
Street car Employees, Appalachian Power
Thomas.
T. J. Williams......... 40 70
filled.
Unable to adjust.
Co., Bluefield, W. Va.
Controversy:
Scalemen, weighmasters, Port of New
York.
Steamship clerks and commercial checkers,
deepwater steamship lines and contracting
stevedores, New York and
vicinity.
Strike:
Butcher workmen and meat cutters,
B. M. Squires...........
....... do........................
H. J. Skeffington, P.
F. Gill, C. J. Fury.
J. J. S. Rodgers.......
1,200
4,000
4,500
...A....d..j.u..sted.
Do.
Do.
packing companies, Springfield, Worcester,
Cambridge, Somerville, Brighton,
Mass.
Machinists, helpers, Scranton Pump Co., 60 135 Pending.
Scranton, Pa.
Thirteen silk mills, Scranton and Wilkes-
Barre, Pa.
Controversy: Boiler makers and helpers,
....... do........................
W. D. Davidge........
4,000
27 116
Adjusted.
Do.
Lebanon Iron Works, Lebanon, Pa.
Strike:
Western Stoneware Co., Monmouth, Ill..
Abattoir Packing Co., Indianapolis, Ind..
J. B. Lennon............
J. J. Barrett, P. F. 510 850
(27)
Mediation refused.
Controversy:
Steamship horse and cattle fitters and
grain ceilers, Chelsea Ship Repair Co.
and others, New York.
Marine warehouse clerks, deepwater
steamship lines and contracting stevedores,
Baltimore, Md.
Strike: Paper makers, Rock Falls Box Board
Gill.
B. M. Squires...........
.....do.......................
F. T. Hawley...........
450
200
138 24
Adjusted.
Do.
Do.
Co., Rock Falls, Ill.
Cont roversy: Trans-Atlantic Steamship
clerks, deepwater steamship lines and
contracting stevedores, Boston, Mass.
B. M. Squires........... 200 ..........D.. o.
ANNUAL REPORT SECRETARY OF LABOR. 129
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
Name. Commissioners of
1
W orkmen
affected.
conciliation. Result.
Directly-
Indirectly.
NOVEMBER.
Controversy: Great Southern Lumber Co.,
Bogalusa, La.
Threatened strike: Chicago Rubber Clothing
Co., Racine, Wis.
Controversy:
Longshoremen and timber handlers, J.
H. Burton & Co., New Orleans, La.
Grain trimmers, Robert Reford Co. (Inc.),
Portland, Me.
Strike:
Machinists, Starr Brass Manufacturing
Co., Boston, Mass.
Federal Lead Co., Alton, Ill.......................
G. Y. Harry, J. S.
Myers.
J. J. Barrett..............
1,600
265
2,500 Unable to adjust.
Adjusted.
B. M. Squires ......... Do
....... do........................ 75 Do
Chas. Bendheim. .. Mediation refused.
P. F Gill 200 Adjusted.
Trades, open-shop association, Beau- G. Y. Harry............. 445 889
mont, Tex.
Meat cutters and machinists, Sperry &
Barnes Packing Co., New Haven, Conn.
Controversy: Raleigh Lumber Co., Oxley,
W. Va.
Strike: Retail clerks, Palestine, Tex..............
C. J. Fury ............... 350 100 Adjusted.
(23)
(29)
Adjusted.
Do.
T. J. Williams.........
J. S. Myers ............
15
70
24
1,500
Controversy: Steamship clerks and commer- B. M. Squires........... 4,000
250
cia] checkers, deepwater steamship lines
and contracting stevedores, New York
and Atlantic ports.
Strike: Meat cutters (beef) for 5 packing
houses, New York, N. Y.
Controversy: Electrical workers, General
L. R. Thomas, C. J.
Furv.'
F. J. Rohde..............
2,250
Electric Co., Minneapolis, Minn.
Strike:
Street car employees, E. St. Louis and
Suburban Ry.. Co., E. St. Louis, Ill.
Port Huron Sulphide and Paper Co.,
Port Huron, Mich.
Threatened strike: Butcher workmen, Union
J. J. Barrett ........... 750 1,200 Adjusted.
F. T. Hawley ......... 150 Unable to adjust.
J. S. Myers................ 275 20
Meat Co., Apache Packing, Co., San
Antonio Packing Co., Cohen & Bible
Meat Co., Alamo Dressed Beef Co., San
Antonio, Tex.
Controversy: Southwestern Producing and
Refining Co., Wichita Falls, Tex.
Strike: Machinists, Murry Machine Co., Atlanta,
Ga.
Controve sy: Longshoremen, deepwater
steamship lines and contracting stevedores,
Gulf ports.
Stevedores and foremen, deep-water steam-
....... do ........... 16 4 (30)
Adjusted.
Do
J. W. Bridwell.........
B. M. Squires...........
70
3,000
225
50
....... do........................ Do.
ship lines and contracting stevedores,
New York and vicinity.
Deep - sea longshoremen, deep - water
steamship lines and contracting stevedores,
New York.
Strike: Furnace workers, Globe Iron Co.,
....... do........................ 1 Do.
W. C. Liller.............. 295 50 Do.
Star Furnace Co.. Jackson Iron & Steel
Co., Jackson, Ohio.
Threatened strike: Coal mines, Salt Lake Joseph Lord............. 2,000
2,500
City, Utah. Do.
Strike: Meat cutters (pork), New York, N. Y.
Controversy: Blacksmiths and other crafts,
C. J. Fury, L. R.
Thomas.
H. J. Skeffington....
1,500 Do.
Pending.
Adjusted.
Do.
Saco Lowell Co., Lowell, Mass.
Strike: Todd Shipyards, Tacoma, Wash......... E. P. Marsh, W. H.
Urmy.
W. C. Liller..............
6,500
ThreatWeneellds tsotnri,k Oe:h Wioe..llston Iron & Steel Co., 200 20
Strike: Glaziers, Pittsburgh Plate Glass Co ,
Grand Rapids, Mich.
Controversy: Deep-sea longshoremen, deepwater
steamship lines and contracting |
stevedores, Gull ports.
F. L. Feick.............. 7 12 Do.
B. M. Squires........... 6,000 Do.
28 Case referred to president of company.
29 Employees in most instances have secured other employment.
30 Full operation of plant not likely to be resumed.
15283—la b 1920----- 9
130 REPORTS OF DEPARTMENT OF LABOR.
Statement showing number of labor disputes handled by the Department7,of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
S1 Men working elsewhere.
Name. Commissioners of
Workmen
affected.
conciliation. Result.
Directly-
Indirectly.
no v em be r —continued.
Strike:
Packing house employees, Crescent Packing
Co., Indianapolis, Ind.
International Photo Engravers Union,
Boston, Mass.
Planing Mill Men’s Assn., Austin, Tex....
Butcher workers’ union, Swift & Co., Armour
& Co., Jersey City, N. J.
Butcher workers, Swift Co., Newark,N.J..
Butcher workmen, Lamb & Co., Cochran
Hill Co., D. B. Martin Co., Baltimore,
Md.
Controversy:
Deep - sea longshoremen, deep - water
steamship lines and contracting stevedores,
New York.
Deep - sea longshoremen, deep - water
steamship lines and contracting stevedores,
Portland, Me.
Deep-sea longshoremen, War Department,
New York.
Steamship pier office employees, deepwater
steamship lines and contracting
stevedores, New York.
Lockout: Blacksmiths and machinists,
American Car and Foundry Co., Terre
Haute, Ind,
Strike:
Paper makers, McEwan Bros. & Co.,
Whippany, N. J.
J. J. Barrett.............. 18 Adjusted.
Unable to adjust.
(31)
H. J. Skeffington.__
J. S. Myers............... 32 15
C. J. Fury, L. R.
Thomas, P. F. Gill.
C. J. Fury, L. R.
Thomas.
C. J. Fury, L. R.
Thomas,P.F.Gill.
B. M. Squires...........
1,440
100
458
30,000
1,500
460
50
200
Adjusted.
Unable to adjust.
Adjusted.
Do.
....... dd........................ Do.
....... do........................ Do.
do....................... 600 Do.
J. J. Walsh............... 75 100 Unable to adjust.
L. R. Thomas.......... 150 50 Do.
Oscar F. Nelson....... 225 275 Mediation refused.
Controversy: . -
Deep-sea longshoremen, deep-water
steamship lines and contracting stevedores,
Gulf ports.
Deep-sea longshoremen, Lumber Exporters’
Association, Gulf ports.
B. M. Squires........... 1,200 Adjusted.
....... do........................ 600 Do.
DECEMBER.
Controversy: Live Poultry Transit Corporation,
Buffalo, N.Y.
Strike:
Stanwood Timber Co., Stanwood, Wash..
Papermakers, McEwan Son & Co., Whippany,
N. J.
Retail clerks, Joseph Simon Shoe Stores,
Chicago, Ill.
Longshoremen, Outer Harbor Dock &
Wharf Co., San Pedro, Calif.
S. House & Co., Invincible Grain Cleaning
Co., Huntley Mfg. Co., Silver Creek,
N. Y. .
Piano, organ, and musical instrument
workers’ union, Greater New York,
N. Y.
Structural ironworkers, master builders,
Indianapolis, Irid.
Textile workers, Asabet Mill, Maynard,
♦ Mass.
Blacksmiths and laborers, Evansville,
James Purcell........... 19 21 Adjusted.
E. P. Marsh............. 80 30 Do.
L. R. Thomas.......... 100 50 Unable to adjust.
Adjusted.
Do.
0. F. Nelson............ 6 9
C. T. Connell............ 110 50
James Purcell........... 260 Unable to adjust.
R. M. McWade........ 9,000 Settled.
J. J. Barrett............. 135 4,500
2,300
125
Adjusted.
Settled.
Adjusted.
Do.
H. J. Skeffington....
J. B. Lennon............
600
100
Tool Works, Evansville, Ind.
Controversy:
Deep-sea longshoremen, deep-water
steamship lines and contracting stevedores,
Hampton Roads, Va.
Deep-sea longshoremen, Overseas Shipping
Co., New York.
Deep-sea longshoremen, deep-water
steamship lines and contracting stevedores,
Hampton Roads, Va.
B. M. Squires 3,500
....... do....................... Do.
....... do .................. 3,500 Do.
ANNUAL REPORT SECRETARY OF LABOR. 131
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
32 Almost all of the waitresses found work eleswhere.
Name. Commissioners of
Workmen
affected.
conciliation. Result.
Directly.
Indirectly.
Dece mber —continued.
Controversy—Continued.
Deep-sea longshoremen, deep-water
steamship lines and contracting stevedores,
Hampton Roads, Va.
Deep-sea longshoremen, deep-water
steamship lines and contracting stevedores,
Hampton Roads, Va.
Deep-sea longshoremen, deep-water
steamship lines and contracting stevedores,
Hampton Roads, Va.
Deep-sea longshoremen, deep-water
steamship lines and contracting stevedores,
Hampton Roads, Va.
Deep-sea longshoremen, Panama Railroad
Co., New York.
Steamship clerks and commercial check-
B. M. Squires........... 3,500 Adjusted.
Do.
Do
....... do........................ 3,500
....... do........................
....... do....................... 3,500 Do.
Do.
Do.
Do.
Pending.
Adjusted.
Do.
Unable to adjust.
Adjusted.
Unable to adjust.
Adjusted.
Unable to adjust.
Adjusted.
(»2)
Adjusted.
Do. ‘
Do.
Do
....... do.......................
....... do........................
ers, deep-water steamship lines and
contracting stevedores, New York.
Threatened strike: Timber workers, Underwood
Veneer Co., Wausau, Wis.
Strike:
Manchinists andotheremployees, Schutte
& Koerting Co., Philadelphia, Pa.
Shoe workers, shoe manufacturers, Chi-
F. T. Hawley.......... 45 225
W. C. Liller, C. .1.
Fury, .1. J. S. Rodgers.
F. L. Feick..............
200
300
250
500
cago, Ill.
Threatened strike: Foundry workers, Wisconsin
Aluminum Foundry Co., Manitowoc,
Wis.
Strike:
Molders and core makers, Bryum
0. F. Nelson............ 5 200
J. J. Barrett.............. 95
Foundry Co., Indianapolis, Ind.
Pollak Steel Co., Carthage, Ohio................
American Steam Gauge Co., Boston, Mass.
Controversy: Grant Coal & Others Oil Co.,
F. G. Davis..............
H. J. Skeffington....
J. S. Myers................
ISO
15
220
Ranger, Tex.
Strike: Metal trades, Oscar Daniel’s Shipyard,
Tampa, Fla.
Controversy: International Shipbuilding Co.,
L W. Bridwell.........
W. R. Fairley..........
1,360 1,500
Pascagoula, Miss.
Walkout: Waitresses, United States Housing
Corporation, Washington, D. C.
Controversy: Candy workers, Brach Candy
Factory, Chicago, Ill.
Strike: Piano, organ, and musical instru-
W. D. Davidge........
F. L. Feick .......... 2 600
O. F. Nelson ........... 18 4
ment workers, Baldwin Piano Co.,
Chicago, Ill.
Controversy:
Deep-sea longshoremen, P. C. Pfeiffer,
Port Arthur, Tex.
Deep-sea longshoremen, Texas Transport
& Terminal Co. (Ltd.), New Orleans,
La.
Longshoremen and dock workers, New
B. M. Squires.......... 225
....... do........................
....... do........................ Do. Orleans Steamship Lines, New Orleans,
Deep-sea longshoremen, E. S. Booth,
Boston, Mass.
Coastwise longshoremen, coastwise steam-
....... do........................ Do
....... do........................ 1,500 Do ship lines and contracting stevedores,
Hampton Roads, Va.
> Deep-sea longshoremen, deep-water steam- ....... do........................ 3,500 Do. ship lines and contracting stevedores,
Hampton Roads, Va.
Deep-sea longshoremen, deep-water steamship
lines and contracting stevedores,
North Atlantic Ports.
Deep-sealongshoremen, deep-water steamship
lines and contracting stevedores,
Hampton Roads, Va.
....... do........................ 700 Do
....... do........................ 3,500
•
Do.
132 REPORTS OF DEPARTMENT OF LABOR.
Statement showing number of labor disputes bundled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
ss Nearly all the journeymen tailors employed elsewhere.
Name. Commissioners of
conciliation.
Workmen
effected.
Result.
Directly-
Indirectly.
Decem ber —continued.
Controversy—Continued.
Deen-sea longshoremen, deep-water steamship
lines ant contractin'; stevedores.
Gulf Ports.
Dee >-sea longshoremen, deep-water steamship
lines and contracting stevedores,
Ne v Orleans. I,a.
Deen-sea longshoremen, deep-water steamship
lines and contracting stevedores,
Savannah, Oa.
.Deep-sea longshoremen, deep-water steamship
lines and contracting stevedores,
Gulf Ports.
Bakers and confectioners, principal baking
establishments, Bridgeport, Conn.
Threat ened strike: Blacksmiths, drop forgers,
helpers, Globe Malleable Steel & Iron
Works, Syracuse, N. Y.
Controversy:
Fort Worth Stock Yards Co., Fort Worth,
Tex.
Tannery workers, Union Tannery Co.,
Narrows, Va.
Threatened strike:
Machinists and others, The Johnson Motor
Co., South Bend, In 1.
Chemical workers and various tradesmen,
Irasselli Chemical Co., Clevelan 1, Ohio.
Strike:
Journeymen tailors, various merchant
tailoring establishments, Philadelphia,
r>a.
Machinists, Prest-o lite Co., Indianapolis,
Ind.
Coni ro' ersy: Bakers, b ikenes, Washington,
D. C.
JANUARY.
R M Squires........... 6,000
6,000
1,000
Adjusted.
. do........................ Do.
do ................ Do.
do ........... 6,000
158
Do.
J. R. Buchanan.......
W D Davidge
Do.
50 Do.
J. S Myers.............. 200 25 Settled.
Chas. Bendheim....
F L Feick..............
1
100
119
50
Adjusted.
Do.
W C Liller ........... 50 Do.
do........................ 1,360
35
300 (33)
J J Walsh.............. 1,500 Adjusted.
T{ R M ahane v........ Do.
S trike: Piano, organ, and musical-instrument
makers, Vose Piano Co.; J. 0. Twichell
Piano Co., Union T?iano Co., Chicago, Ill.
Lockout: Machinists, Illinois Glass Co., Alton,
O F Nelson............ 23 6 Adjusted.
J J Walsh............... 78 1,700 Do.
Controversy: Shoe workers, Rohn & Ryan
Shoe Co., Milwaukee, Wis.
Deep-sea longshoremen, Crowell & Thurlow,
Boston. Mass.
Deep-sea longshoremen, deep-water
steamship lines and contracting stevedores,
Gulf ports.
Deep-sea longshoremen, Terminal Shipping
Co. and others, Baltimore, Md.
Deep-sea longshoremen, deep-water
steamship lines and contracting stevedores,
Boston, Mass.
Deep-sea longshoremen, deep-water
steamship lines and contracting stevedores,
Boston. Mass.
Deep-sea longshoremen, deep-water
steamship lines and contracting stevedores,
Boston, Mass.
Deep-sea longshoremen, deep-water
steamship lines and contracting stevedores,
Portland, Me.
Deep-sea longshoremen, deep-water
steamship lines and contracting stevedores,
Gulf ports.
Deep-sea longshoremen, deep-water
steamship lines and contracting stevedores,
Gulf ports.:
Machineand hand strappers, Public Box
Strappers. New York.
F L Feick.............. 2 35 Do.
R M Squires.......... Do.
do ........... Do.
do....................... 1,000 Do.
do ................... Do.
do ........... 1,500
1,500
' Do.
do ..................... Do.
do............. 1,500 Do.
do ................... Do.
do .................. Do.
do........ 200 Do.
ANNUAL REPORT SECRETARY OF LABOR. 133
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
Name. Commissioners of
conciliation.
Workmen
effected.
Result.
Directly-
Indirectly.
Ja n u a ry —continued.
Controversy—Continued.
Deep-sea longshoremen, Union Sulphur
Co., Sabine, Tex.
Deep-sea longshoremen, Cunard Steamship
v o. (Ltd.), New York.
Strike:
Inside shopmen, structural-iron workers,
Central States Bridge co., Indianapolis,
Ind.
Platform men, (olumbia Railway, Gas
& Electric v 6., I olumbia, S. C.
Threatened strike: Missoula Street Railway
( o., Missoula, Mont.
Strike: Machinists, pattern makers, foundrymen,
Buffalo Steam Pump <. o., North
Tonawanda, N. Y
Threatened strike: Railroad earmen, mechanics,
blacksmiths, boiler makers,
siieet-metal workers, Interstate Railroad
Co., Appalachia, Va.
Contro. ersy:
Specialty Shoe Co., Chicago, Ill................
Steamship pier office emylo . ees, Norton,
Lili,- & to., Funch, Edve & Co.,
Cosmopolitan Steamship Line, New
York.
Strike:
corrugated-iron workers, Structural Steel
& Corrugated Iron Works, >. hicago, Ill.
Upholsterers, 28 firms, mem ers of
National Upholstering Furniture Manufacturing
Association, Chicago, Ill.
Butcher workmen, Beale & Boettcher
Abattoir, Indianapolis, Ind.
Kutie Kiddie Shoe co., Chicago, Ill.........
Contro. ers.,: Docx workers and longshoremen,
Louisville & Nashville Railroad,
Pensacola, Fla.
Strike: Packing house employees, Morrell &
Co., Sioux Falls, S. Dak.
Controversy: Blacksmiths and helpers,
Eccles Drop Forge Co., Auburn, N. Y.
Lockout: Building trades mechanics, Little
Rock, Ark.
Strike:
Paper makers, Nakoosa Edwards Paper
Co., Port Edwards and Nakoosa, Wis.
Boot and shoe workers, W. B. Coon Co.,
Rochester, N. Y.
Shoe workers, Smith, Briscoe Shoe Co.,
Lynchburg, Va.
Leather workers, Chicago, Ill...................
Controversy:
Machinists, Curtiss Airplane Co., Buffalo,
N. Y.
Broom makers, Pennsylvania Working
Home for Blind, Philadelphia, Pa.
Strike:
Raincoat makers, C. B. Spayne & Co.,
Chicago, Ill.
Oil field, gas well, and refinery workers,
Magnolia Refining Co., Fort Worth,
Tex.
Iron workers, Hedtherington & Berner
Co., Indianapolis, Ind.
Controversy:
Longshoremen and timber handlers, Kent
& Tracy, contracting stevedores, Pensacola,
Fla.
Tug firemen and linemen, Great Lakes
Towing & Dredging Co. ’s, Great Lakes.
Threatened strike: Machinists and tool makers,
Vox & Sons, Bridgeton, N. J.
B. M. Squires
....... do........................ 800
J. J. Barrett, F. T.
Hawley, O. F.
Nelson.
60 400
H. J. Brown............ 150 30
W. H. Rodgers........ 14 5
James Purcell_____ 144 50
T. J. Williams......... 50 60
F. L. Feick..............
B. M. Squires...........
P. F. Gill.................
O. F. Nelson............
J. J. Barrett..............
i F. L. Feick..............
B. M. Squires..........
W. H. Rodgers........
James Purcell...........
J. S. Myers...............
0. F. Nelson............
W. D. Davidge........
J. B. Colpoys...........
P. F. Gill..................
James Purcell...........
E. E. Greenawalt,
C. J. Fury.
F. L. Feick..............
J. S. Myers.
J. J. Barrett, F. T.
Hawley, O. F.
Nelson.
B. M. Squires
.......do........................
J. R. Buchanan.......
31
600
19
800 ............
440 1,200
20 150
30 ............
770 ............
80 30
900
118
125
250
125
135
42
12
60
65
200
132
160
75
15
75
250
100
Adjusted.
Do.
Unable to adjust.
Adjusted.
Do.
Unable to adjust.
Settled.
Adjusted.
Do.
»
Settled.
Unable to adjust.
Do.
Adjusted.
Do.
Do.
Do.
Unable to adjust.
Mediation refused.
Adjusted.
Unable to adjust.
Adjusted.
Settled.
Adjusted.
Unable to adjust.
Adjusted.
Unable to adjust.
Adjusted. .
Do.
Settled.
134 REPORTS OF DEPARTMENT OF LABOR.
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
34 Some employees returned, others found employment elsewhere.
36 Most of the men obtained work elsewhere.
Name. Commissioners of
Workmen
effected.
conciliation. Result.
Directly-
Indirectly.
Jan ua ry —continued.
-Controversy:
Deep-sea longshoremen, Smith & Kelly
Co., Taggart &. Co., Savannah, Ga.
^Coastwise longshoremen, coastwise steamship
lines and contracting stevedores,
Atlantic and Gulf ports.
FEBRUARY.
Controversy:
Marine beef handlers, War Department,
New York.
J. D. Neilson, Cut Sole Co., Chicago, Ill..
Wm. F. Mosser Co., Richwood, W. Va..
Machinists, Fleischmann Yeast Co.,Langdon,
D. C.
Strike:
Puddlers, Burden Iron Coy Troy, N. Y..
Home Packing Co., Terre Haute, Ind....
Threatened strike: Street car men, Wilkes-
Barre Railways Co., Wilkes-Barre, Pa.
Controversy:
Stationary engineers; industrial plants,
Springfield and vicinity, Ohio.
Longshoremen, Pacific Northwest Ports,
Oregon, Washington, and British
Columbia.
Tobacco workers, British-American Tobacco
Co., Petersburg, Va.
Building trades, Contractors’ Association,
Indianapolis, Ind.
Teamsters, Kivits Brothers Commission
Co., Terre Haute, Ind.
Dredge workers and oilers, Great Lakes
Dredge & Dock Co., Great Lakes.
Checkers and tallymen, deep-water steamship
lines and contracting stevedores,
Baltimore, Md.
Dredge workers and oilers, Great Lakes
Dredge and Dock Co., Great Lakes.
Checkers and tallymen, deep-water steamship
lines and contracting stevedores,
Hampton Roads, Va.
Lockout: Carmen, machinists, blacksmiths,
engineers, American Car & Foundry
Co., Terre Haute, Ind.
Threatened strike: Machinists, U. S. Slicing
Machine Co., La Porte, Ind.
Strike:
Street and electric railway employees,
Gulfport & Mississippi Coast Traction
Co., Gulfport, Miss.
Engineers,conductors, firemen, trainmen,
machinists, boilermakers and other
crafts, Minnesota, Dakota & Western
Rwy. Co., International Falls, Minn.
American Sugar Refining Co., New Orleans,
La.
Machinists and helpers, contract shops,
Galveston. Tex.
Controversy: Furnace men, Punxsutawney,
Pa.
Threatened strike: Packing-house employees,
Swift & Co., Moultrie, Ga.
Controversy: Eclipse Refining Co., Franklin,
Pa.
Walkout: Cooks and waiters, Cawthon Hotel,
Mobile, Ala.
Strike:
MetaJ polishers, Superior Motor Co.,
Chicago, Ill.
Carmen and machinists, Jonesboro, Lake
City, and Eastern Rwy. Co., Jonesboro,
Ark.
B. M. Squires...........
....... do.......................
B. M. Squires...........
F. L. Feick..............
F. G. Davis..............
J. B. Colpoys...........
....... do........................
F. L. Feick....... .
J. A. Smyth.............
T. J. Williams.........
G. Y. Harry, E. P.
Marsh.
Homer J. Brown....
0. F. Nelson............
F. L. Feick..............
B. M. Squires...........
....... do........................
....... do........................
....... do........................
F. L. Feick..............
0. F. Nelson............
J. S. Myers................
R. S. Coleman, F. L.
Feick.
J. S. Myers................
.......do........................
J. A. Smyth.............
W. C. Liller...........
James Purcell...........
W. C. Liller..............
0. F. Nelson............
J. S. Myers................
15,000
150
7
8
200
250
4
120
7,000
100
1,200
15
200
300
75
12
108
65
700
140
425
10
34
22
5
200
1,600
15
350
4,750
13,000
3,100
500
260
25
15
900
320
30
15
145
Adjusted.
Do.
Adjusted.
Do.
Do.
Do.
Unable to adjust.
Adjusted.
Do.
Adjusted.
Do.
Do.
Do.
Do.
Do. .
Do
Do.
Do.
Do.
Do.
Do.
Do.
Settled.
(34)
Adjusted.
Do.
Unable to adjust.
Adjusted.
Mediation refused.
(35)
ANNUAL REPORT SECRETARY OF LABOR, 135
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
Name. Commissioners of
W orkmen
affected.
conciliation. Result.
Directly-
Indirectly.
Feb ru ar y —continued.
Controversy:
Steamship pier office employees, Clyde
San Dommgo Line, Porto Rico Line,
New York.
Deep-sea longshoremen, Brady & Gice,
stevedores, New York.
Deep-sea longshoremen, deep-water
steamship lines and contracting stevedores,
Tampa, Fla.
Threatened strike: Mine, mill, and smelter
B. M. Squires........... Adjusted.
.......do........................ Do.
....... do........................ Do.
J. J. Walsh................ 200 5 Do.
workers, Ft. Smith Smelter Co., Fort
Smith, Ark.
Strike: Delaney Forge & Iron Co., Buffalo,
N. Y.
Controversy:
Deep-sea longshoremen, deep-water
steamship lines and contracting stevedores,
Boston, Mass.
Tannery workers, Union Tanning Co.,
Narrows, Va.
Strike: Waiters, hotel and cafe owners, Los
James Smyth........... 3 140 Do.
B. M. Squires.......... 1,500 Do.
H. J. Brown, F. G.
Davies.
C. T. Connell............
120
700
20
500
Unable to adjust.
Settled.
Angeles, Calif.
Controversy: Home Packing Co., Terre
Haute, Ind.
Strike:
Leather workers, National Belting Co.,
New York, N. Y.
Sheet-metal workers, boiler makers,
P. F. Gill .............. 200 Unable to adjust.
Do.
Adjusted.
Do.
J. R. Buchanan.......
W. C. Liller..............
23
1,200
70
800
blacksmiths, machinists, electricians,
carpenters, and joiners, Pensacola
Shipbuilding Co., Pensacola, Fla.
Controversy: Deep-sea longshoremen, deepwater
steamship lines and contracting
stevedores, Baltimore, Md.
B. M. Squires......... 1,000
MARCH.
Controversy:
Deep-sea longshoremen, Cunard Steam
Ship Co., Ltd., New York.
Marine warehouse clerks, deep-water
steamship lines and contracting stevedores,
Baltimore, Md.
Walkout: Meat cutters and butcher work-
B. M. Squires........... 1,000 Adjusted.
.do....................... 200 Do.
J. J. Walsh............... 800 Do.
men, packing houses and sausags factories,
C leveland, Ohio.
Controversy:
Trans-Atlantic steamship clerks, deepwater
steamship lines and contracting
stevedores, Boston, Mass.
Checkers and tallymen, deep-water
steamship lines and contracting stevedores,
Hampton Roads, Va.
Deep - sea longshoremen, deep - water
steamship lines and contracting stevedores,
Galveston, Tex.
Carmen employed in shops, Kansas
City, Clay County, and St. Joe Railway,
Kansas City, Mo.
Strike:
Julius Kayser Co., Sidney, Amsterdam,
and Brooklyn, N. Y.
Pequanoc Rubber Co., Butler, N.J.........
Paper makers, American Straw Board
Co., Quincy, Ill.
Machinists, General Motors Co., St.
Louis, Mo.
Waiters, Alexandria Hotel, Los Angeles,
Calif.
Controversy: Sinclair Gulf Refining Co.,
Ranger, Tex.
Strike: United Shoe Machinery Co., Beverly,
Mass.
Georgia Railway & Power Co., Atlanta,
Ga.
B. M. Squires.......... 200 Do.
.. do........................ 300 Do.
.......do........................ 450 Do.
W. H. Rodgers........ 32 Settled.
Adjusted.
Do.
Unable to adjust.
Do.
Ethelbert Stewart.. 4,179
200
125
J. R. Buchanan.......
F. T. Hawley...........
110
25
P. F. Gill.................. 200 800
C. T. Connell............ 143 200 Adjusted.
Men employed elsewhere.
Adjusted.
Do.
J. S. Mvers................ 16 60
H. J. Skeffington....
J. W. Bridwell.........
3,300
1,100
2,200
136 REPORTS OF DEPARTMENT OF LABOR.
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
Name. Commissioners of
conciliation.
Workmen
affected.
Result.
Direct- Indily.
rectly.
march —continued.
Threatened strike: Roberts & Oakes Packing
Co., Marshalltown, Iowa.
Strike: Drop forge men, Billings & Spencer
Drop Forge Co., Hartford, Conn.
Lockout: Teamsters, Kivits Bros. Commission
Co., Terre Haute, Ind.
Strike: Building trades council, Employers’
Association, New York, N. Y.
Controversy:
Journeymen barbers, Master Barbers’
Association, Chicago, Ill.
Grain trimmers, deep-water steamship
lines and contracting stevedores, Baltimore,
Md.
Deep - sea longshoremen, deep - water
steamship lines and contracting stevedores,
Baltimore, Md.
Deep - sea longshoremen, deep - water
steamship lines and contracting stevedores,
Hampton Roads, Va.
Strike:
Paper makers, Weis Paper Co., Quincy,
Waiters and cooks, McKee’s Cafe, Los
Angeles, Calif.
Platform men, Pacific Electric Railway,
Los Angeles, Calif.
Coastwise men, port of New York, N. Y.
Live Poultry Board, American Express
Co., Chicago, Ill.
Kingan & Co., Indianapolis, Ind..............
Yarn workers, Manayunk, Pa...................
Controversy: Trouble men and linemen,
Riverside Municipal Plant, Riverside,
Calif.
Strike: Mine workers, Napier Iron Works,
Corning, Tenn.
Walkout: Painters and helpers, Pierce Oil
Co., Fort Worth, Tex.
Lockout: Auto mechanics, Wentworth &
Irwin Auto Co., Portland, Oreg.
Strike:
Ladies’ garment workers, Rose & Rose,
Cleveland, Ohio.
Die sinkers, trimmers, drop forge, and
helpers, J. H. Williams Drop Forge,
Brooklyn, N. Y.
Controversy:
Waiters, hotels, restaurants, and cafes,
Washington, D. C.
Deep - sea longshoremen, deep - water
steamship lines and contracting stevedores,
Savannah, Ga.
Strike: Grain handlers, Portland, Oreg..........
Threatened strike: Clerks, merchants, Bakersfield,
Calif.
Strike:
Tool makers, Pres^olite Plant, Indianapolis,
Ind.
Cadora Mine No. 1, Terre Haute, Ind......
Stone derrickmen, stone contractors,
New York, N. Y. '
Threatened strike: American Car Co., St-
Louis, Mo.
W. H. Rodgers... 150
170
150
2,000
3,600
400
1,000
3,500
26
James Purcell, C. J.
Fury.
P. F. Gill..................
800
1,100
J. J. Barrett............. 118,000
0. F. Nelson, J. J.
Walsh.
B. M. Squires
....... do........................
.... do........
F. T. Hawley........... 20
C. T. Connell............ 20
C. T. Connell, Hywel
Davies, E. P.
Marsh, Col. J. L.
Spangler.
B. M. Squires, R. M.
Me Wade.
0. F. Nelson.........
7,000
P. F. Gill, J. J. Barrett.
J. J. S. Rodgers.......
C. T. Connell............
2,500
450
12
30
12
40
8
175
416
1,000
200
240
40
800
10
25
25
W. C. Liller..............
Joseph S. Myers.......
E. P. Marsh, G. Y.
Harry.
A. L. Faulkner......
J. Purcell, II. J.
Brown.
Roland B. Mahany.
B. M. Squires
525
E. P. Marsh, G. Y.
Harry.
C. T. Connell............ 250
P. F. Gill................
F. T. Hawley..........
J. J. Barrett" ......... 200
J. J. Walsh............... 300 10
Plant closed indefinitely.
(36)
Adjusted.
Do.
Do.
Do.
Do.
Do.
Unable to adjust.
Adjusted.
Unable to adjust.
Adjusted.
Do.
(37)
Adjusted.
Do.
Men employed elsewhere.
Adjusted.
Do.
(38)
Adjusted.
Do.
Do.
Do.
Do.
Unable to adjust-
Adjusted.
Do.
(0
as Some of the men returned and some were employed elsewhere.
37 Men were permitted to return to work if they would surrender their union cards.
38 Employees secured work elsewhere.
e Men are seeking employment elsewhere.
ANNUAL, REPORT SECRETARY OF LABOR 137
Statement showing number of labor disputes handled by the Department of Labor through
its commissioners of conciliation from July 1, 1919, to June 30, 1920—Continued.
Name. Commissioners of
conciliation.
Worl
a fie:
Directly-
..........
Interstate........■......... 5 1 4 4 3 5 2 1
Total..............1.0.1 105 120 101 53 55 46 39 47 62 41 32 802
United States Employment Service.
Status and future.—Owing to the failure of Congress to enact legislation
defining the status of the United States Employment Service
as an established unit of the Department of Labor, the service still
exists as a function rather than a bureau of the Department, by
virtue of an order of the Secretary of Labor of January 3, 1918, proANNUAL
REPORT SECRETARY OF LABOR. 143
viding for the organization and operation of the service in the then
critical state of the war industries of the Nation.74 The authority
for this action was derived from the statutory powers of the Division
of Information in the Bureau of Immigration,73 supplemented
by the broader powers of the Department itself “ 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.’7 76 Though instituted primarily
as a war measure for the purpose of speeding up the production of
essential war material and for reducing the enormous wastage of
public and private resources in the desperate competition of the war
* industries for labor, the demonstrated utility of the service as a
means of equalizing labor supply and demand and of meeting the
recurrent problem of unemployment commended it to all thoughtful
observers as a permanent function of the National Government.
This growing conviction of the public, which was based on actual
experience of the workings of the system, harmonized with the views
of employment experts who had felt the need of a coordination of
the employment activities of the several States that had in the decade
preceding the entry of our Nation into the war developed systems
of public employment, and who had for several years advocated the
creation of a national system for the clearance of labor among the
States. These efforts had resulted in the introduction of several
bills providing for the establishment by Congress of such a national
system which had received consideration by the several committees
of the House and Senate having them in charge, but which were
never reported out for congressional action. •
Reference is made in last year’s report to the bills introduced by
Senator Kenyon in the Senate and by Mr. Nolan in the House,77
which represented the, views of practically all the public employment
experts of the country, and which had the indorsement of the Department
of Labor. These bills, which at the creation of a decentralized
but coordinated system of public employment offices by the
cooperative activities of the States and Federal Government, received
the most thorough examination at the hands of the Senate Committee
on Education and Labor, and the House Committee on Labor; but,
owing to the congressional situation in the months preceding the
presidential campaign, failed to be reported out. In the meantime
an earlier and less detailed measure which had been introduced in
the House on May 19,1919, by Mr. Nolan, of California (H. R. 544),
was, with same amendments, reported to the House May 18, 1920
(Report No. 999), but failed to come up for action.
74 Department Reports of 1918, pp. 480-482. See also same report, pp. 45-480.
75 Immigration act of 1907, sec. 40, and of 1917, sec. 30. 8
76 Organic act of the Department of Labor. See appendix to this report,
77 Department Reports for 1919, pp. 904-906.
144 HE PORTS OF DEPARTMENT OF LABOR.
The feature that al] these measures have in common is their recognition
of the fact that the problem of employment, in time of peace
as well as of war, is not a matter of local but of national concern,
and of the further fact that it is not only a question of dealing with
crises or emergencies of unemployment but also a practical device
for so marshaling the labor power of the country as to insure the
highest possible efficiency of the productive energies of the Nation.
This requires the mobilization of the workers not by any species of
compulsion but by the democratic method of the continuous collection
and dissemination of information regarding the industrial conditions
and the labor needs of every part of the country.
This national aspect of the problem has been so widely recognized
and so authoritatively set forth of late that it has become an
accepted doctrine of political science. France, Belgium, Germany,
and Russia have found themselves compelled to adopt it as a working
principle in order to speed up the production which is necessary
to restore their solvency and enable them to reconstruct their
shattered industrial life, while Great Britain has for a dozen years
maintained a national system of employment exchanges for the
United Kingdom, and the Dominion of Canada has combined the
employment activities of its several Provinces from Nova Scotia to
British Columbia into a federal system, administered by a director
of employment in Ottawa.
The recent growth of the movement for national direction of
employment as well as its growing international importance are
exemplified in the following extracts from the draft convention
concerning unemployment unanimously adopted by the International
Labor Conference of the League of Nations, held in Washington in
November of last year:
Arti cle 11. Each member (State) which ratifies this convention shall establish
a system of free public employment agencies under the control of a central
authority.
Where both public and private free employment agencies exist, steps shall
be taken to coordinate the operations of such agencies on a national scale.
The operation of the various national systems shall be coordinated by the
international labor office in agreement with the countries concerned.
In the report on unemployment prepared by the organizing committee
for the International Labor Conference, comparative statistics
are given showing the amount and fluctuations of employment in
various countries in the years preceding the war. From these tables
it appears that the mean percentage of unemployment in certain
trades Fr the period 1904-1913 was 2.1 in Germany, 2.7 in Belgium.
4.7 in the United Kingdom, 7.8 in France, and 15.2 in the State of
New Tori The report sums up the situation in this country as
follows:
ANNUAL REPORT SECRETARY OF LABOR. 145
The fluctuations of industry are more pronounced in the United States of
America than in most other countries, and, therefore, the variation in the
percentage unemployed is greater. The prewar percentages of unemployment
in the United States were normally about three times as great as those reported
for England or Germany. The fluctuations likewise were more violent.
The interpretation of these facts is not far to seek. In a relatively
small, compact, and densely populated industrial community like
England or Belgium, or one as highly organized as was Germany
before the war, the working population easily finds its level, and unemployment
is comparatively slight; whereas, in a country as vast
as ours, with its great diversity of industries widely scattered over
its area, the unemployed worker is too often stranded in the community
in which he finds himself. The greater mobility sometimes
attributed to the American worker is more than neutralized by the
distance that separates him from his opportunity and by his
ignorance of its existence or whereabouts. If, then, these
European countries deem a unified employment service an essential
feature of their industrial organization, how much more essential
must it be under the more difficult and less stable conditions of industry
which obtain in the United States.
Fortunately our Federal system of government lends itself easily
to the institution and operation of a national employment service
which is unified without being centralized and which by coordinating
the independent activities of the several States, combines them all
into a national system free from the dangers of centralized authority
and bureaucratic control. This is the system which has been embodied
in the Kenyon-Nolan bill herein before referred to.
The nature of the problem and its solution can not be put better
than in the words of the President’s Industrial Conference which was
convened in Washington on December 1, 1919, and which, after an
exhaustive consideration of the industrial situation in the United
States, submitted its report under date of March 6, 1920.78
Needed legislation.—The hearings on the House and Senate bills
referred to above, which were conducted into the summer of 1919
at joint sessions of the Senate Committee on Education and Labor
and the House Committee on Labor, produced a mass of testimony,
nearly all of which was favorable to the establishment of a national
employment system as proposed in the bills. Confident hopes and
expectations of early passage of those bills, and persistence of the
serious condition of unemployment throughout the summer of 1919,
led the Director General to maintain the Employment Service during
the first three months of the fiscal year. But when, owing to the
congestion of legislation in Congress, it became apparent that those
78 See report of Industrial Conference called by the President, title “ Public Employment
Clearing House,” published in full in appendix.
15283—lab 1920----- 10
146 REPORTS OF DEPARTMENT OF LABOR.
bills would not receive early consideration, an order was issued directing
the discontinuance of the field work of the service and the application
of the unexpended balance of the funds at its command to
the development and operation of a national system of labor clearance.
Accordingly on October 10 the employment offices up to that
time operated by the service were turned over to the several States
and municipalities in which they had been maintained, or, where
this was not possible, were abandoned.
Activities.—The record of this service during the fiscal year 1919-
20 indicates a constant struggle to meet the serious conditions of
unemployment resulting from the rapid demobilization of the military
and naval forces and war workers of the country and the increasing
demands of the reviving peace-time industries with inadequate and
diminishing financial resources.
Owing to the failure of Congress to pass the deficiency bill prior
to its adjournment on March 3, 1919, it had become necessary to
curtail seriously the activities of the service during the four months
March to June, when unemployment was at its height, and to make
an appeal to the public to aid in carrying on the work during that
critical period. The instant and generous response with which this
appeal was met by State and municipal authorities as well as by
numberless private citizens and welfare agencies and the aid extended
by the War Department in cooperating in the organization of special
employment bureaus for soldiers, sailors, and marines made it possible
for the service to tide over the emergency without serious
embarrassment.
The work of replacing returning service men in industrial life, which
was mainly supported by chambers of commerce and similar commercial
organizations, with help from the American Red Cross, the
Knights of Columbus, and other welfare organizations, was continued
for several months into the year under consideration—some of it to the
end of the year 1919—but after June 30, upon the passage by Congress
of the sundry civil bill, which carried an appropriation of
$400,000 for the United States Employment Service for the ensuing
year (instead of the $4,600,000 which had been asked- for), most of
the private contributions were discontinued, necessitating a further
reduction in the activities of the service, and especially a curtailment
of its field work. Fortunately this enforced reduction in the number
of employment bureaus maintained by the service (from 500 to
62) was to a considerable degree compensated by the fact that the
States and municipalities which had formerly maintained a. public
employment service now took over many of the offices which the
United States Employment Service was compelled to abandon and
operated them in cooperation with the Federal service. This provided
for 242 additional offices, making a total of 304 coordinated
employment bureaus operated together as a national public employANNUAL
REPORT SECRETARY OF LABOR. 147
ment system. This state of affairs continued until October 10, 1919,
when the congressional situation necessitated a further •and more
radical change in the policy of the service.
Cooperation with States.—The system of cooperation with States
and municipalities which had meanwhile been established was maintained
and developed. I he official head of each State employment
service, or, where a State service did not exist, the authorized representative
of a local employment bureau became the Federal Director
of the United States Employment Service at a nominal salary of a
dollar a year; the employment offices successively turned over to the
control of the State or local authority carried with them the furniture
and equipment, together with the franking privilege and such
’ blanks and forms as were deemed necessary to facilitate the transmission
to the Washington office of uniform reports; and, finally, a
sum of money was allotted to each of the States in which a cooperating
employment service was maintained to provide for the additional
clerical service which such cooperation entailed.
During the period from October 11, 1919, to June 30, 1920, 269
public employment offices have been in operation in 41 States and
the District of Columbia. These were in 19 States wholly or for the
most part supported by State appropriations, in five States by local
(municipal) appropriations and in two by both State and municipal
funds, while in a few communities the local employment bureau,
though under State or municipal control, was still provided in whole
or in part by chambers of commerce or other private agencies.
Weekly reports of the business transacted in each of these employment
offices were regularly transmitted by the several Federal directors
to the Washington office of the national service thus instituted,
comprehending the number of persons registered for employment,
the number of requisitions for help, the number referred to
positions, and the number reported employed, adult males, women,
and juniors being separately listed. These regular reports were supplemented
by special reports of fluctuations in the local labor market,
calling for the assistance of the Washington office in supplying from
other sections of the country an urgent or otherwise important labor
demand. These reports were studied and compiled at the office and
were made the basis of statistical information as to the condition
of the labor market throughout the country and of the developing
clearance activities of the service.
Only a rough approximate estimate can be given of the cost of
operating the service during the year. Many of the employment
offices conducted by the service, especially in the period from July 1
to October 10, 1919, were supported by agencies from which no
report of disbursements could be obtained. In many cases office
premises were supplied, rent free, in municipal or private office
148 REPORTS OF DEPARTMENT OF LABOR.
buildings and in many others one or more of the employees were
contributed by municipalities, chambers of commerce, or other
agencies. The direct cost of the service amounted to $91,333 per
month for the first period (July 1-October 10) and to $14,000 per
month for the second period (October 11-June 30), making a total
expenditure of $400,000 for the year. It is safe to assume that the
outside aid extended was more than the amount contributed by the
Government.
The withdrawal of the Federal Government from all field activities
has given a high degree of importance to the extent to which this
branch of the service has been assumed by States and municipalities.
National clearing house for labor.—During the period of the war,
when the issues of the struggle and the effectiveness of America’s
contribution to the allied cause depended on the quickest production
of the most essentia] war material, the distribution throughout the
country of its available labor resources was a matter of' the first
importance—a fact which was recognized in the establishment of
a labor clearance division in the United States Employment Service.
When, in the months succeeding the conclusion of the war, unemployment
became genera] in nearly all sections of the country, the
distribution of labor became for a time a local rather than a national
problem. Each State, every community, was called upon to make
provision for the employment of its own sons who had returned from
war service. The Clearance Division was retained in operation, but
its functions became subordinate to the field work of the service in
bringing together the man seeking a job and the nearest available
opportunity for employment. With the final elimination of the
field work of the service and the assumption of that function by the
several States and municipalities, the United States Employment
Service has become in effect a national clearing house of labor.
This purpose was set forth in a letter of instructions (circular
No. 1) issued by the Director General to the Federal directors and
other representatives of the service in the several States under date
of November 20, 1919. This circular requested the continuance of
the weekly statistical reports indicating the employment activities
of the several employment offices in the State, and in addition called
for weekly clearance reports of the surplus of labor undisposed of
and of workers wanted, and for reports of interstate shipments of
applicants to supply demands. It was soon discovered, however, that
the concentration of a national clearance system—with its ramifications
to every industrial community in the Nation—in a single office
at the National Capital involved needless congestion and delay. It
was accordingly decided to decentralize the system and to throw
the responsibility for local clearance on districts or zones composed
of groups of States, constituting in each case as nearly as possible a
ANNUAL REPORT SECRETARY OF LABOR. 149
closely knit industrial area, leaving to the Washington office the
function of clearing the surplus of labor or of employment opportunities
between these areas. This plan was promulgated in a second
letter of instructions (circular No. 2) issued under date of March 8,
1920.
The continental area of the United States, exclusive of Alaska, is
divided into 13 zones, corresponding, with only a few alterations,
to the Federal reserve bank districts. The 13 zones, with their headquarters
and the States included in each, are as follows:
Federal Employment Service—Labor-clearance zones.
Zone headquarters. States included.
1. Boston, Mass..............................
2. New York, N. Y.........................
3. Harrisburg, Pa...........................
4. Columbus, Ohio.........................
5. Raleigh, N. C............. ..........
6. Atlanta, Ga.............................
7. Chicago, Ill................. ...............
8. St. Louis, No.............................
9. St. Paul, Minn........................ . .
10. Kansas ity, Kans......................
11. San Antonio, Tex........................
12. San Francisco, Calif....................
13. Portland, Oreg.............................
Massachusetts, Maine, Vermont, New Hampshire, Rhode Island.
New York, Connecticut, New Jersey.
Pennsylvania, Delaware.
Ohio, West Virginia.
Maryland, Virginia, North Carolina, South Carolina.
Georgia, Alabama, Mississippi, Louisiana, Florida.
Illinois, Indiana, Michigan, Wisconsin, Iowa.
Kentucky, Missouri, Arkansas, Tennessee.
M innesota, North Dakota, South Dakota, Montana.
Nebraska,. Kansas, Oklahoma, Colorado, Wyoming.
Texas, New Mexico.
Arizona, Utah, Nevada, California.
Idaho, Oregon, Washington.
t
r
de
.f
is
d
if
)f
at
ace
It
)W
ecl
? a
As soon as funds are made available for the purpose it is proposed
to put a paid zone clearance officer in charge of each of these districts.
At present, however, it has been possible to put paid officers
in only three of the zones, namely, No. 6, centering at Atlanta, Ga.;
No. 7, with headquarters at Chicago, Ill.: and No. 10, with headquarters
at Kansas City, Kans. In the remaining 10 zones the Federal
director or other unpaid representative of the service in the State
where the headquarters of the zone is located acts as zone clearance
officer in addition to his other functions as State representative.
Respecting the designation of the three zones with active paid zone
clearance officers, circular No. 2 states that “ these assignments have
been made with a view to the best adaptation of the available resources
to the industrial and agricultural requirements of the various
zones.” These zones represent in a general way the agricultural
region of the Southern States, the harvest region of the Middle West,
and the industrial district centering at Chicago, Ill.
Under the cooperative agreements which the various States have
entered into with the Federal service, the State officials, who are at
the same time Federal directors in their respective States, are the sole
channels of communication through which the State and municipal
offices report. Thus all local placement officers within a State report
direct to the Federal director for that State. The local offices report
their surplus of registrations or requisitions for help to this official
and these are matched against each other, thus providing a basis for
150 REPORTS OF DEPARTMENT OF LABOR.
a system of clearance between the local offices. The problem now
before the service is to establish a more effective system of State clearance.
The importance of this need is referred to in circular No. 2,
as follows:
The national clearance system depends upon the existence in each State of a
comprehensive and effective system of clearance within such State, and it is
assumed that so far as possible each State will supply its immediate needs from
its own resources of workers and of industrial opportunities.
To attain this end it is suggested that each State shall supplement
the daily report of labor surplus and of labor wanted from each of
its employment offices by securing in addition (
immigration of this kind. The law does not provide that every
alien coming to the United States shall have paid his own passage,
nor that he shall have any specified amount of money in his possession;
and herein lies the danger that there will be aided in coming
from war-stricken and other countries large numbers of destitute
aliens who are liable to become public charges. However appealing
this class of cases may be, the bureau is convinced that the only
safe rule to follow is that of enforcing the law. The purpose to
assist this class of immigrants is natural on the part of relatives in
this country and in foreign lands, but there is the added danger that
immigration will be unlawfully stimulated by the aid of associations
or individuals, as it is difficult with the means at the command of
the bureau to detect violations of the law in this regard.
In view of the present unsettled conditions, however, it is fortunate
that the law gives authority to punish severely persons, transportation
companies, and others inducing or promoting immigration for
profit, it being possible to impose heavy administrative fines for
violations in this respect, and in case of persistent violations even to
deny a steamship company the right to land passengers of any or
all classes at United States ports for such a period as may be necessary
to insure an observance of the law. Unless these provisions
are adequately enforced, great additions to the normal movement of
immigration will result, and congestion of destitute aliens at our
ports can be expected, causing embarrassment as well as leading to
many hardships.
No doubt there are many thousands of aliens abroad who would
be glad of an opportunity to enter the United States and will no
doubt resort to every means to succeed in their undertaking, either
by individual effort or with the assistance of relatives, friends, or
associations. In view of the large number of the normal classes
who will apply, and the certainty that thousands of those who have
been the victims of misfortune will seek admission to the United
States, it behooves the Immigration Service to enforce the law in
such a manner as to avoid the addition to our population of aliens
who may become burdens upon States and communities.
Closely allied to the subject under discussion, as well as to the
classes affected, are the large number who have arrived and are
coming with little or no means of support after arrival. These, too,
it is believed, are, in a large number of cases, the beneficiaries of
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 297
assistance from relatives, individuals, or associations. As with the
classes above mentioned, so with these, the same dangers are imminent,
and safety lies only in law enforcement.
CONTRACT LABOR.
Contract labor cases continued to command the attention of the
bureau in an increasing proportion as compared with last year, and
it is to be expected that this increase will continue. Violations of
the contract labor law are difficult of detection; still, considering the
small force available for investigation work along this line, creditable
results have been achieved during the year, 1,164 aliens having been
excluded under the contract labor provisions of law, as compared
♦with 774 in 1919, and 73 arrested and expelled on warrant procedure,
compared with 69 in the preceding year. Both civil and criminal
proceedings were had against importers of labor in numerous instances,
1 of the former and 4 of the latter having been successful.
The procedure provided in the immigration act of 1917 to enable a
prospective importer to obtain, upon proper showing, departmental
permission to bring into the country skilled laborers when those with
the requisite qualifications are not to be found here has proved its
effectiveness, as an increased number have taken advantage of the
privilege thus extended.
ORIENTAL IMMIGRATION.
Chinese immigration, like immigration generally, shows an increase
over the preceding year, the number of admissiofis having
risen from 3,340 coming for permanent residence in 1919 to 4,690
in 1920, these figures not including aliens of the Chinese race granted
transit privilege, 3,340 being accorded such privilege in 1919, as
compared with 10,917 in the past year. Under special arrangements,
also, the transit by rail across the State of Maine of 48,715 Chinese
laborers returning from war work in France by way of Halifax, Nova
Scotia, was accomplished.
Of the exempt classes specified in section 6 of the Chinese-exclusion
act, 687 applied for admission, as compared with 602 last year,
161 of these being debarred, as against 27 for the fiscal year 1919.
Five hundred and fifty-six domiciled merchants applied during the
year, and 21 of this class were debarred, while 166 wives of merchants
were admitted and 2 debarred.
Of the so-called citizen class of Chinese persons there were admitted
in all 1,881, of whom 897 were of native birth, 843 were born abroad
of native-born parents, and 141 were foreign-born wives of American
citizens of the Chinese race.
The total debarments of Chinese were 125, the corresponding
total for 1919 having been 151. Eleven Chinese were deported under
the immigration act, and 15 by order of United States commissioners
and courts, after having been found unlawfully in the United States,
the number of such deportations in 1919 being 47 and 35, respectively.
Concerning the laws affecting Chinese exclusion there is .much that
can be said in favor of amendments thereto and changes in existing
systems now used to enforce such laws, but as a complete treatment
298 REPORTS OF DEPARTMENT OF LABOR.
of the subject would unduly extend this report, previous recommendations
in this behalf and such additional as experience seems to
justify will hereafter be submitted by memorandum.
In Tables 1 to 8, Appendix I, will be found complete data with
respect to the status under the exclusion laws of Chinese persons
applying for admission, disposition of appeals, applications for return
certificates, etc.
In this connection attention is also invited to the report of the bureau’s
special representative on Chinese work, forming Appendix IV,
hereafter.
Immigration from Japan to continental United States shows an
increase of 13 per cent over the preceding fiscal year, while that to
Hawaii shows a decrease of 6 per cent, the admissions in figures
being 12,868 to the mainland and 3,306 to Hawaii, as against ll,404*
and 3,500, respectively, in 1919. Debarments of Japanese amounted
to 145 at mainland ports, and 49 in Hawaii, the numbers so debarred
in the previous fiscal year being 62 and 109, respectively.
Complete statistics of Japanese immigration will be found in Tables
A to F, Appendix I, of this report, the last two tables of this series
giving particulars of the status of applicants for admission to the
mainland and Hawaii, respectively, under the limited-passport understanding
with the Japanese Government.1
As stated in the bureau’s last annual report, the practice then
obtaining as to the admission of proxy brides as alleged wives of
Japanese in this country was not satisfactory either to the department
or the bureau, and the result of conferences on the subject
as then set forth was the new rule then adopted which promised a
solution of the question with its promulgation by the department.
Contrary to this expectation the number of arrivals of such wives
increased from 3,189 in 1919 to 3,816 in 1920.
This tendency caused continued study of the subject. Finally
Japan fixed by decree the 29th of February of this year as the last
day upon which passports would issue to so-called proxy brides,
and as the holders of such documents have six months within which
to apply for entry, September 1, proximo, will see the end of this
system.
The granting of passports under the gentlemen’s agreement, with
the exception mentioned, will continue as heretofore by Japan.
The Immigration Service finds difficulty in meeting the situation
when subjects of Japan endeavor to impose not only on the United
States but sometimes also upon their own Government. Japanese
laborers are allowed to enter Mexico and some Central and South
American countries upon presentation of passports issued by Japan
limited to one of such countries, the holders thereof not being entitled
to admission thereon to the United States. Notwithstanding
this inhibition, Japanese find their way into Mexico and surreptitiously
or through smuggling devices enter or attempt to enter
this country. Investigation has demonstrated that at least some
of the so-called emigration from Japan to the countries south of
us is not in good faith so far as the individuals engaged therein are
1 Correction is here made of a typographical error appearing on p. 57 of the bureau’s annual report
for 1919, where,in a discussion of the subject of oriental immigration, the number of female aliens of the
Japanese race admitted in the period 1909-1919, inclusive, was given as 80,532: the correct figure is 47,022,
the former number representing the total of Japanese of both sexes admitted during the period in question.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 299
concerned. Elsewhere in this report (p. 25), treating on the prevention
of smuggling and illegal entry, recommendations are submitted
which it is believed will, if adopted, aid in checking these
fraudulent entries.
The too general terms of the agreement itself and the ex parte
determination by officials of Japan, both in that country and in
the United States, of matters arising under its terms have not been
conducive at all times to the production of the results anticipated
by both countries when the agreement was conceived. Not only
is clarification of the agreement needed if its main purpose in keeping
laborers from coming to the United States is to be effected but
systematic enforcement thereof by joint administrative effort, not
only with relation to the mainland but to our island possessions as
Uwell, should be brought about by both nations. Frauds against
both would thereby be materially checked if not entirely prevented
and the rights of all concerned protected.
The discussion of immigration from the Far East naturally involves
Hawaii and the Philippines and their future. To the extent
that both are affected by the suggestions in the preceding paragraphs
concerning the gentlemen’s agreement any future course
of procedure in line therewith will benefit them and continental
United States. The present system with said agreement applying
in direct terms to the latter only is the source of much embarrassment
and failure administratively to accomplish the benefits contemplated
to flow from the just enforcement of our immigration laws
and said agreement.
It may not be inappropriate to call attention to the fact that in
the previous report of this bureau reference was made to alleged
laws of Spain and Portugal which, it is claimed, permit a party to a
proposed marriage, native of either of those countries, who may be
in a foreign jurisdiction to name by power of attorney an attorney
in fact to represent such party in a marriage ceremony to be consummated
in the home country in the absence of bride or groom,
as the case may be. Proceedings have arisen in the bureau wherein
alleged brides have made application for admission to the United
States to join alleged husbands; thus as the “proxy bride” experience
on the Pacific coast is about to cease, it is possible to have it
continue on the Atlantic side with the probable addition of a “proxy
groom” attachment. Appropriate legislation to avoid the effect
of such laws so far as this country is concerned is recommended.
The effectiveness of the law regulating the admission of certain
classes of aliens from what is known as the barred zone is shown by
the small number of applications of natives of the countries embraced
therein. During the year 27 aliens were excluded, while 22 found here
in violation of such law were arrested and expelled. The most important
in size and population of the countries located within the limits
of the barred zone as defined in section 3 of the immigration act is
India, from which 180 persons of the East Indian or Hindu race were
admitted in the past year under the exceptions provided in the law,
covering nonlaboring occupations. Administrative fines aggregating
81,600 were imposed upon transportation companies for violations of
this provision of the law.
Recommendations in the last annual report suggesting consideration
of the extension of the barred zone to such parts of Asia as are
300 REPORTS OF DEPARTMENT OF LABOR.
not now included therein nor affected by exclusion laws or agreements,
and also to Africa and adjacent islands, for the reasons then
set forth are renewed.
SEAMEN.
With return of shipping to normal conditions the volume of work
involved in the examination of incoming seamen has reached such
proportions as to challenge painstaking consideration of its import,
and perhaps the largest single item of work performed by the bureau’s
field officers during the past year was in this connection. This activity
has continued to be under the general supervision of the bureau’s
special representative designated for this particular duty (Immigrant
Inspector J. J. Hurley, and the entire subject is treated in full in his
report, which forms Appendix III hereto (p. 291).
It is obvious that the problem incident to the enforcement of existing
law and regulations affecting seamen must be accepted as one
existing in fact and must be adequately met in order to cure an evil
practice extensively followed under which aliens are taken aboard
vessels ostensibly as seamen and upon arrival at United States ports
desert and remain unlawfully in this country.
The year’s experience has demonstrated the correctness of the
bureau’s oft-repeated view that reasonable restrictions could be
enforced successfully and in fairness to all concerned in the cases of
alien seamen so as on the one hand to prevent evasions and violation
of the immigration law by aliens of the inadmissible classes traveling
in the assumed guise of seamen and on the other hand without any
undue interference with the free and full operation of the underlying
principles of the seamen’s act; also that proper control is entirely consistent
with the provisions of the established rights and privileges of
the seamen themselves as well as the rights of the various commercial
interests engaged in the foreign trade.
While the existing law and regulations enforced thereunder have
proved fairly satisfactory, experience has developed certain particulars
in which the law is not sufficiently detailed or explicit. The
regulations, however, have been found to work effectively and to be
capable of being so applied as to accomplish measurably at least and
to a very considerable extent the purposes it is known Congress had
in mind when enacting the seamen’s provisions of the immigration law.
The great volume of work entailed by the enforcement of the seamen’s
regulations is clearly indicated by the fact that 22,738 vessels
were boarded by immigration officials; 933,081 inspections conducted;
288,710 identification cards issued; 4,775 seamen certified to be
afflicted with loathsome or dangerous contagious diseases, 3,958 of
this number having been removed to hospitals for treatment, and the
remainder for various reasons, principally lack of facilities at certain
ports, were permitted to depart foreign on the vessels upon which
they came. The importance of removing these seamen to hospitals
or preventing their landing, thereby avoiding the danger of contagion,
can not be overestimated, and it is very gratifying to be able to record
the good results accomplished.
Attention is called to page 21 of the bureau’s annual report for 1919,
with reference to the desertion of seamen. While the necessity for the
latitude accorded seamen under the act of March 5, 1915 (seamen’s
REPORT OF COMMISSIONER GENERAL. OF IMMIGRATION. 301
act), is fully realized, it is appropriate to state that reports received
from officers in charge at seaports of the country indicate that the
exemption of alien seamen under the provisions of rule 10 of the immigration
regulations affords and is frequently used as an easy means
of evading the provisions of the immigration law by aliens of the
inadmissible classes, including anarchists and kindred classes, persons
liable to become public charges, those afflicted with the diseases
referred to, etc. While it is understood that a majority of those
deserting reship sooner or later, there is always a considerable minority
who remain here unlawfully.
It is apparent that a follow-up system is necessary in order to
prevent alien seamen of the inadmissible classes remaining here
unlawfully, and in order successfully to meet the situation it will be
necessary to assign an additional number of inspectors to each of
the large seaports of the country.
The number of deserting seamen reported by masters of vessels
in the past year was 13,543, as against 3, 388 in 1919.
In order that the discussion under this heading may be clearly
understood, distinction between the provisions of the immigration
law relating to seamen (secs. 32-35) and the provisions of the act
of March 4, 1915, under which those following the sea and entering
American ports may desert, should be borne in mind. The number
of seamen who have entered the country in violation of law shows
an increase of 10,155 over l^ast year, and the question of how to deal
with this subject so as to conserve their rights but prevent violation
of the law is one that has received consideration during the year.
The follow-up system suggested above is intended as a measure to
apprehend all those who violate the law and apply to them the test
of the same. If found to be admissible, they are admitted; if not,
then their deportation follows. But what is more important is to
consider a constructive system that will conserve at all times the rights
of seamen and aid in carrying out the purpose of both of the laws
mentioned, thus securing assistance in building up the merchant
marine as well as in protecting the country from the introduction of
inadmissible and dangerous aliens and of people who are suffering
from contagious or dangerous diseases.
The transfer to the Department of Labor of so much of the organization
of the Navigation Bureau in the Department of Commerce as
exercises supervision of shipping commissioners would materially aid
in producing maximum administrative results in the enforcement of
the law. Among the many important duties devolving upon the
shipping commissioners, the signing on of seamen, a very essential
feature of their securing employment, is included—a circumstance
which in case of the suggested transfer would complete the system
under one responsible administration. The department now has the
authority through the Immigration Service to inspect all incoming
seamen, but outgoing seamen are not subject to its jurisdiction in
any way. The right to provide employment now possessed by the
shipping commissioners places within their authority the jurisdiction
over outgoing seamen. If these two duties could be merged under
one authority, the administration of all laws concerning seamen
would thereby be improved, with benefit to the Government as well
as to the individuals affected. As opportunites would be afforded
302 REPORTS OF DEPARTMENT OF LABOR.
for inspecting all incoming seamen, so there would be a record of all
outgoing, thus showing those who have not left the country. This
would allow the service to ascertain whether or not those who have
not gone are staying in the country awaiting an opportunity to
reship as permitted by immigration regulations, or whether they
intend to remain in violation of the law. Thus would be brought
about a complete enforcement of the law and regulations, which,
taken in connection with the follow-up system suggested in this
report, would at all times protect the rights of seamen who obey the
law but prevent violations thereof in an effective manner. At the
same time it would enable the Government to find those who are not
seamen but who endeavor to enter the Unfied States under the
pretense of being such when, in fact, they may be dangerous classes,
anarchistic or otherwise, who adopt this course to avoid liability
of detection if they come in in the usual wav.
Owing to tl e necessity existing to make clear the authority of the
Department of Labor to act in connection with seamen who have
been found suffering from contagious or dangerous diseases, a bj|l
has been introduced in Congress for the purpose of placing responsibility
on the owners of ships who bring seamen so affected into the
ports of the United States to pay for their treatment while here or
until they are legally discharged or reship foreign. The measure has
passed the House of Representatives and is now pending in the
Senate of the United States upon the favorable recommendation of
the Senate Committee on Immigration. The necessity for early
enactment of the bill, in order to remove all doubt upon the question
of authority and to settle conflicting opinions among some officers
in various branches of the Government service, has become a matter
of great importance.
IMMIGRATION FROM INSULAR UNITED STATES.
Records have been made covering the movement of aliens from the
insular territory and possessions to continental United States and
vice versa since 1908, and these have been incorporated in the bureau’s
annual reports since 1914. The statistical tables found in Appendix
I hereafter, numbered from XXIV to XXVII-a , present this information
in complete form, as to the entries of aliens from the mainland
and the insular possessions and as to entries as between the
respective possessions. During the past fiscal year 2,201 aliens have
been admitted to the mainland from insular territory, as follows:
1,004 from Hawaii, 891 from Porto Rico, 137 from the Philippines,
and 169 from the Virgin Islands of the United States. In the entire
period during which statistics have been kept of this class of travel,
a grand total of 31,339 aliens have come to the mainland from all
insular territory and possessions, of whom 20,315 came from Plawaii,
9,450 from Porto Rico, 1,154 from the Philippines, and 420 from
the Virgin Islands. It will be understood, of course, that these figures
do not include citizens of the islands themselves, who are not classed
as aliens within the meaning of the immigration laws.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 303
IMMIGRATION FROM CANADA.
The subjoined comparative tables show the increase to our population
from Canada during the fiscal year ended June 30, 1919, and
the ybar covered by this report, and the movement from the United
States to Canada for the same period.
1918-19.
From Canada to the United
States.
From the United States to
Canada.
Months.
1918.
July........................................................
August....................................................
September.............................................
October..................................................
November.............................................
December...............................................
1919.
January..................................................
February................................... ...........
March.....................................................
April.......................................................
May........................................................
June.......................................................
District No. 16......................................
Total............................................
United
States
citizens.
Canadian
citizens.
Other
aliens. Total.
1,222 2,189 654 4,065
1,183 2,433 628 4,244
1,194 3,006 650 4,850
1,409 2,631 603 4,643
1,463 2,636 845 4,944
1,710 3,654 2,255 7,619
1,144 3,622 1,213 5,979
1,267 3,449 1,699 6,415
1,306 4,301 1,764 7,371
1,825 6,121 2,932 10,878
1,636 4,953 2,391 8,980
1,571 5,115 2,513 9,199
5,511 ..1..1..1..,3..7..7 16,888
22,441 44,110 29,524 96,075
United
States
citizens.
Canadian
citizens.
Other
aliens. Total.
1,804 677 238 2,719
2,701 598 311 3,610
1,655 862 318 2,835
1,383 604 207 2,194
1,193 436 167 1,796
1,518 539 169 2,226
1,362 507 216 2,085
1,800 576 265 2,641
4,686 1,188 594 6,468
5,458 1,474 592 7,524
3,277 1,441 480 5,198
3,386 863 458 4,707
30,223 9,765 4,015 44,003
1919.
July............................
August........................
September.................
October......................
November..................
December...................
1920.
January......................
February...................
March.........................
April...........................
May............................
June............................
District No. 16...........
Total................
1919-20.
1,263
1,228
5,840
6,213
2,653
2,164
9,756
9,605
3,404
4,007
693
786
353
356
4,450
5,149
1,328 7,049 2,320 10,697 3,760 718 374 4,852
1,176 6,448 1,821 9,445 2,996 740 333 4,069
1,231 6,290 2,363 9,884 2,031 544 197 2,772
829 6,001 2,212 9,042 1,550 405 194 2,149
441 4,199 2,050 6,690 1,233 306 126 1,665
636 3,978 1,645 6,259 1,456 323 172 1,951
715 5,408 1,647 7,770 4,070 635 465 5,170
1,073 7,856 1,807 10,736 4,738 1,022 564 6,324
882 7,594 1,819 10,295 3,835 999 519 5,353
760
7,942
6,118 1,501
127,343
8,379
35,285
3,431 782 507 4,720
19,504 72,994 51,345 143,843 36,511 7,953 4,160 48,624
1 Includes both Canadian citizens and other aliens.
It will be noted that of the total entries from Canada, 19,504 were
returning United States citizens, and 124,339 were aliens, including
Canadian citizens, who sought entry for permanent settlement
purposes.
In a previous report it was predicted that the withdrawal of war
regulations and return of all overseas troops would witness the restoration
of prewar conditions with regard to aliens migrating to the United
States from Canada.
By comparison of the above tables with like tables of previous
years it will be found that the number of aliens migrating to the
United States from Canada during the year ending June 30, 1920,
greatly exceeded the number registered during any previous year in
the history of the service.
304 REPORTS OF DEPARTMENT OF LABOR.
The high wage rates prevailing in the United States during the
year have naturally been a strong attraction to those in Canada who
were free to take advantage of our unusual industrial conditions,
and the comparatively heavy movement of aliens from the Dominion
bespeaks the added duties which our border officers have been called
upon to perform in caring for this exceptionally augmented traffic.
As indicated, the tables given above have reference only to the
number of aliens admitted from Canada.
In addition, there were 19,336 other aliens, or 15.5 per cent of the
total number applying for admission from Canada who were debarred,
and 5,328 who were refused examination because of inability
or unwillingness to meet the head-tax requirements.
It will be understood, of course, that the figures given in the tables
above do not include immigration of the overseas class who entered
the United States via Canadian seaports, which did not attain prewar
proportions during the year past, but reports from the bureau’s
field officers indicate that growth in arrivals of this class has been
steady during the year and shipping circles aver that the lack of
tonnage alone is the one drawback to a return of prewar conditions.
IMMIGRATION FROM MEXICO.
Immigration from Mexico has nearly doubled in the year just
closed, a total of 58,974 aliens having been admitted from that country,
composed of 52,361 immigrant aliens and 6,613 of the nonimmigrant
class, while in the fiscal year ended June 30, 1919, the number
of admissions from Mexico was 39,601, of whom 29,818 were immigrant
and 9,783 nonimmigrant aliens. This great increase in regular
immigration, in connection with the enforcement of the travel-control
regulations heretofore referred to, the handling of the 21,289 Mexican
agricultural laborers admitted temporarily under departmental exceptions
to certain provisions of section 3 of the immigration act,
and the endeavor to prevent surreptitious entries of inadmissible
aliens, has resulted in a severe tax upon the energies of the reduced
force which has been available this year for service in the Mexican
border district, and it has been only by the most unremitting devotion
to duty that the results recorded have been attained.
The Mexican border, since it offers perhaps the most favorable
opportunities for unlawful entry of aliens, particularly of those
whose residence in the United States is proscribed by our laws, is a
section of the bureau’s jurisdiction that requires the most careful
guarding, not only at the constituted ports of entry but throughout
the territory between, in order to frustrate attempts at illegal entry.
Recommendations elsewhere made for an augmented inspection and
patrol force, as well as a follow-up system to investigate the activities
of aliens within the country, have in view among other needs, the
requirements of the southern border district in these particulars.
SMUGGLING AND SURREPTITIOUS ENTRY OF ALIENS.
An inspection of the annual reports of the bureau since 1914 will
indicate the anxiety that has existed for effecting an organization in
the field as well as at headquarters for the prevention of smuggling
and illegal entrance of aliens.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 305
As the district officers were engaged in the various and everchanging
duties involving immigration matters, it was thought that
some special organization, intended to cooperate with such officers
and to produce coordination between the various districts in the prevention
of smuggling and illegal entry of aliens—also in their apprehension
and prosecution where such was provided by law, or deportation
as the case might be—would be undertaken. An organization
was established for that purpose and has since continued, with the
result as noted in the annual reports. The history of its work the
last fiscal year follows along the usual lines, considering the force
available, which has rendered efficient service. During the last fiscal
year 54 prosecutions were instituted against persons found engaged
in smuggling aliens into the United States, in which 48 persons were
arrested, 36 convicted, 7 acquitted, 15 awaiting trial, and 6 are fugitives
from justice. The total number of such proceedings since the
inauguration of this branch of the service in 1914 amounts to 470.
These prosecutions and the figures mentioned do not take into account
the number of arrests of aliens who attempted illegal entry
and who were apprehended and deported. The statistics elsewhere
presented (Table XVIII) set forth the activities of the bureau in this*
connection.
During the year the respective committees on immigration of
Congress have given considerable attention to the question of smuggling
as well as illegal and surreptitious entry of aliens, and effective
legislation on the subject is contemplated by the proposals pending
before them. The bureau has supplied all the information in its
possession in aid of the movement. The experience of the bureau
has demonstrated that to prevent illegal entries and stop smuggling
the Government should be fully prepared at all points, and should
be ready to anticipate new plans of smugglers as developed. As
indicated in this report in considering other necessities therefor, a
follow-up system is an absolute necessity, not only in guarding
against smuggling and unlawful entry but after illegal admission has
been gained. Without it the illegal entrant is apparently in little
danger after entrance. Its establishment would also act as a deterrent,
as many would not assume the risk of entering if they felt that
their apprehension was reasonably certain.
It is recommended, in order to meet the situation effectively, that
illegal entry of aliens be made an offense punishable by imprisonment,
followed by deportation. At the present time only those who
smuggle or conspire to smuggle such entrants into the country are
subject to prosecution. Such a law would not only aid the prosecution
and punishment of persons who enter contrary to law but also
would be of material assistance as a deterrent.
The bureau further recommends, in the effort to provide an efficient
system for the prevention of smuggling and surreptitious entry of
aliens, that the limitation of five years in which proceedings must
be commenced for deportation, applicable to many classes of aliens
who are in the country illegally, and of three years to such as
enter without inspection, be removed entirely by proper amendment
to existing law. Under existing conditions, once an alien illegally
enters or avoids inspection and the claim is made that the period
within which proceedings should be commenced has expired, the
15283—la b 1920-----20
306 REPORTS OF DEPARTMENT OF LABOR.
Government is placed at a disadvantage, as in a very large majority
of cases it would be in no position to make any refutation.
The immensity of the task to prevent smuggling and illegal
entry—involving as it does guarding the coast lines east, west, and
south and extensive land boundaries north and south, and searching
for violators of the law within the country—-is apparent, and
in the absence of a sufficient force at the boundaries and in the interior
to prevent illegal entrance and apprehend violators, it has become a
difficult undertaking to maintain such defensive measures as will
even partially stop operations of this character. The service, to be
effective, must be continuous. Cessation of work, even for a brief
period, means resumption of smuggling and illegal entries, as those
engaging in such activities are constantly on the alert to gain advantage
of the law. Conviction after conviction has not cured the
evil so far as the smugglers are concerned, and in spite of fines and
imprisonment they continue to aid in the illegal entry of aliens who,
because they fear inability to meet the law’s requirements, or for
other reasons, do not desire to make application for admission at
immigration offices. With the increase of immigration and the
•existing conditions in countries devastated by war, an increase in
the efforts to gain admission without compliance with law can be
confidently expected. Accordingly, what is needed is not only a
strong border and coast guard, but also a thorough follow-up system
acting in conjunction therewith, with officers in the various cities,
which will make the interior unsafe for those who have succeeded in
illegally crossing the boundaries. Prevention of illegal entrance has
always been one of the great problems of the Immigration Service,
and as our immigration laws have become more rigid, effective control
has been increasingly difficult.
ADMINISTRATIVE FINES.
Administrative fines have been assessed against transportation
companies or the masters, owners, or agents of vessels entering
American seaports in the sum of 8154,210, transportation agencies
conveying passengers across the land boundaries being exempted
under the law from liability to such penalties. The largest item
under this heading results from the operation of those provisions
of the immigration act relating to the control of alien seamen,
874,820 of the amount above stated representing fines imposed by
reason of the failure of the responsible officers of vessels arriving from
foreign ports to present crew lists, complete or in proper form, or
for negligence in reporting changes in the personnel of crews before
departure of the vessel. Penalties amounting to 852,800 were imposed
on account of the bringing of illiterate aliens, and 81,600
for bringing natives of the barred Asiatic zone. Other causes are
set forth in the appended tabular statement, as well as the amounts
and nature of the penalties incurred at the respective seaports.
The foregoing figures represent only fines which have been collected
and covered into the Treasury within the period covered by this
report, and do not include cases of this character pending before the
department for final decision at the close of the fiscal year, or cases
wherein the period of 60 days allowed by law for answer to formal
notification of liability to fine has not yet expired.
■REPORT OP COMMISSIONER GENERAL OF IMMIGRATION. 307
In the preceding year the total amount of administrative fines
assessed and collected was $58,055, and inasmuch as all cases wherein
the imposition of such fines is a question that must be handled by the
department and the bureau, the increasing volume of this work is
a factor considered in estimating for the clerical and supervisory
help required for the coming year.
Administrative fines assessed against transportation lines.
SUMMARY BY CAUSES.
----------------—— ——-—---- —----------------- -------------------------------
Ports. Section.
Num.
her assessed.
Amount
of fine.
Total
amount,
assessed.
Cause of assessment.
New York............ 9 209 $200 $41,800 Bringing alien unable to read.
14 484 10 4,840 Improper manifesting.
18 16 300 4,800 Failure to guard, detain and deport alien.
36 3,756 10 37,560 Failure to furnish crew list.
Boston.................. 9 19 200 3,800 Bringing alien unable to read.
9 1 200 200 Bringing alien afflicted with mental defect.
14 32 10 320 Failure to furnish manifest.
18 1 300 300 Failure to detain and deport alien.
35 3 50 150 Bringing diseased alien seaman.
36 100 10 1,000 Failure to furnish crew list.
Philadelphia........ 9 7 200 1,400 Bringing alien unable to read.
14 32 10 320 Improper manifesting.
20 2 300 600 Failure to detain and deport alien.
36 149 10 1,490 Failure to furnish crew list.
Baltimore............. 14 1 10 10 Failure to furnish manifest.
18 1 300 300 Failure to detain and deport alien.
36 824 10 8,240 Failure to furnish crew list.
Norfolk................. 18
20
11
300
300
300
300
Failure to detain and deport alien.
Do.
36 951 10 9,510 Failure to furnish crew list.
Jacksonville......... 9 6 200 1,200 Bringing alien unable to read.
9 1 50 50 Bringing alien afflicted with physical defect.
14 63 10 630 Failure to furnish manifest.
18 3 300 900 Failure to detain and deport alien.
36 171 10 1,710 Failure to furnish crew list.
New Orleans........ • 9 10 200 2,000 Bringing alien unable to read.
14 178 10 1,780 Failure to furnish manifest.
18 1 300 300 Failure to detain and deport alien.
35 2 50 100 Bringing diseased alien s*eaman.
36 1,344 10 13,440 Failure to furnish crew list.
Galveston....... 14 9 10 90 Failure to furnish manifest.
18 1 300 300 Failure to detain and deport alien.
36 34 10 340 Failure to furnish crew list.
San Juan.............. 9 2 200 400 Bringing alien unable to read.
14 42 10 420 Failure to furnish manifest.
36 26 10 260 Failure to furnish crew list.
San Francisco.... 9 8 200 1,600 Bringing alien unable to read.
9 4 200 800 Bringing alien afflicted with loathsome or dangerous
contagious disease.
9 4 200 800 Bringing alien native of proscribed zone.
14 337 10 3,370 Failure to furnish manifest.
18 6 300 1,800 Failure to detain and deport alien.
36 5 10 50 Failure to furnish crew list.
Seattle................. 9 1 200 200 Bringing alien unable to read.
9 4 25 100 Bringing alien afflicted with physical defect.
9 4 200 800 Bringing alien native of proscribed zone.
18 1 300 300 Failure to detain and deport alien.
35 8 50 400 Bringing diseased alien seaman.
Southern Califor-
36 64 10 640 Failure to furnish crew list.
36 51 10 510 Do.
nia ports.
Ketchikan......... 14 1 10 10 Failure to furnish manifest.
Honolulu............
36 7 10 70 Failure to furnish crew list.
9 5 200 1,000 Bringing alien afflicted with dangerous conta-
Canadian seaports
gious disease.
9 2 200 400 Bringing alien unable to read.
Total...........
9 1
9,038
200 200
154,210
Bringing alien afflicted with mental defect.
•—■------------- - ____________________________________ ______
See. 9. Bringingilliterate alien passengers............................................................................................... $52,800
Bringing diseased, defective, or otherwise inadmissible aliens as passengers........................ 3,950
Sec. 35. Bringing diseased, defective, or otherwise inadmissible aliens as members of crews.......... 650
Sec. 14. Failure to furnish statutory information as to alien passengers............................................ 11,790
Sec. 36. Failure to furnish statutory information as to alien members of crews................................ 74,820
Secs. 18 and 20. Failure to detain and deport excluded aliens, etc............... . ..................................... 10,200
rp°tal.............................................................................................................................................. 154,210
308 REPORTS OF DEPARTMENT OF LABOR.
IMMIGRATION STATIONS.
The new immigration building at Boston has been occupied
during the fiscal year for office purposes, enabling the service at
that port to vacate the former insanitary and dangerous quarters
on Long Wharf, occupied for many years previously. Conditions
beyond the control of the bureau have prevented the completion
of the new building along the lines originally contemplated, but
it is constructed in such a manner as to permit of additions according
to plans. Until such additions are made it will be necessary
to continue the inspection work at the respective steamship
docks, and with increasing immigration this will entail more or less
inconvenience and delay.
The Ellis Island Station has been completely reopened for inspection
purposes and the force employed in maintenance and guarding
\ has been restored to prewar strength to meet the demands of constantly
growing alien travel, already taxing the accommodations
and equipment of the station.
The hospitals have been placed in the charge of the Public Health
Service for operation as a regular hospital of that service, under an
agreement that all alien patients committed to it by the Immigration
Service shall receive precedence as regards admission to the
hospital over the regular beneficiaries of the Public Health Service
under existing law, including American seamen, etc. This arrangement
since its inauguration in September last has proved entirely
satisfactory and its continuance is intended.
Owing to lack of funds during the past year many urgently needed
repairs to the station buildings have had to be deferred, the amounts
necessarily expended for supplies, chief among which items are coal
and fresh water, having practically exhausted the available appropriation
for this purpose. A particularly urgent matter is renewal
of deteriorated piping in the heating and hot-water system, which
is liable to cause an accident at any time and interfere with the
operation of the station.
Satisfactory progress has been made in the construction of additions
to the new sea wall which was made the subject of an extended
reference and description in last year’s report.
The following improvements have been authorized by Congress, and
their installation will be proceeded with during the coming year:
Feed-water heater, including installation and incidental work, $12,000.
New salt-water suction line and traveling screen, with complete equipment, $12,000.
Boiler feed pump, including installation and connections, $5,500.
Dredging of channel approaches to Ellis Island, $10,000.
Fresh-water storage tank, with necessary foundations and connections, $15,000.
New service pumps for water supply, including installation, $11,000.
The following item is, included in the estimates for appropriations
for the fiscal year 1921:
Additional story on kitchen and laundry building at Ellis Island for detention and
dormitory quarters for cabin passengers, $200,000.
The necessity for this is obvious in view of the fact that there are
at present no suitable accommodations at the station for cabin passengers,
and it is believed that quarters at least equal to those given
on board ship should be provided. The building in question is 175
feet in length, its greatest width is 100 feet, its minimum width is
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 309
56 feet, and the proposed new story would provide about 200,000
cubic feet of space for the purposes intended. This need has been
presented to Congress several times, and it is earnestly hoped that it
may be authorized during the coming session.
With the increase in immigration already noticeable and the assurance
that, unless restrained by the action of foreign Governments or
by legislation on the part of our Government, it will continue for many
years to come, it becomes apparent that, notwithstanding the immensity
of the structures at Ellis Island and the space therein provided for
the service to function and for the care, feeding, and hospital and medical
treatment of inmates, it will not be long before the facilities now
afforded will be insufficient to meet the demand. As much time will
necessarily expire before the completion of any proposed addition, it
is advisable to consider at an early date what should be done to meet
the approaching necessities. In case immigration should increase at
such a rate as to exceed the existing accommodations, the care thereof
will not only become a serious problem, but will involve great expenditure
if provision must be made therefor at some place other than
at the present station—the overhead expense alone would practically
double. The bureau is of the opinion that a large building
equipped for dormitory purposes (in addition to the quarters for cabin
passengers recommended above) is an urgent requirement of the station.
It is not now prepared to state the cost or extent of the building
required, but it calls attention to the matter for the purpose of securing
early consideration thereof. Plans are being prepared for submission
at an early date.
Under the act of June 5, 1920, the unexpended balance in the appropriation
for the construction of the Philadelphia Immigration Station
at Gloucester City, N. J., was made available for the remodeling of the
detention house and administration building. The balance amounts
to about $50,000, and the necessary work on the buildings is now
under way, including a remodeling of the plumbing and sanitary
equipment.
Estimates are being submitted for the construction of a laundry and
fumigation building of terra-cotta hollow-tile structure to cost, with
incidental work and equipment, $26,000. This addition to the
Philadelphia station is highly desirable from a sanitary viewpoint,
as adequate facilities for fumigation and laundry purposes are not
now available.
The new immigration station at Baltimore, adjoining the Fort
McHenry reservation, has been in use by the Army as a general hospital,
but the bureau has been advised that the buildings and plant
would be returned to the control of the Immigration Service on July
1, 1920, and preparations are under way for assuming custody of the
station on that date. Arrangements have been concluded whereby
the hospital will be taken over by the Public Health Service and diseased
alien passengers or seamen treated therein under arrangements
similar to those in force at the Ellis Island hospitals, the administration
bulding being also utilized by the same service. This, it is
believed, will be of material assistance, particularly in the care of
seamen afflicted with contagious diseases. The offices of the district
headquarters at Baltimore will continue in the Stewart Building until
such time as it becomes practicable to take possession of the new
immigration station.
310 REPORTS OF DEPARTMENT OF LABOR.
The Charleston station building, which has never been used for
immigration purposes and which was loaned to the Navy Departme
during the war, has under authority conferred by Congress some time
ago been rented for commercial purposes, with appropriate reservations
to insure its being available again for governmental uses if
needed.
The New Orleans station has been in active operation throughout
the year and the buildings and grounds have been maintained in satisfactory
condition. Certain needed improvements have been made in
the heating plant at small expense, resulting in a considerable saving
in coal during the past winter. Authority has been granted for a
change from coal to oil fuel, but the necessary alterations in the installation
have been deferred for the present owing to the increased price
of oil.
The Galveston station, a frame structure located on Pelican Spit,
Galveston Harbor, is not now used for immigration purposes, having
been turned over to the Coast Guard, and is still occupied by that
service. A portion of the building, however, is retained for storage
of furniture and equipment not now needed. The district headquarters
is now satisfactorily established in a commercial office
building.
The Angel Island station, in the Harbor of San Francisco, has been
the subject of criticism by reason of the nonfireproof character of the
buildings. The bureau has for some years urged the abandonment of
the station and the securing of a suitable site on the mainland and
erection of such buildings thereon as will enable the service to perform
its functions without the great loss of time now caused by reason of
the distance from the city, which requires the operation of a ferry
service at great expense.
All of the buildings at Angel Island are of frame construction
throughout, excepting only the power house, which is of concrete, but
(in the older portion) has wooden trusses supporting the roof, which
is also of wooden construction. The principal structures are: The
main administration building, the detention barracks, the small hospital,
and power house, and in addition there are 12 small cottages for
employees and a two-story stable building. There is no room on the
reservation for the construction of additional buildings, and the only
means of increasing the area would be to build a sea wall and fill in
the cove in front of the present buildings, which would probably cost
over $200,000 under existing conditions.
Aside from the ever-present danger of fire, which is obvious in a
series of frame buildings grouped in close proximity, as are those at
Angel Island, the present hospital facilities are considerably below
the requirements, and the detention barracks are generally overcrowded.
No detention quarters are available for European aliens,
except a limited space in the main building which has been used as a
makeshift for that purpose; space is lacking also for the handling of
the expected increase of European and other immigration through
the port of San Francisco. It has been estimated that expenditures
of more than $500,000 would be necessary to provide the additional
facilities needed at Angel Island, but this would in no way alleviate
the existing fire risk nor provide adequate hospital accommodations
in lieu of those now in use, which, as stated, are insufficient.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 311
The estimate for the construction of a station on the mainland upon
a site to be designated by the War Department, which was presented
to Congress last and previous years, is again submitted, the cost of the
proposed buildings, including furnishings and equipment, being
$1,000,000. The bureau expresses the earnest hope that the necessary
legislation will be passed by Congress during the coming year
so that construction of the new quarters may be commenced at the
earliest possible date.
A similar station should be provided at like cost at Seattle, where
accommodations in Government buildings are not now available to
the Immigration Service. The present quarters are held at a rental
of $11,000 per linnum, and demand for an increase up to $21,000
has been made by the proprietors.
Seattle, like San Francisco, should be provided with a station
composed of administration and detention buildings, with a hospital
separated therefrom. Sufficient ground should be provided to afford
space for use of the inmates Qf the hospital and detention section.
The inspector in charge of the Immigration Service at Honolulu
reports continued deterioration of the wooden station building at
that port, to which no repairs have been made other than emergency
work performed by the laborers employed by the service. The
timbers of the building, as well as the pile foundations, are being
destroyed by tropical ants, and complete replacement of the structure
will .be necessary. Consideration of the requirements of the
new station should be undertaken at an early date.
LAND BORDER IMMIGRATION STATIONS.
Transportation companies bringing alien passengers to ports on
the Canadian border are required by law to provide at their expense
suitable buildings for examination and detention of passengers also
for office purposes, and with a few exceptions modern and satisfactory
quarters have been provided at all such stations. Rented
offices are occupied by the headquarters force at Montreal, while at
the Canadian seaports accommodations are allowed our service in
the immigration stations owned by the Canadian Government.
The situation as regards immigration offices and detention stations
on the Mexican border is still unsatisfactory, the service there
occupying rented buildings that are as a general proposition inadequate
and not suited to the work. A comprehensive scheme of
building which will result in the Government’s owning its immigration
stations at all the important ports of entry from Mexico
appears to be the only feasible solution of the question.
It is understood that since the last report the matter of title to
ground where the station should be located at El Paso has assumed
a satisfactory status.
Administration and detention buildings, with hospital facilities
either therein or in a separate structure, the latter preferable, and
sufficient space for use of inmates are needed, and appropriation for
the acquisition of land and construction is earnestly recommended.
For reasons assigned in considering the necessities of El Paso, in
this particular similar buildings are required at Laredo, and recommendation
is made for necessary appropriation to construct the same.
312 REPORTS OF DEPARTMENT OF LABOR.
ANARCHIST, COMMUNIST, AND KINDRED CLASSES.
The activities for the last 12 months in this line of work have
been greater than all previous efforts in this direction. The passage
of the act of October 16, 1918, making more effective the then existing
law, followed violations thereof by anarchistic elements in various
parts of the country. Congress in its desire to curb this element
granted special appropriations to the Department of Justice, while
the Department of Labor, empowered by law to take up the question
of arrest and deportation of such as w*ere found to be aliens, continued
its work under such authority notwithstanding the financial
limitations under which it was laboring. The wbrk previously
initiated continued with increased interest and, under special organization,
made effective progress.
At the beginning of the fiscal year conferences were held with the
Department of Justice, at which plans for cooperating in the respective
duties of the two departments w'ere agreed upon, as shown
by the record. Arrests followed in the months of November and
December, principally of members of the Union of Russian Workers,
against whom some 600 warrants had been issued, from and after
November 5 last, 452 being taken into custody and accorded hearings.
Of these, orders for the deportation to Russia of 246 were finally
entered.
A new difficulty presented itself in the inability to deport to Soviet
Russia, as the United States had not accorded recognition to that
country. After much effort, encouraged to some extent by the fact
that an alleged representative of that Government had given publicity
to the statement that certain aliens of these classes who were
under proceedings of deportation would be welcomed, arrangements
were made for the deportation to Russia of such as could be assembled
on the Army transport Buford, furnished through the cooperation
of the Department of State and the Transportation Service of
the United States Army. This first party deported consisted of
199 members of said Union of Russian Workers, to which were added
43 other Russian aliens whose deportation had already been directed
on anarchistic and kindred charges, including the notorious Emma
Goldman and Alexander Berkman, making 242 against whom proceedings
under the anarchist laws had been initiated. These, with 7 other
Russian aliens likewise under order of deportation on other charges
under the immigration laws, constituted the party of 249 which
embarked on the Buford, sailing from New York on the morning of
December 21, 1919, arriving at Hango, Finland, January 17, 1920,
on which date the aliens were transferred to the care of the American
vice consul at that port, whence they were conveyed under escort
furnished by the military authorities of Finland to the frontier of
Soviet Russia, over which, they passed on January 19. The party
was in charge of F. W. Berkshire, supervising inspector in charge of
the Immigration Service on the Mexican border, and appropriate
steps were taken to provide for the comfort of the aliens thus returned,
including the furnishing of proper clothing for those in need
thereof, suitable food on the way, and a supply of five days’ rations
after arrival at their destination.
While these events were in progress, the Communist and Communist
Labor Parties became active. In the neighborhood of 5,000 warre
por t of commis sion er ge ne ral of immig rati on . 313
rants of arrest, based on the act of October 16,1918, were issued from
and after December 29, 1920. Service of approximately 3,000 such
warrants was effected and hearings held by officers of the Immigration
Service at Boston, Mass.; Hartford, Conn.; Ellis Island, Buffalo,
and Rochester, N. Y.; Philadelphia and Pittsburgh, Pa.; Cleveland,
Youngstown, and Toledo, Ohio, Baltimore,. Md., Indianapolis, Ind.,
Chicago, Ill., Detroit, Mich., Milwaukee, Wis., Minneapolis, Minn.,
and in smaller numbers at practically all of the remaining cities on
the mainland at which immigration officers are stationed. The
question arising whether membership in the Communist Party of
America constituted a violation of section 1 of said act, the matter
was submitted to the Secretary, who, after due consideration, ruled
on January 24, 1920, that such membership came within the purview
of said section. On the other hand, the Communist Labor
Party was found by the ruling of the Secretary of May 5, 1920, not
to be such an organization as to bring it within the scope of the act,
for the reason that force or violence as a means of attaining its ends
was not shown to be advocated by its platform and labor program.
Of the total number arrested about 300 belonged to the latter party,
and warrants of arrest in these cases in due course have been canceled.
As a result of the proceedings mentioned, the department has
directed the deportation of 556 aliens, a large majority of whom are
Russians, while warrants of arrest in such proceedings have been
canceled.in 2,202 cases.
Since January 1 warrants of deportation have likewise been issued
by the department with respect to 37 other aliens (in addition to
those already referred to as having been ordered deported in December
last) held under anarchistic or related charges, some of which
cases were pending from the previous fiscal year. On the date of
this report there are outstanding warrants of deportation for 591
aliens, practically all, as heretofore stated, to Soviet Russia.
The bureau has made consistent and persistent efforts extending
over many months to bring about arrangements for the transportation
to Soviet Russia of the aliens whose deportation thither has
been directed. Negotiations are. now in progress along several
different lines looking to the solution of this question, the existence
of which is due to the disorganized political conditions. in Soviet
Russia and in the newly organized States lying between it and the
western nations. Of course, the nonrecognition of Soviet Russia
continues to be the stumbling block to deportation, and, unlike the
first effort, no signs of encouragement have been visible, but information
supposedly authoritative indicated the futility of attempting
to transport to the borders of Soviet Russia under great expense
aliens ordered deported there, as above set forth. Deportations of
this class to other countries have progressecl from time to time, so
that including the number deported to Soviet Russia on the S. S.
Buford, 314 have been removed from the country during the year,
33 of whom were of the communist class. The necessity of detaining
the large number of aliens taken into custody in December of last
year and January and succeeding months of this until released under
adequate bonds, together with the vast amount of clerical and administrative
work involved both in the bureau and in the field, placed
314 REPORTS OF DEPARTMENT OF LABOR.
an unusual and extensive volume of labor as well as great responsibility
on an already overtaxed service. Congress came to the aid of
the department by granting a substantial special appropriation to
meet the extraordinary expenses incident to this work.
In the concluding month of the fiscal year Congress, by the act of
June 5, 1920, amended in several important particulars the law of
October 16, 1918, and for convenience of reference the amended act
is here quoted:
Be it enacted by the Senate and House of Representatives of the United States of America
in Congress assembled, That section 1 of the act entitled “An act to exclude and expel
from the United States aliens who are members of the anarchistic and similar classes,”
approved October 16, 1918, is amended to read as follows:
That the following aliens shall be excluded from admission into the United States:
(a) Aliens who are anarchists;
(&) Aliens who advise, advocate, or teach, or who are members of or affiliated with
any organization, association, society, or group, that advises, advocates, or teaches,
opposition to all organized government;
(r) Aliens who believe in, advise,, advocate, or teach, or who are members of or
affiliated with any organization, association, society, or group, that believes in, advises,
advocates, or teaches: (1) The overthrow by force or violence of the Government of the
United States or of all forms of law, or (2) the duty, necessity, or propriety of the unlawful
assaulting or killing of any officer or officers (either of specific individuals or of
officers generally) of the Government of the United States or of any other organized
government, because of his or their official character, or (3) the unlawful damage,
injury, or destruction of property, or (4) sabotage;
(d) Aliens who write, publish, or cause to be written or published, or who knowingly
circulate, distribute, print, or display, or knowingly cause to be circulated,
distributed, printed, published, or displayed, or who knowingly have in their possession
for the purpose of circulation, distribution, publication, or display, any written
or printed matter, advising, advocating, or teaching opposition to all organized government,
or advising, advocating, or teaching: (1) The overthrow by force or violence
of the Government of the United States or of all forms of law. or (2) the duty, necessity,
or propriety of the unlawful assaulting or killing of any officer or officers (either of
specific individuals or of officers generally) of the Government of the United States
or of any other organized government, or (3) the unlawful damage, injury, or destruction
of property, or (4) sabotage;
(e) Aliens who are members of or affiliated with any organization, association,
society, or group, that writes, circulates, distributes, prints, publishes, or displays, or
causes to.be written, circulated, distributed, printed, published, or displayed, or
that has in its possession for the purpose of circulation, distribution, publication,
issue, or display, any written or printed matter of the character described in subdivision
(d).
For the purpose of this section: (1) The giving, loaning or promising of money or any
thing of value to be used for the advising, advocacy, or teaching of any doctrine above
enumerated shall constitute the advising, advocacy, or teaching of such doctrine;
and (2) the giving, loaning, or promising of money or any thing of value to any organization,
association, society, or group of the character above described shall constitute
affiliation therewith; but nothing in this paragraph shall be taken as an exclusive
definition of advising, advocacy, teaching, or affiliation.
It is noteworthy that, while the law with respect to aliens of the
so-called “anarchistic” classes has been materially strengthened by
the new legislation, in that there has been a number of additions to
the sum total of the classes subject to exclusion and explusion, it has
removed from the deportable classes, as contained in the amended
act (Oct. 16, 1918), the following three classes, viz: (1) Aliens who
disbelieve in all organized government; (2) aliens who are members
of or affiliated with any organization that entertains or teaches
disbelief in all organized government; and (3) aliens who are opposed
to all organized government. As aliens who are anarchists necessarily
disbelieve in government of any and all kinds, it follows that the
omission of the first class is of no importance. The omission of the
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 315
remaining two classes lias weakened the law to the extent that aliens
who are members of an organization of the character mentioned can
not be reached merely on the ground of such membership.
IMMIGRATION AND EMIGRATION IN 1920.
The statistical tables in Appendix I, as indicated by the complete
table of contents which precedes them, show in much detail immigration
to and emigration from the United States during the fiscal
year ending June 30, 1920, and as they represent the first fiscal year
since the beginning of the World War in which there has been anything
like a normal movement from or to any part of Europe, the
figures afford not only a basis for interesting comparisons with previous
years, but also more or less reliable grounds for speculation as
to what may be expected in the future.
Continuing a long established practice of the bureau incoming and
outgoing aliens are each divided into two classes, namely, immigrant
and nonimmigrant aliens, and emigrant and nonemigrant aliens. In
the compilation of statistics under this classification the following rule
is observed: Arriving aliens whose permanent domicile has been outside
the United States who intend to remain permanently in the
United States are classed as immigrant aliens; departing aliens
whose permanent residence has been in the United States who intend
to reside permanently abroad are classed as emigrant aliens;
all alien residents of the United States making a temporary trip
abroad and all aliens residing abroad making a temporary trip to the
United States are classed as nonemigrant aliens on the outward
journey and nonimmigrant aliens on the inward. An understanding
of this rule is necessary to a clear comprehension of the statistics.
In what follows some of the more important features of immigration
and emigration in the fiscal year 1920 are shown in comparison
with the inward and outward movements during five years preceding
the beginning of the war, and in some cases during the war period.
The first table shows the total immigration and emigration in each
fiscal year since 1910.
Total alien immigration and emigration, fiscal years 1910 to 1920.
Year.
Arrivals. Departures.
Excess of
immigra-
Immi- tion.
grant.
Nonimmigrant.
Total. Emigrant. Nonemigrant.
Total.
1910.............................. 1,041,570 156, 467 1,198,037 202,436 177,982 380,418 817,619
1911.............................. 878,587 151,713 1,030,300 295,666 222,549 518,215 512,085
1912.............................. 838,172 178,983 1,017,155 333, 262 282.030 615,292 401,863
1913.............................. 1,197, 892 229, 335 1,427,227 308,190 303,734 611,924 815,303
1914.............................. 1, 218, 480 184,601 1, 403,081 303,338 330,467 633, 805 769,276
1915.............................. 326, 700 107,544 434,244 204,074 180,100 384,174 50,070
1916.............................. 298, 826 67, 922 366,748 129,765 111,042 240, 807 125,941
1917.............................. 295, 403 67,474 362,877 66,277 80,102 146,379 216,498
1918.............................. 110,618 101,235 211,853 94,585 98,683 193,268 18,585
1919.............................. 141,132 95, 889 237,021 123, 522 92, 709 216,231 20,790
1920.............................. 430,001 191,575 621,576 288,315 139,747 428,062 193,514
While the foregoing figures need little comment it may be pointed
out that the total number admitted in 1920 was largely in excess of
the average annual admissions during the war, and more than two and
316 REPORTS OF DEPARTMENT OF LABOR.
one-half times as great as in the fiscal year 1919. During the five
years preceding the war the annual admissions of both classes averaged
1,155,160, and it is noteworthy that even with several of the
most important European sources of immigration still cut off and
ocean transportation facilities still far from normal the inward movement
should have been more than one-half as great in 1920 as during
the high-tide years 1910-1914.
It will be noted, however, that nonimmigrant aliens made up 30.8
per cent of the total admissions in 1920, as compared with only 14.8
per cent in the five years 1910-1914. As a matter of fact the actual
number of arrivals of this class in 1920 was greater than in any one
of the five prewar years mentioned except 1913.
Considering immigrant aliens alone it appears that 430,001 were
admitted in 1920, compared with 141,132 in 1919 and an annual
average of 1,034,940 in the five years 1910-1914. The number of
this class admitted was, therefore, 41.5 per cent as great as the annual
average during the five prewar years.
Turning to the statistics of emigration, it will be seen that the outgoing
tide in 1920 was proportionately much higher than during the
prewar period, this being especially true of the emigrant alien or
permanent class. The total outward movement, 428,062, was equal
to 68.9 per cent of the total admissions, while in 1910-1914 the total
outward movement was only 45.4 per cent as great as the incoming.
Among immigrant and emigrant aliens alone the latter in 1920 was
equal to 67.4 per cent of the former, compared with 27.9 per cent in
1910-1914.
Putting it in another way, the number departed per 100 admitted
of each class of aliens and of the total in the two periods under consideration,
was as follows:
1920 1910-1914
Number of emigrant aliens departed for 100 immigrant aliens admitted......................
Number of nonemigrant aliens departed for 100 nonimmigrant aliens admitted..........
Total number of aliens departed for 100 admitted............................................................
28
68
45
This shows clearly that while the proportion of departures to
admissions among the more transient classes of nonimmigrants and
nonemigrants did not differ greatly in 1920 and 1910-1914, there is a
very wide difference in this respect among the more permanent classes
of immigrants and emigrants in the two periods. Under normal conditions
this could doubtless be construed as an indication that a
remarkable and highly significant change had occurred in the alien
movement, but in view of existing conditions it is quite certain that
the relatively large outward movement can be explained by the eagerness
of aliens, whose departure had been deferred by war conditions,
to return to their former homes, coupled with the fact that the
facilities for leaving the United States, including financial ability,
were much more conducive to emigration than to immigration.
The return movement of aliens is no new thing, however, for between
1908, when official records of outgoing aliens begin, 36 left the country
for every 100 admitted, and records of the Transatlantic Passenger
Association show that in the 22 years, 1899-1910, as many as 37
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 317
steerage passengers were carried to Europe for every 100 brought to
the United States. The increased relative importance of the exodus
may possibly continue for several years, in which event it may
become an important factor in the immigration problem. In this
connection it will be seen that while in the five years, 1910-1914, the
indicated net increase of population by arrival and departure of
aliens was equal to approximately 55 per cent of the total number
admitted, in 1920 the increase of 193,514 shown in the table was only
about 31 per cent of the total admissions.
PORTS OF ARRIVAL.
The principal ports through which arriving aliens of both the
immigrant and nonimmigrant classes were admitted in 1920 and 1919,
and in 1914, the year immediately preceding the outbreak of the war,
were as follows:
Port. 1920 1919 1914 Port. 1920 1919 1914
New York.......................
Boston..............................
Philadelphia...................
Baltimore................... .
San Francisco..................
Seattle..............................
330,549
17,007
4,845
355
22,698
6,550
61,757
668
402
285
18,396
6,411
992,573
80,450
59,529
40,004
9,800
5,373
Canadian Atlantic ports.
Canadian border.............
Mexican border...............
Other ports.....................
Total......................
8,158
113,406
68,816
49,192
3,110
72,074
44,671
29,247
45,965
95,514
15,901
57,972
621,576 237,021 1,403,081
Owing to the partial revival of immigration from Europe the number
of aliens admitted at the port of New York increased from 55,254
in 1918 and 61,757 in 1919 to 330,549, or more than one-half of the
entire immigration in 1920; but this number, it will be noted, is
only about one-third as great as the number which passed through
that port in 1914. There was a revival of immigration also through
the ports of Boston and Philadelphia, and an increase in the number
admitted through Canadian Atlantic ports, but in every case they
were still far below their prewar status. Baltimore, therefore, is
the only important Atlantic port which did not share in the post-war
increase of European immigration, ‘and the number admitted there
in 1920 was less than 1 per cent of the number admitted in 1914.
The Pacific and border ports, with the exception of Seattle, show
large increases in 1920 over 1919 and 1914, this being especially true
of the Mexican border, where the admissions in 1920 were more than
four times as great as in 1914.
COUNTRIES OF ORIGIN AND DESTINATION.
As already explained, immigrant and emigrant aliens represent
the permanent as distinguished from the transient movement to and
from the United States and are the basis of immigration and emigration
in the common usage of those terms. Accordingly, in what
follows the discussion will chiefly relate to these two glasses.
Europe has always been the chief source of immigration to the
United States, and for nearly a century prior to the beginning of the
World War approximately 90 per cent of the total came from that
source. During the war, however, the percentage coming from
Europe fell to approximately 60 in 1915, 50 in 1916, 45 in 1917, 28
318 REPORTS OF DEPARTMENT OF LABOR.
in 1918, and 17 in 1919, but in 1920 it had increased to 57 per cent
of the total. But even before the revival of European immigration
the return movement, which also had been largely checked by the
war, began to increase, and in 1919, when only 24,674 immigrant aliens
came from Europe, 84,531 emigrant aliens returned there. The
movement from and to Europe and other parts of the world in the
fiscal year 1920 are shown in the following table:
1 Decrease.
Countries.
Immigrant
aliens
admitted.
Emigrant
aliens
departed.
Excess of
immigrant
aliens.
Europe....................................................................................................... 246,295 256,443 110,138
Asia........................................................................................................... 17;505 9,441 8', 064
British North America............................................................................. 90, 025 7,668 82,357
Mexico........................................................................................................ 52;361 6; 606 45; 755
Other.......................................................................................................... 23;815 8; 167 15;648
Total ............................................................................................... 430,001 288,315 141,686
It will be seen that emigration again exceeded immigration so far
as Europe is concerned, although not so overwhelmingly as in 1919.
The excess of emigration in 1920 was due to the large return movement
to eastern Europe, for in the case of every northwestern European
country except Germany immigration exceeded emigration,
as the following compilation shows:
Countries. Immigrant
aliens, 1920.
Emigrant
aliens ,1920.
Average
annual immigration,
1910-1914.
Belgium.............. ................................................................................ 6,574 1,846 5,690
Denmark .......................................................................................... 3; 137 1,477 6,694
France ...................................................................................... 8,945 4,477 8; 601
Germany .......................................................................................... 1,001 3,069 32,239
Netherlands ..................................................................................................... 5; 187 1,017 7,147
Norway ........................................................................................... 4,445 3,022 11,416
Sweden ........................................................................................ 5,862 3,109 17,843
Switzerland ....................................................................................................... 3,785 1,103 3,762
England................................................................................................ 27,871 8,099 43,753
Ireland...................................................................................-............. 9,591 3,735 27,482
Scotland................................................................................................ 9,347 1,488 15,678
"Wales .................................................... . ......................................... 1,253 141 2,274
The above figures seem to indicate that what might be termed the
staying qualities of northwestern European immigration have not
changed with the war, for the exodus was very small in spite of the
fact that for the first time in several years there were adequate
facilities for such aliens to return to their homelands. Germany,
of course, affords an exception; but technically at least, a state of
war still exists between the countries, and this makes impossible a
free movement of German citizens either to or from the United States.
The last table also affords an opportunity to compare immigration
in 1920 from the countries named, with the average annual immigration
in 1910-1914, and it is interesting to note that while, as a rule,
the normal prewar movement had not been resumed, it was slightly
exceeded in the case of Belgium, France, and Switzerland.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 319
Four other European countries also showed in 1920 an excess of
immigration over emigration, as follows:
Countries. Immigrant
aliens,1920.
Emigrant
aliens,1920. Countries. Immigrant
aliens,1920.
Emigrant
aliens,1920.
Italy...................................
Portugal............................
95,145
15,472
88,909
4,728
Spain..................................
Turkey in Europe............
18,821
1,933
3,841
1,812
With the single exception of Turkey, however, the number of emigrant
aliens going to eastern European countries was in excess, and
in some instances greatly in excess, of immigration from the same
countries. This is shown in the following table:
Countries.
Immigrant
aliens,
1920.
Emigrant
aliens,
1920.
Countries.
Immigrant
aliens,
1920.
Emigrant
aliens,
1920.
Austria................................ 268
84
90
3,426
756
11,981
2,274
14,233
3,587
11,147
1,473
20,314
Poland................................. 4,813
1,890
1,888
18,190
21,506
28,474
Hungary..............................
Bulgaria..............................
Czechoslovakia...................
Finland
Roumania..........................
Kingdom of the Serbs,
Croats, and Slovenes....
G reece................................. Total...........2.6..,.1..9..1...... 123,131
The number of emigrant aliens going to the countries named was
96,940 greater than the number of immigrant aliens received from
them, but in view of existing conditions in eastern Europe, this record
has little or no significance, any more than has the fact that approximately
the same territory now included in the countries named sent,
in round numbers, 583,000 immigrant aliens to the United States in
1914 compared with only 26,191 in 1920.
NEW EUROPEAN COUNTRIES.
The foregoing table also directs attention to the fact that changed
political boundaries in Europe have necessitated a revision of the list
of countries so long used in immigration statistics. The Republics
of Czechoslovakia, Finland, and Poland and the Kingdom of the
Serbs, Croats, and Slovenes appear as political entities for the first
time; the “Russian Empire and Finland” in previous reports is now
“Russia,” and the “German Empire” is changed to “Germany.”
Obviously, this disturbs the long unbroken continuity of our immigration
records by countries of origin, for not only are four new countries
added to the list, but their advent as political entities has so
changed the boundaries of other countries, that comparison of their
future contributions to immigration with contributions of the past
will be practically meaningless.
Three of the chief sources of immigration in the past which are
radically affected in this way are Austria, Hungary, and Russia. In
1914 nearly 135,000 immigrant aliens came from Austria, but these
included, in round numbers 49,000 Poles, 29,000 Ruthenians, 15,500
Croatians and Slovenians, 9,000 Bohemians and Moravians, and considerable
numbers of other peoples who, for the most part, are no
longer under Austrian rule. In a lesser degree the same is true of
Hungary, and through the newly achieved independence of Poland
and Finland, Russia has lost much important immigrant-furnishing
320 REPORTS OF DEPARTMENT OF LABOR.
domain, while territorial changes in the Balkans, Italy, and elsewhere
will also add to the difficulty of comparing past and future immigration
on the basis of country of origin.
This would be highly unfortunate from the standpoint of immigration
statistics were it not for the fact that since 1899 all records have
been kept by races or peoples, as well as by countries of origin, and
as this method is in nowise affected by changing political boundaries,
an unbroken record in this respect is assured,
RAGES OR PEOPLES.
It is usual in a discussion of immigration statistics to make comparisons
between two principal groups of European races or peoples,
namely, those indigenous to northern and western Europe, including
the Dutch and Flemish, English, French, German, Irish, Scandinavian,
Scotch, and Welsh, and those who come from the other or
southern and eastern countries. For many years prior to the outbreak
of the war the latter group of peoples made up by far the greater
part of our European immigration, and, in spite of the almost complete
cessation of the once great movement from Austria, Hungary,
Russia, and other eastern countries, they contributed 184,903
immigrant aliens in 1920, compared with 165,871 northwestern European
peoples. These figures, however, include immigrants coming
from Canada and other sources as well as from Europe. Of the
southern and eastern European peoples, 97,800, or more than one-half
of the entire number, were Italians, 93,069, of whom came from Italy.
Of the northern and western group 58,366 were English, of whom
5,044 came from Europe and 30,398 from British North America.
In the case of emigrant aliens southern and eastern Europeans were
much further in the lead with a total of 226,566, compared with only
41,532 among north and west Europeans. In other words, 12>2
emigrant aliens departed for every 100 immigrant aliens admitted
in the first named group, compared with only 25 departed per 100
admitted in the second.
Other races or peoples which contributed more than 10,000 each
to the year’s immigration were the following: Mexican, 51,042;
French, 27,390; Spanish, 23,594; Scotch, 21,180; Irish, 20,784;
Scandinavian, 16,621; Portuguese, 15,174; Hebrew, 14,292; Greek,
13,998; and Dutch and Flemish, 12,730.
French immigrants, as in the past, were largely of Canadian origin,
19,087 having come from British North America and only 6,445 from
France. A majority of the Scotch and Irish also came from British
North America, 11,756 of the former and 9,614 of the latter being
from that source compared with 9,094 Scotch and 10,963 Irish who
came from Europe. The Hebrews came from widely scattered countries,
the principal ones being Poland, 3,793, British North America
3,326, Roumania 1,304, United Kingdom 1,304, Turkey in Asia 829,
Turkey in Europe 490, and Russia 460.
SEX.
The proportion of females among immigrant aliens as a whole was
42.4 per cent of the total in 1920, compared with 33.5 per cent of the
total in the years 1910-1914. This increase is especially noted in the
case of certain European peoples among whom the proportion of
females was consistently low prior to the World War, as the following
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 321
-compilation, which includes all races or peoples having more than
10,000 immigrants in 1920, will show:
Race or people.
Per cent females.
Race or people.
Per cent females.
1920 1910-1914 1920 1910-1914
Dutch and Flemish................... 44.6 35.9 Italian (south).......................... 48.0 25.1
English........................................ 48.7 43.0 Mexican..................................... 33.3 36.6
French ...................................... 48.0 43.7 Portuguese... ............................. 27.1 35.8
Greek. . 20.2 9. 2 Scandinavian............................ 41.1 35.8
Hebrew........................................ 53.2 45.5 Scotch........................................ 47.9 43.2
Irish............................................. 50.8 48.1 Spanish...................................... 13.1 20.6
Italian (north)........................... 48.9 25.2
It will be seen that except in the cases of the Mexicans, Portuguese,
and Spanish the proportion of females was higher in 1920 than
m 1910-1914. But this fact has little or no real significance under
the circumstances unless possibly the very large increases among the
Greeks and Italians give a hint that the immigration of these peoples
in the future may be somewhat more permanent than in the past.
Experience has shown that a large proportion of women in any immiration
movement insures greater permanency of residence in the
United States, while one largely made up of men invariably results
in a correspondingly large emigration after a few years. This wellrecognized
stability of female immigration is illustrated by the fact
that only 17.9 per cent of the aliens who left the country in 1920 to
take up permanent residence elsewhere were of that sex, and that
practically the same proportion, 17.7 per cent, is found among emigrant
aliens in the five-year period 1910-1914. Therefore it may be
safely said that Greek and Italian immigration in 1920 represents a
far more permanent class than came before the war, but whether this
is not merely a temporary result of post-war conditions remains to be
determined by the experience of the next few years.
OCCUPATIONS OF IMMIGRANT ALIENS.
Tables in Appendix I show in much detail the occupations which
arriving immigrant aliens had followed in their homelands and those
which departing emigrant aliens had pursued in the United States.
The compilations which follow show the same data in condensed
form for the fiscal year 1920, and also for the five years 1910-1914.
The first table divides the occupations of immigrant aliens into
a fewr general classes:
15283—lab 1920-----21
Occupations
Occupations of immigrant aliens.
Number,
1920
Per cent of total.
1920 1910-1914
Professional ......................................................................... 12,442 2.9 1.2
Skilled .. ........................................................................................ 69,967
15,257
12,192
16.3 14.5
Farm laborers ...................................................................................... 3.5 24.3
Farmers .................................................................................................. 2.8 1.1
Laborers.................................................................................................... 81,732 19.0 18.4
Servants..................................................................................................... 37,197 8.7 11.7
Other occupations.................................................................................... 28,081 6.4 2.7
No occupation (including women and children).................................. 173,133 40.3 26.2
Total. ...................................................................................... 430,001 100.0 100.0
322 REPORTS OF DEPARTMENT OF LABOR.
Comparison of the above percentages for 1920 and 1910-1914
shows two outstanding differences between the occupational status
of immigrants in the two periods, first, that whereas in 1910-1914
24.3 per cent, or practically one-fourth, of all arrivals had been farm
laborers before coming to the United States, only 3.5 per cent were of
that status in 1920, and second, that the proportion of immigrants
having no occupation increased from 26.2 per cent of the total m the
earlier period to 40.3 per cent in 1920.
In the first instance the striking change is very largely accounted
for by the fact that eastern European immigration which was largely
made up of farm laborers was practically shut off during 1920,
and the increased proportion of those having no occupation is for
the most part due to the larger proportion of females coming in
1920, as already pointed out.
The occupational status of aliens leaving the United States for
permanent residence abroad in 1920 and 1910-1914 is shown in
the next table, and it will be observed that the proportions in the
various occupational groups differed but little in the two periods:
Occupations
Professional.............................................................
Skilled.....................................................................
Farm laborers.........................................................
Farmers...................................................................
Laborers..................................................................
Servants..................................................................
Other occupations.................................... . ...........
No occupation (including women and children).
Total..............................................................
Occupations of emigrant aliens.
Number,
1920
Per cent of total
1920 1910-1914
3,379 1.2 1.0
20,782 7.2 10.9
2,754 .9 1.5
11,262 3.9 2.5
183,820 63.8 58.3
5,802 2.0 4.5
12,075 4.2 6.3
48,441 16.8 14.9
288,315 100.0 100.0
ILLITERACY.
Of the 348,111 immigrant aliens under 16 years of age and over who
were admitted in the fiscal year 1920, 15,094, or 4.4 per cent of the
total, were not able to read or write, and were admitted. under various
exceptions to the literacy test provision of the immigration act of 1917.
There were 2,190 males and 12,904 females among the illiterates
admitted and the exceptions under which they gained entrance were,
to join relatives 14,741, to escape religious persecution 9, physical
defect 1, other causes 343. The fact that the literacy test is applicable
to aliens 16 years of age and over made it necessary for the
bureau to eliminate the formerly used group “under 14 years” from
the statistical records and substitute the group “under 16 years.”
For this reason earlier records of illiteracy among immigrants are not
quite comparable with those of the present, but it may be noted in
this connection that in the years 1910-1914, 25.3 per cent of the immigrant
aliens 14 years of age and over were unable to read or write.
These figures therefore afford at least an approximate indication of
the effect of the literacy test.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 323
FINANCIAL CONDITION OF IMMIGRANTS.
Immigrants applying for admission to the United States are not
requirea to state how much money they bring with them unless the
amount is under $50. but as a rule those having larger sums report
the amounts they possess to the examining officials. In 1920, 141,799
immigrant aliens out of a total of 276,049 showing money exhibited
less than $50 each. This was 51.4 per cent of the total number
showing money compared with 44.6 per cent in 1919 and 82.7 per
cent in 1910-1914. The average amount shown was $119 in 1920,
compared with $112 in 1919 and $44 in 1910-1914.
DESTINATIONS IN THE UNITED STATES.
The principal destinations of immigrant aliens in the United States
and the number of emigrant aliens leaving the same States in 1920
are shown in the following table:
1 Decrease.
States. Immigrant
aliens.
Emigrant
aliens.
Excess of
immigrant
aliens.
New York............................................................................................. 106,630
41,594
39,115
32,502
28,227
27,637
16,964
16,666
15,377
105,289
88,713
16,490
2,469
13,614
12,931
44,156
17,951
14,210
29,543
48,238
17,917
25,104
36,646
18,888
15,296
’16,519
’ 987
2,456
’14,166
57,051
Massachusetts......................................................................................
Texas....................................................................................................
California ............................................................................................
Michigan...............................................................................................
Pennsylvania ................................... . ................ ..............................
Illinois...................................................................................................
New Jersey...........................................................................................
Ohio . ...............................................................................
Other States.........................................................................................
Total.........................................................4.3..0..,.0..0.1..............2.8..8..,.3..1..5. 141,686
In prewar years New York invariably led all other States as a
destination of immigrants, and for many years Pennsylvania held
second place and Illinois third. New York maintained the lead in
this respect throughout the war years, and in 1920 the number
destined/ to that State was more than two and one-ha]f times as great
as that going to Massachusetts, the nearest competitor. Pennsylvania
and Illinois, however, ranked sixth and seventh, respectively,
in 1920, and these States, with Ohio, are recorded as having lost
more aliens through emigration than they received, the relatively
large return movement to eastern Europe, previously noted, accounting
for this loss. Texas received more immigration than ever before,
and California the greatest number since 1907, when 35,377 were
destined to that State. All but 1,905 of the 39,115 destined to Texas
were Mexicans, but several races or peoples contributed largely to-
California’s share, including 5,982 English, 5,691 Mexican, 3,939
Italian, 3,933 Japanese, 1,911 Portuguese, and 1,844 Scotch.
The foregoing discussion includes only the more important facts
relating to alien arrivals and departures during this year, and those
who are interested will find in the statistical record in Appendix I
much additional data of value concerning the subject of immigration
and emigration.
324 REPORTS OF DEPARTMENT OF LABOR.
REVIEW OF WORLD IMMIGRATION.
Although nearly 20 months have passed since the signing of the
armistice, the close of the fiscal year 1920 finds the immigration
lanes from a great part of Europe closed almost as effectively as they
were during the war. It is true that the resumption of peace-time
traffic on the ocean and the return of fairly normal conditions in
Great Britain, France, and other western European nations have
brought about a considerable immigration and emigration movement
between those countries and the United States. It is true also that
the movement to and from Italy and Greece has reached considerable
proportions, but Austria, Hungary, Russia, the Balkans, Germany,
and the war-born States of Finland, Czechoslovakia, and Poland—
territory which sent nearly 600,000 immigrants to the United States
in 1914 alone—sent less than 6,300 in 1920. Therefore, what will
undoubtedly be our greatest postwar immigration problem is still a
matter of the future, but even a casual observation of the trend of
events in central and eastern Europe is enough to warrant the conviction
that at any time and without warning this problem may become
an immediate and very pressing one.
The central and eastern Europe situation and its probable relation
to future immigration was discussed at some length in a review of
world immigration which appeared in the bureau’s annual report for
1919. It was pointed out in this connection that while immigration
from western Europe long ago passed the crest and probably would
never again attain its old-time volume, the movement from the
southern and eastern countries was still considerably below the anticipated
flood stage when the World War began. The bureau at
that time predicted that immigration, from western Europe would
soon resume its normal prewar status, and that very probably there
would be a somewhat increased movement in the case of some
countries, and the experience in 1920 has only strengthened that
belief. It predicted, also, that immigration from eastern Europe
would almost certainly resume prewar importance whenever this
became physically possible. It went further than this, and pointed
out the possibility and even the probability that when this region
finally emerged from the maelstrom into which the World War had
plunged it the overseas exodus would not only reach its prewar
status but would increase beyond anything that was ever dreamed of
in the past.
As 'already suggested, the experience of the fiscal year just ended
has seemingly justified the bureau’s prophecy concerning immigration
from western Europe, for, as pointed out in the discussion of
immigration statistics elsewhere in this report, the movements from
and to most of the countries have already resumed something like
their prewar proportions, and in the case of some countries the westbound
tide is even higher than in the years immediately preceding
the war.
The year brought little change in immigration from central and
eastern Europe, however, and at its close those regions are still so
involved in the aftermath of the World War that immigration from
them is negligible. Developments of the year, however, have
been such as to strengthen the bureau’s belief that when real peace
finally comes to that part of the world and free communication with
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 325
other countries is again resumed, the volume of immigration will be
limited only by the lack of ocean transportation or the effectiveness
of possible barriers which the various countries themselves may erect
against the emigration of their people, or which the United States
and other nations may erect to wholly or in part prevent their
admission.
The situation in specific sections or countries of Europe, as it
appears to the bureau at the close of the fiscal year, may be briefly
summarized as follows:
From all accounts Great Britain—that is to say England, Scotland,
and Wales—has made rapid advances toward the restoration of normal
conditions along all lines since the war ended, and this apparently
is reflected in our immigration from those sources during the last
fiscal year, when it resumed practically its prewar status. This is
clearly shown by the following comparisons between the number
admitted from those countries in 1920 and 1914:
1920 1914
England.
Scotland.
Wales...
27,871
9,347
1,253
35,864
10,682
2,183
So far as the statistics reveal, the character of this immigration was
not materially different from that of earlier years, and it is predicted
that it will so continue, except that a considerable increase may be
expected provided stable economic conditions are maintained in this
country. However, the demands and attractions of Canada and other
British overseas dominions, which are extensively presented to the
people of Great Britain, will undoubtedly prove as effective as they
did in years prior to the war, thereby preventing any very large
movement to the United States, though many may leave the home
countries.
Fewer immigrants came to the United States from Ireland in 1920
than in any year between 1833 and 1916, and it is presumed that
disturbed political conditions in that country were in large part
responsible. The number admitted in 1920 was only 9,591, compared
with an annual average of 32,000 in the 15 years 1900-1914, and while
a substantial increase may be expected, it is doubtful whether Ireland
will ever regain its former place as one of the most extensivb immigrant-
furnishing countries.
Following the close of the Franco-Prussian war there was something
of an increase in immigration from France to the United States,
but there was no suggestion of an exodus of population, because at its
highest point, in 1873, only 14,798 came.. In the five years 1910-1914
immigration from France averaged 8,601 annually and in 1920 it
was 8,945, which probably indicates nothing more than a quick
return to a normal status. This may be expected to continue without
important fluctuations.
As for other countries of northwestern Europe the developments
of the year were substantially the same as in the cases of Gieat
Britain and France, for while immigration from Belgium, Denmark,
the Netherlands, Scandinavia, and Switzerland did not reach prewar
326 REPORTS OF DEPARTMENT OF LABOR.
proportions in any case, except that of Switzerland, nevertheless the
trend was clearly in that direction, and the bureau expects a fulfillment
of the prediction made in 1919, that with the restoration of
traveling and other facilities the movement from these sources will
soon resume and perhaps for a time somewhat exceed its average
for the years immediately preceding the war.
Perhaps the most important development in the immigration
record of 1920 was the largely increased number coming from Spain,
a country which until recent years had contributed only a few
thousands to the many millions who have come from Europe during
tl^e past century. From 1820 to 1902 the average number coming
from Spain was only about 500 a year, and it exceeded 1,000 only
six times during that period. In 1903, however, 2,080 came, and the
average number from that year until and including 1919 was 4,480
annually, the largest number, 10,232, coming in 1917. In 1920 the
number coming from Spain reached 18,821. Thus, although one of
the westerly countries of Europe, Spain was the last to become an
important source of immigration to this country. It has a population
of above 20,000,000, and with a newly started and rapidly
growing immigration at a time when so many other sources are
closed, it is reasonable to expect that within a few years the Spanish
people will be a very important factor in the movement from Europe.
’“^Immigration from Portugal, including Cape Verde and Azores
Islands, in 1920 also reached the highest point in its history—15,472,
compared with an annual average of 7,128 in the 21 years, 1899-1919.
The resumption of immigration from Italy soon followed the
close of the war, and a total of 95,145 came from that country in 1920,
compared with an annual average of 194,500 during 16 years prior
to the beginning of the World War. This may safely be taken to
indicate that the prewar status will soon be reached, and it would
not be surprising if it surpassed for a time at least the average of
prewar years, especially if immigration from eastern Europe is not
resumed in its former proportions.
What is said of Italy can also be said of Greece, for while the 11,981
immigrants who came from that country in 1920 represent less
than one-half of the average number coming during the few years
next preceding the war, the quick resumption of immigration on such
a considerable scale indicates a tendency which will very probably
result in much larger numbers coming when normal conditions of
travel are fully restored.
So far as the remainder of Europe is concerned—-which is to say,
Germany, Austria, Hungary, Russia, the Balkans, and the newly
created States of Czechoslovakia, Finland, and Poland, which
appear in this report for the first time as separate political entities—
theie is little that can be said on the basis of the year’s immigration
for the reason that almost none was admitted from these sources.
Of course the failure of the United States to ratify the treaty of
Versailles leaves this country in a technical state of war with the socalled
Central Powers, so that there is little freedom of intercourse
with them. Russia proper is still laigely shut off from other parts
of the world and communication with the Balkans is very much
restricted. There has been a considerable return movement to
some of these countries, particularly to Hungary, Roumania, Czechoslovakia,
and Poland, but all of the central and eastern European
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 327
area under consideration furnished fewer than 6,300 immigrants in
1920, compared with nearly 600,000 in 1914. But, as already stated,
there is every reason to believe that when the.barriers are removed,
there will be an outbursting of people from these countries which
will produce an immigration limited only by the facilities for ocean
travel.
With the exception of the so-called Great Russians, who may be
briefly described as that part of the Russian population now included
in Soviet Russia, all of the principal peoples of eastern Europe have
furnished large contributions to our immigration and in most cases
the numbers coming were increasing when the war began, with the
prospect that under ordinary circumstances such increase would have
continued for years to come.
Many of these peoples, as a result of war, have come under changed
Solitical sovereignty and as a rule have ceased to be subject peoples,
'aturally this would have at least a temporary effect of restraining
emigration, but it can not be supposed that it will do so permanently,
especially under present economic conditions, which according to all
available estimates are destined to be the lot of practically the
entire region under consideration for a long period, even after fighting
ceases and stable and permanent governments are established.
This being the case, it can not but be expected that as in the past the
surplus population will seek relief in emigration.
An important question—perhaps the most important one which
arises out of the turmoil of eastern Europe—is to what extent will the
people of Great Russia become a part of future immigration. For
many years after other peoples of what was then Russia, notably
the Poles, Hebrews, Lithuanians, and Finns, had become large
factors in our immigration it was commonly predicted that the
Russians themselves would never follow their example to any great
extent. The contrary proved to be true, however, for in the few
years next preceding the beginning of the war they began to come to
the United States in rapidly increasing numbers.
The following figures showing the number of immigrants of each
of the peoples named who came from Russia in 1910-1914 will illustrate
this point:
Hebrew....
Polish....... .
Lithuanian.
Finnish....
Russian....
1910 1911 1912 1913 1914
59,824 65,472 58,389 74,033 102,638
63,635 40,193 51,244 112,345 66,278
21,676 16,210 13,576 23,873 20,808
14,999 8,942 5,708 11,156 10,968
14,768 17,581 21,101 48.472 40,241
With the exception of the Russians the peoples enumerated came
from western and southwestern Russia, the most of which territory
is either definitely separated from the former empire, as in the case
of Finland and Poland, or which, for the present at least, is outside the
jurisdiction of the so-called Soviet government. Accordingly, the
only immigrants who in the past have come in any numbers from
what is now Soviet Russia are the real Russian people, mentioned in
the table, and some immigrants of German blood who came from the
old-time German settlements on the Volga River.
328 EEPORTS OF DEPARTMENT OF LABOR.
Leaving out of consideration the various peoples of Asiatic origin
who inhabit the eastern part of the country, the population of the
present Soviet Russia is very largely made up of the real Russian
people already referred to, and the extent of their future immigration
to the United States can only be conjectured. But it is safe to say
that much will depend upon economic, and perhaps political, conditions
in Russia when normal intercourse with other countries is
resumed. The rapid increase which, as the above table shows,
occurred just preceding the World War was thoughtfully considered
by the bureau, and the conclusion was reached that, unless artificially
restricted, these Russians would soon become one of the largest, if
notAhe largest, racial groups among our immigrants.
At that time it was believed that unfavorable economic conditions,
resulting largely from overpopulation of land available for the peasants
in large sections of central Russia, were chiefly responsible for
the beginning and rapid growth of the movement to this country.
In earlier years this population pressure had been somewhat relieved
by an enormous immigration of peasants to Siberia, but for various
reasons this decreased, and the increased movement to the United
States, and also to Canada, almost immediately followed.
The World War, of course, abruptly stopped this movement, as it
did all immigration from eastern Europe, and the isolation of Russia
since the war ended has been equally effective in that respect.
Whether the political upheaval in that country will result in removing
what seemed to be the chief cause of peasant migration to Siberia
and emigration overseas remains to be seen.
THE ASIATIC SITUATION.
There was no material change in immigration from the Far East
in the fiscal year 1920 compared with 1919, but that coming from
Asiatic Turkey increased from only 19 in 1919 to 5,033 in 1920, this
being due to the fact that the Syrians and Armenians are again
beginning to find their way to the United States. These and other
subject peoples of Turkey have come to the United States in considerable
numbers in the past, and while their emancipation from
Turkish rule may have some effect in checking immigration it seems
very likely that the movement will continue much as it was before
the war with a probability of considerable increase.
China contributed 2,330 immigrant aliens during the year 1920 and
3,102 returned to that country, while 9,432 came from Japan and 4,249
returned there. The annual immigration from China has not changed
materially during more than a quarter of a century and it long ago
responded to the policy of exclusion. The number admitted from
Japan was slightly less than in 1919, and also slightly under the
annual average for the 21 years, 1899-1919, that average being 10,984.
During that period, however, the number varied greatly, the extremes
being 30,226 in 1907 and 2,720 in 1910.
BRITISH NORTH AMERICA.
With the single exception of Italy, Canada, or rather British
North America as a whole, led all other countries as a source of
immigration in 1920, the number admitted being the largest recorded
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 329
immigration from that source since 1882, with the exception of the
two years, 1916 and 1917. Immigration from and emigration to
Canada are discussed at greater length elsewhere in this report.
(See p. 23.)
MEXICO.
After Italy and Canada, Mexico furnished more immigrants in
1920 than any other country, 52,361 having been admitted from
that source compared with 29,818 in 1919, and an annual average
of 10,320 in the 21 years 1899-1919. The large increase in 1920 is
said to be due to various causes, the chief of which was the demand
for labor at high wages in the southwest, where these immigrants
form a highly important part of the labor supply.
CENTRAL AND SOUTH AMERICA.
Immigration conditions from the various countries in this part of
the world show little change, but with the development of commerce
now progressing to the mutual interests of all nations contributing
to the same, it is expected that movement of people to and from the
United States and all countries to the south will materially increase.
DIVISION OF INFORMATION.
It is hoped that the present activity of the division will be extended
as far as practicable in an effort to give information to arriving immigrants
concerning the “resources, products, and physical characteristics”
of the various States, and in supplying information to individuals
or organizations, public or private; and in addition that
the forthcoming appropriation bills will amply provide for the
work. The necessity for proper distribution of recent arrivals is
as great as that of supplying employment to our own people, and this
duty should ever be borne in mind. Successful efforts in this direction
will save many from liability of becoming public charges and
avoid hardships and other consequences resulting from neglect and
idleness. It was in part with these facts in mind that in the report
for 1919, while discussing the subject of anarchy and of our duty to
immigrants, the following expression was made:
Another thought that has been evolved from the consideration of anarchistic work
is that the alien who comes to our country fresh from places where the system of government
is unlike that which exists here, and where repressive measures are enforced
against many privileges that men believe they ought to enjoy, is imbued with a feeling
of opposition to government as a whole, which is not generally true of those who
come from nations with democratic tendencies; but both classes come in contact
with persons who are interested in and teach anarchistic doctrines or represent organizations
having such tendencies. With the former class these find ready companionship;
with the latter they get the first opportunity to insidiously pour into their minds
ideas against government and constituted authority. The Government should take
steps to arm every alien on admission at our immigration stations with the knowledge
that can be utilized by him to confront these teachers of evil when they appear, and
will enable him to combat them. He should be given information as to.his privileges
as well as his responsibilities. Contact, through the Information Division of the
Immigration Service, should be continued after his entry and every assistance extended
to prevent him from becoming the prey of the enemies of government and of
our system of civilization, thus not only aiding in his assimilation but in his Americanization
as well.
330 REPORTS OF DEPARTMENT OF LABOR.
Assimilation of aliens can, by cooperation, be developed by having the alien aid
himself as much as by aid extended to him. Fortunately aliens who are law-abiding
people and hence of the right kind to mold into our citizenship possess initiative and
the desire to better their condition in high degree. In connection with their own
efforts, direction under appropriate official authority should be afforded in the social
and economic development of the work of assimilation. Already has this service
devoted attention to the subject by providing that notice shall be given to school
and other authorities of the arrival of immigrant families having minor children subject
to the provisions of the school, labor, and other laws. * * * In returning to
the conditions of peace, this work should be renewed and prosecuted with vigor, and
the organizations of women and men which had tendered their services in the past
should be called into activity. * * *
This movement should not be on class or racial lines. It should follow the fundamental
teachings of our institutions, and in its organization and development no
more should be done for the alien than is done for the citizen, native or naturalized.
This would aid in instilling into the minds ol the new citizenship that may be thus
secured the fundamental principle of our institutions—equality. It would, moreover,
aid in dispelling the idea of class and caste, something from which most of the
aliens who come to us have endeavored to escape.
The bureau reverts to the subject and reiterates the recommendation
in the quotation that provision may be made to place in operation
the suggestions set forth and for the inauguration of the movement
to supply the information described under this heading. As
a good beginning, the suggestion is made that the office which finally
developed into the United States Employment Service may be reopened
at the barge office, New York, under the auspices of said division,
not as an employment service, but to supply the much needed
information indicated. Ellis Island Station, as a gateway of the
large majority of immigrants coming to the United States, is conveniently
located, and by close cooperation the public could be served at
the proposed office without adding to the congestion constantly
existing at that station.
Duplicating the plans with necessary modifications mentioned
in the above quotation concerning notices to school authorities in the
various States, advising them of the arrival in their respective jurisdictions
of children of school age, notice of the arrival of immigrants,
stating the kind of work to which they are adapted and in which they
have had experience, together with their respective addresses, might
be sent to the headquarters of the United States Employment Service
and all district offices of the Immigration Service, also to State
authorities, so that interested parties in their particular line of work
may get in touch with such arrivals before they enter work different
from that which they followed in the country of their nativity. It is
thought that the establishment of this system may be of some aid
in directing immigrants to the farm.
WOMAN’S DIVISION.
In connection with the social and economic development of the
work of assimilation of arriving immigrants and in the exercise of
authority conferred by law to prevent their exploitation, as well as
to aid in securing protection and humane treatment, particularly
aiding women, girls, and children while in transit through the country,
by proper advice and direction and by the utilization of the assistance
so generously tendered by many organizations of women engaged in
this great work to insure safe delivery at destinations, it recommends
the enactment of a law providing for the establishment of a woman’s
PEP OPT OF COMMISSIONER GENERAL OF IMMIGRATION. 331
division in the Bureau of Immigration, presided over by a woman
chief of division. Its work should be confined, so far as immigrants
are concerned, to immigrant women, girls, and children; and, in
general, to interest the public in the work of the department and
bureau in behalf of women as affected by immigration laws; also
to endeavor to secure the cooperation of organizations desiring
to be of assistance to, and to take a beneficial interest in, immigrant
families. It will be remembered that when the war broke out, as
stated in the last annual report, this service had provided that
“notice shall be given to school and other authorities of the arrival
of immigrant families having minor children subject to the provisions
of the school, labor, and other laws. It also had, when the war broke
out, an arrangement with women’s organizations of the country
whereby these notices could also be sent to their local units, w’hich
had elected to take a beneficial interest in such work. This interest
developed to an enthusiastic degree, but the effects of the war preparations
prevented progress. In returning to the conditions of peace
this work should be renewed and prosecuted with vigor, and the organizations
of women and men which had tendered their services in the
past should be called into activity. As these organizations are found
to have units in practically every village, town, and city in the land,
the results can not fail greatly to aid the objects of the movement.
Efforts of this character induce interest and command success, as
they are founded on the work of willing hands and kind hearts.” By
reorganization on lines formerly existing and by the united effort of
those interested in the work throughout the land, the department
and the bureau will be enabled to render immigrants the service
contemplated by law and thus aid in their assimilation and Americanization.
SOURCES OF REVENUE.
The head tax was a great revenue producer until the World War
checked the flow of immigration, and the surplus was greatly reduced
during the war years.
On June 30, 1920, the surplus of receipts over expenditures for
administration and for enforcement of immigration laws from 1894
to that date is shown in the following statement:
Total head-tax collections....... ..........................................................................$50, 233, 742. 00
Total appropriations.......................................................................................... 45, 949, 949.00
Net surplus.............................................................................................. 4,283,793.00
The next fiscal year will witness receipts again exceeding expenditures,
as in prewar years.
The revenues for the fiscal year ending June 30, 1920, were as
follows:
Head tax.............................................................................................................. $2, 947, 984. 00
Administrative fines......................................................................................... 154, 210.00
Court fines and forfeited bonds...................................................................... 42, 073. 00
Total..............................................................................................-.......... 3,144,267.00
332 REPORTS OF DEPARTMENT OF LABOR.
NEW SOURCES OF REVENUE.
Recommendation is made for the enactment, where not now in
the law, of necessary legislation to authorize, for the reasons hereinafter
set forth, the collection of charges for official work performed,
as follows:
1. Seamen’s identification cards................................................................................... $1.00
2. Renewal of same, or certificates hereinafter specified, each......................... 1. 00
3. Certificates of arrival, etc., for naturalization purposes, except when necessary
in a proceeding arising under the provisions of the immigration
act.......................................................... 1.00
4. Certificates issued by the Department under seal in proceedings other than
those pending in the immigration districts or in the department...... 1. 00
5. All other certificates................................................................................................... 1. 00
6. Copies of records or documents to be certified under seal, or otherwise—15
cents per folio, first copy; 5 cents per folio for second or additional copies.
7. Return certificates1.................................................................................................... 1.00
8. Certificate of identity and duplicate certificate of residence, each 1........... 2.50
9. Transit certificates1.................................................................................................... 1.00
10. Reimbursement of the total cost, including salary paid, traveling and
living expenses of immigration officers accompanying transits at the
request of transportation companies, or otherwise.
11. Reimbursement from transportation companies for the cost of lodging and
other supplies necessary for the comfort and protection of any alien applicant
for admission into the United States brought to any immigration
station thereof for inspection at the seaports or land borders.
Justification for the foregoing recommendations, briefly stated, is
as follows:
1, 2. The Government is now expending a very large sum of money
in connection with the inspection of seamen. The possession of an
identification card is necessary and of benefit to the seamen, but
some become careless about its safekeeping. Losses are frequent,
thus requiring renewals at the expense of much time of a busy inspector.
This carelessness sometimes leads to an accumulation of
cards and the liability that some may get into the hands of persons
who may use same unlawfully. The fixing of the proposed charge
will cause greater care to be taken of them by seamen.
3. Certificates of arrival for naturalization purposes are furnished
by the district officers of the Immigration Service at the places
where, either at the seaports or land boundaries, the alien arrived.
Very often, owing to the meager information furnished, it involves
labor consuming hours and sometimes days to go through voluminous
records to obtain the facts for certification. The Immigration
Service is compelled out of its funds to maintain a force at the various
ports in order that demands for such certificates may be met. It is
considered that the charge is not only reasonable but justifiable under
the circumstances.
4, 5. Certificates to be issued under the seal of the Department of
Labor, attesting to the correctness, of documents, or copies of documents,
for use in court proceedings, are often applied for. Their
preparation requires considerable labor and time. The amount
which is proposed in each instance is considered to be fair.
6. Copies of records of documents certified under seal or otherwise
involve the utilization of considerable time of the officers of the service
and of Government supplies. The charges prescribed are recommended.
1 Under Chinese-exclusion act.
I
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 333
7, 8, and 9. These documents are issued under the provisions of the
Chinese-exclusion law and are not directly necessary for use in any
Government proceeding, but they are for the personal benefit of the
individual applying therefor. The charges, like the others made, are
reasonable. The suggested charge of $2.50 under item 8 is accounted
for by the fact that the card furnished is printed on a specially prepared
paper, engraved to prevent fraud; likewise with the duplicate
certificate of residence, investigation is required before the issuance
of certificates under headings 7 and 8. 'transit certificates
are issued to Chinese entering the United States and passing through
the same to other countries. Care has to be exercised to avoid the
introduction of diseases. Supervision to avoid unlawful entry into
the country and to secure departure therefrom, as per permit granted,
is required. The charge is a fair one.
10. Transportation companies and all persons interested often
require officers of the Immigration Service to accompany transits
under supervision of the Immigration Service. Provision for reimbursement
is made so as to include all expense incurred.
11. In the judgment of the bureau, the law already provides for
reimbursement from the transportation companies for all expense
incurred in the care and maintenance of aliens brought to immigration
stations at the seaports or land ports of the United States for
inspection. It mentions this item because it believes that it should
be a source of future revenue. The transportation companies now
pay for the food furnished and for the medical treatment given to aliens
so brought by them, but so far no effort has been made to collect
from them the large expense incurred by the Government for their
lodging and for the furnishing of other supplies necessary to their
comfort hnd protection. A casual inspection of the accounts of the
Immigration Service will readily disclose the large amount that is
yearly expended to pay for the lodging and care of such aliens. There
is as much reason, and certainly as much authority in law, to collect
the cost of lodging as there is to collect the value of food furnished.
It is estimated, according to present volume of immigration, that
from the above possible sources of revenue a sum ranging from
$700,000 to $1,000,000 yearly may be added to the receipts collected
under the auspices of the immigration Service.
PERSONNEL AND APPROPRIATIONS.
The great outstanding.fact made prominent throughout the year,
of which those in authority in the department and the Immigration
Service were constantly reminded, was inadequacy of force and insufficiency
of appropriations to properly officer the service and furnish
the supplies necessary for the efficient enforcement and administration
of the laws. This statement is not made in any spirit of
complaint, for it is realized that the demands made upon Congress
have been enormous and the ability to supply what it was claimed
was needed has been limited by taxation already constituting a
burden. Resigned as the Immigration Service has been to this situation,
it is not unmindful of the existence of a condition under which
it can not continue to meet the responsibilities placed upon it unless
provision is made for an increased number of officers and employees
and its funds are augmented to meet the necessities of admmistra334
REPORTS OF DEPARTMENT OF LABOR.
tion so as to permit it to function efficiently. The activities of the
Immigration Service during the fiscal year in its regular work may be
summarized as follows: An increase in admissions of immigrant
aliens from 141,132 in 1919 to 430,001 for this year, with departures
placed at 288,315 of the same class (emigrant); the movement of nonimmigrant
and nonemigrant aliens for this year was,- inwardly,
191,575, and outwardly, 139,747, as compared with 95,889 and
123,522 for 1919. As already stated, the requirements of the seamen’s
provisions of the immigration law of 1917 have materially increased
not only the work but the responsibilitks of the Immigration
Service. Inspections at seaports increased from 810,097 in 1919 to
933,081 in 1920. The total number of examinations aggregated
1,566,452, composed of 621,576 aliens admitted (430,001 immigrant
and 191,575 nonimmigrant), 11,795 aliens debarred, and 933,081
alien seamen, exceeding by 391,504 the average yearly inspections of
all classes of aliens for the 10 years preceding the World War, which
was 1,174,948, and greater by 114,919 than the total inspections of
aliens in 1907, when immigration reached its highest point. This
increase of work calls for increase of force and increase of funds.
The bureau estimates, after careful study and consideration, that
$6,000,000 will be necessary in order to provide a reasonably adequate
service for the coming year, and believes that unk ss an appropriation
for the next fiscal year reaching or approximating that amount is
secured it will be impossible to properly enforce the immigration laws
and meet all requirements of administration. This estimate is based
upon actual conditions and necessities. Since our entry into the
World War the making of numerous repairs and improvements at
the various immigration stations was postponed because of the appeal
then made to desist from making such requests except in case of urgent
requirements, with the result that at all stations repairs are now
necessary not only to buildings but to machinery, ferry boats, etc..
Additions and improvements have for like reasons been deferred until
the accumulation of such necessities is causing embarrassment in
carrying on immigration work. What was avoided then calls for
early action now; otherwise, not only will damage result to Government
property but interference with the proper care of immigrants
will follow.
Moreover, the growing necessity for additional employees was for
the same reasons not pressed. A material increase is now unavoidable
and it is estimated that a personnel of 2,500 will be required.
In connection with the increase in personnel there must be considered
an increase in pay. The difficulty in securing and keeping
good officers when other public services, as well as private industries,
offer greater pay for practically like qualifications, has been one of
the drawbacks to efficient administration for some years past. During
this year it has become accentuated to such an extent that it has
caused the loss of many experienced officers from the service, and
inability to induce qualified persons to accept employment by reason
of the conditions described has at times brought some branches almost
to the breaking point. Not only must provision be made for
greater compensation, but the service must be made as inviting as
that established in private industry and promotions for meritorious
application to duty provided for at proper intervals. Unless this is
REPORT OP COMMISSIONER GENERAL OF IMMIGRATION. 335
done and the competition thus created is met, it will be difficult to
look for the acquisition of efficient members of the force. The experience
of the last six months affords abundant proof of this fact.
It is the view of the bureau that, taking immigrant inspectors as
an illustration, it should be possible to divide this class of employees
into three groups, with annual salary as follow^: First, commencing
at $1,380 and extending to $1,740; second, from $1,740 to $2,120;
and third, from $2,120 to $2,500. All inspectors reported as worthy
of promotion for meritorious service should be advanced in the
respective grades. The clerical employees likewise should be divided
into three grades with a maximum salary of $2,120, the first grade
to reach $1,320, the second $1,740, and the third the^maximum
amount mentioned. Stenographers should be similarly treated as
to the division of grades, the first to $1,380, the second to $1,740,
and the third (including secretaries of boards of inquiry) to $1,860.
Proceeding on this line, watchmen, laborers, and other members of
the subclerical group, according to the importance of the work
performed, should be also graded. Possibly in this class two grades
might be sufficient. In subclerical work the amount fixed by the
minimum-wage bill, passed by the Lower House of Congress during
the last session, should be used as the minimum. All salaries are
at the yearly rate. The present immigration force consists of about
1,700 officers and employees. The 800 increase proposed is intended
to supply aid in the various grades of the inspectorial, clerical, and
subclerical work throughout the jurisdiction already called for by
pressing requests on fde and to provide the eight-hour day and sixday
week in all branches of the service. It is proposed, first, to
utilize the balance to increase the force on the two borders, on the
coast lines as well as at seaports, for the prevention of illegal entry of
aliens; the apprehension and prosecution of those found illegally
within the country, and in this connection to maintain a follow-up
system to guard against violations of the laws and regulations in a
general sense and particularly by aliens who are permitted thereunder
to enter for specified purposes; and, secondly, for the supply to the
various ports and stations of a sufficient number of additional employees
to meet the increased requirements in enforcing the provisions
of the immigration laws concerning seamen, reference to which
has already been made.
The $6,000,000 estimate is also intended to cover the amounts
required for the repair of vessels, alteration and repair of buildings,
and other items that do not involve directly the enforcement or administration
of the law, which unless provided for in sufficient amount
will, as was done during the last fiscal year, cause the utilization of
funds absolutely required for immigration purposes. As many repairs
and alterations of this character have been deferred, as hereinbefore
indicated, this becomes a matter of importance for the coming
year because of the extent to which it will be necessary to make such
repairs and alterations.
This estimate is also intended to meet the necessity of sending to
the countries to which they have been ordered returned aliens, subject
to deportation, many of whom are now in public institutions at the
expense of Federal, State, or local authorities.
Among the items too numerous to mention which this proposed
estimate is intended to cover is a provision for an increase in the per
336 REPORTS OF DEPARTMENT OF LABOR.
diem allowed in lieu of subsistence. The cost of subsistence and
sleeping accommodations of officers on short trips has been one that
has produced loss whenever they have been compelled, in obedience
to orders, to go to places away from their homes. The fixing of the
$6 rate will equalize this allowance with that which it is understood
is given in some other branches of the Government service.
It is believed that with a system in force that can be created by
increased personnel, offering fair compensation for a day’s work and
holding out the promise of promotion for meritorious service, will
not only encourage those now in the bureau’s employ to continue
therein but will induce qualified citizens to accept appointments.
The above refers to the necessities of the service in the field. There
remains to consider the statutory organization at the seat of government.
As the districts composing the field service report to the
department through that organization, their work is thus reviewed
under departmental direction for presentation to such of its officers
who pass upon decisions in appeal, warrant, and other proceedings
under the immigration law. Efficiency and ability of a
high order are required to properly attend to the large amount of
work committed to this force, which demands knowledge not only
of immigration laws and regulations, but also of laws covering constitutional,
international, and municipal questions. To secure such a
class of competent officers and to meet the increased work that has
grown during the last year by leaps and bounds, the bureau recommends
additions to the clerical sections, as well as to those engaged in
law duties. The proposal is to add two law examiners qualified as
immigrant inspectors at $4,000 each, one at $3,500, one at $3,000,
one at $2,500, and two at $2,000 each. As the work performed by
these officers is of a judicial and legal nature, the compensation
named is not considered exorbitant and is in keeping with the salaries
paid like officers in many bureaus of the Federal departments.
Classification of officers and employees and an equitable system of
efficiency ratings are much needed in connection with promotions
and the fixing of salaries of the personnel of the service, as a guaranty
of equal treatment and fair dealing to all.
One difficulty that has stood in the way of a complete distribution
of the personnel of the immigration service from one district to another
where their services might have been more valuable, or where conditions
might have been more agreeable owing to proximity to former
homes of employees, has been the fact that the expenses of transportation
for themselves and their families is so great that transfers
would practically impoverish them; hence transfers have not been
ordered except where absolutely necessary. Other services, the
writer is informed, make an allowance for such expenses, and the
bureau feels if such a rule could be extended to the Immigration
Service much would be accomplished in bettering administrative
conditjons.
TRAINING OF OFFICERS.
As soon as funds will permit, provision should be made for a general
understudy system throughout the service, conducted in connection
with a comprehensive scheme of training in the important
phases of immigration work. There are daily being introduced into
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 337
the personnel from the civil-service register new employees totally
inexperienced who, no matter what their qualifications, must gain
a knowledge of their work before they can be considered efficient for
the duties they are expected to perform. This takes time, and -unless
it is specially directed and supervised will either develop the worker
by slow degrees at considerable expense in salary paid or add to the
roll a percentage of inefficient employees. Systematic training will
correct these conditions and produce an efficient force at minimum
cost in money and time.
In addition and as a necessary adjunct to such training particular
efforts should be made to produce uniformity in administration
throughout the service. The work now in part covered by special
representatives of the bureau (see Appendixes III, IV, and V) should
be broadened so as to include all branches of immigration activities,
including details of administration, accounting, and personnel
matters m all districts.
If to these proposed plans could be added annual conferences of
commissioners, supervising inspectors, and inspectors in charge, to
be followed by district conferences to include the first assistants
of such officials, together with representatives from the inspectorial
and clerical forces, there is every reason to believe that the maximum
of efficiency .would be approximated, with results that would make
our service inviting and produce effective enforcement of law.
OFFICERS AND EMPLOYEES OF THE IMMIGRATION SERVICE
IN THE WORLD WAR.1
In accordance with the intention expressed in its last annual report,
the bureau here presents a list of those members of its personnel,
both in the field and in Washington, who served in the military and
naval forces of the United States during the war with the Central
Powers, from April 6, 1917, to November 11, 1918. It is pleased to
record that so large a number of its employees were called to serve
their country and that so many of these attained commissioned and
noncommissioned rank in the Army and Navy. All of those who
desired to return to the Immigration Service upon the termination
of their military service have been reinstated in their former positions
with such promotions as they would have received had they
remained continuously on immigration duty.
Special mention is here made of the service of Maj. Oscar F. Miller,
for many years an inspector on the Mexican border, who was killed
in action September 30, 1918, while leading his command. The extraordinary
heroism of Maj. Miller in refusing to relinquish command
of his battalion, although he had received several mortal wounds, has
been recognized by the posthumous award of the congressional medal
of honor, the most distinguished reward within the gift of the Nation.
He was attached to the 361st Infantry, 91st Division, A. E. F., in
France.
1 Information as to omissions, if any, in this list will be appreciated; also data for necessary correction
of errors. The proper rank of each person is especially desired.
15283—la b 1920-----22
338 REPORTS OF DEPARTMENT OF LABOR.
Members of the Immigration Service who served in the Army, Navy, or Marine Corps
during the recent war.
MONTREAL DISTRICT.
Name. Branch of service. Length of service. Rank.
Browning, John W..................
Di ekin son Alfred TC_
Army.....................
....... do.....................
Served throughout the war........
3 months 21 days..........................
Captain.
Private.
Do. '
Do.
Do.
Do.
Corporal.
Apprentice s e a -
man.
Yeoman (F) first
class.
Private.
Seaman.
Ship’s writer.
Pharmacist’s mate
3d class.
Private.
Master signal electrician.
First sergeant.
Dodgp, "Ralph S __do..................... 3 months.......................................
Eick George E . ..do.................... 2 months.......................................
Foltz C Austin ___ do.................... 7 months 15 days.........................
Hurley Patrick J . .do.................... 16 months......................... ............
Leonard Joseph H . .do.................... 14 months.....................................
Marston Lester W Navy..................... 2 months.......................................
MeBrien Agnes E __do.................... 13 months......................................
MeGahey John G Army..................... 3 months 21 days.........................
Pipp.r Ben D N avy..................... 11 months.....................................
Sh eeh a n Era n ci s P . .do.................... 1 year 19 days...............................
Shortsleeve. V, B ....... do..................... 2 years 1 month............................
Sullivan TTarold E Armv..................... 16 months.....................................
Vran ken John M .. do.................... 19 months.....................................
Wh p.p.lpt Elish a ....... do..................... ....... do.............................................
BOSTON DISTRICT.
Einn John E Army..................... 17 months...................................... Battalion sergeant
major.
First lieutenant.
Student officer.
Sergeant.
Field clerk.
Greene Fran kl i n A . ..do.................... 23 months......................................
Lyons John M .. .do................... 2 months....... . ........ :....................
Macornhp.r M Ch ester do.................... 13 months.....................................
Riley Lp.on E ....do.................... 8 months.......................................
ELLIS ISLAND, NEW YORK HARBOR.
Baruch Samuel i Army..................... Dec. 9, 1917, to Dec. 21,1918....
Carter V^ake T 1 ............ ....... do..................... Mar. 27,1917, to Apr. 12, 1919...
Daly Yames P 1 Navy..................... Aug. 11, 1917, to Mar. 5, 1919...
IT a rn s A ihp.rf. i Army..................... Mar. 31, 1919, to Apr. 4, 1919....
(Awarded the Croix de
Guerre.)
ETaba John 1 .do......... .......... Aug. 21, 1917, to Sept. 12, 1919..
T,ftPnintp Edward J 1 Marine Corps...... Apr. 1,1917, to June 6,1918.__
Mintzp.r, FT. A.1............... ..... Army.................... Feb. 26,1918, to Dec. 21,1918...
Mouahau Jeremiah J J - -... .do......... .......... June 24,1918, to Nov. 27,1918..
Perrone Salvatore. J A .. - - .do.......... ....... June 14,1918, to Dec. 31,1918...
Rothen stein Arthur i .do.................... Apr. 28,1918, to Dec. 3,1919....
S ca r i n zi Joseph 1 - .do......... ....... May 22,1918, to June 3,1919....
"Watson George NA .do.......... ....... Apr. 17,1918, to Jan. 20,1919...
Camen Samuel 2 .do.........
ClarP T^afayp-ttp. GA .do......... .......
Gilde Ered 2 .do.........
Hoebee Johannis 2 .do.........
Sch wimmer A ar on 2 .do..........
"Wbodward TTarold C 2 .do ........
Pau PT, M.8 .do.................... Oct. i0,1917, to Apr. 2,1920....
Prostow, Stanley8 .......... . Navy..................... May 2,1918, to Dec. 2,1918.......
Hartnett, T. C.8 Army..................... Jan. 7,1917, to Apr. 3,1919.....
T/Ocicero Luigi 8 . _ _ - .do........-.......... Mar. 14, 1914, to Oct. 1, 1919
(Army of Occupation).
Sept. 10,1918, to Nov. 20,1918..
Oliver, Joseph8 June 29,1917, to July 31,1919... .do....................
Spiegel, Samuel8... Navy.....................
Ambrose, Janies i 2 * 4 * ........ Marine Corps...... May 13,1913, to Sept. 17,1919..
Baecker, George C.4.......... Army..................... June 24,1918, to Apr. 29,1919...
Connelly, Frank J.4............. .do.................... Nov. 31,1917, to Feb. 14,1919..
T)embrowski, Joseph 4 . .do............... June 5,1917, to Apr. 12,1919....
Devine, Peter C.4. .do.................... May 18,1918, to Dec. 30,1918...
Dickie, Horace P.4.................. .....do......... .......... Dec. 10,1917, to Oct. 26,1919...
Captain.
Machine gunner..
Captain.
Major.
Do.
i Employees who left the Ellis Island station to enter the military service and have returned there.
2 Employees who left Ellis Island to enter military service and have not returned there. z
8 Employees who rendered military service, but entered and left the Immigration Service since the
armistice. , . , , _... T . . . ..
4 Employees who were in the military service and have been assigned to duty at Ellis Island since the
armistice and are still employed there.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 339
Members of the Immigration Service who served in the Army, Navy, or Marine Corps
during the recent war—Continued.
Name.
ELLIS ISLAND, NEW YORK HARBOR—Continued.
Branch of service. \ Length of service. Rank.
Ferro, Edward i.................... ..
Insehnan, Jacob >............. . . . .
Lazaretti, Elias1.....................
Lepkowsky, Herman i...........
Macmillan, Roy1....................
Manzo, Frank P.1....................
Mayo, Win. A.i.......................
Micciuli, Ettore1.. -...............
Pohlman, Edward 1................
(Servicein Regular Army
and in Spanish War
also.)
Powers, John J.1......................
Smith, James B.i....................
(Awarded congressional
medal of honor.)
Tuthill, Emmett P.1............ ..
Tyrrell, Alexander1................
Watkins, Mitchell1.................
(Awarded bronze star for
service on Argonne
front.)
Zwillich, Joseph i............. . . . .
Dewender, Edward J.2...........
Fearing, Robert W.2...............
Fink, Albert2..........................
Johnson, Harvey E.2......... . . .
Karp, Julius2...........................
Schindler, Murray2..................
Talabac,Pandely2...................
Tremper, Sigmund2.................
Army.
.....do
....... do
....... do
....... do
....... do
....... do
....... do
....... do
.....do
Navy.
.do
.do
.do
.....do
.....do
.....do.
Navy.
Army.
Navy.
___ do.
Army.
___ do.
July 15,1918, to Feb.i, 1919.......
Oct. 11,1918. to Jan. 25,1919....
June 16,1917, to Aug. 12,1919...
Sept. 30,1918, to Dec. 9,1918....
Mar. 8, 1918, to July 3,1919......
Aug. 2,1917, to May 18, 1920.......
Mar. 16,1918, to Mar. 11,1919....
Oct. 25, 1918, to Dec. 5,1918.......
July 12,1919, to Aug. 6,1919.......
June 14,1918, to Jan. 27,1919....
July 7,1917, to July 24,1919.......
Sept. 5,1918, to Jan. 2,1919........
Jan. 17,1918, to Jan. 10,1919.......
July 18,1918, to July 14,1919....
May 25,1918, to July 23,1919....
May 22,1918, to June 17,1919....
-----; discharged Apr. 16,1919...
May 31,1917, to Sept. 2,1919....
June 3,1918, to May 13,1919.......
Recruiting duty.
Second lieutenant.
OFFICE OF CHINESE INSPECTOR IN CHARGE, NEW YORK, N. Y.
Collins, Albert A
Marsh, Lewis A.
Michel, Henry...
Nav^........;............
.......do.....................
Mar. 8,1918, to Mar. 1,1919.........
Mar. 8,1917, to Feb. 4,1919........
Chief yeoman.
Chief boatswain.
Sept. 20,1917, to Feb. 1,1919.... Chief yeoman.
JACKSONVILLE DISTRICT.
Crossman, L. D........................
Harmon, Jas. S........................
Army...................
Navy......................
Schmucker, Geo. B
Webb, Gilbert D...
.......do.
Army.
Nov. 13,1917; date of discharge
not known.
May 2, 1917; date of discharge
not known.
Apr. 6,1917, to Nov. 29,1919....
Sept. 8,1918, to Dec. 26,1918....
Lieutenant.
Glover, Robert H
GALVESTON DISTRICT.
.................... Navy...................... Dec. 6,1917, to Dec. 13,1918....... Yeoman, first class.
SEATTLE DISTRICT.
Armstrong, William J............ Navy.....................
Cunningham, Harry Wm.......
Goodall, Byron........................
Jones, Floyd S.........................
Walker, John Ruthven...........
Army.....................
___ do....................
___ do....................
___ do....................
Aug. 7,1918, to Dec. 13,1918.
May 7,1918, to Aug. 21,1919.
2 months.................................
1 year 3 months....... .............
Mar. 1,1918, to July 10,1919.
Yeoman, second
class.
Private.
First lieutenant.
Sergeant.
1 Employees who were in the military service and have been assigned to duty at Ellis Island since the
armistice and are still employed there.
2 Employees who enlisted, returned to Ellis Island station, and have subsequently resigned.
340 REPORTS OF DEPARTMENT OF LABOR.
Members of the Immigration Service who served in the Army, Navy, or Marine Corps
during the recent war—Continued.
Name.
SAN FRANCISCO DISTRICT.
Branch of service. Length of service. Rank.
Brown, Samuel F.1..................
Farrelly, Patrick J .1................
Hanlon, Raymond W.1...........
Kn ekein August1.... .............
Army....................
....... do.....................
....... do....................
May 17,1918, to Mar. 19,1919....
Oct. 31,1918, to Jan. 13,1919....
June 21,1917,to Aug., 1919.........
Sept. 1,1918, to Sept. 5,1918.......
Lawler, James P.1....................
Mp,C1osk p,v t Henry J.1 ____
....... do.....................
....... do ...............
May 15,1917, to Dec. 29,1917....
July 1,1918, to Dec. 16,1918.......
Ormsby, Wn. Henry G.1____
Pet zinger, J. A.1.......................
....... do.....................
Navy ....................
Sept. 30,1917, to May 22,1919...
Feb., 1918, to Feb. 14,1919.........
Simpson, Claude SA................
Smith, Hugh WJ.....................
Army..................... June'23,1916, to Nov. 16,1916...
Nov. 9,1918, to Nov. 18,1918....
Private.
Sergeant.
Supply sergeant.
Private.
Second lieutenant.
Private.
Private, first class.
Ensign.
Private.
Officers’ training
school.
Andrew, Wm. A.2.......
Bowers, John2............
Cardan, Wm. P.2........
Castro, Mike2..............
Cuthbertson, Geo. W.2
Hoffman, Robert R.2..
Kumler, Morris2.........
Long, Howard P.2.......
McElroy, Walter J.2...
Majors, Harry J.2.........
Montijo, Daniel U.2....
Mulligan,Conrad B.2..
Murphy, Fred2...........
Nichols, Wm. J.2.........
Oliver, Frank P.2.........
Osselin, Elwain L.2....
Ragland, J. G.2............
Sperry, Ruble L.2........
Taylor, Jas. A.2............
Webster,Philip D.2...
EL PASO DISTRICT.
Anderson, Albert L..
Baltazar, J ohn R....
Bellringer, Edward..
Brewster, Denard W
Campbell, Clyde.
Dome, Elrich H.
Edwards, Th os. E.
Fee, Edgar T....... .
Ford, Clark C___
Galan, Enrique...
Gutman, Robt. M.
Hammond, Hugh D................
Harn, John F...........................
Jack, Fred D............................
McCabe, John E.......................
Marnell, Edward N.................
Miller, Oscar F.........................
(Awarded congressional
medal of honor.)
Parent, Jno. C..........................
Parsons, Edw. H.....................
Phelps, Joe T...........................
Riddle, Thomas.......................
Stafford, Gus C........................
Tarver, Legette........................
Van Ornam, Oscar F..............
Weisgerber, Albert C..............
West, Walter L........................
Willis, Rupert..........................
Wilson, William J,
Y ounkin, Paul E.,
Army.....................
Navy......................
....... do....................
....... do....................
Army.....................
Navy.....................
Army.....................
....... do....................
....... do....................
___ do....
___ do....
___ do....
___ do....
Navy........
Army.......
___ do....
___ do....
.......do....
.......do....
.......do....
.......do....
Navy........
Army.......
Navy
Army.
Dec. 10,1917; discharge date unknown.
May 19,1917, to May 31,1919....
May 21,1917, to Feb. 26,1919....
June 8,1918, to Feb. 15,1919.......
Oct. 11,1917, to Dec. 9,’1918.......
Oct. 10,1917; discharge date unknown.
May 10,1918,to Jan. 13,1919....
May 13,1917, to Dec. 10,1918....
Mar. 13,1918, to June 24,1919....
Oct. 6,1917, to May 24,1919.......
Aug. 5,1917; discharge date unknown.
Mar. 31,1918, to Nov. 30,1918...
Aug. 26,1917,to Aug. 11,1919...
Sept. 16,1918,to Oct. 19,1918....
Sept. 20,1917,to Sept. 16,1919...
May 20,1918, to Feb. 27,1919....
May 11, 1917; killed in action
Sept. 30,1918.
May 10,1917, to Apr. 23,1919....
Nov. 2,1918,to Dec. 15,1918....
Oct. 10,1917,to Dec.21,1918....
June 1917, to Apr. 1,1919............
Aug. 13,1918, to July 26,1919....
May 9,1916, to Oct. 9,1919.........
May 21,1917, to Feb. 26,1919....
Oct. 15,1918, to Jan. 13,1919....
Oct. 8,1917, to May 1,1918.........
July 8,1918....................................
Sept. 18,1917,to June 24,1919...
Sept. 23,1918, to Dec. 6,1918....
Ship’s cook, first
class.
Chief warrant machinist.
Chief carpenter’s
mate.
Sergeant.
Ensign.
Private.
Sergeant major.
Private.
Sergeant.
First lieutenant.
Private.
Second lieutenant.
Water tender.
Major.
First lieutenant.
Private.
Do.
Sergeant.
Do.
Captain.
Boatswain.
Private.
Sergeant.
Ensign (still in service).
Sergeant.
Private.
i Employees now in the Immigration Service in the San Francisco district.
»Employees who were in the Immigration Service in the San Francisco district at the time of entering
military service, but are not now, and it is therefore not possible to give title, rank, and length of service.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 341
Members of the Immigration Service who served in the Army, Navy, or Marine Corps
during the recent war—Continued.
BUREAU OF IMMIGRATION, WASHINGTON, D. C.
Name. Branch of service. Length of service. Rank.
Berkowitz, Tsadore.................. Armv..................... 3 months....................................... Student.officer.
First lieutenant.
Yeoman first class.
Private first class*
Do.
Student officer.
Yeoman first class.
Do.
Quartermaster second
class.
Private first class.
Chief yeoman.
Do.
First lieutenant.
Sergeant.
Sergeant first class.
Private first class.
Do.
Chief yeoman.
Fireman first class.
Seaman first class.
First lieutenant.
Field clerk.
Liaison officer,
Naval intelligence.
Private first class.
Sergeant.
Pay clerk.
First lieutenant.
Seaman first class.
Student officer,
aviation.
First lieutenant.
Birdsal, R.P............................ ....... do.................... 23 months.....................................
Clemson, John G..................... Navy..................... 14 months.....................................
Demorest, John R................... Armv..................... 6 months.......................................
Everett, Fred P....................... ....... do.................... 3 months.......................................
Friedman, Harry..................... ....... do.................... ....... do............................................
Friedman. John....................... Navy..................... 11 months.....................................
Hare, Rov D............................ ....... do.................... 8 months.......................................
Havenner. Herbert E............. ....... do.................... 27 months.....................................
Hyman, Ed.............................. A rmy..................... 5 months.......................................
Judd, Gail T............................ Navy..................... 15 months......................................
Landes, Birt R........................ ....... do............. 18 months......................................
Larsen, Emil J........................ Armv..................... 23 months......................................
Miller, Ray W.......................... ....... do..................... 14 months......................................
Mintzer, Herman A................. ....... do..................... 10 months......................................
Moore, Norman B................... ....... do..................... 3 months.......................................
Morgan, Charles J.................... ....... do..................... 13 months......................................
Murphy, Thomas J................. Navy..................... 23 months......................................
O’Connor, Daniel..................... ....... do..................... ....... do.............................................
Plant, Fred J........................... ....... do..................... 18 months......................................
Pollock, Robert E................... Armv..................... ....... do.............................................
Richards, James H................. ___ do..................... 22 months.....................................
Russell, Leo B......................... Navy..................... ....... do.............................................
Sandberg, Clarence E.............. Army.....................
»
10 months......................................
Schwartz, Andrew J................ ....... do............. 23 months......................................
Shaughnessy, Edward J......... Navy............ ........ 18 months......................................
Straun, Kenneth.................... Array..................... 23 months......................................
Werner, August....................... Navy..................... 3 months........................................
White, Russell I..................... ....... do.................... 7 months.......................................
Wiedman, Raymond B.......... Marine Corps........ 14 months......................................
THE PASSPORT-VISfi SYSTEM.
While the bureau took strong grounds last year in favor of a continuance
of the so-called vise system, owing to the war situation then
pending in many countries it was on the assumption that, if continued,
provision would be made for the exercise of authority to be
vested in the Department of State and the Department of Labor,
so that the enforcement of the immigration laws might be secured at
the source of much of the then expected increase in immigration, this
not only to meet the necessity to safeguard our country from the
entrance of dangerous elements but to save from the hardships of an
ocean voyage inadmissible applicants who would find on arrival at
our seaports that they must return to their former homes. Instead
of relieving this condition, the continuance of the vise system without
the insertion of the qualifying provisions expected by the immigration
service has had m part, under the amendatory laws on the
subject, the opposite effect so far, and bids fair, unless some way can
be found to remedy the situation, to produce congestion at our immigration
stations, and to increase the difficulties of regulating
immigration under the act of 1917.
The bureau invites attention to that portion of its annual report
for 1919 under the caption “The Passport-Vise System” to present
its attitude on the system, and its strong support of it, but with
qualifications none 01 which have been enacted in the amendatory
laws. It still believes, as then stated, that “there is in the system
342 REPORTS OF DEPARTMENT OF LABOR.
now in operation the germ of a new extension of the Immigration
Service, whose officers, acting either under the State Department’s
officials abroad or in a separate capacity as representatives of this
department, but always cooperating fully with the former, will furnish
an element that will help to complete its machinery of administration,”
and that “it can be used not only as a means to aid in the
regulation of immigration, but in gathering and giving information
which will be beneficial in administering the immigration laws,”
provided such qualifications are included in the law.
PENDING IMMIGRATION LEGISLATION.
At the time of the submission of the last annual report comment
was made with reference to certain bills and resolutions pertaining
to immigration matters which were then under consideration in the
two Houses of Congress. Since that time a number of additional
measures have been introduced, some similar in effect to those
covered in the measures previously presented and others along new
lines entirely. These measures have received consideration on the
part of the respective Houses of Congress and by the bureau. Some
of them advocate a complete suspension of immigration for varying
periods; others the adoption of selective and restrictive methods.
In its report of last year the bureau expressed the view that it is a
question of serious importance whether or not it is desirable to set
aside the traditional policy of our Government concerning the admission
to our country of peoples from foreign lands at a time when
world conditions are being reestablished in channels calculated to
promote more friendly relations. That is the thought it wishes to
convey in the present report; but existing conditions in Europe and
in the United States, and the vast number of people in the former and
in other parts of the world who contemplate coming here, have caused
it to give serious consideration to the possible effect which an influx
of the dimensions promised will have, not only upon the people of
our Country but also upon the newcomers themselves. This consideration
of the matter has forcibly suggested to it the need for
further legislation, both selective and restrictive in nature, and it is
believed that the early passage of such legislation is advisable.
The existence of a large element in some and a considerable percentage
in others of the nations of Europe, as well as in some countries
beyond its boundaries, who do not believe in government,
in the commonly accepted sense, representatives of which have
avowed hostility to and advocated the destruction of ours, presents
a situation that, though difficult, must be met from the standpoint of
complete safety to our institutions. Unless there can be found a
way to eliminate the danger of the entry of this element, it would
appear that strong restrictive measures are necessary to assure protection
to our institutions and safeguard our people.
The stabilization of our business and industrial conditions anticipated
through early reconstruction following the signing of the armistice
has not fully developed, and until it does it is difficult to foretell
what the immediate results to our people, at least for a time, will be.
Under these conditions, with multitudes of the earth’s people dpsiring
admission, many themselves needing help, it is the part of wisdom
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 343
that unless their coming can be regulated so that their addition to
our population may have mutually beneficial results, their interests
and ours should be subserved by legislation intended to avoid injurious
consequences to both.
In view of the fact that its report for last year is now out of print,
and therefore not generally available for consultation, the bureau
inserts herein (marked “Exhibit A”) the draft of a proposed law,
with explanatory memorandum, which was heretofore submitted to
the House Committee on Immigration and Naturalization, many of
the provisions thereof appearing in the bill (H. R. 563) now pending
in Congress. This proposed bill, like others already introduced,
provides for a system of registration of all alien residents with provisional
rather than absolute admission upon arrival as to certain
classes, and also contains many highly desirable features, including
suggestions for a more complete administration of the provisions of
the immigration law concerning seamen.
CONCLUSION.
In conclusion, the bureau takes occasion to express appreciation
of the cordial cooperation of the medical officers of the United States
Public Health Service, who are intrusted under the law with the
physical and mental examination of arriving aliens and seamen, and
to whose careful and able discharge of their duties in this regard has
in no small degree been due the effective application of those provisions
of the immigration laws designed to prevent the introduction
into our country of contagious and dangerous diseases and aliens
who are mentally and physically defective. The commendation and
thanks of the bureau are equally due its faithful and conscientious
officers and employees both in the field service and at Washington,
whose efforts have made possible the results attained as summarized
in this report.
Permit me, also, Mr. Secretary, again to express the thanks of the
entire personnel of the Immigration Service and my sincere appreciation
for the kind consideration accorded to all and the helpful advice
given by you in furtherance of our labors.
A. Cami ne tt i,
Commissioner General.
Hon. W. B. Wil son ,
Secretary of Labor.
EXHIBIT A.
MEMORANDUM EXPLAINING PROPOSED NEW IMMIGRATION
LAW.
Februa ry 3, 1919.
This bill is the concrete expression of certain proposals for immigration legislation
of constructive nature. It is the result of the bureau’s experience with enforcement
of the immigration act during a long period of time, and especially since the United
States became a participant in the great European war. The proposals advanced
therein differ from steps heretofore taken with regard to the regulation of immigration
in that they embrace affirmative methods affecting not only the exclusion or expulsion
from the country of certain categorically stated classes of aliens, but also the
upervision—first for the welfare of the country, and second in the interest of the
aliens themselves—of those who, after the sifting or selective processes have been
gone through with, are permitted to enter either in the ordinary sense of admission
to the country, or provisionally, or temporarily.
While the main principle upon which the proposed bill operates is the old principle
of selection, of attempting to separate desirable immigrants and undesirable immigrants,
admitting the former and excluding or expelling the latter, means are provided
by which the processes of selection may be continued for a period of time after aliens
not actually found to belong to the excluded classes are permitted to enter the country;
and it is proposed also, under the terms of the bill and what it is believed would be
its inevitable effect, to lengthen the period of observation incident to the actual
segregation of the admissible and the excluded, by establishing a method of examination
which would, gradually if not immediately, make it possible to.keep the aliens
under observation and to take all of the preliminary steps toward their exclusion and
admission, respectively, while such of them as come across seas are on vessels bound
for our ports.
Heretofore our immigration laws have been negative, both in their form of operation
and in the results attained. We have attempted to enumerate categorically the
classes of persons deemed undersirable and therefore inadmissible and have regarded
all others as eligible to enter; and in attempting.to draw a line between the excluded
and the admissible, we have allowed ourselves only such time and opportunity to
apply the tests provided by the statute as may be seized in the midst of the hurlyburly
rush which occurs at our seaports in the handling of commerce and in treating
the immigrant passengers substantially as a part of the commerce carried on the ships
plying between foreign ports and ports of this country. While the law has permitted
the institution of proceedings looking to the expulsion of aliens, upon certain contingencies
happening after their admission to the country, this has been a rather minor
incident in the general plan and the attainment of results has not been assured in any
affirmative way but has been left largely to accident; and we have made no effort
at all to avail ourselves of the time elapsing between the foreign embarkation and the
arrival of aliens in our ports as a period during which observation and something
like scientific and thorough selection might occur.
The laws heretofore enacted have not only been negative, but have been largely
nonconstructive. This bill embodies plans for handling the subject of immigration
affirmatively and constructively. The proposed measure, as already indicated, is
of the selective type, is by no means an exclusion law; yet its methods of selection
and the manner in which it extends the period within which observation may occur
and selection be made are such that in effect it would be a restrictive measure..
With the methods and means of applying them that have existed under previous
statutes, about the highest results that have been found possible have consisted, of
the admission to the country of 97 per cent of the aliens applying and of the exclusion
of only about 3 per cent, a ridiculously small proportion, in the light of what we now
know about the character of the immigration that is coming to us. It is believed
that, if the problem should be approached in the affirmative and constructive manner
indicated by this bill the percentage of rejections would be immediately increased
to a considerable extent. But there is much more in this proposition of allowing
time for the observation and selection of immigration than the matter, important
345
346 REPORTS OF DEPARTMENT OF LABOR.
as it is, of insuring the inclusion in those excluded of all the inadmissibles or of the
major portion thereof. The doing of exact justice to the aliens themselves, the handling
of the cases in the manner that is to a certainty fair to both the aliens and the
country, will be-aided almost beyond calculation by increasing the observationselection
period.
While none of the laws on immigration heretofore passed (except the Chineseexclusion
laws) has contained any positive expression upon the subject of burden
of proof, those laws have been so framed, and the customs and practices that have
grown up and been established in connection with their enforcement have been of
such a character, that the Government has been placed in the disadvantageous
position of having to prove in every instance that an alien is inadmissible, rather
than being able to demand that the alien should prove that he was admissible. In
other words, we have been in a position (exemplified so aptly by the famous Castro
case) where an alien could knock at our doors and upon being asked who and what
he was, could give his name and then refuse to answer any questions the purpose of
which was to divulge his character and antecedents, and yet could demand admission
upon the ground that we had failed to show that he was within one of the classes
enumerated in the law as inadmissible.
Obviously this situation is deplorable. A nation, no more than a man, should be
placed in a position where an outsider can demand the opening of the door without
giving a full account of himself and showing that he is a fit person to enjoy the hospitality
that he seeks. Another object of the proposed bill is to remedy this situation.
This is done by stating in so many words that the burden of proof is upon the alien
applicant; and, in order to avoid the delay and the interference with commerce and
navigation that would result from requiring the aliens to remain on board ship, or to
such extent as might be physically possible in detention quarters at the ports, while
an opportunity is being afforded for the making of an affirmative and satisfactory
showing, the two devices are adopted of placing inspectors and doctors aboard ship
for the across-seas passage, and of permitting aliens who have not satisfactorily borne
the burden of proof and who, on the other hand, are not actually shown to belong to an
excluded class, to enter the country provisionally, their conduct after such admission
to constitute proof in one regard or the other.
Heretofore, moreover, we have kept no account worthy of the name of aliens within
our midst. We only know in the most general sort of way that there are about so many
of such and such nationalities, or races, living among us. We do not know accurately
who they are, whence they came, where they are, or what they are doing. In addition
to enforcing the immigration laws, it has been the bureau’s duty and privilege
during the war, constantly to cooperate with the several intelligence branches of the
Government; and its experience in both these regards has demonstrated, it thinks
beyond question, that the time has come when the Government should adopt an
affirmative and constructive policy with respect to aliens who reside in the United
States and there enjoy all the rights, immunities, and privileges, in general, that are
enjoyed by the citizens of this Republic. The system of registration provided by
the bill affords means for acquiring knowledge and for keeping currently informed with
regard to the alien population of the country, and in that way to insure that the undesirable
elements shall not be permitted to remain permanently.
An incidental, but nevertheless important, purpose of the registration system
c omprised in the bill is the promotion of the assimilation of aliens. Of course, it is
not claimed that the system will actually produce assimilation. It is doubted whether
a Federal statute could be drawn that would have that effect. Real assimilation
must be brought about through the influence of environment and education; an alien
can not be legislated into the frame of mind or into the posession of sentiments making
him an American in the real sense. But it is contended that the system outlined
in the bill is calculated to promote assimilation. The three things which, perhaps
more than any others, impede or prevent assimilation of foreigners arise directly
from language, to wit: (a) The tendency to congregate in particular localities where
association with people of their own national or racial origin is possible; (6) the
tendency to continue to read only such newspapers and other publications as are
printed in the language to which they are accustomed; and (c) the desire to attend,
and even to have their children attend, schools making a specialty of teaching the
language of their fatherland. These tendencies and desires can not be legislated out
of existence, but it is possible to encourage aliens to learn to speak, read, and write
the language of this country and to familiarize themselves with its history and its
form of government, and to the extent that aliens are trained along these lines will the
tendencies and desires arising from their natural inclination to adhere exclusively
to their native tongue be offset or overcome. This in a very real sense is the promotion
of assimilation.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 347
Incidentally, in drafting the bill occasion has been taken to add to the categorical
list of aliens subject to exclusion and expulsion, respectively, a few classes shown by
experience, and especially by the war experience of the bureau, to constitute the
undpsirable elements in our immigration that have not heretofore been reached.effectually
by the laws or by such regulations as it has been possible to frame within the
scope of the statutes. This, however, will, be discussed more specifically in taking
up separately the various sections of the bill.
It will be recalled that sections 31 to 36 of the Burnett immigration bill, relating
specifically to alien seamen, were regarded at the time of their passage as experimental
to a very considerable extent. A broad discretion was. conferred for the adoption, of
regulations to carry out said sections and at the same time prevent interference with
the operation of the seaman’s act. Of course the regulations have also been of an
experimental nature. Another object of the bill is to incorporate in the law the results
of the bureau’s experience with said sections and regulations. The amendments
proposed in this regard are not very extensive but are very important. Their main
purpose is to give the immigration officials full control of, or. complete information
concerning, alien seamen, both entering and leaving the United States and also of
those who engage in the coastwise and Great Lakes trade,.and to provide affirmatively
and positively for the proper treatment in hospital of diseased alien seamen, and to
make possible the prompt removal from the country of those who are so badly diseased
or disabled that a cure can not be effected within a reasonable time.
In the foregoing the bureau has attempted to describe as succinctly as comprehensibility
will permit the main purposes of the bill. To insure a thorough understanding
of the measure, however, it seems desirable to discuss the sections seriatim.
Section 1 defines the term “United States” for the purpose of the bill, repeating
the definition used in section 1 of the immigration act; defines the term “immigration
act” and “immigration laws.” so as to avoid awkward repetitions of long phrases in
the body of the bill; defines the word “alien,” repeating the definition contained in
section 1 of the immigration act; defines the word “seaman” or “seamen,” and.also
the term “alien seaman” or “alien seamen,” adopting for the former the definition
given in section 1 of the immigration act., and extends the definition of the latter to
include aliens employed on board vessels in the coastwise or Great Lakes trade or in
deep-sea fishing; defines the word “admission” or “admitted,” and the.term “temporary
admission” or “temporarily admitted,” in the interest of brevity and perspicuity
in the text; and repeats, for the purposes of the bill, the provision appearing
in section 1 of the immigration act regarding manner of enforcement in the Philippine
Islands. . . . . .
Section 2 makes it the duty of all aliens residing within or admitted to the United
States to register and to renew their registration periodically, grants.permission to
persons apparently aliens but claiming to be citizens to register as citizens (without •
requiring them to renew their registration) upon proving citizenship, and specifies
certain details regarding registration.
Section 3 specifies details with regard to the renewals of registration.
Section 4 permits parents or guardians of children and mentally deficient persons
to act for them in the registration and renewals.
Section 5 prohibits the registration of aliens found by the immigration officials to
be within the United States in violation of law.
Section 6 makes provision for the issuance of certificates in lieu of those lost, destroyed,
mutilated, or obliterated.
Section 7 makes special provisions with regard to aliens entering temporarily as
tourists or visitors or passing through in transit.
Section 8 describes the certificate of registry and identity, specifies where the duplicate
and triplicate copies thereof shall be filed, makes it the duty, of aliens.removing
permanently from one immigration district to another to notify the immigration official
in charge of the district from which removing, and provides other details in this connection.
..... „ . ,
Section 9 contains the “assimilation” clauses of the bill, and, incidentally, is designed
to produce the funds with which the measure will be enforced. The fees
therein specified might seem, on casual consideration, to be too large, but the bureau is
inclined to think they have been fixed at the minimum possible if the series of reductions
intended to be made for aliens qualifying along certain educational lines are to be
of sufficient magnitude to constitute an incentive to learn to read and write the English
language, etc. Of course the incentive would be greater if the amount of the fees was
increased and leeway thus given for an increase in the amount of each annual reduction;
but at the same time, any appearance of exorbitance should be avoided, and the
amounts fixed upon have been adopted after weighing all these considerations. It
will be observed that the amount of the registration fee, the first fee paid, is substan348
REPORTS OF DEPARTMENT OF LABOR.
tially nominal, and that the series of reductions starts with the first renewal fee, which
is fixed at an amount sufficiently large to make the possible annual reduction worth
while. This arrangement is made out of consideration for the fact that aliens entering
the country now have to pay a head tax of $8, with certain exceptions, a tax which in
the cases of large families sometimes amounts to considerable for the person of limited
means; and there has also been taken into consideration the fact that the registration
fees will, as the head tax does, fall most heavily upon immigrant families; and experience
both before and during the war has demonstrated that the best immigrants, on
the average, are those who bring their families to this country and establish here the
domestic tie, one of the strongest bonds by which a person is attached to a country.
Persons registering as American citizens and aliens entering temporarily as tourists,
visitors, or transits, as well as those found to be paupers in public institutions, are
exempted from the payment of the fees. A nominal fee is fixed for the issuance of a
certificate in lieu of one lost, destroyed, mutilated, or obliterated.
Section 10 provides for adding to the immigration appropriation the fees collected
under the bill and also for the bonding of officers who will be assigned the duty of
collecting the fees.
_ Section 11 adds to the excluded classes aliens who practice, advocate, teach, sanction,
or encourage the extortion of money or property, or the avenging of private
grievances, through threats of bodily injury, or injury to property, or who are membersof
organizations that do such things; and aliens who have been deported under any
provision of the bill who may apply within the succeeding year for readmission without
first securing permission to reapply. The addition of the first class is directed
particularly at members of “tongs” anti “blackhand societies” and aliens who practice,
advocate, teach, sanction, or encourage the blackmailing methods employed by
such organizations. In including in the section the provision for the exclusion of
those who have been deported under the bill there is merely being repeated a similar
provision appearing in section 3 of the immigration act applying to aliens deported
under that law. The last paragraph of the section is also a repetition of a provision
contained in the immigration act.
Section 12 contains some of the most important provisions of the bill. In the first
place it makes perfectly certain the proposition that aliens, in order to be admitted to
the United States, must establish affirmatively and satisfactorily their admissibility—
that aliens seeking admission fall into three distinct classes, those who show affirmatively
and satisfactorily their admissibility, those with respect to whom it is shown
that they belong to any one of the excluded classes, and an intermediate division composed
of the large number (as experience has amply demonstrated) of aliens wljo are
not shown to belong to one of the excluded classes and whose admissibility, nevertheless,
is not affirmatively and satisfactorily established.
Obviously aliens shown to be inadmissible ought to be promptly deported—of course,
after having such opportunities as are afforded by the law for presenting evidence and
taking appeals. Just as clearly those who carry the burden of proving admissibility
should be promptly admitted. But between these two extremes there lies a mean
which all who have had experience in enforcing the immigration laws know includes a
very large proportion of the immigrants coming to this country; and to a very considerable
extent it is the failure of laws heretofore passed satisfactorily to cover this class
which has resulted in the administration of immigration matters producing only negative
results and accomplishing nothing worth while of a constructive nature in the
handling of our immigration problems.
The details of section 12 have been worked out with great care. Aliens falling within
the provisionally admitted class are regarded as within the country simply upon probation;
the probational status must continue for at least a year—this to avoid the administrative
difficulties that would arise if provisionally admitted aliens should be
permitted constantly to petition for outright admission from the time they gain a footing
within the country and before there had been any real opportunity to demonstrate
their fitness for continued residence here; the records concerning provisionally admitted
aliens are kept open, to be closed only when the aliens are finally disposed of
either by actual admission or by deportation; appeals are permitted; provisionally
admitted aliens are not to be regarded as residents of the United States for either immigration
or naturalization purposes, but when admission occurs because developments
subsequent to entry have demonstrated the alien’s desirability, the admission is to be
now for then and residence to be regarded as commencing with the date of provisional
entry; the certificate of registry and identity provided by sections 2 to 10 is to be
furnished provisionally admitted aliens but to bear a notation showing the provisional
character of the admission; when renewals of registration are made the immigration
officials are to make inquiries concerning the alien’s admissibility; after the expiraREPORT
OF COMMISSIONER GENERAL OF IMMIGRATION. 349
tion of one year the alien may submit evidence on his own initiative and without
waiting for a renewal period to occur.
A paragraph of the section is devoted to conferring upon the department broad
powers for the promulgation of rules and regulations concerning provisionally admitted
aliens, and five items in particular to be covered by such regulations are enumerated,
to wit, the exacting of bonds or cash bail, the withholding and depositing in the postal
savings bank of a reasonable portion of the wages or profits earned ('this being in lieu
of the exaction of bond or cash bail), the holding of the bond, cash bail, or deposits
until the alien has either been admitted or deported or has departed, the directing
of the aliens to profitable and useful employment, and the submission of reports each
six months concerning the provisionally admitted aliens.
A very important feature of the section is embraced in the sixth paragraph thereof.
It will be recalled that when the Burnett immigration bill was pending a provision
was incorporated therein, on the floor of the House, requiring steamship companies
bringing aliens to our ports to permit the placing on their vessels of surgeons, inspectors,
and matrons to observe the aliens while en route. Such provision was changed, however,
before the final passage of the act in the form shown in section Ila thereof, which
simply authorizes and directs the Secretary of Labor to enter into negotiations with
the various nations whose vessels bring aliens to the United States with the object of
securing permission to place immigration officials on the boats. The war has produced
a change in the situation regarding shipping. From this time.forth a large proportion
of the vessels plying between the United States and Europe will fly the American flag.
It is now proposed, therefore, to confer authority for the placing of officers on boats of
American registry and for placing them upon such vessels of foreign registry as shall
consent thereto. It is believed that the prompt handling of both the passengers and
the crews of the vessels will be so distinctly and so materially aided by having surgeons,
inspectors, and matrons carried on board that, simply as a matter of business competition,
all of the transportation lines would very soon be brought to the necessity of
consenting to the arrangement, for any that did not consent would be placed at the
serious disadvantage of having their passengers held on board the vessel or in detention
quarters at their expense until the same intensive and discriminating examination
could be conducted that would be possible where the officers are carried on board.
The last two paragraphs of this section contain very important provisions, the
purpose being to confer upon the Commissioner General of Immigration extensive
and detailed power and authority to follow up in an intelligent, informative, and constructive
manner the cases of aliens now within the country or hereafter admitted
and affirmatively aid in their assimilation.
Section 13 adds to the classes expelled by law aliens who enter in violation of the
proposed act; aliens who practice, advocate, teach, sanction, or encourage extortion
or belong to any organization doing so, this provision being similar to one already
described appearing in section 11; aliens who during the war have withdrawn their
declarations to become citizens in order that they might escape military service;
aliens whose registration is prohibited by section 5 of the bill; aliens who violate or
fail to observe the registration and re-registration requirements; and aliens likely to
become a public charge.
No further comment is required regarding the first two classes mentioned. Regarding
the third, it seems obvious that an alien who deliberately withdraws a declaration of
intention in order to escape the responsibility of fighting for a country the immunities,
privileges, and benefits of which he has been enjoying has thereby demonstrated
his unfitness to remain among us. Aliens who are unlawfully here and therefore can
not be allowed to register should be brought within the scope of the authority to expel
and the same may be said with regard to those who willfully fail to observe the registration
and re-registration requirements; moreover, the registration can not be effective
unless authority of the kind here contemplated to compel aliens to observe the requirements
is conferred upon the administrative officers. Aliens likely to become a public
charge have been excluded from the United States practically ever since there has
been a law concerning immigration in this country, and since 1903 aliens shown to have
been likely to become public charges at the time of their entry have been subject
to deportation. The provisions of the 1903 and 1907 acts on this subject were regarded
by the bureau and department as relating to aliens likely for any reason to become
public charges, and were so applied and administered; i. e., aliens likely, by reason of
their criminal disposition or similar propensities to get into trouble and land in penal
or reformatory institutions, as well as those likely for any reason to become inmates of
almshouses, asylums, and like institutions, were considered as within the excluded
class; and those who actually became inmates of such institutions were regarded as
within the expelled class. In passing the 1917 act, Congress seems to have given
legislative assent to this view of the scope of previous laws and to have intended that
350 REPORTS OF DEPARTMENT OF LABOR.
the same construction shall be placed upon the existing law. But experience has
shown that this policy should be carried one step further. The department ought to
be given sufficient power to enable it, whenever it becomes satisfied that an alien
within the country has shown by his failure to make good, by his actions, or by his
attitude toward our Government or our laws, that he is likely to become an inmate of
any institution of the kind mentioned, to take charge of such alien, and after affording
him an appropriate opportunity to be heard on the charge, return him to the country
whence he came. It ought not to be necessary for the department to wait until the
alien actually does the mischief or falls into the status that makes him a public charge.
If such a provision had been in the law during the period of the war, the department’s
hands would have been materially strengthened in all of its numerous and extensive
efforts to guard the country against undesirable aliens residing here; especially does
this relate to the anarchistically inclined, and to what has come to be, as yet rather indefinitely,
described as the “Bolsheviki” element.
.It will be observed, however, that with respect to the last three classes enumerated
in the section as subject to expulsion, deportation is not made mandatory but discretion
is conferred upon the department to permit the aliens to remain within the
United States provisionally under section 12 of the bill. This is a very important
feature. It places the matter in such shape that justice and fairness may prevail,
that the country may be actually protected and at the same time the aliens afforded
every proper opportunity to demonstrate their capacity to make good within the
country.
The next to the last paragraph of the section confers upon the department a somewhat
broader discretion than that given by section 20 of the immigration act to choose
the country to which an excluded or expelled alien shall be sent. At the time the
immigration act was passed it was believed that the discretion conferred in this
regard was broad enough; but the war has changed the situation. From this time
forth there will doubtless be many cases in which the country from which an alien
comes when entering the United States will decline to receive the alien back when
he is excluded at one of our ports. Aliens who are citizens or subjects of the Central
Powers will be persona non grata in many of the countries that have been associated
together against those powers during the war. The last paragraph of the bill is merely
a reenactment for the purposes of this measure of a provision now appearing in section
19 of the law.
The foregoing covers such provisions of the bill as are new propositions. It remains
to discuss the sections dealing particularly with the seamen matter, and a few provisions
that tie together this bill and the’ existing law and confer general authority
for the promulgation of regulations.
Sections 14 to 25 relate to seamen, and are to a very considerable extent a proposed
reenactment of sections 31 to 36 of the immigration act, as already stated in outlining
in the first part of this memorandum the general purposes of the bill.
Always, but especially since the Supreme Court held in the Taylor case (207 U. S.
120) that the immigration act of 1903 did not apply to aliens who enter our ports
merely in the pursuit of their calling as sailors, the seaman’s occupation has been
used as a guise under which diseased or otherwise objectionable aliens could get past
the immigrant inspectors and doctors and unlawfully enter the country. While an
attempt was made to meet this situation in the Burnett Immigration Act, and while
that law and the regulations enforced thereunder have proven fairly satisfactory,
experience has developed certain particulars in which the law is not sufficiently
detailed or explicit. With this further general comment, the remaining sections of
the bill are now taken up in order.
Section 14 reenacts section 31 of the immigration act of February 5, 1917, the only
substantial changes being that the term “alien seaman”—a term carefully defined
in section 1 of the bill—is used, in the interest of clearness, instead of the word ‘ ‘ alien. ’ ’
Section 15 reenacts section 32 of the said immigration act. with the following important
changes: (a) The purposes for which alien seamen who would not be admissible
if they were seeking entry as immigrants may land temporarily in ports of the United
States, and the manner in which such temporary landing may lawfully occur, are
carefully stated and described, and not left to be inferred and to be stated, if at all,
through the mere promulgation of regulations, as in the existing law; (&) the amount
of the penalty for violation of the section is changed from $1,000 to $300, but its.collection
is made more summary, more easy, and more certain by using the administrative
process of refusal of clearance to tlie vessel instead of the judicial proceeding
of libeling the vessel. In this second respect the section is made to conform exactly
to section 18 of the said immigration act, assessing a penalty against vessels for violation
of similar provisions regarding aliens brought to our ports as immigrants—which
section has been found to work satisfactorily.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 351
Section 16 reenacts part of section 33 of the said immigration act, the substance of
the remainder of said section being preserved in section 21 of the bill, hereinafter
discussed. In addition it provides specifically, instead of leaving such matters to be
inferred, that the immigration officials shall board incoming Vessels and inspect the
alien seamen found thereon, and that such officials shall be notified by the owners,
masters, agents, or consignees of such vessels where the vessels will be anchored or
moored.
Section 17 reenacts section 34 of the said immigration act, amending it so as to
permit the examination of aliens who are apprehended after entering unlawfully or
irregularly as seamen to be conducted by an immigrant inspector instead of by a
board of special inquiry, thus bringing the procedure into exact conformity with
that followed under the immigration law in the cases of aliens who enter unlawfully
or irregularly otherwise than as seamen. The two provisos added to this section
merely incorporate into the law practices which it has been found advisable to follow
in enforcing sections 31 to 36 of the immigration act, in order to avoid interference
with the operation of the seamen’s act or the visiting of any undue hardship upon
seamen.
Section 18 reenacts section 35 of the said immigration act, with two important and
much-needed changes, to wit: (a) The section is made to apply to freight as well as
passenger carrying vessels; (6) the amount of the fine is changed from $50 to $100.
It is almost, if not quite, as great a menace to the public health for diseased seamen
to be carried on freight as on passenger vessels, and it is just as unwise or inhumane
to use the mentally unsound on one as on the other character of vessels; the fine for
bringing diseased or mentally deficient passengers is $200 (sec. 9. immigration act),
and there does not seem to be any good reason why it should not be made as. large
as now recommended in the case of seamen.
Section 19 reenacts section 36 of the said immigration act, with some unimportant
changes in the text, and one important amendment, to wit: The provisions of the
section requiring the furnishing of crew lists is made to apply to “seamen,” not
simply to “alien seamen”—both of which terms are defined in section 1 of the bill.
This change is made for two special reasons: (a) It is often very difficult for officers
of vessels surely to determine whether a seaman is an alien or a citizen, and such
officers usually‘prefer to list the entire crew, giving nationality to the best of their
ability, and leaving the question of nationality for final and authoritative decision
by the immigration officials; and (6) it is important, from the point of view of enforcing
the immigration law, that the list shall be absolutely inclusive of all aliens, which
can not be insured otherwise than by listing the entire crew.
Section 20 is new legislation, but merely gives legislative sanction to the established
practice of removing diseased seamen from vessels and treating them in hospitals at
United States ports and makes it clear by whom the expense of treatment shall be
borne. It also contains a provision conferring discretion upon immigration officials
to deport promptly those who are shown to be so badly afflicted that a cure can not
be effected within a reasonable time.
Section 21 contains, in substance, so much of section 33 of the immigration act as is
not embodied in section 16 of the bill. Most of it, however, is new legislation, the
purpose of which is to give absolute legislative sanction to the substance of a rule
(rule 10 of the Immigration Regulations) which it has been necessary to enforce under
the immigration act, with a view to prevent the entry of inadmissible aliens, and at
the same time not interfere with the operation of the seamen’s act. It has been found
to be important from every point of view (including that of the bona fide seaman) to
furnish seamen with certificates of identity., thereby affording a ready means by which
the real seaman may be able to establish his status, and (through the duplicates of the
certificates kept by the immigration officials) creating an absolute record that may. be
used in following up and eventually deporting those aliens who do succeed in getting
by the inspectors as seamen when not actually such.
Section 22 embodies in the law provisions which have been enforced as regulations.
Under said section, if seamen shall become immigrants, i. e., abandon.their calling
and attempt to remain in the United States, they must pass all the requirements and
tests prescribed by the existing immigration law in the cases of immigrants, and must
also comply with the provisions of the bill affecting immigrants generally.
Section 23 relates to the coastwise and Great Lakes trade and prevents alien seamen
who are not admissible to the United States under the immigration law from entering
such trades. This has heretofore been covered by regulations, but the hands of the
department would be materially strengthened if the provisions should be made
statutory. . . . .
Section 24 requires that shipping commissioners shall, furnish immigration officials
with detailed reports concerning alien seamen who ship out of the United States.
352 REPORTS OF DEPARTMENT OF LABOR.
With reports of this kind in their possession, in addition to the outgoing manifests required
by section 19 of the bill, it would be possible for immigration officials to keep
complete records of alien seamen, to “strike a balance” periodically to determine
which, if any, of such seamen have violated the law and remained permanently in
the country,’ and then to take appropriate steps to follow up the cases and prevent
actual violation of the immigration laws. The present system is seriously defective
in this regard. . .
Section 25 provides a means for overcoming the existing difficulty of keeping m
complete touch with alien seamen, arising from the privilege given owners, agents,
consignees, or masters of vessels by section 4504 of the Revised Statutes to ship their
own crewswhen their vessels are engaged in the coastwise trade or plying between the
United States and the British North American possessions, the West Indies,, or Mexico.
By requiring the vessels in these cases to obtain the consent of immigration officials
before taking aliens into their crews, it will be possible so to supervise the matter as to
prevent the violations of law that now occur.
Section 26 includes in and makes fully a part of the bill certain provisions of sections
16, 17, 18, and 20 of the immigration act of February 5, 1917, defining offenses
and specifying penalties or punishments therefor. The object is to insure that full
force and effect shall be given to each and every provision of the bill by providing
means of enforcing respect therefor.
Section 27 is a carefully worked out penal provision, the purpose of which is to
prevent the forging or the fraudulent use of certificates issued for aliens in pursuance
of the bill. The necessity for such a provision is obvious.
Section 28 confers upon the Commissioner General of Immigration and the Secretary
of Labor authority to issue rules and regulations to put the law into operation,
including special rules to cover cases of aliens entering from or through contiguous
foreign territory and those constantly crossing back and forth on the land boundaries,
and also special rules for the enforcement of the various immigration laws in their
relation to alien seamen without impeding the operation of the seamen’s act.
Section 29 specifies that the law shall take effect on January 1, 1920.
DRAFT OF PROPOSED NEW IMMIGRATION LAW.
A BILL To provide for the registration and promote the assimilation of aliens; to farther regulate the
immigration of aliens to, and the residence of aliens in, the United States; to amend provisions of the
Immigration Act relating to alien seamen; and for other purposes.
Be it enacted by the Senate and House of Representatives of the United States of America
in Congress assembled, That the term “United States” as used in the title and various
sections of this Act means the United States and any waters, territory, or other place
subject to the jurisdiction thereof except the Isthmian Canal Zone: but if any alien,
or any alien seaman, shall leave the Canal Zone or any insular possession of the United
States and attempt to enter any other place under the jurisdiction of the United
States, nothing contained in this Act shall.be construed as permitting him to enter
under any other conditions than those applicable to all aliens, or to all alien seamen,
respectively.
The term “Immigration Act” as used in the title and various sections of this Act
means the Act of February fifth, nineteen hundred and seventeen, entitled “An
Act to regulate the immigration of aliens to, and the residence of aliens in, the United
States”; and the term “immigration laws” as used in various sections of this Act
includes the said Immigration Act and all laws, conventions, and treaties of the
United States relating to the immigration or the exclusion of aliens.
The word “alien” as used in the title and various sections of this Act includes any
person not a native-born or naturalized citizen of the United States; but this definition
shall not be held to include Indians of the United States not taxed or citizens of the
islands under the jurisdiction of the United States.
The word “seaman” or “seamen” as used in the various sections of this Act includes
every person signed on the ship’s articles and employed in any capacity on board
any vessel arriving in the United States from any foreign port or place; and the term
“alien seaman” or “alien seamen” as used in the title and various sections of this
Act means any alien as herein defined employed as a seaman as herein defined, or
employed as a seaman in the coastwise or Great Lakes trade, or employed as a fisherman
in deep-sea fishing.
The word “admission” or “admitted” as used in.the various sections of this Act
means admission into the United States unconditionally or unprovision ally, and
yet subject to all provisions of law that make it possible for an alien within the United
States to forfeit his right to be and remain therein; the term “temporary admission”
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 353
or “temporarily admitted” means allowed to enter for a strictly temporary purpose;
and the term “provisional admission” or “provisionally admitted” means allowed
to enter upon the conditions specified in section twelve hereof.
This Act shall be enforced in the Philippine Islands by officers of the general government
thereof, unless and until it is superseded by an act passed by the Philippine
legislature and approved by the President of the United States to regulate in the
Philippine Islands the subjects covered thereby, as authorized in the Act entitled
“An Act to declare the purpose of the people of the United States as to the future
political status of the people of the Philippine Islands, and to provide a more autonomous
government for those Islands, ” approved August twenty-ninth, nineteen hundred
and sixteen.
Sec . 2. It shall be the duty of all aliens within the United States on the date
this Act takes effect to register within the year next succeeding such date, and thereafter
annually to renew such registration, in the manner hereinafter provided, and
all aliens admitted, or provisionally admitted, to the United States on and after such
date, shall likewise register and renew their registration. A certificate of registry and
identity of the character hereinafter described shall be issued to each alien so registering,
and be renewed on or before January first, commencing with the second January
following such registration, each year for the four calendar years next succeeding said
second January; Provided, however, That after procuring final naturalization papers
persons need not renew their registration.
Resident aliens shall be registered by United States immigration officers or employees
detailed for that purpose, and aliens admitted or provisionally admitted
shall be registered by immigration officers or employees at the time and place of entry.
The Commissioner General of Immigration is authorized and directed to place immigration
officials in charge of districts so arranged as to make the registration of aliens
hereunder as easy and as inexpensive as conditions and circumstances may permit;
and to assign officers and employees of the Immigration Service to the duty of completing,
during the year next succeeding the taking effect of this Act, the registration
hereby required, instructing such officers and employees to travel from one important
point "to another, giving due public notice of their itineraries, taking the statements of
the aliens and supplying them with the certificate of registry and identity herein
specified.
Persons apparently aliens, but claiming to be citizens of the United States otherwise
than by naturalization through judicial proceedings, shall be permitted to register
under this Act as such citizens upon satisfactorily proving their claim of citizenship
to the registering officials, or, upon appeal, to the Commissioner General of Immigration.
In such cases renewal of registration shall not be required. If the person claiming
citizenship fails to establish such claim, he shall be required to register as an alien,
and subsequently in due course to re-register as such, under the provisions of this Act.
Sec . 3. The skid certificate of registry and identity shall be renewed by the
immigration officials, such renewal to be indicated by appropriate notation thereon,
on or before the first day of January, .commencing with the second January following
registration, each year for the four calendar years next following said second January.
After the fourth renewal has occurred no further renewal shall be required. The
alien shall then and thereafter be regarded as entitled to remain in the United States,
if he has meanwhile complied with all the requirements of this Act, and has not
previously and does not thereafter become subject to deportation under this Act, or
the immigration laws. Renewal shall be accomplished and made in substantially
he same manner as original registration.
Sec . 4* The parents or guardians of children of tender years or of persons non
compos mentis eligible to register hereunder shall be permitted to.act in behalf of
such children or persons in both the registration and renewal required hereby; but
in every instance the certificate issued and renewed shall contain the description
and photograph of the person affected, verified as such by the registering or renewing
officer.
Sec . 5. No alien found by immigration officials to be within the United States in
violation of the Immigration Act, or in violation of any law, convention, or treaty of
the United States regulating the immigration of aliens, shall be permitted to register
under the provisions of this Act.
Sec . 6. If a certificate of registry and identity is lost or destroyed or becomes mutilated
or obliterated, a certificate in lieu thereof shall be issued by the Commissioner
General of Immigration upon satisfactory proof of the loss or destruction, or upon
surrender of the mutilated or obliterated document.
Sec . 7. Aliens entering the United States temporarily as tourists or visitors or passing
through in transit shall be furnished with said certificates of registry and identity, of
which a duplicate shall be kept at the port or place of admission. When leaving the
15283—lab 1920---- 23
354 REPORTS OF DEPARTMENT OF LABOR.
United States such aliens shall surrender their certificate to the immigration official
in charge at the port or place of departure, who shall forward it to the official in charge
at the place of entry, so that the departure of the temporarily admitted aliens may
thus be proved and the necessity for taking any further steps concerning them avoided.
Sec . 8. The certificate of registry and identity herein prescribed shall be prepared
in triplicate, and shall contain a complete description and a photograph of the alien
to whom issued. The original shall be delivered to the registered alien; one copy
shall be filed in the office of the immigration official in charge of the district in which
any resident alien is residing at the time of registration or to which any alien, admitted
or provisionally admitted, proceeds; and the other copy shall be filed in the Bureau
of Immigration at Washington. When renewals occur appropriate notation shall be
made upon both copies as well as upon the original. It shall be the duty of the registered
alien to notify the immigration official in charge of the district in which he is
then residing of each and every permanent removal from one district to another made
by him, and any change of residence exceeding six months shall be regarded as permanent.
When so informed, the said official in charge will transmit the copy of
certificate filed with him to the official in charge of the district into which the alien
has moved, advising the Commissioner General of Immigration that he has done so
and of the new address of the alien.
Sec . 9. For the registration and renewals hereinbefore prescribed the following fees
shall be collected: For males and unmarried or widowed females over sixteen years
of age, $2 for each registration and $10 for each renewal; for all married females and
for all children under sixteen years of age, $1 for each registration and $5 for each
renewal: Provided, That the fee for the first renewal shall be in the first class of cases
only $8 and in the second class only $4 if the alien shall present to the renewing
officer a certificate signed by a duly authorized officer of any board of education to the
effect that it has been found upon proper examination that alien can read the English
language; that the fee for the second renewal shall be in the first class of cases only
$6 and in the second class only $3 if the alien shall so present such a certificate showing
it has been so found that he can both read and write said language; that the fee
for the third renewal shall be in the first class of cases only $4 and in the second only
$2 if the alien shall so present such a certificate showing it has been so found that he
can read and write said language and has acquired a reasonably accurate knowledge
of American history; that the fee for the fourth renewal shall be in the first class of
cases only $2 and in the second only $1 if the alien shall so present such a certificate
showing it has been so found that he can read and write said language and has acquired
a reasonably accurate knowledge of both American history and the American form of
Government: Provided further, That all aliens registered hereunder who shall, in the
manner hereinbefore indicated, establish in connection with any renewal of their
registration that they are at that time qualified in each and every respect specified in
this section shall be exempted from the payment of any fee in connection with that
renewal and all subsequent renewals:, Provided further, That no fee shall be charged
for registering any person who requests registration as an American citizen and proves
such citizenship, nor on account of aliens entering the United States temporarily as
tourists or visitors or passing through in transit to other countries under section seven
hereof, nor on account of aliens admitted temporarily or at frequent intervals in pursuance
of section 28 hereof: Provided further, That aliens eligible for registration
under the provisions of this Act found in institutions maintained in whole or in part
by taxation, in whose behalf evidence is submitted or adduced showing that by
reason of their public charge status they are unable to pay the registration and renewal
fees herein specified, shall be excused from the payment of such fees.
For the issuance of a certificate of registry and identity in lieu of one lost, destroyed,
mutilated, or obliterated, as provided in section 6 hereof, a fee of $1 shall be charged.
Sec . 10. The fees collected hereunder shall be covered into the Treasury of the
United States to the credit of the appropriation for*expenses of regulating immigration
during the fiscal year in which such collection is made and shall be used under
the direction of the Secretary of Labor for the purposes specified in the Act making
such appropriation, including the expense of carrying this Act into effect, the unobligated
balance at the close of any fiscal year to be disposed of in like manner as
similar balances.
Immigration officials and employees assigned the duty under this Act of collecting
the fees herein specified shall be bonded in appropriate amount to be determined by
the Commissioner General of Immigration.
Sec . 11. The following classes of aliens, in addition to those excluded by existing
law, shall be excluded from the United States: All aliens who practice, advocate,
teach, sanction, or encourage the extortion of money or property, or the avenging of
grievances, through threats of bodily injury or injury to property, or who are members
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 355
of or affiliated with any organization that so practices, advocates, teaches, sanctions,
or encourages, the extortion of money or property, or the avenging of grievances; and
aliens who have been deported under any of the provisions of this Act, and who may
again seek admission within one yea- from the date of such deportation, unless prior
to their reembarkation at a foreign port or their attempt to be admitted from contiguous
foreign territory the Secretary of Labor shall have consented to their reapplying
for admission.
In every case in which any person is ordered excluded from the United States
under the provisions of this Act or of the immigration la’frs the decision of the Secretary
of Labor shall be final.
Sec . 12. All aliens who shall establish affirmatively and*satisfactorily that they are
admissible to the United States under this Act or the immigration laws shall be admitted
and registered in the manner specified in sections 2 to 10 of this Act; and all
aliens excluded under this Act or the immigration laws shall be deported; but
aliens not affirmatively and satisfactorily shown to be admissible nor yet shown to
belong to any excluded class may be provisionally admitted, as hereinafter specified,
and registered in the manner provided by sections 2 to 10 hereof. The provisionally
admitted alien shall be admitted if and when the facts and circumstances
adduced and developed after the provisional admission, considered with those disclosed
at the time of entry, establish affirmatively and satisfactorily that the alien
involved is admissible under this Act and the immigration lav s; but if and when the
facts and circumstances adduced and developed after the provisional admission, considered
in connection with those disclosed at the time of entry, establish that the alien
involved belongs to a class excluded by this Act or the immigration laws, such alien
shall be excluded and deported in the same manner as though he had been rejected
at the time of arrival.
In cases of provisional admission the record of the board of special inquiry shall not
be closed until it has been completed by the addition thereto of the evidence developed
after entry, nor until the alien is either admitted or ordered deported; whereupon
an entry showing the action finally taken by said board shall be made in such record,
from which final decision, if adverse to the alien, an appeal may be taken, through
the local immigration officials and the Commissioner General of immigration, to the
Secretary of Labor, as in other immigration proceedings.
No alien provisionally admitted hereunder shall be regarded as a resident of the
United States or entitled to be and remain therein under the naturalization or immigration
laws until such alien has actually been admitted as herein prescribed: Provided,
That in all such cases in which admission finally occurs the decision shall become
effective nunc pro tunc and the alien’s residence be regarded as dating from the time
of provisional admission.
The certificate of registry and identity issued under sections two to ten hereof shall
in all cases of provisional admission contain a notation showing the entry is provisional
only. In connection with the renewals of registration in such cases immigration
officials shall make appropriate inquiry or investigation to determine
whether facts or circumstances have developed justifying either that the alien
shall be admitted or that he shall be deported. All evidence secured in such
manner shall be forwarded to the immigration official in charge at the port of entry
and placed before the board of special inquiry and added to its record as hereinbefore
specified; and admission shall not be permitted in the case of any provisionally
admitted alien until at least one year has elapsed after entry: Provided, That nothing
herein contained shall be construed to prevent the submission of evidence to such
board by or on behalf of the alien at any other time after the expiration of one year
from the date of provisional admission.
The Commissioner General of Immigration shall, with the approval of the Secretary
of Labor, prescribe rules and regulations, not inconsistent with law, for the administration
of this section. Such rules and regulations may contain, among others, provisions
requiring—-
(a) That in cases of provisional admission bond or cash bail shall be exacted constituting
appropriate guaranties, including assurance that the alien shall not become
a public charge and that he will be produced whenever and wherever demanded by
the Commissioner General of Immigration; or
(b) In lieu of such a bond or cash bail, the deposit in the United States postal savings
bank at regular intervals of a reasonable portion of the wages earned by or business
profits of such alien, until in this manner there has been accumulated to the alien’s
credit a sufficient sum to constitute similar guaranties and assurances;
(c) That such bond shall be canceled, such cash bail returned, or such deposits
withdrawn from the postal savings bank only upon the actual admission of the alien
or upon his deportation or departure from the United States;
356 REPORTS OF DEPARTMENT OF LABOR.
(d) That provisionally admitted aliens may, whenever necessary, through such
agencies as may be available to the Department of Labor, be directed to useful and
profitable employment of a nature suitable to such aliens’ capacity or acquirements;
(e) That, in addition to compliance, with the registration provisions hereof, reports
shall be made by or on behalf of provisionally admitted aliens at least once in every
six months succeeding entry, such reports to be submitted through immigration officials
or such other Government authorities as may be designated by the Department
of Labor by arrangement with other departments. . . . .
To facilitate the enforcement of this Act, the Commissioner General of Immigration
shall, with the approval of the Secretary of Labor, detail inspectors, matrons, and
interpreters of the Immigration Service, and arrange with the Surgeon General of the
United States Public Health Service for the detail of surgeons of that service, for duty
on vessels of United States’ registry engaged in bringing immigrant passengers to
ports of the United States and upon all other vessels so engaged the owners of which
are willing to enter into agreements having in view the prompt disposal of their passengers
at ports of the United States. .
The Commissioner General of Immigration shall have power to make inquiry relative
to economic and other conditions affecting aliens in the United States; to collect
information concerning the occupations and industries for which they are fitted by
training and experience, and also as to the nature of the business or occupation in which
they are or have been engaged while in the United States; to procure and furnish such
information as will conduce to their welfare and protection; to supply useful infoimation
concerning their rights and responsibilities as residents, and the necessity of
observing labor, school, health and other laws and regulations, and to inculcate and
teach obedience to law; to prevent fraud and loss to aliens, and in the investigation
of complaints filed by them or in their behalf, he shall also have power to inquire into
the relations of aliens with banks, public or private corporations, companies, partnerships,
firms, or other agencies, in connection with the deposit of money and title to
and interest in property, real or personal, belonging to them, and also the relations of
societies or organizations established for the purpose of aiding them in seeking employment
or otherwise; to investigate violations of Federal, State, and municipal laws or
ordinances by aliens, or by individuals or organizations dealing with aliens, that may
come to his notice, with a view to initiating appropriate action by the proper authorities,
Federal or local; to provide, in such way as may best effect the purpose, such
system or systems as will enable aliens registered under this Act to secuie information
relative to immigration, labor, and educational laws and regulations and their responsibilities
and duties thereunder, and promote the study of problems connected therewith;
to study methods best calculated to aid in the work of assimilation; and to
maintain information sections in the several offices of the Immigration Service, and
at other convenient places, to aid in the carrying out of the purposes of this act.
The Com m i ssi on er General of Immigration shall report to the Secretary of Labor the
results of the investigations and studies provided for in this section, for transmission
to the Congress and to the appropriate Federal, State, and municipal authorities;
and in furtherance of the above objects he shall cooperate with Federal, State, and
other public authorities, and with private organizations and individuals. The Secretary
of Labor shall provide such expert, clerical, and other assistance as may be
necessary to enforce and administer the provisions of this Act.
Sec . 13. The following classes of aliens, in addition to those for whose expulsion
from the country provision is made in the immigration laws, shall, upon the warrant
of the Secretary of Labor, be taken into custody and deported, in the manner provided
in sections 19 and 20 of the Immigration Act: All aliens who may enter the United
States in violation of this Act; all aliens who believe in, practice, advocate, teach,
sanction, or encourage the extortion of money or property, or the avenging of grievances
through threats of bodily injury or injury to property, or who are members of or affiliated
with any organization that so practices, advocates, teaches, sanctions, or encourao-
es the extortion of money or property, or the avenging of grievances; all aliens who,
in pursuance of the fourth section of chapter 12 of the Act of Congress approved July
ninth, nineteen hundred and eighteen, entitled “An Act making appropriations for
the support of the Army for the fiscal year ending June thirtieth, nineteen hundred
and nineteen,” have withdrawn their declaration of intention to become a citizen
of the United States with the object of escaping military service; all aliens whose registration
is prohibited by section 5 of this Act; all aliens who.shall violate, or fail to
observe (otherwise than by reason of sickness, mental or physical disability, or other
like unavoidable cause) any provision of this Act relating to registration, or re-registration;
and all aliens likely to become a public charge: Provided, That in the cases
of aliens of the last three classes the Secretary of Labor may, instead of ordering deportation,
permit the aliens to remain within the United States provisionally under
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 357
section 12 hereof, and such aliens shall thereupon become subject to the conditions
and limitations specified in said section.
The deportation of aliens under this Act or the immigration laws shall, at the option
of the Secretary of Labor, be to the country whence they came, or to the country of
their nationality or nativity, or to the foreign port at which they embarked for the
United States.
In every case in which the deportation of any person is ordered under the provisions
of this Act or of the immigration laws the decision of the Secretary of Labor shall be
final.
Sec . 14. Any person, including the owner, agent, consignee, or master of any
vessel arriving in the United States from any foreign port or place, who shall knowingly
bring to the United States as a seaman of such vessel, any alien, with intent to
permit such alien to land in the United States in violation of this Act or the immigration
laws, or who shall falsely and knowingly represent to the immigration officials
at the port of arrival that any such alien is a seaman, shall be liable to a penalty not
exceeding $5,000, for which sum the said vessel shall be liable and may be seized
and proceeded against by way of libel in any district court of the United States having
jurisdiction of the offense.
Sec . 15. No alien who is a member of any class excluded from admission into the
United States by this Act or the immigration laws, and who is employed or serving
as a seaman on board any vessel arriving in the United States from any foreign port or
place, shall be permitted to land .in the United States except pursuant to regulations
prescribed by the Secretary of Labor, providing for the reshipment of the alien in the
foreign trade as prescribed in sections 16 and 21 hereof, or for his removal to hospital
or elsewhere for observation by medical officers or for medical treatment, or for his
safe detention and ultimate deportation; and if it shall appear to the satisfaction of
the Secretary of Labor that the owner, agent, consignee, or master of any such vessel has
failed to detain on board any such alien, after notice in writing by the immigration
officer in charge at the port of arrival, or has failed to deport any such alien, after being
instructed by such immigration officer or by the Secretary of Labor to effect the
alien’s deportation, such owner, agent, consignee, or master shall pay to the collector
of customs of the district in which the port of arrival is located the sum of $300 for
each and every such failure, and no vessel shall have clearance while any such fine
is unpaid nor shall such fine be remitted or refunded: Provided, That clearance may
be granted prior to the determination of such question upon the deposit with the
collector of customs of a sum sufficient to cover such fine.
Sec . 16. Upon the arrival at a port of the United States of any vessel from any
foreign port or place, it shall be the duty of the proper immigration officials to go or
send competent assistants to the vessel and there inspect all alien seamen on board
such vessel; and it shall be the duty of the owner, agent, consignee, or master of
such vessel to notify the immigration official in charge at the port of arrival of the
place where the vessel is or will be anchored or moored. If such owner, agent, consignee,
or master shall permit any alien seaman to land otherwise than as provided
in sections 15, 20, 21, and 22 of this Act, he shall be subjected to the fine prescribed
by section 15 hereof.
Sec . 17. Any alien seaman who shall enter the United States contrary to the
provisions of this Act or of the immigration laws shall be' deemed to be unlawfully
in the United States and shall, at any time within five years thereafter, upon the
warrant of the Secretary of Labor, be taken into custody and brought before an inspector
or other official of the immigration service designated by said Secretary for
examination as to his qualifications for admission to the United States, and if not
admitted said alien seaman shall be deported in the manner provided in sections
19 and 20 of the Immigration Act, at the expense of the appropriation for the enforcement
of this Act: Provided, That any such alien seaman who shall so enter, without
intending to abandon his calling, and who shall promptly appear before an immigration
official, shall be examined, and, if entitled thereto, shall be certificated, under
section 21 of this Act: Provided further, That any such alien seaman who shall so
enter, with the intent to abandon his calling, and who shall promptly appear before
an immigration official shall be examined, and if entitled thereto, shall be admitted,
under section 22 of this Act, and only in the event that such official doubts the admissibility
of such alien shall application be made to the Secretary of Labor for a warrant
of arrest.
Sec . 18. It shall be unlawful for any vessel, upon arrival in the United States
from any foreign port or place, to have on board any alien seaman afflicted with
idiocy, imbecility, insanity, epilepsy, tuberculosis in any form, or a loathsome or
dangerous contagious disease, if it shall appear to the satisfaction of the Secretary of
Labor, from an examination made, and a certificate submitted, by a medical officer
358 REPORTS OF DEPARTMENT OF LABOR.
of the United States Public Health Service that any such alien seaman was so afflicted
at the time he was shipped or engaged and taken on board such vessel and that the
existence of such affliction might have been detected by means of a competent medical
examination at such time; and for every such alien seaman so afflicted on board
any such vessel at the time of arrival the owner, agent, consignee, or master thereof
shall pay to the collector of customs of the customs district in which the port of arrival
is located the sum of $100; and no vessel shall be granted clearance pending the
determination of the question of the liability to the payment of such fine or while it
remains unpaid: Provided, That clearance may be granted prior to the determination
of such question upon the deposit of a sum sufficient to cover such fine: Provided
further, That such fine may, in the discretion of the Secretary of Labor, be mitigated
or remitted.
Sec . 19. Upon arrival of any vessel in the United States from any foreign port or
place, it shall be the duty of the owner, agent, consignee, or master thereof to deliver
to the immigration officer in charge at the port of arrival lists containing the names
of all seamen employed on such vessel, stating their nationality, the positions they
respectively hold in the ship’s company, when and where they were respectively
shipped or engaged, and specifying those to be paid off or discharged in the port of
arrival, and such other information as the Secretary of Labor shall by regulation prescribe;
and after the arrival of any such vessel it shall be the duty of such owner,
agent, consignee, or master to report to such immigration officer, in writing, as soon
as discovered, all cases in which any alien seaman has illegally landed from the vessel,
giving the nationality and description of such seaman, together with any information
likely to lead to his apprehension; and before the departure of any such vessel it
shall be the duty of such owner, agent, consignee, or master to deliver to such immigration
officer a further list showing the names and the nationalitv of all seamen who
were not employed thereon at the time of her arrival but who will leave port thereon
at the time of her departure, and also the names and nationality of those, if any, who
have been paid off or discharged, and of those, if any, who have deserted or landed;
and in case of the failure of such owner, agent, consignee, or master so to deliver either
of the said lists of such seamen arriving and departing, respectively, or so to report
such cases of desertion or landing, the owner, agent, consignee, or master shall, if
required by the Secretary of Labor, pay to the collector of customs of the customs
district in which the port of arrival is located the sum of $10 for each seaman concerning
whom correct lists are not delivered or a true report is not made as above
required; and no such vessel shall be granted clearance pending the determination
of the question of the liability to the payment of such fine, or while it remains unpaid;
nor shall such fine be remitted or refunded: Provided, That clearance may be granted
prior to the determination of such question upon the deposit of a sum sufficient to
cover such fine.
Sec . 20. Alien seamen found on arrival in ports of the United States to be
afflicted with any of the disabilities or diseases mentioned in section 18 of this Act
shall be placed in a hospital designated by the immigration official in charge at the
port of arrival and treated, all expenses connected therewith being borne by the
owner, agent, consignee, or master of the vessel, and no such vessel shall be granted
clearance until such expenses are paid or their payment appropriately guaranteed,
and the collector of customs so notified by the immigration official in charge: Provided,
however, That in cases in which it shall appear to the satisfaction of .the immigration
official in charge that it will not be possible within a reasonable time to effect
a cure, the return of the alien seamen shall be enforced on, or at the expense of, the
vessel on which they came, upon such conditions as the Commissioner General of
Immigration, with the approval of the Secretary of Labor, shall prescribe to insure
that the aliens shall be properly cared for and protected, and that the spread of contagion
shall be guarded against.
Sec . 21. All alien seamen who shall arrive at ports of the United States from any
foreign port or place and be found to be temporarily admissible tinder this Act and
the immigration laws, as alien seamen in the pursuit of their calling, shall, on their
first arrival, be registered by immigration officials and furnished with a certificate
of registry and identity, containing their name, description, and photograph, and
a notation indicating whether or not they are of a. status which would entitle them
to admission, should they apply therefor under this Act and the immigration laws.
Thereafter, on each occasion of the arrival in ports of the United States of such alien
seamen, said certificate shall be accepted by immigration officials as prima facie
evidence of the status of the holders under this Act, and such certificate shall be used
by all concerned as evidence of the identity of the holders. Afflicted or diseased
alien seamen who may be cured as the result of treatment given pursuant to section 20
hereof shall, in like manner, be furnished with said certificate.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 359
All seamen who are United States citizens who shall arrive at United States ports
from any foreign port or place, shall also be furnished with a similar certificate of
registry and identity containing their name, description, and photograph.
Upon proof of loss or destruction of any such certificate, one in lieu thereof shall be
issued. No fee shall be charged for either the issue or the reissue of any such certificate.
Sec . 22. Any alien seaman who, upon arrival at a port of the United States from
any foreign port or place, shall apply for permission to enter and reside in the United
States, shall be admitted only if able to pass all the tests prescribed by this Act and the
immigration laws, and only upon being registered under sections 2 to 10 of this Act,
and paying the head tax assessed by section 2 of the Immigration Act. Any alien
seaman who shall ‘be found admissible to the United States under section 17 of this
Act, shall be released from custody and permitted to remain within the United States
only upon being registered under sections 2 to 10 of this Act.
Sec . 23. No alien shall be permitted to ship on vessels engaged in the coastwise or
Great Lakes trade of the United States unless he has been regularly.and permanently
admitted to the United States in accordance with this Act and the immigration laws,
nor unless he has been registered in accordance with sections 2 to 10 of this Act, except
that any alien seaman who has been registered in pursuance of section 21 hereof and
furnished with a certificate of registry and identity bearing a notation showing that
he is of a status which would entitle him to admission should he apply therefor may
be permitted to ship on a vessel engaged in the Great Lakes or coastwise trade upon
paying the head tax prescribed by section 2 of the Immigration Act: Provided, That
any alien seaman so allowed to ship in the Great Lakes or coastwise trade who may
thereafter desire or attempt to abandon his calling and to remain in the United States
shall be required to meet the provisions of sections 2 to 10 and of section 17 of this
Act: And provided further, That any alien seaman who may show, that the head tax
prescribed by section 2 of the Immigration Act has been paid by him or on his behalf
shall not be required again to pay such tax.
Sec . 24. Shipping commissioners appoinied, ead all Government officials acting
as shipping commissioners, under the provis’ons of sections 4501 to 4508 of the Revised
Statutes or any other law of the United Stales, shaT furnish the appropriate immigration
officials with detailed reports showir g the names and descriptions of all alien
seamen shipping on vessels sailing frcm ports of the.United States to foreign ports.
Such reports shall in every case in which such an alien seaman holds the certificate
of registry and identity prescribed by section 21 of this, act, give the number of such
certificate and the name of the port wnare it issued, and in all other cases shall contain
all possible items of information bearing upon the seaman’s identity.
Sec . 25. Hereafter it shall not be lawful for the owner, agent, consignee, or master
of any vessel engaged in the coastwise trade, or in the lake-going trade, or in the trade
between the United States and the British North American possessions, the West
Indies, or the Republic of Mexico to ship any alien, seaman on such a vessel unless
such master first obtains the consent thereto of the immigration official in charge at
the appropriate port. Any violation of this section shall subject the person found
guilty thereof to the penalty prescribed by section 4504 of the Revised Statutes of
the United States.
Sec . 26. The provisions of sections 18 and 20 of the Immigration Act, assessing a
penalty for failure or refusal to accept, to detain, to guard safely, to return, and to transport
to foreign destination aliens excluded or expelled from the United States, or to
pay maintenance and deportation expenses of aliens, or for making any charge for the
return of excluded or expelled aliens, or for taking any security for the payment of
such charge, or for taking any consideration from aliens to be returned in case of landing,
or for bringing to the United States any deported aliens within a year from date
of deportation without the consent of the Secretary of Labor, shall apply to and be
enforced in connection with the provisions of this Act relating to the exclusion or
expulsion of aliens.
To give false evidence in connection with the enforcement of this Act shall constitute
perjury as said offense is defined in section 16 of the Immigration Act; and all
of the provisions of sections 16 and 17 of the Immigration Act, prescribing methods
of procuring evidence concerning aliens, and defining offenses and prescribing.p.unishments
therefor, shall apply to and be enforced in connection with the provisions of
this Act.
Sec . 27. Any person who shall substitute any name for the name written in any
certificate herein required, or any photograph for the photograph attached to any such
certificate, or shall in any manner alter any such certificate, or forge any such certificate,
or falsely personate any person named in any such certificate, or issue or utter any
forged or fraudulent certificate, or present to an immigrant inspector or other Govern360
REPORTS OF DEPARTMENT OF LABOR.
ment official any forged or fraudulent certificate, and any person other than the one
to whom there has been duly issued any certificate prescribed by this Act who shall
present to an immigrant inspector or other Government official any such certificate,
shall be deemed guilty of a felony, and upon conviction thereof shall be fined in a sum
not exceeding $1,000 or be imprisoned for a term of not more than five years, or both.
Sec . 28. The Commissioner General of Immigration shall, with the approval of the
Secretary of Labor, issue such regulations, not inconsistent with law, as may be deeemd
necessary and appropriate to place this Act in full force and operation. Such regulations
shall include special rules for the application of this Act to the cases of aliens
coming to.the United States from or through contiguous foreign territory, and to the
cases of aliens entering across the land boundaries or elsewhere for temporary stay or
at frequent intervals in pursuit of their regular occupations, vocations, or avocations;
also special rules to insure that the provisions of this Act, of the Immigration Act,
and of any law, convention, or treaty relating to immigration, shall not be violated by
aliens arriving at ports of the United States employed on vessels as seamen, and that,
at the same time, the enforcement of such laws shall not interfere .with the operation
of the Act approved March fourth, nineteen hundred and fifteen, entitled “An Act
to promote the welfare of American seamen in the merchant marine of the United
States; to abolish arrest and imprisonment as a penalty for desertion and to secure the
abrogation of treaty provisions in relation thereto; and to promote safety at sea.”
Sec . 29. This Act shall take effect and be enforced on and after January first, nineteen
hundred and twenty.
APPENDIX I.
STATISTICS OF IMMIGRATION.
The following tables present the immigration statistics for the past
year in comparison with previous years, beginning with 1820, and so
arranged as to furnish information upon practically all sides of the
immigration question that can be represented statistically.
In the classification of aliens the terms (1) immigrant and emigrant
and (2) nonimmigrant and nonemigrant, respectively, relate
(1) to permanent arrivals and departures and (2) to temporary
arrivals and departures. In compiling the statistics under this
classification the following rule is observed: Arriving aliens whose
permanent domicile has been outside the United States who intend
to reside permanently in the United States are classed as immigrant
aliens; departing aliens whose permanent residence has been in the
United States who intend to reside permanently abroad are classed
as emigrant aliens; all alien residents of the United States making a
temporary trip abroad and all aliens residing abroad making a temporary
trip to the United States are classed as nonemigrant aliens on
the outward journey and nonimmigrant aliens on the inward.
A.—GENERAL IMMIGRATION AND EMIGRATION (TABLES I TO XXIX -B).
Page.
Table I.—Aliens admitted, departed, debarred, and deported (immigrant and
emigrant, nonimmigrant and nonemigrant), and United States citizens
arrived and departed, fiscal years ended June 30, 1919 and 1920................... 365
Table II. —Net increase or decrease of population by arrival and departure of
aliens, fiscal years ended June 30, 1919 and 1920, by months......................... 366
Table III. —Net increase or decrease of population by arrival and departure of
aliens, fiscal years ended June 30, 1919 and 1920, by countries..................... 367
Table IV. —Net increase or decrease of population by arrival and departure of
aliens, fiscal year ended June 30, 1920, by races or peoples........................... 369
Table V. —Intended future permanent residence of aliens admitted and last
permanent residence of aliens departed, fiscal year ended June 30, 1920, by
States and Territories..................................................................................................... 370
Table VI. —Occupations of aliens admitted and departed, fiscal year ended
June 30, 1920........................................................ ................................................. 371
Table VII. —Sex, age, literacy, financial condition, etc., of immigrant aliens
admitted, fiscal year ended June 30, 1920, by races or peoples................... ... 373
Table VII-a .—Sex, age, and length of residence in the United States of emigrant
aliens departed, fiscal year ended June 30, 1920, by races or peoples .. 376
Table VII-b .—Conjugal condition of immigrant aliens admitted, fiscal year
ended June 30, 1920, by races or peoples....... ...................................................... 378
Table VII-c.—Conjugal condition of emigrant aliens departed, fiscal year
ended June 30, 1920, by races or peoples............................................................ 380
Table VII-d .—Sex, age, and length of residence in the United States of naturalized
citizens departed, fiscal year ended June 30, 1920, by races or peoples.. 382
Table VII-e .—Sex, age, and length of residence in the United States of nativeborn
citizens departed, fiscal year ended June 30, 1920, by races or peoples.. 383
Table VIII.—Immigrant aliens admitted, fiscal year ended June 30, 1920, by
countries of last permanent residence and races or peoples............................. 384
Table VIII-a .—Emigrant aliens departed, fiscal year ended June 30, 1920, by
countries of intended future residence and races or peoples........................... 388
361
362 REPORTS OF DEPARTMENT OF LABOR.
Page.
Table VIII-b .—Naturalized citizens departed, fiscal year ended June 30, 1920,
by countries of intended future residence and races or peoples...................... 392
Table VIII-c.—Native-born citizens departed, fiscal year ended June 30, 1920,
by countries of intended future residence and races or peoples...................... 396
Table IX.—Immigrant aliens admitted, fiscal year ended June 30, 1920, by
States of intended future residence and races or peoples...................................... 397
Table IX-a .—Emigrant aliens departed, fiscal year ended June 30, 1920, by
States of last permanent residence and races or peoples....................................... 400
Table IX-b .—Naturalized citizens departed, fiscal year ended June 30, 1920,
by States of last permanent residence and races or peoples............................. 403
Table IX-c.—Native-born citizens departed, fiscal year ended June 30, 1920,
by States of last permanent residence and races or peoples............................. 406
Table X.—Immigrant aliens admitted, fiscal year ended June 30, 1920, by
occupations and races or peoples............................................................................. 407
Table X-A.—Emigrant aliens departed, fiscal year ended June 30, 1920, by
occupations and races or peoples............................................................................. 412
Table X-b .—Naturalized citizens departed, fiscal year ended June 30, 1920, by
occupations and races or peoples............................................................................. 417
Table X-c.—Native-born citizens departed, fiscal year ended June 30, 1920, by
occupations and races or peoples............................................................................. 422
Table XI.—Immigrant aliens admitted, fiscal year ended June 30, 1920, by
States of intended future residence and occupations............................................. 424
Table XI-a .—Emigrant aliens departed, fiscal year ended June 30, 1920, by
States of last permanent residence and occupations............................................... 430
Table XI-b .—Immigrant aliens admitted during fiscal year ended June 30,
1920, by States of intended future residence and ports of entry..................... 436
Table XII.—Immigrant aliens admitted during specified periods, Jan. 1, 1919,
to June 30, 1920, by races or peoples and sex............ ............... ._....................... 440
Table XII-a .—-Emigrant aliens departed during specified periods, Jan. 1,
1919, to June 30, 1920, by races or peoples and sex........................................... 441
Table XIII.—Sex, age, literacy, financial condition, etc., of nonimmigrant
aliens admitted, fiscal year ended June 30, 1920, by races or peoples.......... 442
Table XIII-a .—Sex, age, and length of residence in United States of nonemigrant
aliens departed, fiscal year ended June 30,1920, by races or peoples 446
Table XIV.—Nonimmigrant aliens admitted, fiscal year ended June 30, 1920,
by countries.................................................................................................................. 448
Table XIV-A.—Nonemigrant aliens departed, fiscal year ended June 30, 1920,
by countries................................................................................................................... 454
Table XV.—Immigrant aliens admitted, fiscal years ended June 30, 1899 to
1920, by races or peoples........................................................................................... 458
Table XV-A.—Immigrant aliens admitted, fiscal years ended June 30, 1899
to 1920, by countries................................................................................ 461
Table XV-b .—Emigrant aliens departed, fiscal years ended June 30, 1908 to
1920, by races or peoples........................................................................................... 464
Table XV-c.—Emigrant aliens departed, fiscal years ended June 30, 1908 to
1920, by countries....................................................................................................... 466
Table XVI.—Total immigration each year, 1820 to 1920.......................................... 468
Table XVI-A.—Net increase of population by arrival and departure of aliens,
fiscal years ended June 30, 1908 to 1920................................................................. 469
Table XVII.—Aliens debarred from entering the United States, fiscal year
ended June 30, 1920, by races or peoples and causes.................. 470
Table XVII-a .—Aliens debarred, and aliens deported after entering, 1892
to 1920, by causes......................................................................................................... 474
Table XVII-b .—Permanent residents of contiguous foreign territory applying
for temporary sojourn in the United States refused admission, fiscal year
ended June 30, 1920, by causes................................................................................ 477
Table XVIII.—Aliens deported to countries whence they came, after entering
the United States, fiscal year ended June 30, 1920, by races or peoples
and causes...................................................................................................................... 478
Table XIX.—Appeals from decisions under immigration law, applications for
admission under bond, applications for hospital treatment, and applications
for transit, fiscal year ended June 30, 1920, by causes......................................... 482
Table XIX-a .—Appeals from decisions under immigration law, applications
for admission under bond, applications for hospital treatment, and applications
for transit, fiscal year ended June 30, 1920, by ports............................... 483
Table XX.—Deserting alien seamen, fiscal year ended June 30, 1920, by ports.' 484
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 363
Page.
Table XXI.—Alien stowaways found on board vessels arriving at ports of the
United States, fiscal year ended June 30, 1920, by ports.................................. 484
Table XXII.—Comparison between alien arrivals and head-tax settlements,
fiscal year ended June 30, 1920................................................................................ 485
Table XXIII.—Passengers departed from the United States, fiscal year ended
June 30, 1920............. .’................................................................................................. 486
Table XXIV.—Aliens admitted in continental United States from insular
United States, 1908 to 1920, inclusive, by ports................................................. 506
Table XXIV-a .—Immigrant aliens admitted in continental United States
from insular United States and in insular United States from other insulars
and from mainland (continental United States'), by ports, fiscal year ended
June 30, 1920............ '................................................'..........'.................... ................... 507
Table XXIV-b .—Nonimmigrant aliens admitted in continental United States
from insular United States and in insular United States from other insulars
and from mainland (continental United States), bv ports, fiscal year ended
June 30, 1920..................................................................................................................... 507
Table XXV.—Race, sex, and age of immigrant aliens admitted in continental
United States from insular United States, and in insular United States from
other insulars and from continental United States, fiscal year ended June
30,1920.................................................................................................................. 508
Table XXV-a . Race, sex, and age or nonimmigrant aliens admitted in continental
United States from insular United States, and in insular United States
from other insulars and from continental United States, fiscal vear ended
June 30, 1920............................................................................................‘................... 511
Table XXVI.—Immigrant aliens admitted in continental United. States from
insular United States, and in insular United States from other insulars and
from continental United States, showing races and countries in which aliens
resided before going to insular United States or continental United States,
F fiscal year ended June 30, 1920.................................................................................... 514
Table XXVI-a .—Nonimmigrant aliens admitted in continental United States
from insular United States, and in insular United States from other insulars
and from continental United States, showing races and countries in which
aliens resided before going to insular United States or continental United
States, fiscal year ended June 30, 1920............ .. ......................... . ............................ 516
Table XXVII.—Immigrant aliens admitted in continental United. States from
insular United States, and in insular United States from other insulars and
from continental United States, showing races and final destination within
F continental United States or insular United States, fiscal vear ended June
F 30, 1920............................................... -.................. 518
Table XXVII-a .—Nonimmigrant aliens admitted in continental United States
from insular United States, and in insular United States from other insulars
and from continental United States, showing races and final destination
■within continental United States or insular United States, fiscal vear ended
June 30, 1920.......................................................................................... .......................... 520
Table XXVIII.—Aliens granted hospital treatment under sections 18 and 22
of the immigration law, fiscal year ended June 30, 1920, by races..................... 528
Table XXVIIT-a .—Aliens granted hospital treatment under sections 18 and 22
of the immigration law, fiscal year ended June 30, J 920, by ports..................... 529
Table XXtX.—Aliens certified by surgeons as physically or mentally defective,
fiscal year ended June 30, 1920, showing sex, age, class of defect, and
disposition, by diseases or defects........................................................................... 530
Table XXIX-a .—Aliens certified by surgeons as physically or mentally defective,
fiscal year ended June 30, 1920, showing races or peoples, by diseases
or defects................................................... .................................................................... 532
Table XXIX-b .—Aliens certified by surgeons as physically or mentally defective,
fiscal year ended June 30, 1920, showing organ or portion of body
affected, by diseases or defects................................................................................. 536
B.—JAPANESE IMMIGRATION AND EMIGRATION (TABLES A TO F).
Table A.—Japanese aliens applied for admission, admitted, debarred, deported,
and departed, fiscal years ended June 30,1919 and 1920... . .......... . ................ 540
Table B.—Increase or decrease of Japanese population by alien arrivals and
departures, fiscal years ended June 30, 1919 and 1920, by months................ 540
Table C.—Occupations of Japanese aliens admitted and departed, fiscal year
ended June 30, 1920.................................................................................................... 541
364 REPORTS OF DEPARTMENT OF LABOR.
Page.
Table D.—Statistics of immigration and emigration of Japanese, collected by
the United States Government, compared with those reported by the Japanese
Government, fiscal year ended June 30, 1920........................................ .............. 541
Table E.—Japanese alien arrivals in continental United States, fiscal year ended
June 30, 1920, showing various details bearing on the Japanese agreement... 542
Table F.—Japanese alien arrivals in Hawaii, fiscal year ended June 30, 1920,
showing various details bearing on the Japanese agreement........................... 546
C.—CHINESE IMMIGRATION AND EMIGRATION (TABLES 1 TO 8).
Table 1. —Summary of Chinese seeking admission to the United States, fiscal
years ended June 30, 1915 to 1920, by classes.................................................... 548
Table 2. —Chinese seeking admission to the United States, fiscal year ended
June 30, 1920, by classses and ports..................................................................... 549
Table 3. —Chinese claiming American citizenship by birth, or to be the wives
or children of American citizens, admitted, fiscal year ended June 30, 1920,
by ports................................................................................................................ 551
Table 4. —Appeals to department from excluding decisions under Chineseexclusion
laws, fiscal year ended June 30, 1920, by ports...... .................... 551
Table 5. —Disposition of cases of resident Chinese applying for return certificates,
fiscal year ended June 30, 1920....................... 551
Table 6. —Action taken in the cases of Chinese persons arrested on the charge
of being in the United States in violation of law, fiscal year ended June 30,
1920 552
Table 7. —Chinese arrested and deported, fiscal years ended June 30, 1916 to
1920, by judicial districts....................................... 553
Table 8. Miscellaneous Chinese transactions, fiscal year ended June 30, 1920,
by ports.......................................................................................................................... 554
/
Ta b l e I.—Aliens admitted, departed, debarred, and deported, and United States citizens arrived and departed, fiscal years ended June 30, 1919 and 1920.
366 REPORTS OF DEPARTMENT OF LABOR.
Ta b l e II.—Net increase or decrease of population by arrival and departure of aliens, fiscal years ended June 30, 1919 and 1920, by months.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 367
Ta b l e III.—Net increase or decrease of population by arrival and departure of aliens, fiscal years ended June SO, 1919 and 1920, by countries.
368 REPORTS OF DEPARTMENT OF LABOR
Ta b l e III.—Net increase or decrease of population by arrival and departure of aliens, fiscal years ended June 30, 1919 and 1920, by countries— Contd.
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13
2
2
2,680
1
1
27
16
CO r-4
d r-4
4
18
825
1
s
CO
•qojoog
r-4 r-4 C© T-i
CM
CM C© CM r-4 I
9,050
•(sapa.wg puB
‘sauBci ‘streiaaM
-JON) UBIABUIPUBOS
c©
CM
5
3,021
74
54
8
1
18
52
4,385
4
11
00
6
5,790
6
OO •
•Ubj u
-ssna) UBjnaqinu
00 d • r-4
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C©
3
28
75
8
12
4
6
1
22
1
5
269
4
5
24
13
98
•nquBumoy;
COM* 'CMifl c5 b- COCO r-4 i© CM QbO- b- C© •• CM r1—©4 c©
•asangnpoj
r-4
CM
r-4
1
2
14,477
CM CO r—4 •
•qsno
r-4 IQ .
•as9trecfe£
r-4 r-4 co s LQ
iQ
8
4,154
1
• (ratios) treifEij
t —< r—i 00 CO CD
1—4
1
80,705
cq i-» iQ 1Q r-i cq 1-4 1-4 CO rt<
S
•(qpiou)
Cq I"
1
7,986
00 t -4 cq cq co a>
8,061
cq
•qsiJi
T—t T—< CO T—< T—<
3,768
| 3,775
co
'AtOjqOjJ OOC5 t J4 CD 00 CO TO—< Cq r-4 CD
1 12
12
9
12
66
00
•qoajO
rH .r-i
20,186
3
cq CO oo r-
1—4
20,231
COrH J
•treillJQr)
87
71
15
12
16
9
16
3,002
2
!
3
5
32
2
227
33
384
05
3,906
Q
r-4
•qstttrapj ptra qopiQ
2
1,490
2
rf t -i o cq
1—4 co C005
cq 1-4 .■ CcqD r-< CD • cq 2,745
•^eqrq
•trerujAoS
-9ZJ9JJ puts ‘train
-sog ‘ub ub uii 'bq
1,311
22
IcQq rH • r-4 00 CO g r-4
1,528
•iraqnQ
cq CO cq
•UBIU0A
-OfS PUB UB11BOJO
29
96
10
307
25
4
22
LQ
C5
21
4
6,853
Th •’ 00 1
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2,944
3
•uij Sou gju ojv ptra
‘tratqjgg ‘trapraSing
32
16
3
3,558
149
1
36
20
4
50
49 00
CO
19,769
23,829
|
•(qoozg) trapra.!
-ojV ptra UBraraqog cq CO s
r—<
1—4 1-4 i—4 rH § i-4 s? cq
•uBiueuny
T—( r-4 ccqq r-4
i-4 • »
CD
CO
r-4
i—4
•(qOBiq) UBOTJjy
rH s jcq CO
OO
Country of intended future
residence.
a
t<
is
h
a
l-S
i
P
3-
f C
H
3.1
France, including Corsica....
fla r T n a n v
*»
ItaSlayr,d iinnicaluding Sicily and
5
f
J?
G
g
c
4 J?
h
J’s
Portugal, including Cape
Verde and Azores Islands..
F? niimonio
.s
Serbs, Croats, and Slovenes,
TTinordrim nf
SpTaiainln, ainricnl uTdailanngd Ca anary and
n
a
’1
I
=1
h
0
United Kingdom...................
Total Europe................
CP
C
£
India...................................
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 389
Asia
390 REPORTS OF DEPARTMENT OF LABOR.
•S9[do0d J9tno
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................. • • • • • ♦ • • • • • • • r—4 •
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....... .... T—4 • rH J • W I • .
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......
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......
CO •••»-< J •••«©•
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87 .1
91 53
6 1
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2
326
19
2
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.....................
: : : : : : : 3 : : : \ : : H ” : • • r-4
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cq * * rM • * • • • • • • * *2 o s
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232
218
175
18
6
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.... .
CO t
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5
3
20
18
8
11
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S :SS§S§2§- :8
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Uh h .o' efco W w- roVcfef roUTa
b l e X .—Immigrant aliens admitted, fiscal year ended June 30,1920, by occupationsfind races or
•soidood Jarno gcs COW-. 2 “2^3 ” pH CM OS •CO pH
•(Treqno
jdaoxo) umpuf
pH • CM pH pH ss ’
*
CM pH CM CO -CM •CM CM
•qspM
'tfcor- . S3 3 CM SO,'-'R3®3 05
pH
•qsiqjnj, • • i—< • rf CM • pH pH • IOpHpH pH • •
•ub u Xs : SS '* pH CO •’ CM »OCM CO CM CM
•ueouam y qsiueds 1O »O)CM • a pH
16
152
1
70
CO CM CO pH CO
•qsnredg 2S£5 : pg S23S § j ®S”” ”"8S2
•qBAOIS iQCOtD • • 05 CM CO
29
14
14
1
2
CX> pH CO CO cpoH CM • pH
•qoioog S”®M
53
17 . 385_
3SSg SSSSSSSSS5S
•(sopoMS puts
‘sauna ‘streiS0A\
-JON) UCTABUlpUVOS
“S3” CM §3 S”
•(qtnu
-ss uh ) umuaqpiH
H H • • pH CO . . pH • pH CM r- ‘
:
•trejssn’H iQCOQO • = ””3 pH 3® c. goo-,o o^t-00 pH • pH pH
•ueraeuinoH
rH CM • ! • co a pH 2” CO pH CO CM pH
•©sonStUJOj SSS : •10
251
12
3
IO pH
pH
a
•qsnoj
1
48
17
15
5
1
4
36 CM
•J0put![si OIJTOBa pH • • • co
•UB0TX0H §sg ; a 3 ”33 : 3SS3 ”-l{2 3NSS
• pH • • pH CO • pH pH phcox ^ pH 3 i
•unurenqin CM
pH COCM CO co 00 00 * CM • pH pH
Occupation.
SKILLED.
Bakers...............................................
Barbers and hairdressers................
Blacksmiths.....................................
Bookbinders.....................................
Carpenters and joiners....................
Cisarette makers _ ..........................
Clerks and accountants...................
Dressmakers.....................................
Engineers (locomotive, marine,
and stationary).........................
Furriers and fur workers................
Hat and can makers........................ 1
1.
II
Locksmiths......................................
ffi
sigs
Mechanics (not specified)...............
Metal workers (other than iron,
steel, and tin)...........................
i
1
Miners...............................................
Painters and glaziers.......................
Pattern makers................................
£f h Ph
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION.
S pH ” : i§-” i- ig"l § !- §
o
U-N co- W M.'
1 2 ^
”r 2S’" g
|174,459
173,133
1430,001 J
. .^COW^H ;i-< • rH s i-S^S^S 1 1
-
> : : : • 4 s
3
1
36
17
14
1
20
1
16
133
40
i §
!h WNW>O -p-IpH • i0’
• •
i« § i-s is§g g
‘ IW • • i :g ;S s i-ss f g-sgs
991‘l|
1,428
3,047
iS^S > : : : • rH • jS s s- ise \ & ;8S§ g
2,037
|3,934
• rH •
pH COCO 1
W pH o
16,379
23,594
Jcjooco jo ; H • ’ W WOO g ”” isB i is”°ss 8
2,495
1
Si b
| 5,599
!-
21,180
: is Tt< WOO 3a !- ^sgsss-gp !- § sccT
I I *. J pH • • • • pH : I^eot, :-s : it-r.
• • • pH • • s pH & §
•>«00 jj- • pH pH WS § — ?5S«-g .'^3 I §
2,378
• *W • -CO pH • • pH pH • pH MO
s
jcoeosj; ;©«£ I S
>8 §
|10,374
3,096
15,174
i : : 'pHiO -2 1 § §
’-J'
2,519
« pH •••••• •
: : :
MO • • »?H • • »pH • • • pH CO MO pH
CO • : s 2 00 •
; 3
24,744
21,798
i
412 REPORTS OF DEPARTMENT OF LABOR.
Ta b l e X-a .—Emigrant aliens departed, fiscal year ended June 30, 1920, by occupations and races or peoples.
•UB9JOX 04 : : : » .
•9S9UBdB£
.OWOO ^jOHOOONOO 8r—l • 1 • s
■(qinos) UBt[B;i fT—3<
■(qpiou) ut?![t?lj
»QNO rH 04 04 O 05 04 <35 CO
1-4 s
14
18
14
r—< S3
•qsrji e”H8 -wcoog s r—< ^-8 p: s
•M9iq9H
r-4 I <35 O4rH .t -4 ^0)04 s HCOH
•q99J0
• *O5r-( * ' CO r-4 i co • 04 04 ss~ iQ r—<
•UBUU90 33^8 Tt<
•qouajj “’S §
1
11
2
105
r-4
•qsiutnj
cq »iq • r-l .r-<04r-<»Q r—( CO •‘Q’ 00 rH UD
•qsjiSug s
.20
o
157
— 2
•UBipui jSBg;
• . .
• rH r-4 » • t“< r—( r—4 • » IO
: :
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2 “=-S 3^ «
•UBiutAoSazjaH pus
‘uBiiisbg; ‘ut?rpeui[t?g
•Qsaurqo
•UBIU9ULIV
•(qaazQ) ubt a
-Rtoyj put? UBiraaqog
•rnjSaua^uopi put?
‘uBiqjag ‘ut?ut?S[na
•UBIU9A
-ois put? UBi;t?oj0
■treqnjj
•(qOB[q) UB31.IJV
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 413
’ * : : : : ! ! ! ! : : : : r-< . . . .-r . .co .
NOOHN • • iQ :
O M nH rH S3 rH ' CO 1Q »—< • • £ co rH r—< 3
rH g 05 r- :S£O5S§'°
-S- OOlOrH CO r-< CO oc
rH <‘ ° t-iQQi s E K1' :.r
.IQ O IQ
r-H ScSwS ST CO r^(N s
rH g
r-< i—<
r—< i • » r—< CO IQ r-< »—4
1
14
31
8
2
597
cogc. $5” >« SS.3 !§- $r C£ £ 3-
414 REPORTS OF DEPARTMENT OF LABOR.
Ta b l e X-a .—Emigrant aliens departed, fiscal year ended June 30, 1920, by occupations and races or peoples—Continued.
•UB0JOX
• • rH "1 “1 r-4 ■sputqsj auid
■dqtqcf ruojj papredacq
S : CO r-4 .
•asoired-Bf
325
34
278
2,748
1,049
4,238
•mo j,
•(qjnos) ub jib ji
565
358
445
66,585
9,523
80,955
•sajdoad raqio CO 1—4 < r-
•(qpou) treriBUi
109
93
94
5,669
1,353
8,159
•(treqno
tjdoaxo) tretpnq jsoAi
t —4 03 CO CO
•qsijj
30
1,304
295
2,472
1,180
4,635
’WM
03
•Maiqojj
•qoajy
362 : 36
142 4
195 1 27
18,497 138
!
! 1,422 i 105
i20 319 358
i
■qsiqjnj,
•rrejjAg
rH r-4 • •CO
•UBUU00
168
225
249
1,749
1,332
4,178
■treauauiy qsuredg r-4
•qauajq
589
254
795
2,874
3,069
7,026
•qsnredg
•qsiuuij
4
133
17
00
s CO
1,447
■jptAois
r-4 T—I r-4 03 :1-1
•qsiiSuH
332
659
938
3,208
5,214
11,659
•qatfoag 00 03 O H 03 xt< 03 03 r-4
•treipuq ijsea O r-4 i-4 i—4 i—4 O
r—4
04
c© 2 rH 3 04 ,-4 C© Tj< 1-4 3~ oq r-4
i—4 r—< c© r—4 c© vH 04 t H i-4 r-4 r-4
IQ cuo 1—4 s 04 1© <35 i-4 1—I i—4 1Q CO
S oq c© r-4 £ s r-4 1—< i—4 r—4 r-4 r-4 r-4
oq oo io io oq 3 210 r—4 2 238N 10
’H r-4
i—4 -00 co i-4
b- i-4 xf r-4 2 ’”’5'’ 325 04 3^ ” IQ oq o. <33 b- iQ
1Q 1-4 TT r-4 k^3 rfl 04 c©
17
96
14
3
7
1
305
4
r—4 2
r-4 t H c© C© r-4 io r- . r—< r—t 04 T—<
i—4 O r—4 1O S
416 REPORTS OF DEPARTMENT OF LABOR.
'a b l e X-a .—Emigrant aliens departed, fiscal year ended June 30, 1920, by occupations and races or peoples—Continued.
•sputqsi emd
-dlUhd wojjpopedea
05 00
r-4 1 ■
177
276
17
09
IT
Z25
OST.
05 §
1,509
’moj;
25
710
37
5
22
35
360
O 04
04 CO
CO r-4
20,782
434
97
81
2,754
11,262
383
180
183,820
129
4,984
5,802
5,787
215,713
48,441
iQ
co
if
•sapload Joq;o 1O
CQ । CQ CO kQ
2
1,462
13
7
19
1,548 1
00
(N
1,802 |
-(rreqno
^daoxo) TreTpuj
r-4 r-4
r-4 O r-4
6
21
8
4
6
1
33
23
62
21
rC-O4
05 CO
CM
CO
•qspAl
1Q iQ
iQ
I r-4 r-4
r-4
05 r-4 r-4 rC-Q4 r-4 kiQQ 1Q iQ
05
r-4 04
r-4
04 CQ 05
2
1,248
17
5
9
11,295
CO
1,340
•ireuXg r-4 r-4 05
r-4 r-4
05
04
r-4
r0-4
H
4
961
244
7
40
1,292
CO
04
CM
1,652
•UBopetny qsiiredg CO O
«Q
rH
CO
r-4
• CQ
jCM
45
2
123
12
90
00
CQ 00 r-4
1 r—l
•qsitredg r-4 r-4 r—4
r4 s
05
CM 05 CM
7
2,345
7
405
55
198
g
co* 1
1,036
TH ‘9
•qBAOig
10
r-4
r-4 ' X) 00
CO
05
3
CO
57
402,
1
8,644
1
36
91
84
9,319
1,381
11,568
•qoioog CM r-4 10
CM
»q 00
CO
»Q
CO
LQ
36
15
90
2
3
120
7
19
296
201
05
1,093
2,577
•(sopoMg
ptre ‘saireQ ‘su bt So m
-JON) UBJAEUTpn'BOS
CM r-4 CM r-4 CQ IQ W CO
r-4
1,571
20
3
8
293
646
94
4
1,147
4
124
1,324
346
4,013
2,391
8,246
•(qura
-ssn'H) u'Bitiaqin'H
CQ 05 b- • 5 00 3 s 0
•UBTSSn^I <\
r-4 CO CO
05
00
9
36
1
638
3
42
10
65
(N
00
0
CM
1,151
•UBramnno'H
rH CM r-4
04 00
r-4
1
420
968
1
17,378
3
I 33
34
51
12,613 jl8,889
2,392 ---
21,490
■0sansn4.ro J k
>Q r-4
CO
• cD CO OiQ
00
H l
1 162
112
2,022
1 3
1 30
( 82
| 86
1,330
4,859
•qsqoj
co CM • □5 ^5 »Q
04
CO
5
1
2
456
3,595
11,821
1
70
80
93
|16,124
1,597
18,392
•J3pUB[SI OtJIOBJ
-< ; ; ; ; CM co
•UBOTXQK r-4 CM O
r-4
O
CM
12
68
1
2,713
64
86
145
|3,094
2,978
6,412
CM
CO co
iQ
3
50
766
1
10,863
2
30
75
84
11,878
2,188
619‘H
•irenrentpiq r-4 CO |Q r-4 r-4 00 ■ CQ IQ si s 05
Occupation.
s k il l e d —continued.
Tanners and curriers.............................
Textile workers (not sued fled)............
(Z
s
§
to
3
0£0
CJ
cc
4O2
H
CO
a
a
a
0
42
P
Watch and c lock makers......................
0
p
a
§.54
> g
Woodworkers (not snecified).........
Other skilled...........................................
Total..............................................
MISCELLANEOUS.
Agents.....................................................
Bankers...................................................
Draymen, hackmen, and team sters...
co
s :
0X .: aa>
— <%p as
§
cz
s
p <
D
r^
o ML
aborers.......................................... ..... Manufacturers.........................................
Merchants and dealers...........................
Servants.................................... .............
Other miscellaneous...............................
Total................................................
No occupation (including women and
children)...........................................
Grand total...................................
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 417
Ta b l e X b . Naturalized citizens departed, fiscal year ended June 30, 1920, by occupations and races or peoples.
::::::::::::::
: | :::::::: : : : :
•UBniBnqqq : | : ; : ; : • ! :
• : • III
•(qjnos) tren^i • • r* • HCO >COH ■ r-4
±0
6
26
2
62
14
!°° :
•(upon) ueri'Bfi
• • IO • r-4 CO * r-4 ' • ; • • r-4 C31 .* .* .* .* !’“* is • 10
• r-4 • 00 U
•M0JQ9JI ’ .’ 1 W .* ’ ‘ W U
: : : : ::::::
5 1 * ■ ’ ■ • • * J r-| r-4 r-4 • r-4 .
•1[80JO fl num
•uma-tof)
• -Oq^ • «r-4 * r-4 • Oq CO (X > । r-4 j I r-4 > ! LQ •• or-q4 o' oq «r-4
■qamnj • • •*—«»—» ♦ • • *co r । CO *O 6^ 1-4 • • • CQ
' r-4 oq I *
•qstuurg J !H 1 ! •’ 1 •’ 1 .* *“ | :::::: ;
: : :
•qsn§ug
4
11
4
14
1
3
4
1
8
12
7
69
oq r-t co ’ ‘ oq co 0
j j oq co oTqti •!eq
•qsiaiau pue qomci
J J J J J • J J C*“ । cq • • • • • CO
•uEnnAoSazjQH puB
‘UBIUSOq ‘UBT^BUqBQ
. ............................ ... . . !
| : ; : : : : ;
•uBqnQ • r-4 ........ r-4 Oq r—4 • •
*UBTU
-0AOJS PUB UBI^BOIQ
■utjSoiKquojv ptre
'uBtqjag ‘uBUBSfng : : : :::::::::: : ..............: : :
•(qoazg) ubia
-bjo jv pun treiuraqog
: 1th : : : : :w : : : 00 j .’ .* .* .* ’ ’ ’04 oq oq I I
•UBIUOULIV ..............: : : :
r-4
•(jpjBiq) uBaijjy • • • *i-l • ............................. CO • Tfl or- ’. ’ ! * i0oq
.......oq
Or- r-4 ! I
r-4 • •
Occupation.
PROFESSIONAL.
Actors....................................................
Architects.............................................
Clergy....................................................
Editors-.................................................
Electricians..........................................
Engineers (professional).....................
Lawyers................................................
Literary and scientific persons...........
Musicians..............................................
Officials (Government).......................
Physicians............................................
Sculptors and artists...........................
Teachers................................................
Other professional...............................
Total...........................................
SKILLED.
Bakers..................................................
Barbers and hairdressers....................
Blacksmiths.........................................
Bookbinders.............. i Brewers................................................
Butchers...............................................
Cabinetmakers......... ...........................
Carpenters and joiners........................
Cigar makers...................
Ciear nae.kers
Clerks and accountant?......................
Dressmakers.........................................
Engineers (locomotive, marine and stationary)...................................
Furriers and fur workers....................
Gardeners.............................................
15283—lab 1920-----27
418 REPORTS OF DEPARTMENT OF LABOR.
Ta b l e X-b .—Naturalized citizens departed, fiscal year ended June 30, 1920, by occupations and races or peoples—Continued.
bb a 3.2 “td a a ® m u $ a js « s. +0
•trBnmnfti'i •-1 1-1
•(qinos) treipm
1^ Tt 1 | H • • :°’w : .'S01 : :w • • 03 i—< H 03
Iowa. Kans
; «»-.
12
2
1
52
14
7
6
1
12
h ;s«o2.c
R
*
§ Slg^JSS38 IQ
I►
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eob. »
,* 8
;
;
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Hawaii,
■ ।
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Colo. Conn. Del. D.C.
J r-4 CO Ql O
. . t -h .
- loo ;„S
......... 14 4 12
1 9 3
1 1 1 379
2 3 5
1 5 1
4 47 6 27
12 49 3 23
44 243 19 489
H 03 r-i ‘
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iq J •’ J rococo Jeo Jo3
s r
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0
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Alaska.
. I 'cf* • . ’ ; • j ; • ’co 00' r—< r—( 03 • r—4 • O • * ' CO i-H 03 i-4 ’ * ’ CM-* .rty.
4 r-H • <—4 • । H D.
Occupation.
PROFESSIONAL.
Actors.............................
Architects............................................................
Electricians.....................................
Engineers (professional).
Lawyers.......................
aim. tsuieiiunc persons....
Musicians..................... . . . " ......................
Officials (Government)..
Physicians.......................
Sculptors and artists............................................
Other professional............
3K.1LLE1).
Bakers...............................
Barbers and hairdressers..........
Blacksmiths....................
Bookbinders.......................
Butchers.............................
Cabinetmakers..............................
Carpenters and ioiners
Cigarette makers............................
Cigar makers......................
Cigar packers............................................
Clerks and accountants
Dressmakers...............................................
E ngineers (locomotive, marine, and s tationarv)
Furriers and fur workers........ Gardeners.........................................
Hat and cap makers..............................
Iron and steel workers....
Jewelers..............................
Lnnksmifhq
Machinists....................
Mariners................
Masons......................
Mechanics (not specified)................................... '
Metal workers (other than iron, steel, and tin). . Millers..........................................
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 425
illiners
426 REPORTS OF DEPARTMENT OF LABOR.
Ta b l e X I.—Immigrant aliens admitted, fiscal year ended June SO, 1920, by States of intended future residence and occupations—Continued.
Ohio.
00 rO—4 ss “2 oc S3 § 528^ S” 2-
r—4
338” 8- S22-S
■Q’N
2 co co r-H CO or- co 8 rH r- CO eq Tf4 r-4 co • r-< eq
N.C..
r-Hr-HO co • WCO xtq e4 § 88=° CO T- 8" ^^■>-2^
Nev.
r—4 • r—4 i—4 00 oo co eq r-4 r-4 eq • r—4 rt< i—4
Nebr.
rO—i T— t —4 t —4 iQr-l 8 -O 04 •’
1
17
J
Z
91
• TH TH CM CM
La.
• TH CM CM CM
11
1
• r^oo Tf< • CO CM • • ’ '00 ‘CM
24
9
2
9
01
£
Occupation.
PROFESSIONAL.
Actors...................................................................
Architects......................................
Clergy.....................................................
: •■£
:» a
:|gr
•§ glU
■HdSI Wcl S
1
CO
fot o
s
fl
‘oCO 'fdl C5 V
■»eS’.eCr
g '
S
®g ■:
C©5 TO:
Z3-S
Oft o
z> ; •
Z> • !
- ■ s
d : g
H« < W
23 wg f£t
2Eh O
Total..........................................................
SKILLED.
Bakers..................................................................
Barbers and hairdressers...................................
Blacksmiths.................... ...............
BDrooomkobrcinders....................................................... ’
Butchers..............................................................
Cabinetmakers....................................................
Carpenters and joiners......................................
Cigarette makers................................................
Cigar makers.......................................................
uigar packers.......................................................
Clerks and accountants......................................
Dressmakers.......................................................
Engineers (locomotive, marine, and stationary)
Furriers and fur workers...................................
Gardeners............................................................
H at and cap makers...........................................
Iron and steel workers.......................................
JV IVU1U10. - Locksmiths.........................................................
Machinists...........................................................
Mariners..............................................................
Masons.................................................................
Mechanics (not specified)..................................
Metal workers (other than iron, steel, and tin).
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 433
§3 r-iCOCMCM i—4 ——s
32 670
oc o^go^ogg
- §f
§
a R. 8
t —1 Tt< r—t 1-4 1—4 gs—g Hr
8 s 5
i—4
1
co CO ^3 co T—4 8 55 Si
§
Ci- £ ncm cm
65,299 |
16,563 J
88,713
3 g CO
8
r-lCS t'-
8 S §
3 g ocgg^ooeg^
cT o
14,210
i—4 i— 1-4 CM 1-4 3
2
CM “’’J o i 1
•rH CM 1—1 3 8 OCMCM s s 8
S3 CO CM t —1 r-4 3® 00 r< -8
1—1
838 t —4 1 g 1
co CM CM NS 1
1—1
8 ■<
Ci
1 a
^82^
3
9
5
1
10
113
13
9
30
457
3
§"s g
cT
11,332
g.
16,490 |
QO co t —1
i—4 5 i—4 g
i—4
’H3g
g S83 g g §
Tfi CM r-4 CM CO r-1 CO s T—1 § ■°3S s 1 s
1Q ’“l co 1-1 i—4 i—4 CO s 1J1 ”3°^S
36
10
29
i s §
2 ■
15283—la b 1920---- 28
434 REPORTS OF DEPARTMENT OF LABOR,
a b l e X I—a . Emigrant aliens departed, fiscal year ended June 30, 1920, by States of last permanent residence and occupations—Continued.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 435
N -< CC >O H i^O H iO C4 ‘O Q O js CO ” ir 35J5:
s
§ §
«
Hi ii H N • b- r-4 • r-4 • • r-4 • » • • • CO i CM ;2S rr t ~4 g : e :<§ i „og< § 3 s
T—4 cm " cT
i—4 rH r-4 • CM CO
H H :S : : : • CM 'Hr-4 • • • • • • r-4 ■ t'— 8 g r-4 § 8 3
° •: • H H : : :” i H H is 8 r-4 >8 ■ -g-
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CM
1 2
74
1
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4 5
51
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* ’ I I • CM • • • • rH • • r-4 • • W •••••••• CM s CM '• ’ CM : :g§ GO CO KO 28 8 rs—<
t —1 • • • • CM t —< • • CM • • • •••••»•••••• r-4 H
jss : jfi; CO CO KO 8
r-4
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• ••••••••• r—4 • •r—4 • ••••••••••• 00 r* '•
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KCCOr-4 * r—< CM • • • 'CM ::Se”Hb- :Srt ; : > ja i CO WSS:
i
1 ,4 6 2
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2 ,8 2 6
nr~ ; ; ; ;1-1 ; ; >_| N r-4 ••• r-4 ••••’• r-4 *• s CO : : co
• • T—1 S210
t H
0 §
§
r—< • r—< CM CO CO
14
1 0 4
11
1
81
9
8
4 . . . .
4
4 6
2
164
3 8 i-g- §§« 1
2
of ccT r-T = S
JrH ' »OCM .rH . CM ■ ;<-< ; ; ; ; ; • 8 r—( i^SS^S S28 §
r—4 §
• i * r-4 t—4 ••••••••••• CM s ! . Tt<
;
COHH 8 3
3
Ht H H H i H I!
Hi H i H H N L
b :
HfHHHHil
i|| H ij H i H| i ■ i ! : '® ' ! ' ” ■
: 1H •S •
?8§; • iige : : HHipijilpi
ill;: illUJ :1
illittlllil
Il \i fl flfiii
iWirtilliii ■g
• a y m e n , h a c k :
.r m la b o r e r s .,
irx n e rs .................
ill
"1
HI
I"? iI
>• *
436 REPORTS OF DEPARTMENT OF LABOR.
-Immigrant aliens admitted during fiscal year ended June 30, 1920, by States of intended future residence and ports of entry.
ia
J
■'EM ‘9inAU0SJ(aB£
co T—4 r-4
‘qoiMSinug
v—<
‘0 ’S ‘uoisapBqo
T—4 cm r-4
’D ’N 'uoiSunnnM
•ssbj h ■‘ja'isootioff) 8
'3S0M ^9tM
S a
63
8
35
3
51
362
37
3
30
31
rtssNoog?a ’•‘S 00 s
1,268
18
§
•bij ‘[tcrerjv
1
..1..,7.5.4..
■rr CM
‘qBUTTBAES
r—4 (N CM CO
•BA '3II0JJ0K r-4 00 co co OC4H r-4 r—1 CM
12
1
164
s
' ‘SAWfsT "BPAO(IMOX
co r—< S1-1 r—4 CO *O> • •
•sijodteas
OnUBHV UBipBU^3
•pyj ‘gjouiin'Bfl co r—4
>1
1
,1
7-
is
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1
Q
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 437
438 REPORTS OF DEPARTMENT OF LABOR.
Ta b l e XI-b .—Immigrant aliens admitted during fiscal year ended June 30, 1920, by States of intended future residence and ports of entry—Contd.
Iw 1 » S-a' of-- s- -3-
•oajH opoq " i H H i r N : : H H i : H ; H : : i H i : i : :
•ireAiBH 'njniouoH
43
1
3
2,433
1
4
15
•spod'Bas
jgpjoq treojxojv • • • r-( • ■ < > i < i ■ t > i i • ■••••>• ■ >
•SHOTAS
jgpjoq UE3TX9JV »o ’ X
•strolls
~ ~ N-
’ 133(5131 V
■spodBos
i
!96
!
3
11
1
14
2.
1
31
18
9
14
2
42
11
215
15
oUP^d umpEUBQ
•qSEM ‘9IMB9S
1
2
11
574
69
3
16
1
69
64
8
5
1
1
6
. 6
68
16
10
10
14
68
19
3
1
6
331
1
4
38
1
•3910 'ptrepjoj
• • * 1 .......................................................................... .
, -nro ‘oos iou bjj UBg •’ r-” .11
•SSIJ5 'Bino3B9SB ................................... . • • • ..................... . .
•CM ‘SM9JPUV 'IS
•• • . ■ ■ t • ■ < . > < । ■ < । i < । < • > < •••••• <••...
•ssijv ‘^odjinrj
ci • • *i-i • • • «r-4 • • • • • • • • • • • Jfr- *•••;• : i •
•X9X ‘U0;S3A(B0
3
1
20
1
7
1
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39
5
7
1
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36
1
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i i i 00 j j i ” i
•biv 'onqopf
30
4
1
27
.........
3
3
■BIJ ‘BIOOBSU0J
•BIJ ‘BdtUBJL
9
22
114
50
4
641
6
8
7
121
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6
22
15
4
7
7
78
1
530
642
g
I
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Q .2
3
S c3
S3 >>
.SSaSsasSsaSzzzzzzzaSS
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 439
Ta b l e X II.—Immigrant aliens admitted during specified periods, Jan. 1, 1919, to June 30, 1920, by races or peoples and sex.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 441
Ta b l e XII-a .—Emigrant aliens departed during specified, periods, Jan. 1, 1919, to June 30, 1920, by races or peoples and sex.
442 REPORTS OF DEPARTMENT OF LABOR.
Ta b l e X III.—Ser, age, literacy, financial condition, etc., of nonimmigrant aliens admitted, fiscal year ended June 30, 1920, by races or peoples.
Literacy, 16 years and over.
Can read and write.
Total.
co NOH
°r ~ s ” ~ : mT NN
Male.
8 © r,"
Can neither read nor
write.
Total.
F^53*3 j*
o' J
„©« j<
■M
g : > :?
T—< • • • •
5 : \ r■^S1004 04,004
Male.
gO^gOOf-r- ^gjOO^g^ggg© ;c
©- :
ou8s h
Can read but can not
write.
Total.
8 : :: : :°q Jcq i is i' i i i
Ph |
: : : : • •»-< ’r-lTjC »C i is i • r—< • » •
Male.
s i i r™ i i i h •rH -CO •
’ • ’ * * i; i i« i'= ” i f :
45
years
a S?
16 to 44
years.
•* w-g © « jf o.-'^'oTco'c?©© co oo- ©-©w
Under 16
years.
rs • r H M is
• w-4 •
CMD
CQ
<
G£
P
c- g- « -r UU- : © NN
*G i1
eo rtw ■*- of c£ bTt-Tr-J'ci'iN-cr^-us -4" oo ©"-A-,
Number
admitted.
uj- tC ©- o^-co'^'co'oo-©- r-- oo- ooVJ
Race or people.
African (black)................................
Bohemian and Moravian (Czech)......
Bulgarian, Serbian, and Montenegrin.
Chinese.......................................
Croatian and Slovenian.....................
Cuban...............................................
Dalmatian, Bosnian, and Herzegovinian.........................................
Dutch and Flemish...........................
East Indian......................................
Italian (south)...................................
Japanese........................................... Korean............................................
Pacific Islander...... ..........................
Portuguese.......................................
Roumanian...................................... Russian..........................................
Ruthenian (Russniak)......................
S candinavian (N orw egians. D anes.
and Swedes)...................................
Scotch...............................................
Slovak...............................................1
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 443
-- - s- 1—1
§§
444 REPORTS OF DEPARTMENT OF LABOR.
Ta b l e X III. Sex, age, literacy, financial condition, etc., of nonimmigrant aliens admitted, fiscal year ended June 30,1920, by races or peoples_ Con.
Admitted
in
Philip-
: • • : :s :=5SS :
’ ! * • • • •’ • !
- in or
going
to
join
relative
or
friend.
“ s' ’ s' ~
Going to
join—
Friend.
§" s §§Sg ''§s|S§£SSSJgg—=°s
• T—1
Relative.
g= 3 g§sg siy3S3§s8ggK§“asg’asgsS
oq t -T o ' io ' c m* c< i-T-o' t -T ©o ' b-*'
By whom passage was
paid.
life sB 3 gsgss '■gsgssgsssgage
” -' sf :
i
gS s sg»g ''fsgtssmm r'
co'
<§ a Sgag s§s?gSJ38gsss»ss83gg§§3
”
HIM : • • • • : :
REPORT OF-COMMISSIONER GENERAL OF IMMIGRATION. 445
s §
I
I
I
8
8§S§8°°” sss 88
3
i~
s'
gg^S§^§8
§
SSSSSSScogS
sf
F
ss
F
a §
ocoa^o,
8 3
!-
I
446 REPORTS OF DEPARTMENT OF LABOR.
Ta b l e XIII-a .—Sex, age, and length of residence in United States of nonemigrant aliens departed, fiscal year ended June 30, 1920, by races or peoples.
I- -2 - « g - - —— -
Continuous residence in the United States.
Over 20
years.
^0, ► T—4 • cogcoco
125
14
3
45
5
2
15 to 20
years.
to : £SSSS”£SSSt'- > r-4 »H ucoouoco gSggoco
10 to 15
years.
I C5C0 SgS00^ |SSg^g}
5 to 10
years.
Not over
! P” io Hs? SSHS” §§ss§S
rH
i
l
3
! W P* w w'ci c 'm
16 to 44
rH HO> IO" » N lo'w'ri COWCOOO' co' O>'co' COCO
Under 16
years
2—SSS3
r—<
ir§^s2ss82 r
.’ co*
<2§ Basils
£
r-2^r§”sS^SS§S§§‘0”^rtP3SS2,0 S2^®
Ha go,
64
27
1
42
17
28
£ i as :
•OOTXQJt
rH
21
1
1
8
1
153
8
SS05” :
110
6
26
1
233
i
1,979
17
•B3U0UIV IB-UU90
S ;COW S» : 8 CO
a 3 2^ :
•eaijatny
UJjo n : WPS
2S2° SSS22S
9,605
•pagioads ij o u
‘spuBis’i ou iob j
CO § °2 •CO 2
•pUBIEQZ
PUB ‘Bin
-BUISBJj ‘BTIBJlSny
r-< 2 2 COHCO S
CO r-4
■EotJjv
r—4 • (M T—< T—4 • uo 2 T—<
•ersy puoj, 2
1
42
4
66
9
2
•spuBjsj ou b 0[Bq ; puB
Aibu bq Smpnpui ‘ujBdg
: i c<1 t -H • • • * • • •
• * r-
• •' co
1,427
•jo uiopSuryj ‘so us a
-ojg pus ‘sjb oj o ‘sqjog •• SIQ '■ s
’BISSUH
CM • • / ‘ • O0 • • • • • • • • :
• * • * * ’ ’ •
I*" : CM
• CM
£ •BiuBranoa ................. • • CT • CT
© •SpUBJSI SOJOZ V PUB apjOA.
odBO Smpnpui ‘jBgnjjoj ■ ■ • • • • • s S
lo
■ ■ r—( i <
N •
1,364
June I
5
5
nd
) 03 . ■• CCMT
'o'
■g
•B3ISJ00 Suipnpm ‘OOUBJJJ
•................. .
• • • • • • •
o • • • • • • •
; • • • • • ;
2,739
S. •puBIUId • • • •’ • •CO
............................. OS
•• CCOT
■qjBtuuaQ H i i . co
• CT
e
§
•BI^BAOlSOlpOZO •. .• •. -•CCMO •• •• • CO
• CM
i •BiJBSjng ’• *,
. . . 00 • • • CT GO ij
I
•mtijSpg;
•XiBSunn
101 .......
....... 519
:::::::—h -
101 520
•Bii^sny CIQM •. •. •. .• •J •. • s |
Ta b l e X I
Country of last permanent residence.
Austria....................................................................
Hungary.................................................................
Belgium.................. . ..............................................
Bulgaria..................................................................
Czechoslovakia.......................................................
Denmark................................................................
Finland...................................................................
France, including Corsica....................... -...........
Germany................................................................
Greece.....................................................................
Italy, including Sicily and Sardinia...................
Netherlands............................................................
Norway...................................................................
Poland.....................................................................
Portugal, including Cape Verde and Azores
Islands..............................................................
Roumania..............................................................
Russia.....................................................................
Serbs, Croats, and Slovenes, Kingdom of...........
•
•
■
*
*•. e :
;3 :•
53 •’ 3 ;
5 •
- d
3-S
Switzerland............................................................
Turkey in Europe..................................................
United Kingdom...................................................
Other Europe........................................................
Total Europe...............................................
repo rt of commi ssi on er ge ne ral of immigr ati on . 455
456 REPORTS OP DEPARTMENT OF LABOR.
Ta b l e XIV-a .—Nonemigrant aliens departed, fiscal year ended June 80, 1920, by countries—Continued.
£
•apstnag 8§§8 sss s
13,220
•oioyf gss s imp s
s
'IBVU ptrejr) 2§§S
W w~ .o' OC-rt-H CiW 2
I 960 ‘tf
•sappmoa natpo : : : ; ; ; I’-1 1 : : : : : r-•
•septus pa?ran
00 04 0 w5§ S”2 g'3 r
1,126
‘SO[PUI Is9 A\
T—< O oc s W gCTOU,^ 04 g
•uapauiy tpnog
04 8 «TOTOW 2
■ooixajv
i—1 *> Tt< CO^^ C0TOW i© i ■s 2
•Bapaury lopuos
00 1© 5 rH S 1
W o N' q s 11 t J g rH Stggg 2S2 - 8^223
ct TO co"
9,981 |
-pappads
jon ‘spmqsi apptsg i” : ■M 2
•pUBfEdZ M9N put?
‘ih otu isb x ‘'BifB.qsnv
04 04 I ’ C4 g
•bo uj y
«
r—< C4 * ’ ' co
•msy pUOJ,
CD 1—< 2 04 COrO-4 CO i s
•BTSV jaq?O 04 1© • 04 • §
•spy ui Xaapnj,
!
•Bipul • ©J I
*
• • r—< s
■UBdyf
CO CO 04 04 c© •CO I© 2 2
•ouiqs 3 r—< 04 CO COb- • sr—?< §
•adorns lBl°l
■odoms
•uiopSuis pauun §
3.
3
§
5
fl
a :
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 457
458 REPORTS OF DEPARTMENT OF LABOR.
Table XV.—Immigrant aliens admitted, fiscal years ended June 30, 1899,1 to 1920, by
races or peoples.
1 Alien arrivals previous to July 1, 1898, were not recorded by race or people.
Race or people. 1899 1900 1901 1902 1903 1904 1905 1906
African (black)...............................
Armenian........................................
Bohemian and Moravian (Czech).
Bulgarian, Serbian, and Montenegrin
..........................................
Chinese...........................................
Croatian and Slovenian................
Cuban.............................................
Dalmatian, Bosnian, and Herzegovinian
.................................. . .
Dutch and Flemish.......................
East Indian....................................
English...........................................
Finnish...........................................
French.............................................
German...........................................
Greek...............................................
Hebrew...........................................
Irish.................................................
Italian (north)...............................
Italian (south)...............................
Japanese..........................................
Korean............................................
Lithuanian.....................................
Magyar............................................
Mexican..........................................
Pacific Islander..............................
Polish......................... 1...................
Portuguese......................................
Roumanian....................................
Russian...........................................
Ruthenian (Russniak)..................
Scandinavian (Norwegians,
Danes, and Swedes)...................
Scotch.............................................
Slovak.............................................
Spanish...........................................
Spanish American..........................
Syrian.............................................
Turkish......................................
Welsh..............................................
West Indian (except Cuban).......
Other peoples.................................
Total.....................................
412
674
2,526
94
1,638
8,632
1,374
367
1,860
15
10,712
6,097
2,278
26,632
2.395
37,415
32,345
13,091
65,639
3,395
22
6,858
5,700
163
172
28,466
2,096
96
1,774
1,400
23,249
1,752
15,838
996
no
3,708
28
1,359
144
193
714
982
3,060
204
1,250
17,184
2,678
675
2,702
9
10,897
12,612
2,095
29,682
3,773
60,764
35,607
17,316
84,346
12,628
71
10,311
13,777
261
188
46,938
4,241
398
1,200
2,832
32,952
1,757
29,243
1,111
97
2,920
184
762
78
73
594
1,855
3,766
611
2,452
17,928
1,622
732
3,299
20
13,488
9,999
4,036
34,742
5,919
58,098
30,404
22,103
115,704
5,249
47
8,815
13,311
350
167
43,617
4,176
761
672
5,288
40,277
2,004
29,343
1,202
276
4,064
136
674
82
35
832
1,151
5,590
1,291
1,631
30,233
2,423
1,004
4,117
84
14,942
13,868
4,122
51,686
8,115
57,688
29,001
27,620
152,915
14,455
28
11,629
23,610
715
160
69,620
5,309
2,033
1,551
7,533
55,780
2,432
36,934
1,954
496
4,982
165
760
137
147
2,174
1,759
9,591
6,479
2. 192
32,907
2,944
1,736
6,496
83
28,451
18,864
7,166
71.782
14 376
76,203
35,366
37,429
196,117
20,041
564
14,432
27,124
486
185
82,343
8,433
4,740
3,608
9,843
79,347
6,219
34,427
3,297
978
5,551
449
1,278
1,497
89
2,386
1,745
11,911
4,577
4,327
21,242
4,811
2,036
7,832
258
41,479
10,157
11,557
74,790
12,625
106,236
37,076
36,699
159,329
14,382
1,907
12,780
23,883
447
41
67,757
6,338
4,364
3,961
9,592
61,029
11,483
27,940
4,662
1,666
3,653
1,482
1,820
1,942
668
3,598
1,878
11,757
5,823
1,971
35,104
7,259
2,639
8,498
145
50,865
17,012
11,347
82.360
12)144
129, 910
54,266
39,930
186,390
11,021
4,929
18,604
46,030
227
22
102,437
4,855
7,818
3,746
14,473
62,284
16,144
52,367
5,590
1,658
4,822
2,145
2,531
1,548
351
3,786
1,895
12,958
11, 548
1,485
44.272
5,591
4,568
9,735
271
45,079
14,136
10,379
86,813
23,127
153, 748
40,959
46,286
240,528
14,243
127
14, 257
44,261
141
13
95,835
8,729
11,425
5,814
16,257
58,141
16,463
38,221
5,332
1,585
5,824
2,033
2,367
1,476
1,027
311,715 448,572 487,918 648,743 857,046 812,870 1,026,499 1,100,735
repo rt of commis sion er ge ne ral of immi gra tio n . 459
Tabl e XV.—Immigrant aliens admitted, fiscal years ended June 30, 1899, to 1920, by
races or peoples— Continued.
Race or people. 1907 1908 1909 1910 1911 1912 1913 1914
African (black)........................ 5,235 4,626 4,307 4,966 6,721 6,759 6,634 8,447
A rmenian................................. 2,644 3; 299 3,108 5,508 3,092 5; 222 9,353 7,785
Bohemian and Moravian
(Czech)................................. 12,554 10,164 6,850 8,462 9,223 8,439 11,091 9,928
Bulgarian, Serbian, and Montenegrin.................................
27,174 18,246 6,214 15,130 10,222 9,087 15,084
Chinese..................................... 770 i; 263 1,841 1,770 1,307 1,608 2,022 2,354
Croatian and Slovenian.......... 47,826 20,472 20i 181 39; 562 18,982 24,366 42,499 37,284
Cuban ......... . ......................... 5,475 3,323 3,380 3; 331 3,914 3; 155 3,099 3,539
Dalmatian, Bosnian, and
Herzegovinian..................... 7,393 3,747 1,888 4,911 4,400 3,672 4,520 5,149
Dutch and Flemish................ 12,467 9,526 8,114 13;012 13;862 10;935 14,507 12,566
East Indian............................. 1,072 1', 710 '337 1,782 517 165 188 172
English.................................. - 51,126 49;056 39,021 53,498 57,258 49,689 55,522 51,746
Finnish.................................... 14,860 6,746 11', 687 15,736 9,779 6,641 12,756 12,805
French...................................... 9; 392 12,881 19323 21,107 18,132 18', 382 20,652 18,166
German................. .................. 92,926 73,038 58,534 71,380 66,471 65,343 80,865 79,871
Greek........................................ 46i 283 28,808 20,262 39;135 37,021 31,566 38,644 45,881
Hebrew.................................... 149,182 103,387 57,551 84.260 91', 223 80,595 101,330 138,051
Irish......................................... 38,706 36', 427 3i; 185 38,382 40,246 33;922 37,023 33,898
Italian (north)........................ 51', 564 24,700 125,150 30,780 30,312 26,443 42,534 44,802
Italian (south)........................ 242'497 110,547 65; 248 192; 673 159,638 135,830 231,613 251,612
Japanese.................................. 30i 824 16,418 3,275 2,798 4,575 6; 172 8,302 8,941
Korean..................................... 39 26 11 19 8 33 64 152
Lithuanian.............................. 25,884 13,720 15,254 22,714 17,027 14,078 24,647 21,584
Magvar..................................... 60,071 24,378 28,704 27,302 19;996 23,599 30,610 44,538
Mexican........ . ......................... 91 5,682 15,591 17; 760 18', 784 22,001 10,954 13,089
Pacific Islander....................... 3 2 7 61 12 3 11 1
Polish....................................... 138,033 68,105 77,565 128,348 71,446 85,163 174,365 122,657
Portuguese............................... 9, 648 6,809 4', 606 7; 657 7,469 9,403 13,566 9,647
Roumanian...................... ...... 19,200 9; 629 8341 14,199 5', 311 8; 329 13,451 24,070
Russian.................................... 16' 807 17,111 10,038 17; 294 18,721 22,558 51,472 44,957
Ruthenian (Russniak)........... 24', 081 12', 361 15; 808 27,907 IL 724 21,965 30,588 36,727
Scandinavian (Norwegians,
Danes, and Swedes)______ 53,425 32,789 34,996 52,037 45,858 31,601 38,737 36,053
Scotch.. .................................... 20', 516 17j 014 16; 446 24; 612 25; 625 20,293 21,293 18,997
Slovak...................................... 42; 041 16', 170 22,586 32,416 21,415 25,281 27,234 25,819
Spanish ............................... 9; 495 4; 939 5,837 8,068 9,070 9,042 11,064
Spanish American.................. 1,060 1,063 '890 '900 1,153 1,342 1,363 1,544
Syfian...................................... 5,880 5,520 3,668 6,317 5; 444 5; 525 9,210 9,023
Turkish.................................... 1,902 2,327 '820 L283 918 1,336 2,015 2,693
Welsh............. ......................... 2,754 2,504 1,699 2,244 2,248 2,239 2,820 2,558
West Indian (except Cuban). 1,381 LUO 1,024 i;i5o i; 141 1,132 1,171 1,396
Other peoples.......................... 2,058 1,530 1,537 3,330 3,323 3,660 3,038 3,830
Total............................... 1,285,349 782,870 751,786 1,041,570 878,587 838,172 1,197,892 1,218,480
460 REPORTS OF DEPARTMENT OF LABOR.
Tabl e XV.—Immigrant aliens admitted, fiscal years ended June 30, 1899, to 1920, by
races or peoples—Continued.
Race or people. 1915 1916 1917 1918 1919 1920 Total
African (black)............................ 5,660 4,576 7,971 5,706 5,823 8,174 100,101
Armenian................................. '932 964 1^221 221 '282 2'762 58,332
Bohemian and Moravian (Czech) 1,651 642 '327 74 105 415 142’084
Bulgarian, Serbian, and Montenegrin....................................
3,506 3,146 1,134 150 205 1,064 151,646
Chinese......................................... 2,469 2,239 L843 1,576 1,697 2,148 41,853
Croatian and Slovenian.............. L942 '791 305 33 23 '493 462^261
Cuban........................................... 3,402 3,442 3,428 1,179 1,169 1,510 72^048
Dalmatian,Bosman,and Herzego
vini an.................................... 305 114 94 15 4 63 50,032
Dutch and Flemish.................... 6,675 6,443 5,393 2,200 2,735 12,730 175^704
East Indian................................. ' 82 80 69 61 68 160 7'348
English......................................... 38,662 36,168 32,246 12,980 26,889 58,366 828,140
Finnish........................................ 3^472 5', 649 5^900 1,867 968 1,510 213'121
French.......................................... 12,636 19^518 24' 405 6,840 12,598 27,390 294,502
German........................................ 20'729 11,555 9,682 1'992 1,837 7,338 1,100^058
Greek............................................ 15,187 26j 792 25'919 2' 602 '813 13,998 ' 455^ 385
Hebrew........................................ 26' 497 15^108 17^342 3^672 3,055 14'292 1,565' 607
Irish.............................................. 23,503 20,636 17' 462 4,657 7; 910 20,784 ' 679' 765
Italian (north)............................. 10,660 4,905 3; 796 1'074 1,236 12^918 551i348
Italian (south)............................. 46,557 33,909 35'154 5',234 2'137 84,882 2,898,499
Japanese....................................... 8'609 8,711 8'925 10'168 10,056 9,279 ’232467
Korean.......................................... 146 '154 '194 '149 77 72 8^839
Lithuanian................................... 2,638 599 479 135 160 422 257,027
Magyar......................................... 3,604 981 434 32 52 252 462'249
Mexican........................................ 10,993 17,198 16,438 17,602 28,844 51,042 248'859
Pacific Islander........................... 6 5 10 17 6 17 1', 109
Polish........................................... 9,065 4,502 3,109 668 732 2,519 1,423 290
Portuguese................................... 4'376 12^208 10,194 2,319 1,574 15'174 ' 158' 827
Roumanian.................................. L200 '953 '522 '155 89 898 137,682
Russian........................................ 4'459 4,858 3,711 1,513 1,532 2,378 239^ 735
Ruthenian (Russniak)............... 2' 933 1'365 1,211 49 '103 '258 260^298
Scandinavian (Norwegians, 16,621 835^210
Danes, and Swedes)................ 24,263 19,172 19,596 8,741 8,261
Scotch..".................... . ................. 14^310 13,515 13'350 5,204 10,364 21,180 300,973
Slovak.......................................... 2' 069 577 '244 35 85 3,824 484;110
Spanish........................................ 5,705 9,259 15,019 7,909 4,224 23,594 154', 005
Spanish American....................... 1'667 1'881 2'587 2'231 3^092 3,934 31,573
Syrian........................................... 1,767 676 976 '2io '231 3'047 93;ni8
Turkish........................................ 273 216 454 24 18 140 21,041
Welsh........................................... 1,390 983 793 278 608 1,462 36; 131
West Indian (except Cuban).... 823 948 1,369 732 1,223 1,546 23,050
Other peoples.............................. 1,877 3,388 2,097 314 247 1,345 34,157
Total................................... 326,700 298,826 295,403 110,618 141,132 430,001 15,291,484
rep ort of commis sion er ge ne ral of immi gra tio n . 461
Tab le XV-a .—Immigrant aliens admitted, fiscal years ended June 30, 1899, to 1920,
by countries.1
1 See footnote Table III<
Countries. 1899 1900 1901 1902 1903 1904 1905 1906
A ustri & - .................................. j-62,491 114,847 113,390 171,989 206,011 177,156 f 111,990
1 163,703
111,598
Hungary......................................... 153,540
Belgium...... ................................... j 1,101 1,196 1,579 2,577 3,450 3,976 5,302 5,099
Bulgaria ........................................ 52 108 657 851 1,761 1,325 2,043 4,666
Fzech osl nvaki a
Denmark........................................ 2,690 2,926 3,655 5,660 7,158 8,525 8,970 7,741
Finland ..............
France including Corsica............. 1,694 1,739 3,150 3,117 5,578 9,406 10,168
40,574
9,386
37,564
19,489
Germany........................................ 17,476 18,507 21,651 28,304
8,104
40,086 46,380
Greece ........................................... 2,333 3,771 5,910 14,090 11,343 10,515
Italy, including Sicily and Satdinia
...................................... 77,419
1,029
6,705
100,135 135,996
2,349
178,375
2,284
230,622 193,296 221,479
4,954
273,120
Netherlands.................................... 1,735 3,998 4,916 4,946
Norway........................................... 9,575 12j248 17,484 24,461 23,808 25,064 21,730
Poland ........................
Portugal, including Cape Verde
and Azores Islands.................. 2,054 4,234
6,459
4,165 5,307
7,196
107,347
9,317
9,310
6,715 5,028 8,517
Roumania...................................... 1,606
60,982
7,155 7,087 4,437 4,476
Russia ...................................... 90,787 85i257 136,093 145,141 184,897 215,665
Serbs, Croats, and Slovenes,
Kingdom of
Spain,'including Canary and Balearic
Islands............................ 385 355 592 975 2,080 3,996 2,600 1,921
Sweden........................................... 12,797
1,326
18,650 23,331
2,201
30,894
2,344
46,028
3,983
1,529
27,763 26,591
4,269
23,310
Switzerland .................................. 1,152 5,023 3,846
Turkey in Europe.......................... 80 285 387 187 4,344 4,542 9,510
49,491
United Kingdom:
England............................ ( 9,951 12,214
30,561
2,070
13,575 26,219
35,310
38,626 64,709
Ireland..................................... ^45,123 135,730 29,138
2,560
36,142 52,945 34,995
Scotland................................... 1 1,792 6,143
1,275
11,092 16,977 15,866
Wales....................................... I 764 701 763 1,730 2,503 1,841
Other Europe ............................... 6 2 18 37 5 143 13 48
Total Europe....................... 297,349 424,700 469,237 619,068 814,507 767,933 974,273 1,018,365
China.............................................. 1,660 1,247 2,459 1,649 2,209
19,968
4,309
14,264
2,166 1,554
Japan ............................................. 2,844 12,635 5,269 14,270 10,331 13,835
India............................................... 17 9 22 93 94 261 190 216
Turkey in Asia............................... 4,436 3,962 5,782 6,223
36
7,118 5,235 6,157
5,081
6,354
Other Asia...................................... 15 93 61 577 2,117 351
Total Asia............................ 8,972 17,946 13,593 22,271 29,966 26,186 23,925 22,300
Africa.............................................. 51 30 173 37 176 686 757 712
Australia, Tasmania, and New
Zealand.................................... 456 214 325 384 1,150 1,461 2,091 1,682
Pacific Islands (not specified)....
British North America.................
354
1,322
214
396
173
540
182
636
199
1,058
94
2,837
75
2,168
1,195
51
5,063
Central America............................. 159 42 150 305 678 714 1,140
Mexico............................................. 161 237 347 709 528 1,009 2,637 1,997
South America............................... 89 124 203 337 589 i;667 2,576 2,757
West Indies.................................... 2,585 4,656 3,176 4,711 8,170 10,193 16,641 13,656
Other countries.............................. 217 13 1 103 25 90 161 33,012
Grand total.......................... 311,715 448,572 487,918 648,743 857,046 812,870 1,026,499 1,100,735
462 REPORTS OF DEPARTMENT OF LABOR.
Table XV-a .—Immigrant aliens admitted, fiscal years ended June 30, 1899, to 1920,
by countries—Continued.
Countries. 1907 1908 1909 1910 1911 1912 1913 1914
Austria.................... . ...............
Hungary...................................
Belgium...................................
Bulgaria...................................
Czechoslovakia........................
144,992
193,460
6,396
11,359
82,983
85,526
4,162
10,827
80,953
89,338
3,692
1,054
135,793
122,944
5,402
4,737
82,129
76,928'
5,711
4,695
85,854
93,028
4,169
4,447
137,245
117,580
7,405
1,753
134,831
143,321
5,763
9,189
Denmark..................................
Finland....................................
7,243 4,954 4,395 6,984 7,555 6,191 6,478 6,262
France, including Corsica......
Germany..................................
Greece.......................................
Italy, including Sicily and
Sardinia................................
Netherlands.............................
Norway....................................
Poland......................................
9,731
37,807
36,580
285,731
6,637
22,133
8,788
32; 309
21,489
128,503
5,946
12,412
6,672
25,540
14,111
183,218
4,698
13,627
7,383
31,283
25,888
215,537
7,534
17,538
8,022
32,061
26,226
182,882
8,358
13,950
8,628
27,788
21,449
157,134
6,619
8,675
9,675
34,329
22,817
265,542
6,902
8,587
9,296
35,734
35,832
283,738
6,321
8,329
Portugal, including Cape
Verde and Azores Islands..
Roumania................................
Russia......................................
Serbs, Croats, and Slovenes,
Kingdom of.........................
9,608
4,384
258,943
7,307
5,228
156,711
4,956
1,590
120,460
8,229
2,145
186,792
8,374
2,522
158,721
10,230
1,997
162,395
14,171
2,155
291,040
10,898
4,032
255,660
Spain, including Canary and
Balearic Islands...................
Sweden.....................................
Switzerland..............................
Turkey in Europe...................
United Kingdom:
England............................
Ireland...............................
Scotland............................
Wales.................................
Other Europe..........................
5,784
20,589
3,748
20,767
56,637
34,530
19,740
2,660
107
3,899
12,809
3,281
11,290
47,031
30,556
13,506
2,287
97
2,616
14,474
2,694
9,015
32,809
25,033
12,400
1,584
46
3,472
23,745
3,533
18,405
46,706
29,855
20,115
2,120
151
5,074
20,780
3,458
14,438
52,426
29,112
18,796
2,162
377
6,327
12,688
3,505
14,481
40,408
25,879
14,578
2,162
243
6,167
17,202
4,104
14,128
43,363
27,876
14,220
2,745
371
7,591
14,800
4,211
8,199
35,864
24,688
10,682
2,183
967
Total Europe................ 1,199,566 691,901 654,875 926,291 764,757 718,875 1,055,855 1,058,391
China........................................
Japan........................................
India.........................................
Turkey in Asia........................
Other Asia...............................
961
30,226
898
8,053
386
1,397
15,803
1,040
9,753
372
1,943
3,111
203
7,506
141
1,968
2,720
1,696
15,212
1,937
1,460
4,520
524
10,229
695
1,765
6,114
175
12,788
607
2,105
8,281
179
23,955
838
2,502
8,929
221
21,716
905
Total Asia...................... 40,524 28,365 12,904 23,533 17,428 21,449 35,358 34,273
Africa........................................
Australia, Tasmania, and
New Zealand........................
Pacific Islands (not specified).
British North America...........
Central America......................
Mexico......................................
South America........................
West Indies..............................
Other countries.......................
1,486
1,947
42
19,918
970
1,406
2,779
16,689
22
1,411
1,098
81
38,510
1,217
6,067
2,315
11,888
17
858
839
53
51,941
930
16,251
1,906
11,180
49
1,072
998
99
56,555
893
18,691
2,151
11,244
43
956
984
59
56,830
1,193
19,889
3,049
13,403
39
1,009
794
104
55,990
1,242
23,238
2,989
12,467
15
1,409
1,229
111
73,802
1,473
11,926
4,248
12,458
23
1,539
1,336
110
86,139
1,622
14,614
5,869
14,451
136
Grand total............................ . 1,285,349 82,870 751,786 1,041,570 878,587 838,172 1,197,892 1,218,480
re por t of commis sion er gen era l of immig rati on . 463
Tabl e XV-a .—Immigrant aliens admitted, fiscal years ended June 30, 1899, to 1920,
by countries—Continued.
2 The totals for Austria and Hungary, respectively, for the 16 years in which they were separated, are
as follows: Austria, 1,121,858; Hungary, 1,251,204.
3 The totals for England Ireland, Scotland, and Wales, respectively, for the 21 years in which they were
separated, are as follows: England, 647,912; Ireland, 520,976; Scotland, 200,618; Wales, 31,335.
Countries. 1915 1916 1917 1918 1919 1920 Total.
Austria.................................................... 9,215 3,171 857 53 26 268 ^3,218,946
Hungary................................................. 9', 296 2,020 401 8 27 84
Belgium ............................................... 2,399 986 398 73 268 6,574 77,678
Bulgaria .............................................. 1,403 764 151 19 22 90 61', 973
3,426 3,426
Denmark................................................ 3,312 3,322 2,744 1,630 1,352 3; 137 112', 884
pin land ............................................... 756 '756
Prance including Corsica..................... 4,811 4,156 3,187 1,798 3,379 8,945 138,709
Germany................................................ 7, 799 2'877 1', 857 447 52 i;ooi 52i; 426
12,592 27,034 23, 974 1,910 386 11,981 357,824
Italy,including Sicily and Sardinia... 49,688 33', 665 34,596 Si 250 1,884 95,145 3,332; 955
3,144 2,910 2,235 944 1,098 5,187 94,744
Norway................................................... 7,986 5,191 4,659 2,578 1'995 4; 445 273; 180
Poland.................................................... 4,813 4,813
Portugal, including Cape Verde and
Azores Islands.................................... 4,907 12,259 9,975 2,224 1,222 15,472 165,169
Roumania............................................... 481 90 66 59 19 1,890 74; 384
Russia................................................... 26,187 7,842 12,716 4,242 1,403 995 2,670j 276
Serbs, Croats, and Slovenes, Kingdom
of................................................ 1,888 1,888
Spain, including Canary and Balearic
Islands................................................. 2,762 5,769 10,232 4,295 1,573 18,821 97,286
Sweden................................................... 6,585 6,248 6' 368 2,298 2,343 5' 862 376' 055
Switzerland............................................ 1,742 663 911 331 381 3,785 60' 491
Turkey in Europe................................. 1'008 313 152 15 10 1,933 135; 018
United Kingdom:
England.................................... 21,562 12,896 8,354 2,037 5,163 27,871
Ireland............................................. 14,185 8; 639 5,406 '331 '474 9; 591
Scotland........................................... 4,668 2,655 1,868 260 1,283 9,347
Wales............................................... 1,007 512 513 219 351 1,253
Other Europe........................................ 1,180 1,717 1,463 42 16 1,735 8,784
Total Europe............................... 197,919 145,699 133,083 31,063 24,627 246,295 13,234,629
China..................................................... 2 660 2,460 2,237 1,795 1,964 2,330 44,790
Japan...................................................... 8,613 8' 680 8' 991 10,213 10' 064 9' 432 229J13
India..................................................... 161 112 109 130 '171 300 6', 821
Turkey in Asia...................................... 3,543 1,670 393 43 19 5,033 165,180
Other Asia....................... . .................... 234 282 1,026 520 456 410 17,140
Total Asia..................................... 15,211 13,204 12,756 12,701 12,674 17,505 463,044
Africa........................ ....................... 934 894 566 299 189 648 15,892
Australia, Tasmania, and New Zealand....................................................
1,282 1,484 1,014 925 1,234 2,066 24,993
Pacific Islands (not specified).............. 117 90 '128 165 76 '119 2' 696
British North America........(............... 82,215 101,551 105,399 32,452 57,782 90,025 923' 129
Central America.................................. 1.252 1,135 2'073 2', 220 2,589 2,360 25'552
Mexico............................................ 12,340 18,425 17,869 18'524 29'818 52,361 269,044
South America....................................... 3,801 4,286 6,931 3,343 3'271 4,112 59,392
West Indies....................................... if, 598 12' 027 15' 507 8'879 8'826 13,808 238' 213
Other countries...................................... 31 31 77 47 46 702 34,900
Grand total.................................. 326,700 298,826 295,403 110,618 141,132 430,001 15,291,484
464 REPORTS OF DEPARTMENT OF LABOR,
Tabl e XV-b .—Emigrant aliens departed, fiscal years
1 Alien departures previous to July 1, 1907, were not recorded by race or people.
Race or people. 1908 1909 1910 1911
African (black)................................................................................. 889 1,104 926 913
Armenian.......................................................................................... 234 561 521 999
Bohemian and Moravian (Czech).................................................. 1,051 746 943 1,208
Bulgarian, Serbian, and Montenegrin........................................... 5,965 2,422 2,720 6,472
Chinese...........................................7................................................. 3’, 898 3,397 2,383 2,716
Croatian and Slovenian................................................................... 28,589 9,014 7,133 13,735
Cuban................................................................................................ 2,'089 1,243 1,556 2,234
Dalmatian, Bosnian, and Herzegovinian...................................... L046 '515 432 '935
Dutch and Flemish......................................................................... 1' 198 903 1,192 1,689
East Indian....................................................................................... 124 48 80 75
English.............................................................................................. 5,320 5,061 6,508 9,432
Finnish.............................................................................................................. 3^463 1,427 1,276 4,219
French............................................................................................... 3,063 2,862 4,029 3; 400
German.............................................................................................. 14', 418 13', 541 13,303 15,243
Greek................................................................................................. 67763 6; 275 8,814 11,134
Hebrew................................... .......................................................... 7,702 6,105 5,689 6; 401
Irish.................................................................................................... 2,441 2,059 2,472 3; 300
Italian (north).................................................................................. 19,507 16', 658 13,431 14,209
Italian (south).................................................................................. 147;828 69;781 41,772 62; 009
Japanese............................................................................................ 5,323 3,903 4,377 3; 351
Korean............................................................................................... 188 114 '137 41
Lithuanian........................................................................................ 3,388 1,990 1,812 2,430
Magyar............................................................................................... 29,276 11,507 10,533 18,975
Mexican............................................................................................. 173 158 210 '319
Pacific Islander................................................................................. 7 4 1 1
Polish................................................................................................. 46,727 19,290 16,884 31,952
Portuguese........................................................................................ 898 '816 '906 B388
Roumanian....................................................................................... 5,264 1,352 1,834 5,230
Russian.............................................................................................. 7; 507 5', 125 5,682 8', 439
Ruthenian (Russniak).................................................................... 3,310 L672 1', 719 3,'838
Scandinavian (Norwegians, Danes, and Swedes)........................ 5,801 7,257 5,032 8,036
Scotch............ 1.................... '.................... 7........... 1,596 1,618 1,992 3; 083
Slovak................................................................................................ 23,573 8; 894 9,259 15', 561
Spanish.............................................................................................. 1,977 1,834 2,323 2,518
Spanish American............................................................................ '333 305 387 374
Syrian................................................................................................ 1,700 1,204 1,077 1,173
Turkish.............................................................................................. 1,276 725 1,058 l',633
Welsh............................ .. ............................................... 163 171 195 '255
West Indian (except Cuban).......................................................... 375 394 388 344
Other peoples.......7............. '........................................... 630 1,874 806 862
Not specified..................................................................................... 11,873 20,644 25,540
Total...................................... 1................................................ 305,073 225,802 202,436 295,666
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 465
ended, June 30, 1908,1 to 1920, by races or peoples.
1912 1913 1914 1915 1916 1917 1918 1919 1920 Total.
1,288 1,671 1,805 1,644 1,684 1,497 1,291 976 1,275 16,963
718 676 1,250 444 659 133 1,238 11 584 8,028
1,149 871 1,011 219 42 59 455 412 259 8,425
7,349 13,525 5,780 2,354 290 325 918 3,241 23,844 75,205
2,549 2,250 2,059 1,959 2,148 1,799 2,239 2,062 2,961 32,420
13,963 10,209 14,440 2,381 76 24 31 154 7,481 107,230
1,963 1,264 947 2,536 1,454 2,395 1,141 898 1,598 21,318
927 849 878 105 4 6 13 2 1,533 7,245
1,816 2,145 2,252 1,340 742 742 698 1,356 3,016 19,089
164 213 143 162 91 136 154 106 162 1,658
10,341 10,794 11,187 10,372 7,826 6,316 12,810 9,406 11,659 117,032
4,148 3,053 2,941 845 543 1,256 1,596 497 1,447 26,711
4,189 4,019 2,930 5,799 2,297 2,829 5,427 5,472 7,026 53,342
15,026 11,871 11,977 2,749 873 767 563 343 4,178 104,852
13,323 31,556 11,266 9,767 4,855 2,082 2,952 15,562 20,319 144,668
7,418 6,697 6,826 1,524 199 329 687 373 358 50,308
4,086 4,458 4,689 2,948 1,851 1,736 3,071 1,934 4,635 39,680
13,006 10,995 12,663 7,539 4,020 3,478 1,041 1,195 8,159 125,901
96,881 79,057 72,767 89,969 68,981 10,016 8,135 36,980 80,955 865,131
1,501 733 794 825 780 722 1,558 2,127 4,238 30,232
55 44 43 47 29 45 77 23 14 857
4,141 3,276 5,522 988 28 38 45 6 719 24,383
17,575 11,496 14,254 2,262 394 123 41 10 14,619 131,065
325 910 1,670 573 559 759 25,084 17,793 6,412 54,945
4 4 2 5 3 4 6 2 3 46
37,764 24,107 35,028 7,912 358 119 1,035 153 18,392 239,721
1,747 1,583 1,848 2,526 2,185 1,313 2,016 3,525 4,859 25,610
5,824 3,156 3,837 899 138 61 61 60 21,490 49,206
9,714 10,548 17,491 11,256 4,716 6,393 4,926 1,717 1,151 94,695
5,521 5,327 5,049 860 17 21 25 2 693 28,054
10,380 9,291 8,073 3,473 3,954 4,550 4,665 4,865 8,246 83,623
3,456 4,118 3,923 2,714 2,096 1,618 3,307 1,687 2,577 33,785
12,526 9,854 11,786 1,398 74 34 453 1,150 11,568 106,130
2,569 3,181 3,214 4,347 2,792 3,524 4,182 7,489 5,144 45,094
343 457 542 560 516 612 736 799 1,126 7,090
972 797 1,200 433 120 110 160 132 1,652 10,730
1,366 1,297 890 208 41 54 58 275 1,340 10,221
301 298 395 253 214 130 263 156 195 2,989
530 584 677 480 603 520 426 336 626 6,283
1,113 1,118 1,470 511 769 504 1,001 235 1,802 12,695
15,201 19,838 17,819 16,888 10,744 9,098 147,645
333,262 308,190 303,338 204,074 129,765 66,277 94,585 123,522 288,315 2,970,305
15283—la b 1920-----30
466 REPORTS OF DEPARTMENT OF LABOR.
Tabl e XV-c .—Emigrant aliens departed, fiscal
i See footnote Table III.
Countries. 1908 1909 1910 1911
Austria................................................................................................................................ 64,607
65,590
853
3,280
27,782
21,631
431
1,594
26,424
20,866
655
1,566
45,160
41,182
1,017
3,154
Hungary...........................................................................................................................
Belgium.............................................................................................................
Bulgaria.............................................................................................................................
C z echos! ovaki a... ....................................................
Denmark........................................................................................................................... 689 460 433 469
Finland... ...............................................................................
France, including Corsica...................................................................................... 3,107
6,770
6,131
166,733
330
2,275
2,817
4,905
5,606
83,300
308
1,328
4,025
6,216
8,144
52,323
463
1,028
3,148
6,042
9,376
72,640
461
1,400
Germany...........................................................................................................................
Greece..............................................................................................................................
Italy, including Sicily and Sardinia...............................................................
Netherlands....................................................................................................................
Norway..............................................................................................................................
Poland ...............................................................................
Portugalincluding Cape Verde and Azores Islands.......................... 1,056
1,267
37,777
1,025
434
19,707
1,082
445
17,362
1,459
669
27,053
Roumania.......................................... ..............................................................................
Russia.................................................................................................................................
Serbs, Croats, and Slovenes, Kingdom of ...............................................
Spain including Canary and Balearic Islands........................................ 1,116
2,574
684
3,084
5,019
2,023
1,499
87
5
1,079
1,159
658
1,267
3,076
1,380
743
51
6
1,463
1,006
759
1,988
4,554
1,754
1,099
' 84
16
1,396
1,615
667
4,688
5,441
1,984
1,528
145
10
Sweden...............................................................................................................................
Switzerland.....................................................................................................................
Turkey in Europe......................................................................................................
United Kingdom:
England..........................................................................................................
Ireland.......................................................................................................................
Scotland..................................................................................................................
Wales.........................................................................................................................
Other Europe... .............................................................................................
Total Europe.................................................................................................... 376,566 180,747 153,755 230,7p4
China................................................................................................................. 3,923
3,431
128
1,847
221
3,411
3,819
48
1,650
205
2,371
4,366
69
1,548
160
2,762
3,354
92
1,905
59
Japan...................................................................................................................................
India ..................................................................................................................................
Turkey in Asia.............................................................................................................
Other Asia.......................................................................................................................
Total Asia...................................... .*................................................................. 9,550 9,133 8,514 8,172
Africa................................................................................................................................... 133
241
33
2,629
505
295
880
4,247
4
140
442
38
30,478
302
289
925
3,306
2
215
345
31
34,194
390
363
1,073
3,519
37
275
474
30
49,373
347
463
1,183
4,584
61
Australia, Tasmania, and New Zealand........... ..................................
Pacific Islands, not specified...............................................................................
British North America..................................................... ......................................
Central America............................................................... ...........................................
Mexico................................................................................................................................
South America............................................... .............................................................
West Indies...................................... ..............................................................................
Other countries.............................................................................................................
Grand total........................................................................................................ 395,073 225,802 202,436 295,666
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 467
years ended June 30, 1908, to 1920, by countries.1
1912 1913 1914 ' 1915 1916 1917 1 1918 1919 1920 Total.
46,137 28,760 35,013 6,776 230 126 5 201 2,274 283,495
42,423 29,904 39,987 5,059 592 112 1 100 14,233 281,680-
1,103 803 1,149 333 24 15 41 634 1,846 8,904
3,577 9,664 2,553 1,964 250 191 700 2,891 3,587
11,147
34,971
11,147
665 608 629 412 513 489 304 599 1,477
1,473
4,477
7,747
1,473
3,473 3,430 2,927 5,751 2,231 2,064 3,176 3,792 44,418
5,785 4,759 5,136 1,419 439 315 28 26 3,069 44,909
11,461 30,603 11,124 9,775 4,829 2,034 2,986 15,482 20,314 137,865
108,388 88,021 84,351 96,903 72,507 12,542 8,645 38,245 88,909 973,507
564 599 690 612 351 227 139 596 1,017 6,357
2,310 1,710 2,797 1,211 1,359 1,633 1,730 1,952 3,022
18,190
23,755
18,190
1,916 1,965 2,055 2,661 2,396 1,353 1,976 3,447 4,728 27,119
550 319 348 244 49 16 7 39 21.506 25.893
34,681 26,923 47,451 18,297 5,259 5,947 4,983 1,868 1,933
28,474
249,241
28;474
1,581 2,029 2.254 3,042 1.816 2,491 3,250 6,280 3; 841 31,638
2,490 1,989 2.240 953 1,412 969 1,169 1,738 3,109 22,423
510 449 432 349 201 159 172 403 1,103 6,546
5,926 4,809 2,528 164 18 24 24 47 1,812 26.379
6,700 5,969 7,275 7,715 5,130 2.798 1,239 4,482 8,099 67,497
3,082 2,894 3,632 2,218 1,304 1.027 280 988 3,735 26,301
2,195 2,179 2,464 1,847 1,332 678 141 569 1,488 17,762
185 157 234 169 118 69 24 54 141 1,518
22 16 26 80 49 88 480 98 1,429 2,325
285,724 248,559 257,295 167,954 102,409 35,367 31,500 84,531 256,433 2,411,534
• 2,609 2,303 2,112 2,011 2,203 1,871 2,352 2.199 3,102 33,229
1,485 731 756 840 770 750 1,583 2,195 4,249 28,329
182 240 164 179 123 176 229 161 189 1,980
1,551 1,313 2,243 593 14 8 5 26 1,731 14,434
104 103 167 214 867 356 212 79 170 2,917
5.931 4,690 5,442 3,837 3,977 3,161 4,381 4,660 9,441 80,889
266 209 196 85 93 108 100 74 121 2,015
645 645 745 608 445 382 36 362 490 5,860
43 29 30 17 10 35 418 19 29 762
33,506 46,981 31,818 23,225 15,712 18,994 27,170 10,726 7,668 332,474
328 482 437 436 495 530 489 413 602 5,756
605 991 1,724 651 532 812 25,515 18,000 6,606 56,846
1.319 1,367 1,376 988 997 993 1,071 914 1,398 14,484
4,864 4,223 4,237 6,243 5,059 5,891 3,891 3,806 5,502 59,372
31 14 38 30 36 4 14 17 25 313
333,262 308,190 303,338 204,074 129,765 66,277 94,585 123,522 288,315 2,970,305
468 REPORTS OF DEPARTMENT OF LABOR.
Table XVI.—Total immigration each year, 1820 to 1920.
Period. Number. Period. Number.
Year ended Sept. 30—
1820 ................................... 8,385
9,127
6,911
6,354
7. 912
10,199
10,837
18,875
27,382
22, 520
23,322
22,633
60,482
58,640
65,365
45,374
76,242
79,340
38,914
68,069
84,066
80, 289
104,565
52,496
78,615
114,371
154,416
234,968
226, 527
297,024
310,004
59,976
379,466
371,603
368,645
427,833
200,877
195,857
112,123
191,942
129,571
133,143
142,877
72,183
132,925
191,114
180,339
332, 577
303,104,
282,189
Year ended June 30—Continued.
1869.................................................... 352.768
387,203
321,350
404,806
459,803
313, 339
227,498
169, 986
141,857
138,469
177, 826
457, 257
669,431
788, 992
603,322
518, 592
395 346
334,203
490,109
546, 889
444.427
455,302
560,319
579,663
439, 730
285,631
258, 536
343,267
230,832
229,299
311,715
448,572
487,918
648,743
857,046
812,870
1,026,499
1,100,735
1,285,349
782,870
751,786
1,041,570
878,587
838,172
1,197,892
1,218,480
326,700
298,826
295,403
110,618
141,132
430,001
33,630,104
1821 ...................................... 1870....................................................
1822 .......................... 1871....................................................
1823 ................................... 1872....................................................
1824 ............................ 1873....................................................
1825 ........................................... 1874....................................................
1826 ..................... 1875....................................................
1827 .................................... 1876....................................................
1828 ........................ 1877....................................................
1829 ........................................ 1878....................................................
1830 ................ 1879....................................................
1831 . ......... 1880....................................................
Ont. 1 1831 to Doc 31 1832 1881....................................................
Year ended Dec. 31—
1833 ..........................
1882 ..................................................
1883....................................................
1834 ............................ 1884....................................................
1835 .............................. 1885....................................................
1836 ............................... 1886....................................................
1837 ................................. 1887....................................................
1838 ............. 1888....................................................
1839 ..................... 1889....................................................
1840 .............................. 1890....................................................
1841 ...................................... 1891....................................................
1842 ................ 1892....................................................
1893....................................................
Year ended Sept. SO-
1844 ............................
1894 ................................................
1895....................................................
1845 ................................... 1896....................................................
1846 ............................ 1897....................................................
1847 ........................................ 1898....................................................
1848 ............................ 1899....................................................
1849 ............... 1900....................................................
1850 ........................................ 1901..................................................
1902 ..................................................
Year ended Dec. 31—
1851 .......................
1903....................................................
1904....................................................
1852 ................................. 1905....................................................
1853 ................................. 1906....................................................
1854 ......................................... 1907....................................................
1855 ............................ 1908....................................................
1856 .......................... 1909....................................................
1910....................................................
Year ended June SO-
1858 ...............................
1911....................................................
1912....................................................
1859 ....................................... 1913....................................................
1860 ............................ 1914....................................................
1861 . .......................... 1915....................................................
1862 .................. 1916....................................................
1863 ............ 1917....................................................
1864 .................. 1918....................................................
1865 ................................. 1919....................................................
1866 ........................... 1920....................................................
1867....................................................
1868 ............................ Total.............................................
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 469
Tabl e XVI-a .—Net increase of population by arrival and departure of aliens, fiscal
years ended June 30, 1908 to 1920.
Admitted. Departed.
Increase.
Immigrant. Nonimmigrant.
Total. Emigrant. Nonemigrant.
Total.
1908............................... 782,870
751,786
1,041,570
' 878,587
838,172
1,197,892
1,218,480
326,700
298,826
295,403
110.618
141,132
430,001
141,825
192,449
156,467
151,713
178,983
229,335
184,601
107, 544
67,922
67,474
101,235
95,889
191,575
924,695
944,235
1,198,037
1,030,300
1,017,155
1,427,227
1,403,081
434,244
366, 748
362,877
211,853
237,021
621,576
395,073
225,802
202,436
295,666
333,262
308,190
303,338
204,074
129,765
66,277
94,585
123,522
288,315
319,755
174, 590
177,982
222, 549
282,030
303,734
330,467
180,100
111, 042
80,102
98,683
92.709
139:747
714,828
400,392
380,418
518, 215
615,292
611,924
633,805
384.174
240,807
146,379
193,268
216,231
428,062
209,867
543,843
817,619
512,085
401,863
815,303
769 276
50,070
125,941
216,498
18,585
20,790
193,514
1909...............................
1910...............................
1911...............................
1912...............................
1913...............................
1914...............................
1915...............................
1916...............................
1917...............................
1918...............................
1919...............................
1920...............................
Total.............. 8,312,037 1,867,012 10,179,049 2,970,305 2,513,490 5,483,795 4,695,254
470 REPORTS OF DEPARTMENT OF LABOR,
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 471
472 REPORTS OF DEPARTMENT OF LABOR.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 473
474 REPORTS OF DEPARTMENT OF LABOR.
Ta b l e XVII-a .—Aliens debarred, and aliens deported after entering, 1892 to 1920, by causes.
Assisted
aliens.
Geocall
y
excluded
Had classes,
been (.Natives
de- of that
ported portion of
within Asia and la"°r'
one islands e ‘
year, adjacent
thereto
described
in section
3.)
rH rH rH rH rH H r-< H 4
I
Com-
Pf ro- ingin _ consedonal
Va" grants, titu- noncor
inal giou
opathic tubercu
iority.
:‘£,0010S50’
me
defect
may
Coft- ali< stitu- abili
™ i tional earn a
Im-' Psy- t?P °thei cho- idiots,
1 ' pathic ciles,
inferi- min
ority. epile
insan
cons
tic
psych
inferi :::::::::::::::
«, a® • og5
_____________ O-S_________________
Sig's : : : : : : : : : : : : : : i
is :::::::::::::::
Idiots.
^eo-s.t0rtw^wwOC5C50505C505a>O>05050>C5CbC5gC>Cjg
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 477
Table XVII-b .—Permanent residents of contiguous foreign territory applying for temporary
sojourn in the United States refused admission, fiscal year ended June 30, 1920,
by causes.
Cause. Canadian
border.
Mexican
border. Total.
Idiots ...................................................................................................... 8 1 9
Imbeciles . ................... -............................................................................ 1 1
Feeble-minded................................................................................................... 24 4 28
Epileptics ............................................................................................ 22 1 23
Insane persons................................................................................................... 27 4 31
Constitutional psychopathic inferiority..................................................... 21 1 22
Tuberculosis (noncontagions) ............................................. 11 11
Loathsome or dangerous contagious diseases............................................ 121 136 257
Professional beggars ............................................................ 1 1
Paupp.rs or likely to become public charges............................................. 2,918 503 3,421
Surgeon^s certificate......................................................................................... '175 106 281
Chronic alcoholism ...................................................................................... 4 4
Contract laborers ................................................................................... 320 29 349
Accompanying aliens (under sec. 18)...............................................-......... 58 69 127
Under 16 years of age and unaccompanied bv parent............................ 61 39 100
Assisted aliens ................................................................................................ 77 2 79
Criminals ..................................................................................................... 154 137 291
Polygam ists ................................................................................. 2 2
Anarchists .................................................................................................. 1 1
Prnqtitnt.ps and females coming for anv immoral purpose.................... 69 15 84
Aliens who procure or attempt to bring in prostitutes and females
for any immoral purpose......................................................................... 50 18 68
Had been deported within one year............................................................ 6 6
Unable to read (over 16 years of age).......................................................... 1,642
11
173 1,815
Geographically excluded................................................................................. 2 13
Under passport provision, section 3............................................................. 19 4 23
Under provisions of section 23.. ......................................................... 16 16
Total ....................................................................................................... 5,803 1,260 7,063
478 REPORTS OF DEPARTMENT OF LABOR.
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aqj paAiaaaj jo Xq pajjoddng
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jo awij jb 83b jo sjbo A 9j japun
(N r—< • • ; ; : : J00 • i-H . • 1-1 CM
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•SXBMBMOJg co IcM •
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jo atari jb aAijoejap jBaisXqjj :w • CO I • CM CM 5 :
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aqqnd b auioaaq oj Ajaqiq
1
1
25
7
6
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HCj N >0 0^ CO M ©
Tt-coHHco m
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r-4 r-< 1
Loathsome
or dangerous
contagious
diseases.
•sjoqjo r-H • T—i • • • • • rH • ■
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•(snoiSej
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auBsut uaaq 9ABq jo o u bsu j • • • t H
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aa 'S
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§ 3 8 "d
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 479
480 REPORTS OF DEPARTMENT OF LABOR.
Ta b l e X V III.—Aliens deported to countries whence they came, after entering the United States, fiscal year ended June 30, 1920, by races or peoples
and causes—^Continued.
3
8
fl
•sptreisi Qorddqiqj woj j papodaa
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jo [ions ioj oouo aoq3 oioui p90O93U9s jo
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jo j uoijojjodon jo ’ uoijnjijsojd jo ssao
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j’ojnoojd 0 jo ojnjijsojd 0 so poj jodop aooq
gatAOq J93jo sojojs P°l!un oq3 QJ panod
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S93n3i3sojd joojojd 03 sositaojd jo 33093010
jo ‘S3SISS0 jo ‘jjoduti 03 S3din933B jo S3jodinj
•ooi3n3i3sojdjo
sosnoq jo 39301001 jo XJ309 joj jo 3930313301^
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5533
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o
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Ila
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 481
Lithu
15283—lab 1920---- 31
482 REPORTS OF DEPARTMENT OF LABOR.
■M? c m*'
c m r- io o jo o c jc o c mi>- i©co t -< O CM rft c OMimOt -i 1O
00 ©SC© CM OS
•S0TUI0UO U0TJV O r-4 ’
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r—<
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274
42
4
1
6
CM
CM
- — — — -
•gg noijoas Japan rH • • • • r-4
•sajEjajiqi
744
169
40
16
65
CM i—4
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pajjsqap AjsriojAajj r- h n TH
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•suope
papnioxo XnBOiqdBiSoao r-< CM 1©
•g uorjaes 'sh ot s
-TAOjd ijodssiid japun. C© • t -4
rH •
1©
1—4
•noijajrjsojd
jo spaaoojd’ paAiaoag i-H W
•asod
-jnd (Bjo uiu it Xue jo j
saieoiaj jo sajnjijsojd
hi Suuq oj jdfaajjB
jo’ ajn’aojd otpw soapy
CM •
C* J » CM
CM
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-HIT AUB JOJ SUTUIOO
sajeuiaj pue sajnjjjsojj
CO
co
1—4 rH os
CM
•jsju ib S.Xjo j i-4 • r—4
•s[Bunnpo
113
14
OS
OS
•jaaJBd
Xq paraedujoaoeun
aSe jo sjeaX 9j japan
155
12
19
1
17
43
63
1—4
•snaps pajsissy
170
34
64
5
8
Clr-H t -<
1©
•(H ‘398 Japan)
snapa 3uiXut;duioaay
93
32
13
1
4
CO r-4
•sjajoqej jaejjuon
618
95
9
3
14
§
•sjb S
-§aq jeuoissajojd pus
‘saSj'eqa aijqnd auioo
-aq oq Xpifp jo ‘sjadne j
2,195
453
426
17
106
6
1,187
5
1© r-4 CM
•saseasip snojSejuoa
snojaSuep jo auiosqjeoq r^CM
CM
»©
i—4
CM i-4 c© i© i—4
■tnsi[oqo3[E araojqn 1-H i—<
•XjuoTJOjni aipjed
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•Xsdaiida TJH CM r—< i—4 r—4
•OATjaajap XpeaiSAq p
265
29
42
O
T—<
CO CM r-4
1—4
•QArpopp XnB^UOpi
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 483
Ta b l e XIX-a .—Appeals from decisions under immigration law, applications for admission under bond, applications for hospital treatment, and applications
for transit, fiscal year ended June 30, 1920, by ports.
•pnoj,
4,812
907
624
47
235
49
2,950
1 TH CD Ci CO NN IQ CO
i-Q
•oo jh o -jjoj r-<
r-4 r-4 00 1 r-4
•niniouog 00 r-4
O Ci • CM
•s;jod
jopjoq UBaixejy CO
107
11
57
4
480
CO r-4 CM i-4 r-i
•s^iod
japjoq u'Bip'euBj
1,877
172
12554
1,679
1Q IQ TH CM TH r-4
co r-1 CM
•s^jod
OpiOBJ UBip^UBO
»q
r-4
00 r-4
CM
CM
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co
0-1 IQ
1—4 TH a CM r-4
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r-4 o r-4
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co
CM
r-4
r-4 CO CD CM
'B[J ‘OprAUOSJfOBf 00 r-4
•ba ‘JnopoN 3 r—i r-l
•pjv ‘OJOUItJp?g r-<
TH 1
•b .5
cS
484 REPORTS OF DEPARTMENT OF LABOR.
Table XX.—Deserting alien seamen, d
New York, N.Y.............................. 7,183
Boston, Mass..................................... 402
Philadelphia, Pa.............................. 1, 068
Baltimore, Md................................... 1,174
Portland, Me......................... „•......... 174
Norfolk, Va....................................... 1, 388
Savannah, Ga................................... 169
Miami, Fla........................................ 7
Key West, Fla.................................. 7
Charleston, S. C............................... 135
Jacksonville, Fla.............................. 22
Boca Grande, Fla............................. 11
Brunswick, Ga.................................. 4
Tampa, Fla........................................ 110
Pensacola, Fla.................................. 41
Mobile, Ala........................................ 136
year ended June 30, 1920, by ports.
New Orleans, La.............................. 659
Galveston, Tex................................. 410
Port Arthur, Tex............................. 156
Gulfport, Miss................................... no
Pascagoula, Miss............................... 2
St. Andrews, Fla.............................. 3
Fernandina, Fla............................... 26
San Francisco, Calif........................ 44
Portland, Oreg.................................. 15
Seattle, Wash.................................... 59
Mexican border seaports................ 9
Alaska................................................. 1
San Juan, P. R................................. is
Total........................................ 13,543
States, fiscal year ended
New York, N.Y................................ 1,197
Boston, Mass....................................... 67
Philadelphia, Pa................................ 182
Baltimore, Md..................................... 176
Portland, Me....................................... 12
New Bedford, Mass........................... 1
Providence, R. I................................ 1
Norfolk, Va.......................................... 218
Savannah, Ga..................................... 19
Tampa, Fla.......................................... 2
Charleston, S. C................................. 15
Pensacola, Fla.................................... 2
Miami, Fla........................................... 2
Key West, Fla.................................... 13
Fernandina, Fla................................. 5
June 30, 1920, by ports.
Jacksonville, Fla................................ 1
St. Andrews, Fla................................ 3
Mobile, Ala.......................................... 40
New Orleans, La................................ 134
Galveston, Tex................................... 54
Port Arthur, Tex............................... 19
Gulfport, Miss..................................... 6
San Francisco, Calif.................... ,.. 205
Seattle, Wash...................................... n
Mexican border seaports.................. 2
Honolulu, Hawaii.............................. 2
San Juan, P. R................................... 3
Total............................................ 2,392
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 485
Tabl e XXIIi—Comparison between alien arrivals and head-tax settlements, fiscal year
ended June 30, 1920.
Immigrant aliens admitted..................................................................... 430, 001
Nonimmigrant aliens admitted.............................................................. 191, 575
Aliens debarred.......................................................................................... 11,795
Aliens from Porto Rico, Hawaii, Virgin Islands, Philippine
Islands, and mainland...................................................................... 3, 920
Died...................................... -...................................................................... 127
Erroneous head-tax collections.............. _............................................... 2, 593
Head-tax payments pending from previous year.............................. 31, 881
------------ 671,892
Exempt from head-tax payments, as follows:
In transit (groups)..................................................................... 2, 901
Other transits (includes 10,917 Chinese in transit under bond
across land territory of the United States........................... 48, 079
One-year residents of British North America, Mexico, and
Cuba, coming for temporary stay.......................................... 4, 385
Domiciled aliens returning (rule 1, subd. 3 (d), (e), and (h)).. 48, 551
Government officials......................................................................... 3, 560
Alien residents of the Philippine or Virgin Islands. . ._.......... 315
Aliens from Porto Rico and Hawaii who reached said islands
prior to July 1, 1907, or subsequent to May 1, 1917............. 1, 313
Aliens from the mainland................................................................ 1,485
Under 16 years of age, accompanied by parents....................... 88,400
Exemptions on account of aliens debarred................................. 9, 350
Citizens erroneously manifested.................................................... 1, 320
Returned alien soldiers (public resolution No. 44)................... 8, 260
Deserting alien seamen (not apprehended at end of 60 days,
put in statistics)......................................................................... 2, 307
Total.................................................................................................. 220,226
Head-tax payments pending at close of year..................................... 82,484
------------ 302,710
Aliens on whom head tax was paid...................................................................... 1 369,182
Amount of head tax collected during year......................................................... $2, 947, 984
11,368 aliens were taxed at 84 each and 367,814 at 88 each.
486 REPORTS OF DEPARTMENT OF LABOR,
Tabl e XXIII.—Passengers departed Jrorn the United
Line of vessels, etc. Ports of departure and
destinations.
Aliens.
Number.
Sex. Age. Class.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
Canadian Pacific...........
From Alaska to—
Canada................... 10
1
91
1 10
1
10
Gas boat Belvedere....... 1
Gas boat Flyer..............
Siberia..........................
Do..........................
Grand Trunk Pacific...
White Pass river boats..
By land..........................
Canada......................... 10
2
32
7 32
6
21
81
32
10
2
32
Do..........................
Do.............. 26
Donaldson......................
Total Alaska........... 55 43 12 3 52 55
From Baltimore, Md., to—
Glasgow.................
Royal Spanish Mail...... Spain............................ 544
3
483
1
61
2
21 523
3
17
3
527
Scandinavian American
Anchor............................
Copenhagen.................
Total Baltimore.......
From Boston, Mass., to—
Glasgow.............
547 484 63 21 526 20 527
71
115
735
29
36
220
42
79
515
11
17
39
60
98
696
71
115
735
Cunard............................ Do............
Leyland.......................... Liverpool..............
Mexican Petroleum . .. Tampico, Mexico
United Fruit.................. Cuba*...................... 11
31
124
9
21
124
2
10
11
28
124
11
31
White Star..................... 124
Port Limon................. 3
Liverpool.. ..
Allan.............................
Total Boston............ 1,087 439 648 70 1,017 1,087
From Canada (Atlantic
seaports) to—
Glasgow.......... 11
62
747
514
375
2,426
357
89
117
21
3
44
4
6
257
16
6
24
644
389
356
1,708
265
71
45
7
1
27
44
181
9
5
38
103
125
19
718
92
18
72
14
2
17
1
8
21
13
4
193
32
5
10
3
10
54
726
501
371
2,233
325
84
107
18
3
43
45
234
14
6
42
87
96
54
821
92
18
68
14
3
44
4
6
121
13
5
20
660
418
321
1,605
265
71
49
7
Canadian Pacific Atlantic.
Donaldson......................
Liverpool.....................
Antwerp.....................
Glasgow.......................
Havre...........................
Liverpool.................
London........................
Southhampton............
Glasgow.. .*............
Furness-Withey............
Liverpool.................
Halifax.........
Royal Mail Steam
Packet.
White Star Dominion..
By land.......................
Liverpool........... 1
British West Indies...
Liverpool........... 2
76
7
1
23
2
Do..................... 136
Southhampton............ 3
Total Atlantic seaports
of Canada...
Via Canadian border stations
to—
Canada......
5,049 3,741 1,308 317 4,732 1,489 3,560
27,952 17,478 10,474 3,163 24,789 27,952
Canadian Australian
Royal Mail.
Canadian Pacific............
From Canada (Pacific seaports)
to—
Auckland..................... 167
2
363
2,292
26
112
2
231
2,158
19
55 8 159
2
339
2,237
26
160
2
320
496
26
7
Suva..........
Sydney........................ 132
134
7
24
55
43
Hongkong............. 1,796
Kobe........
Moji....
Nagasaki............... 17
249
1
15
174
1
2
75
1
14
16
235
1
17
246
1
Shanghai...................... 3
Spain..........
Vladivostok. .
Y okohama................... 284 230 54 10 274 253 31
Total Pacific seaports
of Canada.. 3,401
=====
2,942 45S 112 3,28£ 1,521 1,880
re por t of commi ssi on er ge ne ral of immigr ati on . 487
States, fiscal year ended June SO, 1920.
Citizens. Total.
Sex. Age. Class. Sex. Age. Class.
Number.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
Number.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
7 5 2 7 7 17 14 3 17 17
1 1 1
1
12
11
14
...........
141
131
19
1
14
14
.......... 1
14
1
10 4 2
1 1 3 1 2 1 2 3
28 9 2 28 60 45 15 2 58 60
■--------
41 29 12 2 39 41 96 72 24 5 91 96—
5
22
3
12
2
10
1
20
42
5 5 3 2 1 4 5
22 566 495 71 41 525 17 549
.......... 3 1 2 .......... 3 3 ...........
27 15 12 21 6 5 22 574 499 75 42 532 25 549
31
90
581
16
45
272
15
45
309
20 31 102 45 57 22 80 102
27
193
03 90 205 81 124 44 161 205
388 551 30 1,316 492 824 232 1,084 1,286 30
4 4
10
16
4 4 4 4 4 4
43
33
11 14 25 19 6 3 22 25
19 19 50 37 13 6 44 50 124 124 124 124 ...........
739 363 376 237 502 709 30 1,826 802 1,024 307 1,519 1,796 30
112
1
. 7
1
4
2 2 13 7 6 3 10 6 7
8 3 8 3 73 31 42 16 57 50 23
41 24 17 35 6 10 31 788 668 120 56 732 97 691
53 28 25 29 24 29 24 567 417 150 42 525 125 442
8 5 3 4 4 5 3 383 361 22 8 375 59 324
201 115 86 98 103 109 92 2,627 1,823 804 291 2,336 930 1,697
43 21 22 22 21 25 18 400 286 114 54 346 117 283
12 4 8 5 7 1 11 101 75 26 10 91 19 82
38 25 13 14 24 20 18 155 76 85 24 131 88 67
3 1 2 3 3 24 8 If 6 18 17 7
3 1 2 3 3
4 4 4 4 48 31 17 1 47 48
4 4 4 4
10 7 3 9 1 2 8 16 11 5 io 6 8
151
8
36 20 16 18 18 30 6 293 201 92 41 252 142
16 9 7 2 14 13 3
462 262 200 247 215 246 216 5,511 4,003 1,508 564 4,947 1,735 3-, 77■ 6
25,022 16,811 8,211 5,915 19,107 25,022 52,974 34,289 18,685 9,078 43,896 52,974
112 66 46 16 96 107 5 279 178 101 24 255 267 12
1
149
1 ] 3 < 6 2 1
76 73 26 123 140 9 512 307 205 50 462 460 52
1,298 842 456 138 1,160 1,076 222 3,596 3,000 590 193 3,397 1,572 2,018
83
4
23
773
48
1
16
383
35
37
390
7C 83
4
109
4
67 42 i: 96 106
2 1 3 2 2 4
1
98
22 23 40 31 9 2 38 40
675 773 1,022 557 465 112 910 1,019 3
1 1 ] 1
22
750
16
449
22 22 22 16 12 22 22
301 66 684 747 3 1,034 676 355 76 958 1,000 34
3,215 1,892 1,323 360 2,855 2,975 246
| 6,616
4,834 1,782 472 6,144 4,496 2,120
' -=
488 REPORTS OF DEPARTMENT OF LABOR.
Table XXIII.—Passengers departed from the United
Line of vessels, etc. Ports of departure and
destinations.
Aliens.
Number.
Sex. Age. Class.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin Steerage.
Kambangan...................
Dredge................... .
From Charleston, S. C.,
Amsterdam.................
From Galveston, Tex.,
to—
Mexico..........................
4 1 3 1 3 4
Leyland..........................
Oil boat...........................
Southern Pacific............
Liverpool.....................
Mexico..........................
Do..........................
18
66
2
2
8
38
21
2
10
28
2
13
16
53
2
2
2
18
65
2
2
2
1
Tramp............................ Liverpool..................... 1
Tug.................................
Mexico..........................
Do........................ .......... ..........
Tramp............................
Total Galveston.......
From Gulfport, Miss., to—
Argentina....
90 51 39 15 75 ' 89 1
6 4 2 3 3 6
Canadian Australian...
Royal Mail.......... ..........
China Mail......................
Oceanic........ . .................
Total Gulfport.........
From Honolulu to—
Auckland.....................
Suva.............................
Sydney.........................
Vancouver...................
Victoria........................
Hongkong....................
Shanghai......................
Yokohama...................
Pagopago.....................
6 4 2 3 3 6 ...........
77
8
65
216
61
446
3
70
4
65
61
1
6
43
67
715
26
6
2
3,191
34
6
26
110
29
413
1
54
4
37
59
15
39
52
471
15
3
2
1,988
43
2
39
106
32
33
2
16
10
25
10
81
2
67
6
60
206
53
445
3
68
4
63
61
1
6
43
64
712
26
6
2
3,159
55
6
58
142
29
15
6
2
63
3
22
2
7
74
32
431
3
64
22
58
14
33
51
708
25
3,066
Pacific Mail....................
Toyo Risen Kaisha.......
Peninsular & Occidental.
Sailing vessels................
Sydney”........................
Hongkong....................
Kobe.............................
28
2
2
Shanghai......................
Yokohama...................
Hongkong....................
Kobe.............................
Nagasaki......................
Shanghai......................
South America............
Yokohama...................
Total Honolulu........
From Key West, Fla., to—
Cuba.......................
Do..........................
14
15
244
11
3
1,203
33
32
2
10
16
7
1
6
2
125
5,133 3,349 1,784 78 5,055 548 4,585
15,198
4
11,850
4
3,348 1,476 13,722
4
7,933
4
7,265
Miscellaneous................. Do..........................
By land..........................
Total Key West.......
Via Mexico (border stations)—
Mexico.......................
15,202 11,854 3,348 1,476 13,726 7,937 7,265
10,756 7,588 3,168 1,611 9,145 10,756
Admiral Line.................
From Mexico (Pacific seaports)
to—
Guatemala...................
Allenaire.........................
Honduras.....................
Mexico..........................
Nicaragua.....................
32 25 7 2 30 5 27
San Salvador...............
Mexico..........................
1 1 ........... 1 1 ...........
Allianc e-Independent...
California & Mexico.......
Curacoa...........................
Do.......................... 14
45
12
27
14
40
14
43
Mazatlan, Mexico........
Mexico..........................
Guatemala...................
2
18 5 2
Gulf Mail.........................
Honduras.....................
Mazatlan, Mexico.......
Mexico..........................
Do..........................
2
10
12
186
12
6 2
2
10
10
2
3
12
7
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 489
States, fiscal year ended June 30, 1920—Continued.
Citizens. Total.
Number.
Sex. Age. Class. \
Number.
Sex. Age. Class.
Male. Fe.
male.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
1 __ _ _ 1 _____ _ 1 _____1 5 1 ______4 1 4 ______4 1
4 2 2 4 4 4 2 2 4 4
11 4 7 8 3 11 29 12 17 10 19 •29
511
41
398
26
113
15
37
5
474
36
493
41
18 577
43
436
28
141
15
50
5
527
38
558
43
19
1 1 1 1 3 1 2 3 3
18 17 1 18 18 20 19 1 20 20
1 1 1 1 1 1 1 1
587 448 139 50 537 569 18 677 499 178 65 612 658 19
6 4 2 3 3 6
6 4 2 3 3 6
8 3 5 2 6 8 85 37 48 12 73 63 22
5
23
444
196
170
15
40
12
26
1
15
226
100
120
6
21
10
16
4
8
218
96
50
9
19
2
10
2
2
79
63
84
3
27
2
3
21
365
133
86
12
13
10
26
1
19
317
129
46
11
12
10
25
44
127
67
124
4
28
21
13
88
660
257
616
18
110
16
91
7
41
336
129
533
7
75
14
53
6
47
324
128
83
11
35
2
38
47
89
71
85
3
29
22
9
81
571
186
531
15
81
14
89
7
77
459
158
61
11
18
12
88
6
11
201
99
555
7
92
43
55
1
26 29
1
6 49
1
43
1
12 116
2
85
1
31
1
6 110
2
46
1
70
1
16 11 5 16 13 3 22 16 6 22 15 7
49
78
456
29
14
24
52
229
14
6
25
26
227
15
8
9
21
437
25
2
40
57
19
4
12
44
30
87
14
5
48
448
22
92
145
1,171
55
20
63
104
, 700
29
9
29
41
471
26
11
9
24
440
25
2
83
121
731
30
18
54
46
15
8
20
38
99
1,156
47
2 2 2 2
1,841 916 925 1,665 176 131 1,710 5,032 2,904 2,128 1,697 3,335 256 4,776
3,478 1,796 1,682 2,429 1,049 869 2,609 8,611 5,145 3,466 2,507 6,104 1,417 7,194
15,906
3
10,891
3
5,015 1,120 14,786
3
14,212
3
1,694 31,104
7
22,741
7
8,363 2,596 28,508
7
22,145
7
8,959
11 ' 9 2 11 8 3 11 9 2 11 8 3
15,920 10,903 5,017 1,120 14,800 14,223 1,697 31,122 22,757 8,365 2,596 28,526 22,160 8,962
1,523 922 601 872 651 1,523 ______ 12,279 8,510 3,769 2,483 9,796 12,279 ____
. 3 2 1 3 3 3 2 1 3 3
1 1 1 1 1 1 1 1
15
1
13 21
2 13
1
12
1
3 47
1
38 ‘ 9
1
4 43
1
17
1
30
1 1 1 1
■ 6 6 6 6 6 6 6 6
1 1 1 1
2 2 2 2 6 4 2 6 6
11 6 5 3 8 11 56 33 23 8 48 54 2
3 2 1 2 1 3 3 2 1 2 1 3
2 1 1 2 2 2 1 1 2 2
2 1 1 2 2
2 2 1 1 2 12 8 4 1 11 5 7
6 3 3 1 5 6 18 9 9 3 15 18 ...........
490 REPORTS OF DEPARTMENT OF LABOR.
Tabl e XXIII.—Passengers departedfrom the United
Line of vessels, etc. Ports of departure and
destinations.
Aliens.
Number.
Sex. Age. Class.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
Kondo.............................
From Mexico (Pacific seaports)
to—
Mexico..........................
Mexicale.......................... Do.......................... 34
117
12
72
9
22
86
8
50
7
12
31
4
22
2
1 24
116
12
64
7
3
4
12
2
41
8
Mexican Independent
& Division.
Osaka Shosen Kaisha...
Pacific.....*....................
Do ........................
Japan............................ 1 105
10
31
1
Mexico..........................
Pacific Mail.................... Do.......................... 8
2
Peerless...........................
Balboa..........................
Salina Cruz..................
Canal Zone...................
Cristobal, Panama___
Chile....'......................
Guatemala................... 2 1 1 2 2
Honduras.....................
Mazatlan, Mexico....... 3
z 1
21
1 31
31
Nicaragua.....................
San Salvador...............
Mexico.......................... 2 2 2 2
San Antonio................... Do..........................
Silver Spray.................. Do.......................... 651
92
216
441
56
144
21
651
89
187
61
Toyo Kiseri Kaisha....... Kobe............................. 41
76
San Diego Navigation..
Sailing vessels................
South America............
Yokohama................... 36
72
3
29
16
Mexico.......................... 216
Total Mexico............ 652
2,8884
441
2,170
3
211
718
1
53
208
599
2,680
4
388
914
4
264
1,974
From Miami, Fla.,to—
British West Indies...
Cuba.......................
Antillian.............................
Total Miami............. 2,892 2,173 719 208 2,684 918 1, 974
From Mobile, Ala., to—
Liverpool.............. 23
911
7
4
16
51 6
17
911
23
911
Asian............................... Do..........................
Bowden.......................... British Honduras........
Frontera.........................
Honduras..................... 1
Do..........................
Lake Duane................... Cuba............................. 12
111
2
12
P. Clair........................... Spain............................ 1
Sailing vessels................ Liverpool.....................
United Fruit..................
Mexico.......................... 2
12
2
2
6
1
2
11
2
2
12
2
British Honduras___ 61
1
Vera................................
Guatemala...................
Mexico..........................
British Honduras........ 17
6
12
4
52
1 16
6
'17
6
Bluefields Fruit.............
Guatemala...................
Total Mobile............ 76 39 37 8 68 76
From New Orleans, La.,
to—
British West Indies...
Nicaragua.....................
60
130
13
226
33
102
10
159
27
28
3
67
9
13
2
32
51
117
11
194
60
130
13
226
Cuyamel......................... Do..........................
Mexican Fruit................
Spanish Honduras....
Mexico..........................
Norton Lilly.................. British Honduras....... 2
23
280
122
457
2
18
273
102
347
2
21
270
112
404
2
23
14
23
299
Manufacturing............... Do.......................... 5
7
20
110
2
10
10
53
Pinillos Line.................. Cuba............................. 266
99
Southern Pacific............ 158
Spain............................
Cuba.............................
Steele.............................. British Honduras.......
Tramp............................. British West Indies...
CanalZone...................
10
2
82
2 10
2
io
2
Colombia......................
Cuba............................. 304
8
157
273
5
94
31
3
63
18
2
36
286
6
121
93
8
90
211
Ecuador.......................
France.......................... 79
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 491
States, fiscal year ended June 30, 1920—'Continued.
Citizens. Total.
Number.
Sex. Age. Class.
Number.
Sex. Age. Class.
Male. Fe.
male.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
4 2 2 4 4 43
4
172
19
159
39
4
20
1
4
12
2
67
222
8
91
147
318
2
22
119
13
102
27
4
14
212
53
6
57
12
4
2
4
116
18
137
36
4
20
12
10
2
552
22
861
95
273
43
4
18
9
121
34
4
17
14
11
26722285
1
55
7
87
30
4
20
14
10
23
62
33
5
52
20
4
14
22
2
35
10
55
1
14
1
67
80
26
4
17
14923
62
49 56
1
22
3
154
10
38
5
6
73
29
4
20
12
8
22
42
74
613
41131
3 61
3
512
31
3
1612
31
22
1714412
2661
79
230
22
1 1
12
1
2
22
4
22
2
221
224
23
2 3 3 41 122 55
102
23
86
32
16
49
16
6
86
9
102
46 68
88
52
45
25
318
452 295 157 155 297 339 113 1,104 736 368 208 896 727 377
1,468
66
1,042
63
426
3
195
30
1,273
36
974
66
494 4,356
70
3,212
66
1,144
4
403
30
3,953
40
1,888
70
2,468
1,534 1,105 429 225 1,309 1,040 494 4,426 3,278 1,148 433 3,993 1,958 2,468
13
11
1
861
55
7
3
68
1
13
11
1
36
20
2141
422
21
> 4
4
27
9
15
10
1141112
13
23
20
7
21
10
1
13
3
23
17
21
41222
19
4
3
26
9
36
20
21
41
422
21
44
27
9
4 4 4 4
22
21
2 2
2
31
2
1 2
924
10
3
713
8
3
2112
1 8
2
3
10
3
9
24
• 10
3
821
72
2
1 1
1
61 42 19 14 47 61 137 81 56 22 115 137
51
196
34
404
22
10
50
5
602
6
16
2
5
108
2
22
36
147
29
305
22
9
29
4
418
3
613
72
2
17
15
49
5
99
7
24
5
37
44
172
29
367
2
2
10
33
1
538
5
13
25
103
2
18
51
196
34
404
2
2
10
44
3
573
6
16
25
107
2
14
111
326
47
630
24
33
330
127
1,0596
26
45
412
10
179
69
249
39
464
24
27
302
106
765
3
14
33
345
7
111
42
77
8
166
16
37
7
69
95
289
40
561
24
31
303
113
942
5
23
4
5
389
8
139
111
326
47
630
24
33
58
26
872
6
26
45
200
10
104
1
21
1
184
3
10
12
36
6
28
21
294
3
12
12
67
3
68
2
27
14
n,
3
17
4
64
13 62
29
272
101
187
5 1 23
2
40
212
5 4 8 75
492 REPORTS OF DEPARTMENT OF LABOR.
Tabl e XXIII.—Passengers departed from the United'
Line of vessels, etc. Ports of departure and
destinations.
Aliens.
Number.
Sex. Age. Class.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
From New Orleans, La.,
to—
Tramp............................. French West Indies... 3 2 1 1 2 .3
Ireland......................... 4 3 1 4 4
Japan............................
Mexico.......................... 2 2 2 2
Santo Domingo........... 1 1 1 1
Spain............................ 180 136 44 45 135 24 156
Vaccaro...........................
Venezuela...................
Honduras..................... 370 247 123 86 284 370
United Fruit.................. British Honduras....... 166 114 52 16 150 166
British West Indies... 23 13 10 4 19 23
Canal Zone................... 464 358 106 32 432 464
Costa Rica................... 7 6 1 7 7
Cuba.,............................
Guateinala...................
330 233 97 51 279 330
546 388 158 61 485 546
Honduras..................... 48 37 11 3 45 48
United States Army
Transport.
Panama........................
CanalZone...................
16
1
11
1
5 4
490
12
1
16
1
TotalNew Orleans.. 3,955 2,980 975 3,465 2,998 957
From Newport News, Va.,
Pacific Steam Navigation.
American..................
to—
London........................ 2 1 1 ........... 2 2 ...........
From New York t o—
„ Cherbourg.................... 840 699 141 18 822 206 634
Constantinople............ 49 49 49 43 6
Hamburg..................... 5,323 4,696 627 82 5,241 119 5,204
Miscellaneous............... 1,313 1,251 62 7 1,306 15 1,298
Plymouth.................... 14 13 1 14 13 1
Anchor............................
Southampton.............. 294 219 75 22 272 124 170
Genoa........................... 15 14 1
167
15
1,206
15
Glasgow........................ 1,902 789 1 113 1,735 696
Londonderry............... 1,280
842
484 796 41 1,239 250 1,030
Naples.......................... 842 1 841 22 820
Atlantic Fruit................
Palermo........................
British West Indies...
5
10
59
1 2
5
8 16
5
Black Star...................... Panama........................ 9 3 6 1 8 9 Booth............................ Brazil............................ 61 37 24 2 59 43 18
British West Indies... 223 129 94 22 201 117 105
Clyde...............................
Chile.............................. 1 1 1 1
British West Indies... 31 12 19 4 27 31
Cunard............................
Santo Domingo........... 638 412 226 70 568 638
Australia................... A 4 1 3 2 2 4
Cherbourg.................... 9,261 8,387 874 218 9,043 1,165 8,096
Genoa........................... 74 •70 4 74 52 22
Hamburg..................... 2,488 2,077 411 66 2,422 419 2,069
Havre........................... 6,845 6,328 517 112 6,733 1,337 5,508
Liverpool..................... 10,625 6,323 4,302 767 9,858 5,258 5,367
London......................... 466 305 161 34 432 266 200
Marseilles..................... 83 79 4 3 80 20 63
Naples.......................... 84 77 1 83 84
Patras........................... 585 559 26 14 571 128 457
Piraeus......................... 4,446 4,240 206 46 4,400 363 4,083
Plymouth.................... 2,539 1,704 835 158 2,381 2,314 225
Rotterdam................... 50 26 24 9 41 50
Southampton.............. 4,009 2,875 1 134 209 3,800 2,722 1,287
Fabre...............................
Trieste..........................
Miscellaneous..............
2,278
474
1,962
439
316
35
68
13
2,210
461
103 2,175
474
Azores........................... 373 297 76 10 363 187 186
Constantinople............ 826 819 Y 2 824 16 810
Lisbon.......................... 510 445 65 23 487 118 392
Madeira......................... 191 155 36 10 181 18 173
Marseilles..................... 1,752 1,515 237 59 1,693 243 1,509
Miscellaneous............... 258 220 38 1 257 258
Naples.......................... 8,416 7,223 1 193 285 8,131 448 7,968
Palermo........................ 3,110 2,591 519 156 2,954 332 2,778
Piraeus......................... 5,146 4,769 377 98 5,048 749 4,397
Spain............................ 91 81 10 91 8 83
Trieste.......................... 332 262 70 7 325 40 292
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 493
States, fiscal year ended June 30, 1920—Continued.
Citizens. Total.
Number.
Sex. Age. Class.
Number.
Sex. Age. Class.
Male. Fe.
male.
Under
16
years.
16
years
and
over.
Cabin Steerage.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin Steerage.
1 1 1 4 3 1 1 3 4
4 3 1 4 4
1 1 1 1 1 1 1
2 2 2 2
1 1 1 1
8 5 3 3 5 7 1 188 141 47 48 140 31 157
2 2 4 4 4 2 2 4 4
270 269 101 50 320 370 740 516 224 136 604 740
107 70 37 16 91 107 273 184 89 32 241 273
21 17 4 21 21 44 30 14 4 40 44
1 225 211 129 2 007 2 196 2,660 1,743 917 221 2,439 2,660
' 14 } 9 5 1 13 14 21 15 6 1 20 21
227 520 217 88 749 837 1,167 753 414 139 1,028 1,167
426 207 129 49 377 426 '972 685 287 110 862 972
127 140 47 14 173 187 235 177 58 17 218 235
172 112 54 15 157 172 188 129 59 19 169 188
88 27 61 18 70 88 ........... 89 28 61 18 71 89 ...........
5,949 3,946 2,003 614 5,335 5,902 47 9,904 6,926 2,978 1,104 8,800 8,900 1,004
2 1 1 . . — 2 —___2
257 166 91 77 180 152 105 1,097 865 232 95 1,002 358 739
27 17 10 27 27 76 66 10 76 70 6
579 350 229 281 298 71 508 5,902 5,046 856 363 5,539 190 5,712
64 40 24 43 21 2 62 1,377 1,291 86 50 1,327 17 1,360
16 13 3 2 14 9 7 30 26 4 2 28 22 8
121 70 51 27 94 90 31 415 289 126 49 366 214 201
3 2 1 2 1 3 18 16 2 2 16 18
1,333 688 645 496 837 811 522 3,235 1,477 1,758 663 2,572 2,017 1,218
ljOlO 606 404 356 654 212 798 2,290 1,090 1,200 397 1,893 462 1,828
32 26 6 7 25 5 27 874 868 6 8 866 27 847
5 5 5 5
10 9 1 2 8 10
9 3 6 1 8 9
103 72 31 14 89 96 7 164 109 55 16 148 139 25
148 91 57 63 85 92 56 371 220 151 85 286 209 162
2 1 1 2 2 3 2 1 3 3
22 7 4 18 22 53 27 26 8 45 53
757 494 263 83 674 7421 15 1,395 906 489 153 1,242 1,380 15
3 1 2i 1 2 3 7 2 5 3 4 7
2,421 1,590 831 529 1,892 1,832 589 11,682 9,977 1,705 747 10,935 2,997 8,685
13 11 2 9 4 4 9 87 81 6 9 78 56 31
298 165 133 127 171 219 79 2,786 2,242 544 193 2,593 638 2,148
762 459 303 223 539 643 119 7,607 6,787 820 335 7,272 1,980 5,627
5,500 3,305 2,195 1,540 3,960 3,267 2,233 16,125 9,628 6,497 2,307 13,818 8,525 7,600
319 '189 130 60 259 219 100 785 494 291 94 691 485 300
83 79 4 3 80 20 63
9 *7 2i 8 1 9 93 84 9 9 84 93
92 73 19 28 64 68 24 677 632 45 42 635 196 481
234 158 76 119 115 112 122 4,680 4,398 282 165 4,515 475 4,205
1,631 1,058 573 229 1,402 1,566 65 4,170 2,762 1,408 387 3,783 3,880 290
50 26 24 9 41 50
3,038 2,128 910 324 2,714 2,443 595 7,047 5,003 2,044 533 6,514 5,165 1,882
224 136 88 157 67 50 174 2,502 2,098 404 225 2,277 153 2,349
14 8 6 7 7 14 488 41 20 / 468 488
179 110 69 108 71 129 50 552 407 145 118 434 316 236
13 6 7 8 5 4 9 839 825 14 10 829 20 819
141 92 49 47 94 109 32 651 537 114 70 581 227 424
35 23 12 25 10 11 24 226 178 48 35 191 29 197
492 265 227 149 343 360 132 2,244 1,780 464 208 2,036 603 1,641
89 49 40 44 45 42 47 347 269 78 45 302 300 47
1,723 955 768 1,201 522 522 1,201 10,139 8,178 1,961 1,486 8,653 970 9,169
829 489 340 569 260 226 603 3,939 3,080 859 725 3,214 558 3,381
1,051 780 271 401 650 341 710 6,197 5,549 648 499 5,698 1,090 5,107
29 19 10 7 22 25 4 120 100 20 7 113 33 87
49 25 24 47 2 8 41| 381 287 94 54 327 48 333
494 REPORTS OF DEPARTMENT OF LABOR.
Line of vessels, etc.
French............................
Holland American.........
Italians Transatlantica.
Lamport & Holt...........
La Veloce.......................
Lloyd Braziliero............
Lloyd Sabando..............
Munson...........................
National Steam Navigation.
Navigazione Generale
Italiana.
New York & Cuba Mail.
New York & Porto Rico.
N orwegian American....
Panama..........................
Tabl e XXIII.—Passengers departed from, the United
Ports of departure and
destinations.
Aliens.
Number.
Sex. Age. Class.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
From New York to—
Bordeaux..................... 7,357 6 539 818 225 7 132 1 078 6 27Q
British West Indies... 5 4 1 ’ 5 ’ 2 3
Genoa........................... 6 6 6 6
Havre........................... 42,857 35,915 6,942 1 722 41 135 10 112 32 745
Miscellaneous.............. 1,373 1,249 124 25 1 348 62 1 3] 1
Naples.......................... 5 5 ’ 5 5
San Domingo............... 11 8 3 11 11
Southampton.............. 3 2 1 3 1 2
Boulogne*..................... 7,683 5,837 1,846 376 7,307 2,556 5,127
Falmouth..................... 77 5C 27 4 73 77
Marseilles..................... 26 22 4 2 24 26
Plymouth..................... 611 389 222 49 562 611
Rotterdam................... 9, 866 7 570 2 296 563 9 303 3 685 6 181
Constantinople............ 94 ' *88 6 94 ’ 24 ' 70
Genoa........................... 3,225 2 463 762 94 3 131 1 065 2 160
Messina........................
Miscell ane ous............... 1^209 1^044 165 33 1 176 29 1 180
Naples.......................... 13,904 12,542 1,362 327 13,’577 1,337 12^ 567
Palermo........................ 132 101 31 5 127 132
Patras........................... 147 144 3 147 30 117
Piraeus.........................
Trieste.......................... 471 388 83 9 462 471
Argentina..................... 523 358 165 66 457 391 132
Brazil............................ 535 371 164 54 481 368 167
Peru............................. 4 1 4 1
Uruguay....................... 73 49 24 3 70 45 28
Genoa........................... 304 254 50 2 302 16 288
Naples.......................... 1,122 911 211 47 1,075 58 1,064
Trieste.......................... 72 66 6 72 72
Brazil............................ 375 250 125 62 313 275 100
British West Indies... 49 25 24 4 45 14 35
Chili.............................. 5 5 5 5
Constantinople............ 42 42 42 42
Genoa........................... 1,547 1 321 226 50 1 497 285 1 262
Miscellaneous.............. 4,745 4,361 384 38 4^707 206 4’ 539
Naples.......................... 9,721 8'659 1,062 306 9,415 657 9^ 064
Argentina..................... 50 33 17 7 43 45 5
Brazil............................ 53 38 15 2 51 44 9
Cuba............................. 536 326 210 85 451 528 8
Uruguay....................... 1,739 1,670 69 11 1 728 265 1 474
Piraeus......................... 4,341 3,934 407 66 4 275 1 319 3 022
Constantinople............ 367 352 15 367 ■9 358
Genoa........................... 4,218 3,300 918 209 4,009 785 3 433
Glasgow........................ 13 '” 8 5 13 13
Messina........................ 46 36 10 1 45 46
Miscellaneous.............. 1,324 1,032 292 54 1,270 22 1 302
Naples.......................... 18,949 16,609 2,340 872 18,077 1,365 17’584
Palermo........................ 264 196 68 11 253 71i 193
Piraeus......................... 298 279 19 7 291 32 266
Trieste.......................... 2,425 2,196 229 41 2,384 2 425
British West Indies... '170 76 94 23 147 170
Cuba............................. 5,259 4,165 1,094 336 4,923 3,083 2 176
Mexico.......................... 1,500 940 560 206 1,294 1,302 198
Spain............................ 50 45 5 1 49 6 44
British West Indies...
Haiti.............................
Panama........................
Bergen.......................... 2,309 1,348 961 101 2 208 497 1 812
Christiania................... 2,896 1,641 1,255 143 2,753 1 006 1 ’ 890
Ch ris t iansand.............. 242 127 115 23 219 78 164
Copenhagen................. 128 82 46 4 124 76 52
Gothenberg.................. 145 72 73 2 143 20 12?
Miscellaneous.............. 225 113 112 6 219 7 218
Stavenger..................... 283 194 89 12 271 42 241
Azores.......................... 1 1 ] 1
British West Indies... 1 1 1 1
Haiti............................. 231 161 70 29 202 231
Panama........................ 507 357 150 53 454 507
Plymouth.................... 10 7 3 1 9 io
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 495
States, fiscal year ended June 30, 1920—Continued.
Citizens. Total.
Sex Age. Class. Sex. Age. Class.
Number.
Male. Fe.
male.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
Number.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
1,117 661 456 321 796 713 404 8,474 7,200 1,274 546 7,928 1,791 6,683
5 4 1 5 2 3
6 6 6 6
16,773 10,131 6,642 3,266 13,507 13,121 3,652 59,630 46,046 13,584 4,988 54,642 23,233 36,397
103 64 39 83 20 13 90 1,476 1,313 163 108 1,368 75 1,401
5 5 5 5
11 8 3 11 ii
3 2 1 3 1 2
3,622 2,108 1,514 980 2,642 2,691 931 11,305 7,945 3,360 1,356 9,949 5,247 6,058
46 35 11 4 42 46 123 85 38 8 115 123
7 5 2 4 3 7 33 27 6 6 27 33
796
3,043
526
1,919
270
1,124
67 729 796 1,407 915 492 116 1,291
11,472
1,407
874 2,169 2,378 665 12i 909 9,489 3,420 1,437 6,063 6,846
35 22 13 35 34 1 129 110 19 129 58 71
1,021 597 424 536 485 472 549 4,246 3,060 1,186 630 3,616 1,537 2,709
6 6 6 6 6 6 6 6
76 36 40 69 7 8 68 1,285 1,080 205 102 1,183 37 1,248
2,410 1,601 806 1,278 1,132 748 1,662 16,314 14,146 2,168 1,605 14,709 2,085 14,229
75 45 30 44 31 75 207 146 61 49 158 207
147 144 3 147 30 117
9 8 1 3 6 8 1 9 8 1 3 6 8 1
98 52 46 83 15 98 569 440 129 92 477 569
811 534 277 108 703 750 61 1,334 892 442 174 1,160 1,141 193
879 584 295 121 758 801 78 1,414 955 459 175 1,239 1,169 245
6 4 2 1 5 5 1 11 8 3 1 10 9 2
77 41 36 14 63 72 5 150 90 60 17 133 117 33
46 29 17 40 6 8 38 350 283 67 42 308 24 326
324 191 133 287 37 31 293 1,446 1,102 344 334 1,112 89 1,357
72 66 6 72 72
181 121 60 30 151 169 12 556 371 185 92 464 444 112
37 18 19 22 15 13 24 86 43 43 26 60 27 59
11 6 5 3 8 11 16 11 5 3 13 16
42 42 42 42
305 175 130 188 117 156 149 1,852 1,496 356 238 1,614 441 1,411
157 97 60 134 23 28 129 4,902 4,458 444 172 4,730 234 4,668
1,337 812 525 1,049 288 220 1,117 11,058 9,471
71
1,587 1,355 9,703 877 10,181
' 63 38 25 8 55 59 4 113 42 15 98 104 9
90 61 29 10 80 90 143 99 44 12 131 134 9
620 378 242 80 540 600 20 1,156 704 452 165 991 1,128 28
9 5 4 3 6 8 1 1,748 1,675 73 14 1,734 273 1,475
711 497 214 436 275 452 259 5,052 4,431 621 502 4,550 1,771 3,281
24 14 10 8 16 20 4 391 366 25 8 383 29 362
1,212 703 509 710 502 554 658 5,430 4,003 1,427 919 4,511 1,339 4,091
13 8 5 13 13
12 8 4 9 3 12 58 44 14 10 48 58
182 108 74 166 16 30 152 1,506 1,140 366 220 1,286 52 1,454
3,836 2,334 1,502 2,787 1,049 919 2,917 22,785 18,943 3,842 3,659 19,126 2,284 20,501
144 86 58 90 54 66 78 408 282 126 101 307 137 271
38 26 12 21 17 15 23 336 305 31 28 308 47 289
162
135
3,446
97 65 132
16
30 162 2,587
305
2,293
143
294 173 2,414
266
2,587
67 68 119
3,268
135 162 39 305
2,184 1,262 178 3,334 112 8,705 6,349 2,356 514 8,191 6,417 2,288
494 323 171 46 448 489 5 1,994 1,263 731 252 1,742 1,791 203
10 6 4 6 4 4 6 60 51 9 7 53 10 50
7 5 5 7 7 5 2 2 5 7
8 1 7 2 6 8 8 1 7 2 -'•6 8
59 35 6 53 59 59 24 35 6 53 59
1,932 1,135 797 592 1,340 475 1,457 4,241 2,483 1,758 693 3,548 972 3,269
2,187 1,228 959 725 1,462 733 1,454 5,083 2,869 2,214 868 4,215 1,739 3,344
138 69 69 58 80 23 115 380 196 184 81 299 101 279
100 57 43 30 70 80 20 228 139 89 34 194 156 72
194 105 89 60 134 26 168 339 177 162 62 287 46 293
210 107 103 83 127 10 200 435 220 215 89 346 17 418
375 216 159 100 275 41 339 658 410 248 112 546 83 575
1 1 1 1
4 2 2 4 4 5 3 2 5 4 1
359 236 123
2,057
38
763
321
3,718
359
4,481
590 397 193 67 523 590
4,481 2,424 4,988 2, 781 2,207 816 4,172 4,988
10 7 3 1 9 10
496 REPORTS OF DEPARTMENT OF LABOR.
Tabl e XXIII.—Passengers departed from the United
*----------------------------------- .------------------- -------------- ------ ~__________________________■________ ___________ -______________
Line of vessels, etc. Ports of departure and
destinations.
Aliens.
Number.
Sex. Age. Class.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin Steerage.
Quebec............................
From New York to—
Bermuda.............. 1,311
39
678
90
39
17
17
45
2
342
173
1
545
1,216
20
154
250
293
663
24
333
48
14
9
12
29
648
15
345
42
25
8
5
16
. 2
157
40
104
1
33
5
1,207
38
645
85
39
9
17
39
2
319
168
1
495
1,153
19
153
244
291
1,311
26
349
8
39
17
15
42
1
342
173
Red Cross........... ............
British Guiana............ 13
329
82
British West Indies...
Christiania...................
Copenhagen.................
Dutch Guiana............. 8
French Guiana............ 231
French West Indies...
Santo Domingo...........
6
Canada......................... 185
133
1
390
945
11
132
186
244
23
Red D............................. Dutch West Indies.... 5
Queenstown.................
Red Star.........................
Venezuela..................... 155 1
271
9
22
64
49
50
63
1162
Antwerp..................... 545 1,216
20
154
250
Royal Dutch West In- 293
dian Mail.
Royal Mail Steam
Packet.
Scandinavian American
Spanish...........................
Cherbourg....................
Hamburg.....................
Southampton..............
Miscellaneous..............
British West Indies...
Brazil............................ 7
4
17
197
15
7
21
22
6
3
11
142
. 9
321
13
116
55
6
4
7
4
17
182
14
7
21 20
7
4
17
197
15
7
21
18
Dutch Guiana.............
Dutch West Indies....
Haiti............................. 15
Chile............................. 1
Dutch West Indies....
Haiti.............'...............
Panama........................
Peru.............................. 9 2 4 Bergen..........................
Christiania................... 1,810
226
5,248
36
449
988
3
1,195
112
3,743
25
283
776
2
615
114
1,5 5
11
166
212
1
70
16
249
1,740
210
4,999
36
440
963
3
424
54
1,646
36
18
27
2
1,386
172
3,602
Christiansand..............
Copenhagen.................
Cuba.............................
Gothenberg.................. 9
25
431
961
1
Miscellaneous...............
Stavanger.....................
Xiansiard.....................
Xionia..........................
Cuba............................. 370
125
1,500
5,554
518
84
15
871
561
275
346
8
11
791
1,522
306
8,407
9
1,603
13
216
243
9, 857
525
407
893
6,958
3,663
83
22
1
191
15
160
266
77
1,299
2,897
269
48
8
425
407
158
232
5
7
559
1,297
205
7,501
7
1,344
9
188
236
5,428
385
54
783
6,094
2,403
74
15
1
107
13
77
104
48
201
2,657
249
36
7
446
154
117
114
3
4
232
225
101
906
2
259
4
28
7
4,429
140
353
110
864
1,26097
37
17
63
210
49
8
4
82
56
32
33
1
333
108
1,437
5,344.
469
76
11
789
505
243
313
7
11
737
1,466
292
8,176
8
1,566
10
214
239
9,181
501
406
880
6,712
3,424
80
22
1
173
15
132
2.54
89
335
1,253
518
84
15
871
561
275
346
8
11
791
523
43
1,135
116
36
1,165
Swedish American........ 4,301
Mexico..........................
Spain............................
Gothenberg ...........
Trinidad......................... British West Indies...
British Guiana............
United Fruit..................
Dutch Guiana.............
British West Indies...
Colombia.....................
White Star.....................
Costa Rica...................
Cuba.............................
French West Indies...
Guatemala...................
Panama........................ 54
56
14
231
1
37
3
2
4
676
24
1
13
246
239
3
Antwerp........... 999
263
7,272
9
1,155
Miscellaneous.................
Azores.".......................
Cherbourg....................
Copenhagen.................
Genoa........................ 448
Gibraltar...................... 13
Hamburg..................... 216
243
4,949
100
407
893
6,351
1,584
83
Havre..........................
Liverpool..................... 4,908
Plymouth.................... 425
Queenstown.................
Miscellaneous...............
Naples........................ 607
Southampton.............. 2,079
Trieste.'?.....................
Argentina..................... 22
1
191
15
138
Australia......................
Bermuda...................... 84
2
83
Brazil............................ 18
British West Indies...
Callao............................ 28 22
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 497
States, fiscal year ended June 30, 1920—Continued.
Citizens. Total.
Number.
Sex. Age. Class.
Number.
Sex. Age. Class.
Male. Fe.
male.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
Malo. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
4 122 1,886 2,236 170 3,952 4,122 5,433 2,549 2,884 274 5,159 5,433
55 37 18 2 53 51 4 94 61 33 3 91 77 17
422 223 19£ 16C 262 294 128 l,10C 556 544 193 907 643 457
9C 48 42 5 85 8 82
39 14 25 39 39
16 9 7 16 16 33 18 15 8 25 33
5 3 2 5 5 22 15 7 22 20 2
8 6 2 8 7 1 53 35 18 6 47 49 4
2 2 2 1 1
281 148 133 47 234 281 623 333 290 70 553 623
79 64 15 6 73 79 252 197 55 11 241 252
1 1 1 1
280 203 77 30 250 280 825 593 232 80 745 825
339 193 146 132 207 339 1,555 1,138 417 195 1,360 1,555
7 4 3 3 4 7 27 15 12 4 23 27
17 13 4 13 4 17 171 145 26 14 157 171
133 76 57 35 98 133 383 262 121 41 342 383
53 29 24 37 16 53 346 273 73 39 307 346
1 1 1 1 1 1 1 1
5 4 1 5 5 12 10 2 12 12
3 2 1 3 3 7 5 2 7 7
14 9 5 1 13 14 31 20 11 1 30 31
171 117 54 15 156 171 368 259 109 30 338 368
19 9 10 4 15 19 34 18 16 5 29 34
7 3 4 7 7
2 2 2 2
12 7 5 12 12 13 8 5 13 13
18 11 7 1 17 18 40 24 16 3 37 36 4
3 2 1 3 3 3 2 1 3 3
1.094 663 431 370 724 308 786 2,904 1,858 1,046 440 2,464 732 2,172
134 71 63 67 67 25 109 36C 183 177 83 277 79 281
2,671 1,664 1,007 89C 1,781 1,148 1,523 7,919 5,407 2,512 1,139 6,78C 2,794 5,125
f 36 25 11 36 36
318 190 128 104 214 30 288 767 473 294 113 654 48 719
340 228 112 133 207 12 328 1,328 1,004 324 158 1,17C 39 1,289
5 1 4 3 2 5 8 3 5 3 5 2 6
60 29 31 35 25 13 47 60 29 31 35 25 13 47
101 55 46 30 71 38 63 101 55 46 30 71 38 63
57 32 25 10 47 44 13 427 298 12S 47 38C 298 129
5 1 4 2 3 5 130 78 52 19 111 94 36
227 130 97 119 108 99 128 1,727 1,429 298 182 1,545 434 1,293
3,492 1,913 1,579 984 2,508 1,071 2,421 9,046 4,810 4,236 1,194 7,852 2,324 6,722
238 164 74 48 190 238 756 433 323 97 659 756
115 89 26 9 106 115 199 137 62 17 182 199
14 11 3 4 10 14 29 19 10 8 21 29
864 473 391 94 770 864 1,735 898 837 176 1,559 1,735
377 285 92 16 361 377 938 692 246 72 '866 '938
124 83 41 8 116 124 399 241 158 40 359 399
652 437 215 34 618 652 998 669 329 67 931 998
8 5 3 1 7 8
5 1 4 2 3 5 16 8 8 2 14 16
1,091 660 431 83 1,008 1,091 1,882 1,219 663 137 1,745 1,882
412 274 138 134 '278 206 206 1,934 l',571 363 190 1J44 729 1,205
283 184 99 110 173 118 165 589 389 200 124 465 161 428
1,719 1,094 625 670 1,049 773 946 10,126 8,595 1,531 901 9,225 1,908 8,218
10 8 2 1 9 10 19 15 4 2 17 19
410 233 177 234 176 156 254 2,013' 1,577 436 271 1,742 604 1,409
11 6 5 2 9 11 24 15 9 5 19 24
15 7 8 14 1 15 231 195 36 16 215 231
3 3 3 3 246 236 10 7 239 246
6,094 3,619 2,475 1,498 4,596 3,338 2,756 15,951 9,047 6,904 2,174 13,777 8,246 7,705
341 241 100 36 305 253 88 866 626 240 60 806 678 188
357 158 199 79 278 357 764 212 552 80 684 764
202 120 82 78 124 202 1,095 903 192 91 1,004 1,095
1,705 1,067 638 918 787 525 1,180 8,663 7,161 1,502 1,164 7,499 1,132 7^531
2,944 1,855 1,089 573 2,371 1,921 1,023 6,607 4,258 2,349 812 5,795 4,000 2,607
8 1 7 8 8 91 75 16 11 80 91
22 15 7 22 22
1 1 1 1
614 303 311 33 581 614 805 410 395 51 754 805
20 15 5 1 19 20 35 28 7 1 34 35
30 18 12 8 22 29 1 190 95 95 36 154 167 23 22 19 3 2 20 22 ........... 22 19 3 2 20 22 ....... •
15283—lab 1920---- 32
498 REPORTS OF DEPARTMENT OF LABOR,
Tabl e XXIII.—Passengers departed from the United
Line of vessels, etc. Ports of departure and
destinations.
Aliens.
Number.
Sex. Age. Class.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
Miscellaneous................
From New York to—
Canada...................
Norfolk Havana Line...
United Fruit..................
Chile .......................... 503
8
490
1
2
73
2,851
378
671
27
8,340
216
75
36
5,691
18
302
7
479
1
201
1
11
72 431
8
487
12
69
2,811
378
641
24
8,271
186
74
29
5,577
16
503
8
32
12
Colombia ................
Constantinople............ 3 458
Genoa ........................
Gibraltar ................. 2
9
280
8
64
3
310
87
12
17
599
5
Marseilles ................... 64
2,571
370
607
24
8,030
129
63
19
5,092
13
4
40
73
2,642
365
661
Miscellaneous............... 209
13
10
27
1,574
216
Naples..........................
Palermo....................... 30
3
69
30
1
7
114
2
Panama ____________
Patras........................... 6,766
Peru ............................
Piraeus......................... 75
Spain ........................ 36
366
18
Trieste................ 5,325
Uruguay.......................
Total New York....
From Norfolk, Va., to—
Cuba.............................
314,693 254,208 60,485 12,494 302,199 78,310 236,383
9
44
7
25
2
19
9
36
9
British West Indies... 44
Total Norfolk...........
8
American........................
53 32 21 8 45 53
From Philadelphia, Pa.,
to—
Liverpool..................... 2,165
421
1,664
4
292
266
2,142
176
66
665
1,037
378
1,462
3
262
224
1,909
151
58
393
1,128
43
202
1
30
42
233
25
8
272
122
6
36
2,043
415
1,6284
288
258
2,073
173
66
641
608
21
81
1,557
400
1,583
4
292
229
2,049
176
La Veloce....................... Genoa...........................
Navigazione Generale
Italiana.
Royal Packet Navigation.
Scandinavian American
Anchor-Donaldson ....
Naples..........................
Palermo ...................
Trieste.......................... 4
8
69
3
Genoa........................... 37
Naples.......................... 93
Trieste..........................
Marseilles__________ 66
Copenhagen................... 24 235 430
Total Philadelphia..
From Portland, Me., to—
Glasgow................
7,861 5,877 1,984 272 7,589 1,141 6,720
973
2
1,003
516
1
646
457
1
357
217 756
2
855
560
2
426
413
Canard............................ Sydney.........................
White Star Dominion..
Bull Insular...................
Liverpool..................... 148 577
Total Portland......... 1,978
756
4
12
290
14
11
51
581
122
216
108
38
85
109
333
1
1,163
536
2
8
195
6
53
1
416
94
147
82
24
60
85
228
1
815
220
24
95
8
6
2
365
89
1,613
667
4
12
249
12
11
5
1
514
109
175
99
32
79
104
301
1
988
717
3
11
247
9951
392
103
124
81
38
51
77
291
990
39
11
43
52
From Porto Rico to—
Santo Domingo...........
Compagnie Generale
Transatlantique de
Barcelona.
Antillas...........................
Canal Zone..................
Colombia.....................
Cuba............................. 41
France.......................... 2
Haiti;...........................
Panama........................
Santo Domingo...........
Spain............................ 165
28
69
26
14
25
24
105
67
13
41
96
6
5
32
189
19
92
27
Santo Domingo...........
Empress Naveria de
Cuba.
Pinillos............................
Cuba.............................
Santo Domingo...........
Cuba.............................
Red D.............................
Spain............................ 34
32
42
1
Dutch West Indies....
Venezuela....................
Sailing vessels................ Barbadoes....................
Cuba.............................
Santo Domingo........... 19 15 4 7 12 17 2
Total Porto Rico.... 2,705 1,908 797 318 2,387 2,176 529
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 499
States, fiscal year ended June 30, 1920—Continued
Citizens. Total.
------
Sex. Age. Class. Sex. Age. Class.
Num- 4 Number.
Male. Fe.
male.
Under
16
years.
years
and
over.
Cabin. Steerage.
ber.
Male. Female.
Under
16
years.
years
and
over.
Cabin. Steerage.
—— :—------- — —— — —
6 4 2 2 4 6 6 4 2
464
2 4 6
754 491 263 64 690 -754 1,257 793 136
1
1,121 1,257 .......
6 3 3 1 5 6 14 10 4 13 14
32 20 12 6 26 19 13 522 499 23 9 513 51 471
2 2 2 2 3 3 3 3
2 2 2 2 .......
73 64 9 4 69 73
425 268 157 151 274 296 129 3,276 2,839 437 191 3,085 505 2,771
12 9 3 7 5 8 4 390 379 11 7 383 21 369
90 52 38 7C 20 4 86 761 659 102 10C 661 14 747
14 8 6 1 13 14 41 32 9 4 37 41
61C 432 178 287 323 524 86 8,950 8,462 488 356 8,594 2,098 6,852
264 181 83 27 237 264 480 310 170 57 423 480
15 8 7 15 15 90 71 19 16 74
38
90
2 2
203
2 2
350
38 21 17 7 31
435 232 336 99 85 6,126 5,324 802 45C 5,676 451 5,675
45 28 17 7 38 45 .... 63 41 22 9 54 63
114,271 68,925 45,346 33,273 80,998 72,578 41,693 428,964 323,133 105,831 45,767 383,197 150,888 278,076
21 16 5 21 21 30 23 7 30 30
24 13 11 4 20 24 68 38 30 12 56 68 ...........
45 29 16 4 41 45 ........... 98 61 37 12 ' 86 98 ...........
1,477 723 754 504 973 646 831 3,642 1,760 1,882 626 3,016 1,254 2,388
40 21 19 34 6 4 36 461 399 62 40 421 25 436
371 228 143 275 96 53 318 2,035 1,690 345 311 1,724 134 1,901
4 3 1 3 1 4 8 6 2 3 5 8
11 3 8 11 11 303 265 38 15 288 303
55 19 36 40 15 18 37 321 243 78 48 273 55 266
386 219 167 315 71 50 336 2,528 2,128 400 384 2,144 143 2,385
6 2 4 6 6 182 153 29 9 173 182
14 5 9 8 6 14 80 63 17 8 72 80 ...........
466 264 202 189 277 148 318 1,131 657 474 213 918 383 748
2,830 1,487 1,343 1,385 1,445 933 1 897 10,691 7,364 3,327 1,657 9,034 2,074 8,617
134 70 64 58 76 101 33 1,107 586 521 275 832 661 446
3 1 2|
52
3 3 5 2 3 5 5
189 116 73 137 107 82 1,192 762 430 200 992 533 659
326 187 139 110 216 211 115 2,304 1,350 954 475 1,829 1,199 1,105
1,941 1,320 621 341 1,600 1,759 182 2,697 1,856 841 430 2,267 2,476 221
7 6 1 7 I 11 8 3 11 10 1
6 4 2 3 3 6 18 12 6 3 15 17 1
288 202 86 37 251 254 34 578 397 181 78 500 501 77
8 5 3 6 2 8 22 11 11 8 14 17 5
13 ( 6 8 5 13 24 12 12 8 16 22 2
13 9 4 2 11 13 18 12 6 2 16 18
2 1 1 2 2 3 2 1 3 3
249 134 115 147 102 227 22 830 550 280 214 616 619 211
226 164 62 35 191 149 77 348 258 90 48 300 252 96
1,037 675 362 198 839 486 551 1,253 822 431 239 1,014 610 643
369 238 131 83 286 219 150 477 320 157 92 ■ 385 300 177
31 20 11 4 27 31 69 44 25 10 59 69
87 40 47 54 33 80 7 172 100 72 60 112 131 41
86 63 23 2 84 70 16 195 148 47 7 188 147 48
198 136 62 21 177 175 23 531 364 167 53 478 466 65
1 1 1 1
605 603 2 5 600 605 605 603 2 5 600 605
501 342 159 79 422 172 329 520 357 163 86 434 189 331
5,667 3,969 1,698 1,025 4,642 3,671 1,996 8,372 5,877 2,495 1,343 7,029 5,847 2,525 ——---— —-------- —
500 REPORTS OF DEPARTMENT OF LABOR.
Table XXIII.—Passengers departed from the United
Line of vessels, etc. Ports of departure and
destinations. Number.
Sex.
Aliens.
Age. Class.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
Fabre............................ .
From Providence, R. I.,
to—
Angra, Azores.............. 541
340
1,461
200
1,193
121
191
67
360
210
998
131
826
91
181
61
181
130
463
69
367
30
10
6
67
14
88
10
99
3
474
326
1,373
190
1,094
118
191
65
81
74
32
8
66
4
8
460
266
1,429
192
1,127
117
183
Tramp............................. 67
Horta, Azores..............
PontaDelgada, Azores.
St. Michaels, Azores...
Lisbon..........................
Madeira........................
Marseilles__
Cape Verde Islands__
Total Providence....
From San Francisco,
Calif., tollongkong....................
2
China Mail .................
4,114 2,858 1,256 283 3,831 273 3,841
2,081
2
339
441
77
46
7
20
55
1,962
1
229
334
5
5
44
5
10
54
119
1
110
107
2222
10
1
29 2,0522
310
430
77
45
7
16
53
340
1
339
214
77
1,741
1
Nederland Royal Mail..
frillf Mail
Nagasaki....................
Shanghai .................. 29
Yokohama................... 11 227
Batavia..
Java........
Yokohama . 1 46
Mexico........................ 7
20
19
Java Pacific Batavia........................ 42
Mi seel Inn eons
Hongkong.................... 36
Argentine
Oceanic .........
Copenhagen.......... 3
2
1
'2
2 1 2232
Mexico
Panama
Singapore ... . 2
■ 15
1,921
14
26
2
82
13
10
15
4
11
25
1,190
6
10
2
60
10
6
11
11
2
14
1,814
11
22
2
72
13
9
15
3
11
2
15
1,805
14
19
Sweden................... 10
731
8
16
1
107
3
4
Australia. .. ............... 116
Pacific ........................... Guatemala................... 72
56
12
Pacific Mail
Honduras - -
Mexico... .... 22
3443
10 26
12
8
15
4
Nicaragua . ...
Salvador....................... 1
Calcutta ............
Toyo Kisen Kaisha
Chile... 1
Colombia 1
Costa Rico 1 1
Cuba....
Guatemala ................ 79
5
421
44
3
391
35
2
30
11 68
414
75
3
61
42
360
Honduras.....................
Hongkong.................... 7
India.... ”
Kobe...... 13
152
66
68
4
9
95
46
46
1
4
57
20
22
3
1
15
681
12
137
60
60
3
11
93
46
57
4
2
59
20
11
M exico..
Nicaragua.....................
Panama........................
Peru....
Saigon.
Salvador....................... 141
61
12
122
3
21
599
400
167
2
10
215
6,838
966
177
81
36
9
91
3
15
482
295
104
2
10
138
5,168
604
111
60
25
3
31
94
132
57
12
116
3
19
561
387
151
2
10
191
6,762
872
151
134
60
12
63
3
11
300
128
86
14
208
2,128
719
146
71
Shanghai......................
Singapore ....
Yokohama................... 6 59
Bolivia.... .........
Union..............................
Chile............................. 6
117
105
63
2
38
13
16
10
299
272
81
16
7
4,710
247
31
Hongkong....................
Kobe.... ?....................
Nagasaki......................
Panama........................
Peru.........
Shanghai...................... 77
1,670
362
66
24
76
94
26
Yokohama...................
Australia......................
Pacific Islands............
Total San Francisco. 15,658 11,740 3,918 561 15,097 7,233 8,425
REPORT OP COMMISSIONER GENERAL OF IMMIGRATION. 501
Slates, fiscal year ended June 30, 1920—Continued.
■-------------
Citizens. Total.
Sex. Age. Class. Sex. Age. Class.
Number.
Male. Fe.
male.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
Number.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
103 101 134 70 50 154 745 463 282 201 544 131 614
203
524
108
357
117 86 101 102 64 139 543 327 216 115 428 138, 405
1,938
296
1,465
136
323
83
233
10
201
25
124
11
393
54
222
18
131
54
135
3
15
4
19
2
509
104
338
19
1,985
308
1,550
142
1,321
214
1,059
101
664
94
491
41
481
64
321
21
1,504
244
1,229
121
47
12
85
6
26 15 11 4 22 24 23
217
70
196 21 45
213
65
32 185
3 3 3 70
1,446 887 559 929 517 178 1,268 5,560 3,745 1,815 1,212 4,348 451 5,109
------ ~ ----------- - ■ - - —
966 747 219 151 815 477 489 3,047
2
2,709
1
338
1
180 2,867
2
602
662
14
817
1
2,230
1
353
329
7
198
185
6
155
144
1
61
97
292
232
7
353
263
7
66
692
770
14
427
519
11
265
251
3
90
108 477
14
293
7 5 2 7
74
8
7
30 30
1
3
12
........... 1 29
18
13
1
30 76
8
74
6
2
2 8
8 51
8 28 13 15 4 24 28
2 11 68 66 2 2 66 21 47
11
11
1
1
1
1
1 1 1 1
4 2 2 1 3 4
2 215
215
...........
13
7
589
131
8
13
........... 13
13
........... 15
15
...........
2
363
108
8
5
226
23
1
63
10
1
6
526
121
7
7
555
129
2
34
26
22
2,510
145
34
7
1,553
114
18
15
957
31
16
2
170
13
5
20
2,340
132
29
3
22
2,360
143
21
150
2
13
1 3
37
1
24
84
1
28
8
1 3 3
13 91
29
7
8
2
119
22
84
18
35
4
19
1
100
21
55
19
64
3
6
72
2 6 5 1 16 10 6 1 15 13 3
13 59
4
72
3
87 60 27 13 74 87
3 1 1 8 4 4 1 7 7 1
1 1 1
46
1
3
6
51
11
507
2
3
37
6
248
1
3
14
5
259
8
........... 3
6
47
11
3 ........... 4
6
23
23
........... 6
4 50
9
12
130
16
81
9
49
7
15 115
16
125
12
54
47
88
460
12
25
407
20
33
100 928
20
639
12
289
8
54
8
874
12
468
20
460
20
33
68
35
138
2
18
46
21
80
2
46 27 19 9 37 44 2
22 94
59
31
67
35
1 220
101
141
67
79
34
24
10
196
91
160
81
60
20
58 16 122
21
38
121 17
2
206
61
184
126
31
116
80
3
24
1
182
51
178
41
28
2
1 1 8 5 42 1 68 14 170 176 8
318 155 163
6
94
46 272
17
136
318 379 191 188 50 329 378 1
2
39
19
155
19 31 22 < 2 25 31
175 81 20 297
3
172
3
125 45 252
3
218
3
79
19
652
318
168
23
384
876
187
87
12
348
163
88
11
203
1,629
103
62
7
304
155
80
12
181
1,247
84
25
6
50
163
72
13
602
155
96
2
9
612
191
115
2
10
40
127
53
40
1,251
718
335
4
27
830
458
192
3
13
421
260
143
1
8
88
176
88
32
1,163
542
247
4
20
912
319
201
3
20
339
399
134
1
1
63
2
321
2
384
1 13
599
11
341
2
258
1
87
12
512
6
592
77
2,027
22
10
849
165
77
1,173
158
75
1,703
29
12
9,714
1,153
264
6,797
707
173
2,917
446
91
2,103
116
36
7,611
1,037
228
3,301
877
221
6,413
276
43
8,703 5,128 j 3,575 3,010 5,693 5,933
—
2,770 24,361 16,868 7,493 3,571 20,790 13,166 11,195
502 REPORTS OF DEPARTMENT OF LABOR.
*
Table XXIII.—Passengers departed from the United
Line of vessels, etc. Ports of departure and
destinations.
Aliens.
Number.
Sex. Age. Class.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
Blue Funnel...................
From Seattle, Wash., to—
Hongkong.................... 11 11 11 11
Nippon Yushen Kaisha. ■ Do..”................... 81 61 20 7 74 74 7
Kobe............................. 1,016 826 190 9 1 007 209
3
807
Nagasaki...................... ' 10 7 3 3 10 7
Shanghai...................... 117 86 31 7 110
5
115 2
Victoria........................ 5 4 1 4 , 1
Yokohama................... 1,297 1 054 243 33 1 264 1,074 223
Ocean Steamship........... ’ 49 ’ 49 49 49
Osaka Shosen Kaisha...
Hongkong....................
2 1 1 2 1 1
860
3
Kobe............................. 889 685 204 9 880 29
Moji.............................. 3 2 1 3
Nagasaki...................... 3 3 3 3
Shanghai......................
Yokohama................... 618 499 119 3 356 262
Pacific............................. Hongkong.................... 22 22 22 1 21
Total Seattle............ 4,123 3,310 813 68 4,055 1,866 2,257
Soiling vessels................
From Tampa, Fla., to—
Grand Cayman........ 5 2 3 1 4 5
Honduras..................... 13 6 7 8 5 13
Total Tampa............ 18 8 10 9 9 18
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 503
States, fiscal year ended June 30, 1920—Continued.
Citizens. Total.
Number.
Sex. Age. Class.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
1 1 1
181
1
183 89 94 32 151 2
335 172 163 255 80 117 218
26 11 15 15 11 16 10
172 77 95 28 144 171 1
2 2
219 192
2 2
503 284 311 433 70
4 4 4 4
12 4 8 4 8 12
356 176 180 292 64 17 339
1 1 1 1
2 1 1 2 2
1 1
122 176
1 1 228 106 52 127 ioi
5 3 2 1 4 ........... 5
1,831 932 899 998 833 1,077 754
6 4 2 5 1 6
11 5 6 7 4 11
17 9 8 12 5 17 ...........
Number.
Sex. Age. Class.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
12 12 12 12
264 150
...........
114 39 225 255 9
1,351 998 353 264 1,087 326 1,025
36 18 18 15 21 19 17
289 163 126 35 254 286 3
7 6 1 7 6 1
1,800
53
14
1,338
53
462 225 1,575
53
1,507 293
53
5 9 4 10 13 1
1,245 861 384 301 944 46 1,199
4 3 1 1 3 4
51
4
1
1 2 31
1
5
846 605 241 179 667 483 363
27 25 2 1 26 1 26
5,954 4,242 1,712 1,066 4,888 2,943 3,011
11 6 5 6 5 11
24 11 13 15 9 24
35 17 18 21 14 35 ...........
504 REPORTS OF DEPARTMENT OF LABOR.
Table XXIII.—Passengers departed from the United
RECAPITULATION.
Ports of departure and means of transportation.
Aliens.
Number.
Sex. Age. Class.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
Alaska.......................... t................................................ 55 43 12 3 52 55
Baltimore, Md................................................................ 527
Boston, Mass...................................................................
547 484 63 21 526 20
1,087 439 648 70 1,017 1,087
Canada (Atlantic seaports)........................................... 5,049 3,741 1,308 317 4,732 1,489 3,560
Canada (border stations)............................................... 27,952 17,478 10,474 3,163 24,789 27,952
Canada (Pacific seaports).............................................. 3,401 2,942 459 112 3,289 1,521 1,880
Charleston, S. C.............................................................. 4, 1 3, 1 3 4
Galveston, Tex...............................................................
Gulfport, Miss.................................................................
90 51 39 15 75 89 1
6 4 2 3 3 6
Honolulu, Hawaii.......................................................... 5,133 3,349 1,784 78 5,055 548 4,585
Key West, Fla................................................................ 15,202 11,854 3,348 1,476 13,726 7,937 7,265
Mexico (border).............................................................. 10,756 7,588 3,168 1,611 9,145 10,756
Mexico (Pacific seaports)............................................... 652 441 211 53 599 388 264
Miami, Fla....................................................................... 2,892 2,173 719 208 2,684 918 1,974
Mobile, Ala..................................................................... 76 39 37 8 68 76
New Orleans, La............................................................ 3,955 2,980 975 490 3,465 2,998 957
Newport News, Va........................................................
New York, N. Y.............................................................
2 1
254,208
1
12,494
2 2
314,693 60,485 302,199 78,310 236,383
Norfolk, V'a..................................................................... 53 32 21 8 45 53
Philadelphia, Pa............................................................. 6,720
Portland, Me...................................................................
7,861 5,877 1,984 272 7,589 1,141
1,978 1,163 815 365 1,613 988 990
Porto Rico............................................. ......................... 2,705 1,908 797 318 2,387 2,176 529
Providence, R. I............................................................ 4,114 2,858 1,256 283 3,831 273 3,841
San Francisco, Calif....................................................... 15,658 11,740 3,918 561 15,097 7,233 8,425
Seattle, Wash................................................................. 4,123 3,310 813 68 4,055 1,866 2,257
Tampa, Fla..................................................................... 18 8 10 9 9 18 ...........
Total...................................................................... 428,062 334,712 93,350 22,007 406,055 147,904 280,158
Steamships................................... .................................. 386,386 307,417 78,969 17,009 369,377 108,205 278,181
Sailing vessels................................................................. 2,936 2,203 733 224 2,712 959 1,977 By land............................................................................ 38,740 25,092 13,648 4,774 33,966 38, 740 ...........
BY YEARS.
1910.................................................................................. 380,418 279,896 100,522 22,942 357,476 141,789 238,629
1911.................................................................................. 518,215 400,294 117,921 27,175 491,0401172,485 345,730
1912.................................................................................. 615,292 480,732 134,560 28,593 586,699 188,550 426,742
1913................................................................................... 611,924 477,769 134,155 30,368 581,556 230,496 381,428
1914.................................................................................. 633,805 483,265 150,540 31,915 601,890 205,903 427, 902
1915................................................ .................................. 384,174 301,785 82,389 21,263 362,911 117, 641 266,533
1916................................................................................... 240,807 180,975 59,832 15,141 225,666 94,780 146,027
1917................................................................................... 146,379 100,768 45,611 11,386 134,993 87,655 58,724
1918.................................................................................. 193,268 152,860 40,408 14,657 178,611 107,856 85,412
1919................................................................................... 216,231 172,093 44,138 13,396 202,835 109,014 107,217 1920................................................................................... 428,062 334,712 93,350 22,007 406,055 147,904 280,158
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 505
States, fiscal year ended June 30, 1920—Continued.
RECAPITULATION.
Citizens. Total.
Number.
Sex. Age. Class.
Number.
Sex. Age. Class.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
Male. Female.
Under
16
years.
16
years
and
over.
Cabin. Steerage.
41 29 12 2 39 41 96 72 24 5 91 96
27 15 12 21 6 5 22 574 499 75 42 532 25 549
739 363 376 237 502 709 30 1,826 802 1,024 307 1,519 1,796 30
462
25,022
3,2151
262
16,811
1,892
200
8,211
1,323
1
247
5,915
360
215
19,107
2,8551
246
25,022
2,975
216 5,511
52,974
6,6165
4,003
34,289
4,834
1
1,508
18,685
1,782
4
564
9,078
472
1
4,947
43,896
6,144
4
1,735
52,974
4,496
4
3,776
240
1
2,1201
587 448 139 50 537 569 18 677
6
499
4
178
2
65
3
612
3
658
6
19
3,478 1,796 1,682 2,429 1,049 869 2,609 8,611 5,145 3,466 2,507 6,104 1,417 7,194
15,920, 10,903 5,017 1,120 14,800 14,223 1,697 31,122 22,757 8,365 2,596 28,526 22,160 8,962
1,523
452
922 601 872 651 1,523 12,279
1,104
8,510
736
3,769 2,483 9,796
896
12,279
295 157 155 297 '339 113 368 208 727 377
1,534
61
1,105
42
429
19
225
14
1,309
47
1,040
61
494 4,426
137
3,278
81
1,148
56
433
22
3,993
115
1,958
137
2,468
5,949 3,946 2,003 614 5,335 5,902 47 9,904
2
6,9261
2,978
1
1,104 8,800
2
8,900
2
1,004
114,271
45
68,925
29
45,346
16
33,273
4
80,998
41
72,578
45
41,693 428,964
98
323,133
61
105,831
37
45,767
12
383,197
86
150,888
98
278,076
2,830 1,487 1,343 1,385 1,445 933 1,897 10,691 7,364 3,327 1,657 9,034 2,074 8,617
326 187 139 110 216 211 115 2,304 1,350 954 475 1,829 1,199 1,105
5,667 3,969 1,698 1,025 4,642 3,671 1,996 8,372 5,877 2,495 1,343 7,029 5,847 2,525
1,446 887 559 929 517 178 1,268 5,560 3,745 1,815 1,212 4,348 451 5,109
8,703 5,128 3,575 3,010 5,693 5,933 2,770 24,361 16,868 7,493 3,571 20,790 13,166 11,195
1,831
17
932
9
899
8
998
12
833
5
1,077
17
754 5,954
35
4,242
17
1,712
18
1,066
21
4,888
14
2,943
35
3,011
194,147 120,382 73,765 53,007 141,140 138,167 55,980 622,209 455,094 167,115 75,014 547,195 286,071 336,138
164,914 100,568 64,346 45,897 119,017 110,362 54,552 551,300 407,985 143,315 62,906 488,394 218,567 332,733
2,660
26,573
342,600
2,062
17,752
201,950
598
8,821
140,650
321
6,789
57,847
2,339
19,784
284,753
1,232
26,573
254,251
1,428 5,596
65,313
723,018
4,265
42,844
481,846
1,331
22,469
241,172
545
11,563
80,789
5,051
53,750
642,229
2,191
65,313
396,040
3,405
88,349 326,978
349,471 211,644 137,827 69,717 279,745 263,585 85/886 867,686 611,938 255,748 96,892 770,794 436,070 431,616
353,890 208,666 145,224 74,117 279,773 275,149 78,741 969,182 689,398 279,784 102,710 866,472 463,699 505,483
347,702 204,568 143,134 71,646 276,056 278,782 68,92C 959,626 682,337 277,289 102,014 857,612 509,278 450,348
368,797 210,353 158,44' 82,42C 286,377 276,579 92,218 1,002,602 693,618 308,984 114,335 888,267 482,482 520,120
172,371 100,377 71,994 37,296 135,075 133,076 39,295 556,545 402,162 154,383 58,559 497,986 250,717 305,828
110,731 69,553 41,180 19,507 91,226 94,242 16,491 351,540 250,528 101,012 34,648 316,892 189,022 162,518
126,011 85,441 40,570 18,722 107,289 113,122 12,889 272,39C 186,209 86,181 29,997 242,393 200,777 71,613
275,837 244,877 30,960 23,922 251,915 105,095 170,742 469,105 397,737 71,368 38,579 430,526 212,951 256,154
218,929 187,924 31,005 20,086 198,843 85,486 133,443 435,16C 360,017 75,143 33,482 401,678 194,500 240,660
194,147 120,382 73,765 53,007 141,140 138,167 55,980 622,209 455,094 167,115 75,014 47,195 286,071 336,138
506 REPORTS OF DEPARTMENT OF LABOR,
Tabl e XXIV.—Aliens admitted in continental United States from insular United
States, 1908 to 1920, inclusive, by ports.
-
Number.
Year of arrival.
1908 1909 1910 1911 1912 1913 1914 1915
New York, N. Y................................................
Philadelphia, Pa...............................................
9,782
141
15
2
60
7
19,4226
738
1,285
691
440 423 579 616 548 610 694 756
Norfolk, Va.........................................................
Newport News. Va............................................
Charleston, S. C.................................................
Jacksonville, Fla...............................................
New Orleans, La...............................................
Galveston, Tex.................................................. .........2 2 3 7 11
3
2,268
12 12
San Francisco, Calif..........................................
Portland, Oreg...................................................
912 896 1,591 1,076 1,402 2,595 1,610
Seattle, Wash”...................................................
Canadian Pacific ports......................................
Canadian border ports......................................
6 7 17
9
28
63
99
24
460
59
14
36
16
40
Mexican border ports........................................ 9
Mexican border seaports...................................
Total......................................................... 31,339 1,358 1,328 2,198 1,786 2,080 3,411 3,351 2,437
Year of arrival.
From
Hawaii.
From
Porto
Rico.
From
Philippine
Islands.
From
Vir-
1916 1917 1918 1919 1920 lands.
New York, N. Y.................................... 726 1,138 1,285 909 1,058 9,364 418
Philadelphia, Pa.................................... 1 1
Norfolk, Va............................................. 2 2 2 2
Newport News, Va........................ 1 1
Charleston, S. C..................................... 15 15
Jacksonville, Fla................................... 2 2
New Orleans, La................................... 10 1 60
Galveston, Tex......................................
1,673
1 3
935 18,957
7
San Francisco, Calif.............................. 1,824 1,826 814 465
Portland, Oreg.......................................
Seattle, Wash.........................................
1 2 1 5
608
1
21 4 3 50 19 130
Canadian Pacific ports.......................... 62 63 134 616 179 1,207 78
Canadian border ports.......................... 1 5 5 1
Mexican border ports............................ 9
Mexican border seaports....................... 1 1
Total............................................. 2,492 3,031 3,268 2,398 2,201 20,315 9,450 1,154 420
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 507
Tabl e XXIV-a .—Immigrant aliens admitted in continental United States from insular
United States and in insular United States from other insulars and from mainland
(continental United States'), by ports, fiscal year ended June 30, 1920.
Port. From
Hawaii.
From
Philippine
Islands.
From
Porto
Rico.
From
Virgin
Islands.
From
mainland.
Total.
New York, N. Y............................................ 60 13 73
1
47
2
163
64
Philadelphia, Pa........................................... 1
43
2
San Francisco, Calif...................................... 4
Canadian Pacific ports.................................
Honolulu, Hawaii......................................... 163
Porto Rico...................................................... 32 32
Total.........................................4.6........... 4 60 45 195 350
Table XXIV-b .—Nonimmigrant aliens admitted in continental United States from
insular United States and in insular United States from other insulars and from
mainland (continental United States), by ports, fiscal year ended June 30, 1920.
Port. From
Hawaii.
From
Philippine
Islands.
From
Porto
Rico.
From
Virgin
Islands.
From
mainland.
Total.
New York, N. Y............................................ 829
2
156 985
2
888
19
177
2
5
431
1,061
Jacksonville, Fla...........................................
San Francisco, Calif.................................... 799
8
144
2
5
89
11
33
Seattle, Wash ...............................................
Canadian Pacific ports
Portland, Oreg...............................................
Canadian border ports . .
Honolulu, Hawaii......................................... 4 427
Porto Rico...................................................... 198 863
Total................................ . ................... 958 137 831 354 1,290 3,570
508 REPORTS OF DEPARTMENT OF LABOR.
Ta b l e X X V — Race, sex, and age of immigrant aliens admitted in continental United States from insular United States, and in insular United States
from other insulars and from continental United States, fiscal year ended June 30, 1920.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 509
510 REPORTS OF DEPARTMENT OF LABOR.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 511
Ta b l e XXV-a .—Race, sex, and age of nonimmigrant aliens admitted in continental United States from insular United States and in insular United
States from other insulars and from continental United States, fiscal year ended June 30, 1920.
512 REPORTS OF DEPARTMENT OF LABOR.
Ta b l e XXV-a .—Race, sex, and age oj nonimmigrant aliens admitted in continental United States jrom insular United States and in insular United
States jrom other insulars and jrom continental United States, jlscal year ended June 30, 1920—Continued. •
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 513
514 REPORTS OF DEPARTMENT OF LABOR.
Ta b l e X X V I.—Immigrant aliens admitted in continental United States from insular United States, and in insular United States from other insulars
and from continental United States, showing races and countries in which aliens resided before going to insular United States or continental United
States, fiscal year ended June 30, 1920.
s- CO CO r-4 »-4 *O CO r-4 r—4 r-4 r-4 s r-4 r-4
•soir^unoo jaqjO 1 : : :
‘SOipUJ 1S9AV * r—4 CO C3 O s O'
'Boueury mnog r-4 ;•» r-4 03 2 r-4
•oorxepj r—4 •
•BOUOUIV r-4 r-4
•BOireuiy Wipa i CO
•(peptoeds
jott) spuejsj oppcj 03
c6 03
•BisyiBioj, T—4 03 r-4 s|
’BipUJ • r-4 r-4
■tred'Bf r-4 1—4 03
•'Bujqo
•ado.in^ Tf r-4 t' 2 03 CO r-4
•rtropSurx pa?inn ’1
•UOpOMg ;l •SpUBISJ OLlBOIBg pus
Xjb uso Suipnpm ‘uiBdg V- N r-4
•Bjssng 1
•Xbm jo n 1
•spuBpaxpaM 1
•0300.10 1
•Xu'BUI.IOfJ
•BOIS
-jo o Suipnpur ‘aousjj
r-4 -1 CO
•5013111110(1 f-4 '
•taniSjaa i 03
Race or people.
AT MAINLAND FROM INSULARS.
African ('black')_____ _____ _________________________________
1o
P
S
rQ
O
X
i
®
•fl
Cfl3
4o3
3A
Xu.
b
fl
w
■§
A£
i
■j
Italian (north)...........................
Japanese......................
f:
8
1
S
a
co
p
Scandinavian (Norwegians. Danes, and Swedes)_______________
O
o
o
CQ
-5
0
c3
P
COS
panish American......................................
1
west Indian (except Cuban)........................................................
Total_____ _________________________________________
IN PORTO RICO FROM MAINLAND.
X§> ofDl
utch and Flemish.......................................
Xs bfll a
•s
££
8
CD
sS
candinavian (Norwegians. Danes, and Swedes)...............................
41
p<
CQ
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 515
516 REPORTS OF DEPARTMENT OF LABOR.
Tabl e XXVI-a .—Nonimmigrant aliens admitted in continental United States jrom
tinental United States, showing races and countries in which aliens resided bejore going
Race or people.
| Denmark.
France, including Corsica.
_______
Italy, including Sicily, 1
and Sardinia.
Norway.
i Portugal, including Cape
I Verde and Azore Islands.
Russia.
Spain, including Canary
and Balearic Islands. .
| Sweden.
1 Switzerland.
| United Kingdom.
| Total Europe.
AT MAINLAND FROM INSULAKS.
17 17
French -__ 16 12
.... 17
2
1 14
4
Scandinavian (Norwegians, Danes, and Swedes).... 7 .......1..... 1 .......2..... ....
1
11
1
9 9
■-
1 1
1 1
Total ............................................................ 7 17 5 1 = J 9 2 3 19 64
IN PORTO RICO FROM MAINLAND.
French............................................................................ 3 3
Scandinavian (Norwegians, Danes, and Swedes)....
1 1
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION, 517
insular United States, and in insular United States from other insulars and from conto
insular United States or continental United States, fiscal year ended June 30, 1920.
Japan. j
1 India.
J
Turkey in Asia.
Other Asia.
Total Asia.
Africa.
_____________________
Australia, Tasmania, j
and New Zealand.
Pacific Islands (not
specified).
British North America.
1Central America.
Mexico.
South America.
1West Indies.
______________
United States.
Total.
1 4 70 , -
6 6
18
1 )
1 23 24
1 1
2 19 21
1 5 5
2 3 5 2 16 2 21 1 3 239 306
2 2
1 2 66 86
106 108
2 2
16 16
3 19 23
1 9 14
18 18
1 1 165 166
16 16
1 1
2 2
6 6
1 7 8
183 183
22 22
1 2 112 126
4 1 35 41
2 2
2 8 555 574
1 21 1 42 65
1 18 19
1 1
3 3
13 96 110
6 7
1 2 3 6 2 19 6 27 3 ____2_3 36 1,892 ___2_,_0_78
22 27
5 5
3 18 21
13 13
1 9 74 84
1 1
67 70
33 33
5 5
1 7 8
9 9
2 13 15
8 8
1 1
3 3
2 9 11
1 1
2 2
1 1
10 10
1 26 27
11 11
2 2
3 6 334 344
518 REPORTS OF DEPARTMENT OF LABOR.
Tabl e XXVI-a .—Nonimmigrant aliens admitted in continental United States from
tinental United States, showing races and countries in which aliens resided bejore going to
Race or people.
| Demnark.
! France, including Cor- ||
sica.
I Italy, including Sicily,
and Sardinia.
| Norway.
Portugal,including Cape
Verde arid Azore Islands.
■ Russia.
Spain, including Canary
and Balearic Islands.
| Sweden.
j Switzerland.
| United Kingdom.
j Total Europe.
in po rt o Rico fro m mai nla nd —continued.
Was ! Indian (p.xp.ppt Cuban)
Total 3 1 4
IN PORTO RICO FROM VIRGIN ISLANDS.
African (black)
Rd odish
Finnish
Frp.n ph 61
6
German 1
Irish
Italian (north) 1 1
Italian (smith)
Pnrtui
<5
oJS
1
M
Irish....................................................... ....................
X
fcl
sc
£
'2
§
£
•5c
dc
§
S
c3
2
o
w
j
p
H
ab>l sM
exican______________ ____________________
Pacific Islander_____________________
Portuguese........................... ■
(Z)
•/d
PhS
candinavian (Norwegians. Danes.and Swedes') _.!
§
QD
Slovak________ _________________
Spanish____________________ ______________
Spanish American_____________________ _ J
Svrian_____ ______________________________
j,
A 2
a
c3
rQ
o
p CO
22
29
1
84
46
8
1
04 IQ 04 O I - I -
04
123
28
13
Race or people.
AT MAINLAND FROM INSULARS.
African (black).............................
Idiot.....................................................................
Imbecile...............................................................
Feeble-minded....................................................
Psychopathic inferiority (not specified)..........
Insanity...............................................................
Epilepsy........................ .....................................
Tuberculosis........................................................
Trachoma............................................................
Favus...................................................................
Tinea tonsurans..................................................
Uncinariasis........................................................
Venereal disease..................................................
Parasitic disease (not specified)........................
Contagious, transmissible, or communicable
disease (not specified).................................
Rheumatism, arthritis, gout, neuritis.............
Debility, anemia, marasmus, malnutrition...
Sclerosis...............................................................
Senility (physical degeneration incident to
age)................................................................
Organic disease (not specified); general, systemic,
or constitutional disease (not specified)...............................................................
Malignant tumor............................... . ...............
Nonmalignant tumor, hypertrophy, new
growth, dilatation, localized collection of
fluid not due to cardiac or kidney disease...
Acuteinflammatory or suppurative condition.
Chronic inflammatory or suppurative condition................................................................
Acute injuries......................................................
Deformity, malformation, ankylosis, cicatrix,
permanent injury (not specified)..............
. Loss of member..................................................
Paralysis (partial or complete), atrophy.........
Less than normal function, disordered funtion
(not specified)......................................
Complete loss of function of organ (not specified)...............................................................
Undersized..........................................................
Hernia..................................................................
Poor development, lack of development (not
specified).......................................................
Pregnancy...........................................................
Infancy................................................................
Alcoholism...........................................................
Not stated...........................................................
9
21
55
43
58
30
77
334
13
11
820
213
146
60
96
89
43
5,634
202
19
268
150
226
38
844
452
196
1,426
91
28
278
154
643
500
8
4
Total. 13,279
7
13
33
35
41
19
59
235
8
6
364
201
94
33
61
43
30
1,979
140
16
104
99
171
26
588
410
137
1,056
59
20
270
134
290
82
6,791
2
8
22
8
17
11
18
99
55
456
12
52
27
35
46
13
3,655
62
3
164
51
55
12
256
42
59
370
32
8
8
20
643
210
2
6,488
7
20
13
713
4
83
79
121
6
28
26
6
1
9
33
38
28
8
133
17
45
89
14
92
45
1
500
1
1,314
1
15
7
3
2
14
100
3
1
347
71
48
7
38
1
15
2
48
30
35
6
122
49
22
176
12
12
11
61
142
1,375
1 1
13
10
13
11
24
76
2
223
109
33
7
16
19
3
50
65
41
58
8
256
146
38
400
13
7
24
13
385
12
2,069
8
10
16
11
21
48
1
78
17
17
10
15
13
2
3
31
2
32
21
36
148
101
26
271
12
30
11
95
21
1,096
2
5
8
2
6
11
44
17
8
16
24
10
5
5
18
10
1
4
25
5
29
9
35
2
71
61
20
168
11
33
8
19
2
610
27
15
5
44
33
38
5,623
72
10
61
11
34
7
114
78
45
322
29
178
16
2
6,815
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 531
fiscal year ended June 30, 1920, showing sex, age, class oj deject, and disposition, by
or dejects.
: : : : : : : ; : : : : : : : : : : : : : : : : : : idiocy, imbecility, feeble- । : : : : : : : : : : : : : : : : : : : : : : : : : minded, epilepsy, in- ■ : : : : : : : : : : : : : : ; : : : : : : : : : : : : sanity, tuberculosis, and |
: r, ; : ; ; ; ; o, : : : ; : ■ : : : : : : « g, M chronic alcoholism. ■ o • • * * * 01 I ’ I * * • i t ( . , , , , , , *1000WCn»-‘0 ! |
ss of d
Class
A (2).
ifect.
Class
B.
Class
C. g
1
CfOt
.s
s
a
&
ao
ndS
2
14
3
7
15
9
33
31
17
1,992
58
5
94
50
73
13
312
173
60
652
24
13
62
32
471
1
2
.s
o <
D
CfOt
O
o 5 A &
42
I
nS <
5
8
20
13
16
8
42
36
22
3,502
97
8
133
85
115
14
429
211
85
577
45
8
169
105
136
368
1
■fl —<
SS
m S
&ft"- aS o
fl's
Sg
^4=
•fl °
5 fl f>>
Jh O 1-4
7
17
48
38
50
22
55
253
11
10
5
144
110
24
13
17
3
77
29
6
31
9
20
7
67
44
22
129
8
7
32
9
30
113
71
03
-*co ■ o So • toto* ^ to 'i-^ ’ w to'bo'boto' j department.
lisposi
1
a
fstT S. ® §
o Cf3t
§ g
lg
B co
ft’u
fot CD
P
214
414
6
3
2
10
1
4
5
21
33.
10
81
11
3
22
11
17
46
9
10
6
5
11
tion.
"dS
3
K
4o3 «CA
® £
as
'd
nad
3
61
2
790
26
4
14
1
1
1
s
a
03
2
3
ft
c
43
o3
CD
Oft - ; k >; • ■ ; • ■ • : '■ I I I : ! ! I to_: I I : : : granted and alien admitted.
"0d3
c3
"o
3316
3
15
78
21
813
52
35
32
78
70
39
5,524
163
13
229
140
195
28
755
397
157
1,251
74
21
236
139
608
376
13
fct r d
co o >
co
c3 V-( .cs
•asanSnpiOjj • • • • •t© • • • 9 is "
•qsnod
‘ ‘ ’ CM CM CM i-< M •iQ CM CO CM to i-4 00 • ■
•JOpUCJSl OIJTOBJ > 1—4 a a a a a ai
‘UBOIXOpf CM CO CO T-4 Tt< a g O Q • to CO 1Q CM U SN" : 3SS
• i—4 • • • • 1-4 ‘ ’ I 'co 1 • -»C> CM r-4 t -4 CM a CO TH a
•UBiuBnq^n i a 1 a T—1 ■ ■ 1 a a CO T-< r—4 a a Til r-4 a
Disease or defect.
Idiot............................................................................
Imbecile.....................................................................
Psychopathic inferiority (not specified)................. Insanity.....................................................................
Epilepsy.....................................................................
Tuberculosis..............................................................
Trachoma...................................................................
Favus.........................................................................
Tinea tonsurans........................................................
Uncinariasis...............................................................
Venereal disease!.......................................................
Parasitic disease (not specified)..............................
Contagious, transmissible, or communicable disease
(not specified).............................................
Rheumatism, arthritis, gout, neuritis...................
Dp.hilitv. anapmia. TnaracnniK! Tnplniitriti/m
Sclerosis...... . .............................................................
Senility (physical degeneration incident to age)
Organic disease (not specified); general, systemic,
or constitutional disease (not specified)..........
Malignant tum ci.......................................................
Nonmalignant tumor, hypertrophy, new growth,
dilatation, localized collection of fluid not due to
cardiac or kidney disease..................................
Acute inflammatory or suppurative condition....
Chronic inflammatory or suppurative condition.. Acute injuries............................................................
Deformity, malformation, ankylosis, cicatrix,
permanent injury (not specified).....................
Loss of member.............................................. ..........
Paralysis (partial or complete), atrophy................
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 535
536 REPORTS OF DEPARTMENT OF LABOR.
Ta b l e XXIX-b . - ^ certified by eurgeom as physisaUy or nwnMlydefect™,.fiscal year ended June SO, m o , showing organ or portion of body
affected, by diseases or defects. r J y
Organ or portion of body affected.
•sX0upj3
•S *U ‘JOBJJ OAlJSOfllQ
820
64
2
1
8 j
•qoeuiojs
•s -u ‘xcjoqj,
• .• : • ; ’’eo
• • • • • • ’ ’ ; • • eq ‘
S’ ■ •
; ; ® •
•J9AT7
•S -U ‘JOBJJ AjOJCIldSO^J • • ‘ i i .* * ; w • »o oo
• • ............................................ , J J W • r-4 • rH •
■seqnj [c
-jqouojq ‘einajd ‘s§unq • • • » • ।!q ' ! ! ! ! • S' ’—<00 • PH •
co • .
•piorXqi
•s *U ‘lUOJsXs S110AJ9SX ; ; ; ; ;w ; ; ; • j ■
• • • t H IO t H
. : 05
• CO ■ ! CM
•q099ds JO sub 2jq ’ ‘ H Q H OS r-4
, , j TH
•sub Sjo Xjo jo bj jo :::::::::::: . ; ; ; ; th »cM • 00 I
•SuuBoqjo su u Sjq ; ; j • • cm
•jqfljsjo sireS-io
334
2
i
16
51
’ 06
’ 88
•pniui ‘urery
9
21
55
42
58
29
•s -u ‘spsuoj flmpnp
-ui ‘spncjS opeqdunfq • • ‘CM CM 4Q c
. * ‘ CO C •• * '
•SUI9A I CM
•sous; j y : : : • •..................... : ■«< • • • :
•JJB9H •■ •’ Sco> •■ rtrlCO
• • TH •
•pooja ::::::
50
10
36
Disease or defect.
Idiot................................................
Imbecile.......................................................
Feeble-minded......................................................
Psychopathic inferiority (not specified) . Insanity.............................. Epilepsy..............................................
Tuberculosis........... .........................
Trachoma.................................................
Tinea tonsurans........................................
Uncinariasis.......................................................
Venereal disease...................................
Parasitic disease (not specified) .....................................
Contagious, transmissible, or communicable disease (not specified)................................................................
Debility, anemia, marasmus, malnutrition
Sclerosis......................................................
Organic disease (not specified), general', systemic, or
constitutional disease (not specified).
Malignant tumor.................................................
Nonmalignant tumor, hypertrophy, new growth, dilatation,
localized collection of fluid not due to cardiac
or kidney disease......................................................
Acute inflammatory or suppurative condition................
Chronic inflammatory or suppurative condition... Acute injuries......................................................
Deformity, malformation, ankylosis, cicatrix, permanent injury (not specified).........................
Loss ofmember.....................................................
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 537
8r-i
538 REPORTS OF DEPARTMENT Ox ^ABOR.
g
g
gg
g
«3 3
« S
A,
g
g
g
m
lXr—-1
►fl
fll
C
fl
•pai^s ;ox
•p3J0U0{)
•Xpoq jo uopaod
jo iib Sjo ouo uBqi 0JOjv
•oppcre ‘joojl
•qSiqi ‘80'1
•jpojjnq ‘djH
•siren ‘s-ioSutj
•}sijm ‘pirejj
•uii 'bo .ioj ‘uijy
•jopinoqg
•s "u ‘uuitqoo {Binds
•S ‘U ‘J{00ll ‘00BJ ‘pB0H
•s 'u ‘sipnol pire ©Sbi
-ppreo ‘uin0{.soiJ0d 8tn
-prqom ‘mejs/s snoossp
■s •u‘0tTBJq
-in0ui snoanui pire
onssi} JBpineo Suipnp
-ni soitepireddB pire nigs
•s -U ‘suopuoi Suiptq.)
-ui ‘iua;sXs jrei’nasnjv
•S -U ‘SIIBM
IBinuiopq'B ‘traiuopqy
‘uraisXs XjBinjn-oqtrap
3
33
2S
2s
>70
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 539
540 REPORTS OF DEPARTMENT OF LABOR,
Tabl e X.—Japanese aliens applied Jor admission, admitted, debarred, deported, and
departed, fiscal years ended June 30, 1919 and 1920.
1919 1920
Continental
United
States.
Hawaii.
Continental
United
States.
Hawaii.
Applications for admission.. . 11,466
11,404
62
3,609
3,500
109
13,013
12,868
145
46
11,662
Admitted................ 3,355
Debarred from entry. 3,306
Deported after entry............ 134
8,328
49
Departures................... 2,905
4
3,991
48 Koreans were admitted in Hawaii, and 25 departed therefrom
3.3 Koreans were admitted in continental United States, and 11 departed and 1 was debarred therefrom.
Tabl e B.—Increase or decrease of Japanese population by alien arrivals and departures
fiscal years ended June 30, 1919 and 1920, by months.
Continental United States. Hawaii.
Month.
Admitted. Departed.
Increase (+
or decrease
(—).
Admitted. Departed.
Increase (+)
or decrease
(—).
1918-19.
July.............................. 1 411 300 +1,111
+ 428
- 55
+ 619
+ 237
+ 662
- 905
- 842
+ 628
- 435
+ 935
+ 693
344
312
266
466
401
167
378
160
218
August........................ ’937
426
1,032
721
900
686
233
210
374
248
448
173
-+•111
September... . 481
413
484
+ 102
October................ —108
November.............. +218
December.......... — 47
January................. 1,591
1,085
633
1,427
471
696
— 6
February............. 243
1,261
992
93 +285
March......................... 120
277
527
— 40
April...................... + 98
May......................... ■ 1,406 -277
1,389 426
June..................... 362 — 101
2 +360
Total.................... 11 404 8,328 +3,076 3,500 2,905 +595
1919-20.
July....................... 692
693
1,092
1,283
656
1 388
913
763
1,065
891
1,916
1,207
1,226
589
705
1,056
820
511
- 221
- 70
+ 27
+ 392
-1,260
+ 181
- 581
+ 342
+ 333
+ 926
+ 87
+1,050
225
221
318
256
528
215
569
215
562
266
322
236
285
294
145
321
184
422
584
370
---------- ----
August............. -337
September... . — 45
October................ — 4
November........ + 20
December............ + 243
January...................... '645
931
1 038
- 79
February............. + 424
March................... — 106
April........................ 1,982
907
1,561
+ 64
May...................... 301
116
—328
June........................ —283
—254
Total.............................. 12,868 + 1,206 3,306 3,991 I —685
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 541
Tab le C.—Occupations of Japanese aliens admitted and departed, fiscal year ended
June 30. 1920.
. ---r------------ ■ ■ — ----—---- -.--.--.--.--.--.- ..——-- __ .
Occupation.
Continental
United
States.
Hawaii.
Occupation.
Continental
United
States.
Hawaii.
Admitted.
eparted.
Admitted.
Departed.
1 Admitted.
Departed.
Admitted.
Departed.
PROFESSIONAL.
12
17
38
27
3
120
9
31
6
286
53
7
69
40
11
17
39
31
4
64
4
43
2
126
93
16
64
51
2 22
skil led —continued.
Miners.......................... 63
17
9
2
17
13
3
4
Painters and glaziers..
Photographers............
3
7
2
6
24
2
9
PIpt p’V.................................. 16 2
4
4
26
51
C l'LL 6J Plumbers ................
Editors...................... Printers ..................... 5
29
3
1
Electricians.................
EnQlg\ineers (profession- Shoemakers................ 1 ai Stokers........................ Lawyers...............
Literary and scien-
3 2
29
Tailors......................... 26
7
tific persons.............. 23 17 Textile workers (not
Officials (Govern-
16
Tinners........................ 1
293
ment).......................
Physicians ............ 13 Watch and clock
makers.................. 3
3
165
Sculptors and artists.. 1 2
Teachers .................. 10
53
22
33
Weavers and spinners.
Other professional.... Other skilled ......... 153 8
565 99 124 Total ................ 767 829 174 149
MISCELLANEOUS.
1 Agents.........................
SKILLED.
2
38
4
50
1
1
—-----
2
14
6
26
45
13
1,805
886
63
112
569
25
1,215
63
1,473
32
66
7
85
2,901
72
103
2,342
14
1,184
62
845
24 15
1,670
16
22
2
45
1
116
116
45
Barbers and hairdressers
............
I Bankers ..................... 1
15
Draymen, hackmen,
and teamsters......
Blacksmiths.............. Farm laborers............
1
16
149
1
100
41
Carpenters and joiners
Clerks and account-
21
206
19
147
71
31
42
17
55
6
Fa .rm ers....................... 92
22
6
2,113
Fishermen ..............
Hotel keepers..............
Dressmakers............... Laborers......................
Engineers (locomotive,
marine, and
stationary) ...... 212
Merchants and dealers
Servants .................
170
40
Other miscellaneous.. 26
Total.................
Gardeners.'..................
Hat and cap makers. 6,295 7,713 2,054 2,485 Iron and steel workers 23
13
57
1
18
4
15
120 34
No occupation (including
women and
children)..............
—_, ,. _—- ______ --
Mariners 5,088 2,555 979 1,233 4
Masons.........................
Mechanics (not specified)
..................... 2 2 Grand total.... 12,868 11,662 3,306 3,991
Tabl e D— Statistics of immigration and emigration of Japanese, collected by the United
States Government, compared with those reported by the Japanese Government, fiscal
year ended June SO, 1920.
i Embarked within the year.
From Japan.
Reported
by
Japan.
Reported
by
United
States.
To Japan.
Reported
by
Japan.
Reported
by
United
States.
To Hawaii................................
To continental United States.
Total...............................
3,741
12,590
3,319
12,173
From Hawaii................... .
From continental United
States.....................................
Total...............................
5,792
13,970
3,963
10,765
i 16,331 2 15,492 219,762 i 14,728
a Debarked within the year.
542 REPORTS OF DEPARTMENT OF LABOR.
Tabl e E.—Japanese alien arrivals in continental United States, fiscal year
Came from—
Japan.
Canada.
Mexico.
Europe.
Other countries.
Total admitted and debarred.
Admitted:
Male............................
12,261 73 103 476 10C
6,968
5,192
37
15
78
12
453
! 15
Female.................... 94
Total....................... 12,160 52 90 468 98
Debarred:
Male.. ......... . 82
19
14
7
11
2
1
Female.................... 1 8 2
Total_______ _____ 101 21 13 ... 8 2
Housewives without other occupation
........................... 3,907
948
8
7 13
8 1
3
Children under 16 without occupation
..........................
Came from:
Japan................... 12,261
Canada....................... 73 Mexico................. 103 Europe................. 476 Other countries.......... 100
Resided in continental United
States:
After Jan. 1, 1907.......... 5,074
9
18
5
10
10 1
31
9
27
Prior to Jan’. 1, 1907............ 6
Total former residents.........
How related to resident:
Parents___
5,083 23 20 40 33
73
3,814
1,484 2
111
Wives...................... 1 11
Children.............
Total parents, wives, and
children of residents.....
Kind of passport:
Limited to United States....
Limited to United States and
other countries...........
5,371 2 3 1 2
1,368
745
2
8
22
3
30
3
17
41
307
7
84
23
53
Limited to other countries.... 2
Unlimited...............
In possession of proper passports.
Entitled to passports under Japanese
agreement.
Former residents of
the United States.
Parents, wives,
and children of
United States
residents.
—
Nonlaborers.
Laborers.
Total.
Nonlaborers.
Laborers.
Total.
2,549 2,617 5,166 4,512 864 5,376
- ■■■ _ ____
1,610
937
2,595
9
4,205
946
1,102
3,389
135
726
1,237
4; 115
2,547 2,604 5,151 4,491 | 861 5,352
2 14
1
5
16
21
7
17
2 13 15 21 1 3. 24
769 .......7..6.9 3,092 ....... 3,092
243 .......2..4.3 691 ....... 691
2,489
7
10
20
23
2,594
2
4
9
8
5,083
9
14
29 1
4,505
112
863
1
5,368
3
2
1
2
2,529
20 1
2,610
7
5,139
27 .......
2,549 2,617 5,166
.......... 34
3,090
1,388
39
726
99
73
3,816
1,487
4,512 864 5,376
2,464 2,598 5,062 4,498 861 5,359
81 18 99 14 3 17
3
2 .
3 .
....
2 oo9pa^p0rJS for admission continental United States are those held bv laborers, and limited
with passport 37 held passports not entitling them to enter'the United States and
with passports limited to Hawaii, Canada, or Mexico, 1 laborer with passport limited from Japan to Peru
1 laborer who was a resident of the United States for 18 years, 7 laborers coming to ioin shins 6 laborers
at New York solely on Army discharge, 1 laborer refused by'Japanese consul, 105
hfhnro^’wJ6 fR0Iu-Jh'pah: 1 noPIabore£ was a citizen of Germany, 1 nonlaborer was bom aboard ship, 1
Ti Bnt,isb subJects> 1 nonlaborer reported passport stolen from him while on shore at Honolulu,
laborers and 1 nonlaborer were not m possession of any kind of passport at the time of leaving Japan, and the
REPORT 01 COMMISSIONER GENERAL, OF IMMIGRATION. 543
ended June 30, 1920, showing various details bearing on the Japanese agreement.
In possession of proper passports.
Entitled to passports under
Japanese agreement.
Settled agriculturists.
.2’3 GGOJ
9,168
48
49 23 33
62
18
42
5,166 2,549
5,376 4,512
998 50
42
6
18
10
16
3
2
998
26
84
28
21
22
1
3,923
952
2,529
20
8,614
33
44
412
65
3,923
952
rot
£
7,961
1,093
27
87
34
3,090
1,388
73
3,816
1,487
5,139
27
1,947
149
14
19
4,660
4,475
9,135
7,390
5,210
12,600
2,106
2,096
10
1,620
23
32
391
40
Total with passports.
12,649
12,071
35
49
421
73
11,420
1,114
28
87
3 552
2,772
741
3,513
36
3
39
3,499
2
6
27
18
2,610
7
2,617
39
726
99
864
3,509
37
4
2
12,720
7,432
5,216
12,648
50
22
72
3,923
952
12,113
35
50
439
83
5,139
27
5,166
73
3,816
1,487
5,376
11,470
1,130
31
89
Without proper
passport.1
62
34
17
51
11
19
7
20
30
1
4
231 2 293
164
169
60
2
62
141
IS
23
36
13
16
8
24
198
22
220
67
6
73
19
148
38
53
37
17
21
12
33
With and without
proper passport.
tn
9,230 3,783 13,013
4,694
4,492
9,186
2,936
746
3,682
7,630
5,238
12,86g
21
23
44
3,931
971
8,621
53
74
413
69
2,534
24
2,558
34
3,091
1,389
4,514
96
5
101
3,640
. 20
29
63
31
2,626
15
2,641
40
726
99
865
117
28
145
3,931
971
12,261
73
103
476
100
5,160
39
5,199
74
3,817
1,488
5,379
A s
R
O
£
or
£
a
0
7
4
8 8
5
4
9
11
1
11
2 1 3
to countries or places other than continental United States.
256 were without any kind of passport. The 37 holding improper passports were composed of 35 laborers
and 1 nonlaborer with passport not issued by proper authority. The 256 without passports consisted oi
who were members of crews, shipwrecked at sea, 1 laborer with passport reported stolen from him, 1 lablaborers
were deserting seamen, 11 laborers and 23 nonlaborers claimed to have lost or left passport at time
laborer and 3 nonlaborers were citizens of Mexico, 7 nonlaborers were never in Japan, born abroad, 3 non-
5 laborers and 15 nonlaborers were Canadian citizens, 15 laborers and 2 nonlaborers were stowaways, 25
circumstances regarding nonpossession of any kind of passport by 16 laborers and 4 nonlaborers are un544
REPORTS OP DEPARTMENT OF LABOR.
Table E.—Japanese arrivals in continental United States, fiscal year ended June
Came from— In possession of proper passports.
Entitled to passports under Japanese
agreement.
Former residents of
the United States.
Parents, wives,
and children of
United States,
residents.
g
a M
3 as
§ 52
go
£ £g Eh
Passports dated during:
Month of arrival...............
First month preceding arrival,.
Second month preceding arrival...................................
Third month preceding arrival...................................
Fourth month preceding arrival...................................
Fifth month preceding arrival
Sixth month preceding arrival
Prior to sixth month preceding
arrival, but not before
Mar. 14, 1907....................
Prior to Mar. 14,1907_____ ”
Occupations mentioned in passports:
Nonlaboring occupations.......
Laboring occupations.............
Occupations not mentioned
in passports....................... j
1,975
5,830
2,378
926
612
221
118
55
496
128
11,491
4
6
8
1
2
8
3
18
15
5
2
25
17
39
4
20
8
13
12
41
28
311
2
347
14
78
1
14
2
6
2
3
9
41
5
60
17
6
392
1,211
491
211
88
64
38
48
6
155
2,394
682
1,440
287
110
22
11
4
99
2,517
1,074
2,651
778
717
2,147
955
54
304
277
321
132
86
49
65
10
156
99
4,911
340
218
76
43
16
47
4,465
57
156
66
4
28
836
771
2,451
1,232
397
374
82
49
20
47
28
5,301
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 545
30,1920, showing various details bearing on the Japanese agreement—Continued.
In possession of proper passports. Without proper With and without
passport. proper passport.
Entitled to passports under
Japanese agreement.
Not entitled to passport: Not former
residents, parents, wives, or children
of residents ,nor settled agriculturists—
laborers.
Settled agriculturists.
Not former residents, parents,
wives, or children of residents
nor settled agricul- turists—nonlab orers.
Total entitled to passports.
Nonlaborers, !
Laborers.
Total.
140 1,985 4
752 5,854 17
377 2,387
942
9
224 4
119 625 2
95 263 4
56 154 3
1 1 328 414 26
15 25 2
725 928 4
127 16
1 ......... 1 1,381 11,594 51
Total with passports.
Nonlaborers.
Laborers.
Total.
1,249 749 1,989
4,110 1,761 5,871
1,823 573 2,396
775 171 946
425 202 627
235 32 267
137 20 157
393 47 440
21 6 27
927 5 932
143 143
8,241 3,404 11,645
15283—la b 1920---- 35
546 REPORTS OF DEPARTMENT OF LABOR.
Table F.—Japanese alien arrivals in Hawaii, fiscal yew ended June
1 Three applicants without passports consisted of 2 laborers and 1 nonlaborer,
•
Came
from— In possession of passports.
Japan.
I Other countries.
Entitled to passports under Japanese agreement.
Former residents
of Hawaii.
P arents, wives, and
children of Hawaiian
residents.
Total entitled to
passports.
| Nonlaborers.
I Laborers.
Total.
Nonlaborers.
Laborers.
Total.
Nonlaborers. |
0
rQ
Total.
Total admitted and debarred
....................... 3, 339 16 733 982 1,715 469 1,131 1.600 1,202 2,113 3,315
Admitted:
Male............................. 1,553
1,737
10
6
396
336
684
290
1,080
626
193
267
255
845
448
1,112
589
603
939
1,135
1,528
Female................................ 1,738
Total................................ 3, 290 16 732 974 1,706 460 1,100 1,560 1,192 2,074 3,266
Debarred:
Male.................................... 17
32
3
5
3
6
7
2
7
24
14
26
7
3
10
29
17
Female................................ 1 32
Total................................ 49 1 8 9 9 31 40 10 39 49
Housewives without other
occupation..........................
—
325
575
1
3
167
327
167
327
159
250
159
250
326
577
326
577 .
Children under 16 without occupation..............................
....... ...........
Resided in Hawaii:
After Jan. 1, 1907......... 954
750
11 490
243
475
507
965
750
—
490
243
475
507
965
Prior to Jan. 1, 1907........... 750
Totalformerresidents...
How related to resident:
Parents...............................
1,704 11 733 982 1,715 733 982 1,715
54
957
589
20
163
286
34
794
303
54
957
589
20
163
286
34
794
303
54
957
589
Wives..................................
Children..............................
Total parents, wives, and
children of residents..
Kind of passport:
Limited to Hawaii............
1,600 —....... 469 1,131 1,600 469 1,131 1,600
------,--------
3,330
7
2
11 732
1
982 1,714
1
468 1,131 1,599 1,2001
1
2,113 3,313
1
1
Limited to United States..
Limited to other countries
Passports dated during:
Month of arrival.................
2 ____ 1 1
944
1,890
307
88
53
35
12
64
176
362
105
39
23
21
3
'3
1
326
565
52
14
7
4
4
91 502
927
157
53
30
25
7
12
2
132
252
51
16
7
8
2
1
307
694
94
17
13
2
1
12
439
946
145
33
20
10
3
22
308
614
156
55
30
29
5
41
633
1,259
146
31
20
6
5
10
3
941
1,873
302
86
50 '
35
10
14
4
First month preceding arrival
..............................
Second month preceding
arrival...........................
Third month preceding
arrival....................
Fourth month preceding
arrival........................... 1
Fifth month preceding arrival..............................
Sixth month preceding arrival..............................
Prior to sixth month preceding
arrival, but not
before Mar. 14, 1907....
Prior to Mar. 14,1907...........
12
Occupations mentioned in
' passports:
Nonlaboring occupations..
Laboring occupations.......
Occupations not mentioned
in passports.............
81
43
3,215
1 56 56
41
1,618
4 41
1,595
60 60
42
3,213
41
941
1
1,130
42
12 677 465 | 1,142 2,071
REPORT OF COMMISSIONER GENERAL' OF IMMIGRATION. 547
30, 1920, showing various details bearing on the Japanese agreement.
and the circumstances regarding nonpossession of passports by them are unknown.
In possession ofpassports. Without passports. With and without passports.
Not entitled to passports:
Not former residents,
nor parents,
wives, or children
of residents.
Total with passports.
Nonlaborers.
Laborers.
Total.
Nonlaborers.
Laborers.
Grand total.
Nonlaborers.
Laborers.
Total.
Nonlaborers.
Total.
34 3 37 1,236 2,116 3,352 1 2 13 1,237 2,118 3,355
30
4
2
1
32
5
619
607
941
1,136
1,560
1,743
1 2 3 620
607
943
1,136
1,563
1,743
34 3 37 1,226 2,077 3,303 1 2 3 1,227 2,079 3,306
73
10
29
17
32
73
10
29
17
............ 32
10 39 49 10 39 49
326
577
326
577
326
578
326
1 1 578
490
243
475
507
965
750
490
243
475
507
965
750
733 982 1,715 733 982 1,715
20
163
286
34
794
303
54
957
589
20
163
286
34
794
303
54
957
589
469 1,131 1,600 469 1,131 1,600
25
63
3 28
63
1,225
7
4
2,116 3,341
74
2
16
5
1
4
1
1
3
17
5
2
4
310
630
161
56
34
29
7
81
634
1,260
146
32
20
6
5
10
3
944
1,890
307
88
54
35
12
18
4
1
2
4
2
4
22 22
1
14
82 82
43
3,227
1
2
43
12 1,154 2,073
548 REPORTS OF DEPARTMENT OF LABOR.
Tabl e 1.—Summary of Chinese seeking admission to the United States, fiscal years ended
June SO, 1915 to 1920, by classes.
1915 1916 1917 1918 1919 1920
Class alleged.
| Admitted.
| Debarred.
| Died.
| Admitted.
j Debarred.
[ Died.
| Admitted.
Debarred.
Admitted.
Debarred.
Died.
Escaped.
Admitted.
Debarred.
Died.
Escaped. |
Admitted.
Debarred.
Died. j
United States
citizens........... 1,990
106
119 1,932 128 2 2,018
110
129 946 143
7
955
91
29 1 1 1,761
141
27
12
21
Wives of United 2
States citizens..
Returninglaborers
Returning merchants.............
2 108 6 6 132 5
889
960
4
6
i 690
859
11
11 1
618
691
6
18
491
520
6
7
1 418
512
138
2
28
... 320
52$
Other merchants. '268 7 242 180 13 129 8 25 105
Members of merchants’families.
746 96 i 741 145 694 121 390 91 305 47 644 Students............... 344 2 301 4 223 4 225 4 443 1 512
131
Travelers.............. 61 2 86 1 52 2 41 3 48 1
Teachers............... 15 28 19 17 2 16 12
22
Officials................ 224 105 3 72 7 128 1 134
280
2 146
Miscellaneous....... 88 30 101 123 1 97 17 147 36 1 11 377
Granted the privilege
of transit in
bond across land
territory of the
United States..
1
134,977 5,041 21 10,917 43
Total........... 1 5,661! 268 2 5,193
1
437 4 4,774
I____
321 38,143 308 1 1 8,381 172 1 1 15,607 168 2
1 Of these, 28,838 were destined to France for war work.
REPORT OF COMMISSIONER GENERAL, OF IMMIGRATION. 549
■seseo psio J,
1,938
161
332
112
571
188
604
440
81
125
6
23
6
156
412
5,155
3,135
899
440
163
238
68
oco' •nnoj,
148
19
10
7
25
20
81
6
1
1.........
•’ ’oo co • • r-4
oc 1 eo
n
277
45
8
7
rH
Disposition.
Pending June
1920.
•spnoo ojojoq
• • 1O ■’t’ ■’t* o • • • • • • CO s 1 CO 'COM •
CO • •
quoui't.redop O-iojoq COH^H • CM CO r-« • • • CM CM sl
20
12
4
•sjoioadsm orojog
121
18
5
1
21
14
65
2
• .’«c 00
221
33
1
6
■paid
CM * • l — i n
: : :
Final.
Debarred.
•pnoj.
b- rH CM
CM
HCMiCHH .
CM •
. . di
• . . : : : :5 ® 0 3a j® .: ...:. ...: ...:. ..:. ...:. ..:
: : : : : : : :-S |:
; 'SorQ.....................
c o 5 :.................
. aS . aS . . , , , in j-. , , , , ,
’dw • J ’ • : OS • as • • • •
lie §
? ® o a> fe.c’fl q 'e? g o B 0 ®8
g-g
>> n O/H
ffl Z
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 551
’Tab le 3.—Chinese claiming American citizenship by birth, or to be the wives or children
of American citizens, admitted, fiscal year ended June 30, 1920. by ports.
Table 4.—Appeals to department from excluding decisions under Chinese-exclusion laws,
fiscal year ended June 30, 1920, by ports.
Native born.
Foreignbom
wives
of
natives.
Foreignborn
children
of
natives.
Record of
(known as
natives”).
departure
“returning
Port.
N o record
of
departure
(known as
“raw
natives”).
Statiis as
native born
determined
by U. S.
Government
previous to
present
application
for admission.
Status not
previously
determined.
Total.
San Francisco, Calif........................
Seattle, Wash...................................
New York, N. Y..............................
Mexican border................................
Montreal, Canada............................
Boston, Mass...................................
95
16
14
569
127
24
110
1
71
1
1
406
163
2
31
12
142
30
1,213
343
3
3
26
137
Total continental United
States...................................
Honolulu, Hawaii...........................
125
16
830
13
11
4
587
104
172
19
1,725
156
Grand total............................
BY WHOM ADMITTED.
Inspection officers.......................... .
Department.....................................
Courts.__
141
135
6
843
790
53
15
13
2
691
691
191
188
3
1,881
1,817
64
Action taken.
Number of appeals...........
Disposition:
Sustained (admitted)
Dismissed (rejected)..
San
Francisco,
Calif.
Seattle,
Wash.
Honolulu,
Hawaii.
94 32 22
67 19 5
27 13 17
Boston,
Mass.
Montreal,
Canada.
Total.
17 1 166
13 1 105
4 61
Table 5.—Disposition of cases of resident Chinese applying for return certificates, fiscal
year ended June 30, 1920.
Class.
Applications
submitted.
Primary disposition. Disposition on appeal. Total
certificates
granted.
Total
certificates
finally
Granted. Denied. Sustained. Dismissed. refused.
Native bom......... 1,338 1,279 59 8 27 1,287 51
Exempt classes... 817 764 53 24 7 788 29
Laborers............... 575 555 20 1 556 19
Total.......... 2,730 2,598 132 33 34 2,631 x 99
552 REPORTS OF DEPARTMENT OF LABOR.
Table 6. Action taken in the cases of Chinese persons arrested on the charge of being in
the United States in violation of law, fiscal year ended June 30, 1920.
CASES BEFORE UNITED STATES COMMISSIONERS.
Until order of deportation or discharge:
Arrests...................................................... 31
Pending before hearing June30,’i9i9 40
CASES BEFORE UNITED STATES DISTRICT COURTS--
continued.
Total............................................................ 71
Disposition—
Died................................................... 1
Forfeited bail.......... 1
Discharged.................................................. 39
Pending before hearing June 30,1920 ’ 11
Ordered deported................................... 19
After order of deportation:
Ordered deported................................... 19
Awaiting deportation or appeal June '3'0,
1919................................................. ’ 6
Total............................................................ 25
Disposition-
Deported........................................... 4
Awaiting deportation or appeal June
30,1920............................................ 5
Appealed to district courts.................... 16
CASES BEFORE UNITED STATES DISTRICT COURTS.
Until order of deportation or discharge:
Appealed to district courts.................... 16
Pending before trial June 30,1919................ 61
After order of deportation—Continued.
Disposition-
Deported........................................... iQ
Awaiting deportation or appeal June 30,
Appealed to higher courts.............. ”” 2
CASES BEFORE HIGHER UNITED STATES COURTS.
Until order of deportation or discharge:
Appealed to higher United States courts 2
Pending before trial June 30,1919................ 8
Total............................................................ 10
Disposition-
Discharged........................................ 3
Pending before trial June 30,1920......... 6
Total............................................................. 77
Disposition-
Discharged................................... 5
Pending before trial June 30,1920.64
Ordered deported..................................... 8
After order of deportation:
Ordered deported................................... 8
Awaiting deportation or appeal to higher
courts June 30,1919................................. 7
Total............................................................ 15
Ordered deported.................................... 1
After order of deportation:
Ordered deported................................... 1
Awaiting deportation June 30,191913
Total............................................................ 14
Disposition-
Deported........................................... 1
Awaiting deportation June 30,1920. ’" 13
RECAPITULATION OF ALL CASES. Arrests................................................................... 31
Pending, June 30,1919, including those awaiting
deportation or appeal..................................... 135
Total.............................................................left
Disposition-
Died, escaped, and forfeited bail........... 2
Discharged............................................... 47
Deported............................................ ' ” 15
Pending, June 30,1920, including those
awaiting deportation or appeal...... 102
SUMMARY OF ACTION TAKEN IN THE CASES OF CHINESE ARRESTED, FISCAL YEAR
ENDED JUNE 30, 1920.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION, 553
Tab le 7.—Chinese arrested and deported, fiscal years ended June 30, 1916 to 1920, by
judicial districts.
Judicial district.
1916 1917 1918 1919 1920
Arrests.
>
Deportations.
Arrests.
Deportations.
Arrests.
Deportations.
Arrests.
Deportations.
Arrests.
Deportations.
1
5 1 4 11
2
ATmxr TTfvnrnQTiirp
41
22
7
53
21
11
113
2
11
1
Rhode Island................. 13
r»n nPP t i PI 1t 3131845
5 VUHAAvv LAV LA U . ..................
XTnrthnrD "NJpw "V AT*lr 12
26
1
18
3714
7 3 Pl or 11 AN VW 1 Ulfi. ..........
Southern New York................ 44 13
21
15
3
4
Eastern New York................... 94
6
1 9
TPactorn Ept iti q 'v I vania 34 8 3 PjabLvlll 1 V1111DJ IV .......
Western Pennsylvania............ 4
17
11
2 3
12
84
2
81
7 3 1 1
Maryland................................... 2
nt a /UAllTml'i'ia 1 JAlbLi AC L VI '-'VALAAllMACA . .........
Qnnthprn CrPnrp'ia 1
11
Mill (llv AA Iclljdlllcl .............. 1
oOuLIieill au u c aAAAU. ...........
QnnthprT) El ATI Ha 1 1 3 3
Southern Mississippi............... 22
1 2 2
1
2
Wnctnrn ..
Eastern Kentucky............ 28
Northern Ohio................ 3 2 1 2
1
Indiana ...................... 2
23
19
3
8
1
Northern Illinois...................... 15 6
1
19 15 3 7 5
Eastern Michigan ' 1 1 1 3 1
WV» oCcStlnllr 1n1 ALVA/T AiLpLHlAifjtyCflAinA . .. ......... 1 11
42
2
1
1
Nebraska. 1 1
AT til "DalrAra. 1 1 13
4
W^yoming 2
2 Western Washington............... 21219
18
3
2 3 2
Eastern M^ashingtnn
Oregon....................................... 3 213
16
1
113
13
1
1 1 1
Utah
Northern California.................. 5
13
3
5
8
2
6
29
2
Southern California.................. 4 3 21
Arizona 1
Northern Texas 2 1
Western Texas 1 1 1 3 121
Western Oklahoma 11
Hawaii....................................... 21
21
4 3 1
Porto Rico
Total................................ 212 104 115 69 104 51 96 35 31 15
554 REPORTS OF DEPARTMENT OF LABOR.
Tab le 8. Miscellaneous Chinese transactions, fiscal year ended June 30, 1920, by port;
tn
Class.
United States citizens (Chinese) admitted
...............................
Alien Chinese admitted
Alien Chinese debarred........
Chinese granted the privilege of transit
m bond across land territory of
the United States..........................
Chinese denied the privilege of transit
in bond across land territory of the
United States.................
Chinese granted the privilege of transit
by water...................................
Chinese denied the privilege of transit
by water......................................
Chinese laborers with return certificates
departing..............................
Chinese merchants with return certificates
departing..............................
Chinese merchants’ wives -with return
certificates departing.....................
Chinese merchants’ minor children
fr^with return certificates departing...
Chinese students with return certificates
departing..............................
Chinese teachers with return certificates
departing..............................
Native-born Chinese with return certificates
departing..........................
R
&
®
£
123
32 38
3
32 98
32 2
25
20
64
stn
£
16
R
3
1,761
2,929
125
10,917
43
1,462
652
751
14
6
66
7
1,210
REPORT OF THE CHIEF OF THE DIVISION OF INFORMATION
FOR THE FISCAL YEAR ENDED JUNE 30, 1920.
U. S. Depa rt ment of Labo r ,
Bur ea u of Immig ra ti on ,
Div isi on of Info rma ti on ,
Washington, D. C., June 30, 1920.
Sir : Herewith is submitted the annual report of the Division of
Information.
The statute imposes upon the division the duty of promoting “ a
beneficial distribution of aliens admitted into the United States.”
That law was written after a thorough and exhaustive investigation
of the various phases of immigration and the effect of the same
upon the people, institutions, and industries of the United States.
The committee of Congress which reported its findings was impressed
by the necessity for properly and accurately informing aliens, on
being admitted into the United States, concerning the “ resources,
products, and physical characteristics of each State and Territory.”
The committee learned that certain well-disposed societies or individuals
benevolently inclined were desirous of extending a helping
hand to the arriving immigrant. They also learned that other institutions
and individuals not so well inclined were anxious to come in
contact with the admitted alien with a view to exploiting him by
taking advantage of his ignorance of our customs and language.
Runners for boarding houses, sweatshops, land speculators, coal
and transportation companies, and other institutions were numerous
and active in their effort to have aliens intrusted to their care on being
admitted. Self-interest and not the welfare of the alien or the land
he was entering lay at the base of nearly every move of theirs, and of
this the committee obtained ample proof. The Chief of the Division
of Information, although not then in the Government service, but acting
in the capacity of a private citizen, directed the attention of members
of the committee to several attempts on the part of self-seekers
to come in contact with and direct the movements of admitted aliens.
That committee was impressed with the belief that the future welfare
of the United States demanded that aliens should be truthfully
and fully informed concerning the “ resources, products, and physical
characteristics ” of the various States. It entertained the belief that
every citizen was entitled to the same information as that given to
the alien, and the passage of section 40 of the immigration act of
February 20, 1907, was the result.
When that law was written in 1907 it was of great importance that
aliens should be beneficially distributed, not for their sakes merely,
but for the sake of the country at large.
To-day no question that can come up for discussion and settlement
overshadows that of promoting a “ beneficial distribution of admitted
555
556 REPORTS OF DEPARTMENT OF LABOR.
aliens.” The duty imposed upon the Division of Information by
the acts of 1907 and 1917 becomes of vital concern to all the people of
the United States.
It would appear from reports of the activities of certain aliens during
the last three years and the additional fact that a number of aliens
were apprehended and deported from the United States for conspiring
against the Government that it is a question whether they were
“ beneficially distributed ” when they entered the country at our immigration
stations.
Congress, when enacting the statute under which the Division of
Information operates, believed that the care of admitted aliens should
not be intrusted to private interests, societies, or individuals. It was
the evident intent of the law to have everything connected with the
admitting, informing, and directing of aliens done by a Government
agency and Congress intended that that agency should be the Division
of Information.
With the breaking out of the war in Europe, and even before the
United States entered the war, the operations of the Division of Information
were necessarily so interfered with that its duty of informing
aliens and others, as provided by statute, was largely laid aside in
order that it could be utilized as the nucleus of the U. S. Employment
Service. The details of the transition period during which the division
served with the Employment Service and was again returned
to its old-time status in the Immigration Bureau are set forth in the
report for the fiscal year 1918, and repetition is not deemed necessary.
Moneyed men and organizations are now expending millions of *
dollars to “Americanize aliens ” who have resided in the United
States for years. They have discovered that in many instances the
faintest glimmer of a difference between the institutions of the
United States and those of the alien’s homeland has not shed light
on an approach to “Americanization.” This is in part due to the
indifference shown the alien when approaching our shores.
The Government appropriated a large sum of money to enable the
Department of Justice to ferret out and apprehend alien residents of
the United States suspected of being enemies of, or plotters against,
our Government, but it has not appropriated one cent to begin the
work of Americanizing admitted aliens at our immigration stations
the moment of arrival, and thus cause them to know our country
and its institutions as they are.
Less than one-tenth of the sum expended in ferreting out and deporting
“ Red ” aliens would have enabled the Division of Information
to meet the aliens upon arrival as immigrants, and begin the
work of making red, white, and blue Americans of them. That we
have “ Red ” aliens, uninformed as to our manners and customs, in our
country is largely our own fault, and with that thought in mind the
Chief of the Division of Information presented to the Secretary of
Labor, through official channels, the following:
MEMORANDUM.
To the Secretary: Dece mbe r 15, 1919.
A great deal of effort, much of which was wasted, has been expended on the
Americanization of foreign-born residents of the United States. Humanitarians,
uplifters, social workers, philanthropists, and faddists eagerly engaged in this
form of activity some few years ago, but as the months went by the novelty
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 557
of the undertaking dwindled and only those who were deeply in earnest continued
in the work.
It should be easy to Americanize those who come to us from foreign lands,
but in the undertaking self-help will be the deciding factor, for unless a man
or woman earnestly engages in a task either for self or another it will not be
done right, and if those who would Americanize others are really Americans
themselves they will miss no opportunity to Americanize a vast number of
people born on our soil—people, too, who may trace American-born ancestry
back several generations. The task of Americanizing the foreign born is
essayed after they have become residents of the United States, and it should
be kept in mind that the character and reputation of an Americanizer is carefully
inquired into by the Americanizee. If that character and reputation stand
the test, well and good if not, we should not expect a foreign born to become
any better than the native born.
The place to begin Americanizing is at the immigration station when , the
alien presents himself for admission to the United States. First impressions
are said to be lasting ones, and if that is true, let us see just what kind of an
impression would be left on the mind of the alifen in undergoing the ordeal of
passing inspection at the immigrant station. Confined for several days and
nights in the steerage of an immigrant ship, enduring the torture of cramped
quarters, sleepless nights, anxious days, subsisting on food that may or may not
be palatable or nutritious and with nerves always at a tension, the immigrant
is brought face to face with the immigrant inspectors, doctors, matrons, and
others. He is questioned by those who sometimes do their work in perfunctory
fashion and who put but few heart throbs into it. The head of the alien
is thrown back, he is told to open and shut his eyes without knowing why, his
scalp is examined, and if he is a healthy man he wonders just what they are
looking for in his hair. His chest is thumped, and all of this is done hurriedly,
without explanation to him, and he should not be blamed if he arrives at the
conclusion that he is being examined for entrance into a lunatic asylum or
possibly conscription into the Army or a working camp. Though spoken to in
his own tongue, an immigrant, even through the best of interpreters, gets but
an imperfect idea of what it is all about. He is not told that it is for his own
advantage that these precautions are taken, and while running the whole matter
over in his mind he is admitted, hurried ashore, packed into a railroad car,
and rushed off to his destination. During the entire time and, during these
proceedings not one smile is given him, not one word of cheering assurance
that he is welcome, not one single act to cause him to think that he is other
than an object of suspicion.
I am passing no condemnation on the process of admitting immigrants. The
time allowed and the funds provided by law are too limited to do more than
give a cursory examination to the aliens passing so hurriedly through the
process of inspection.
This country has thousands, perhaps millions of men and women who passed
our gates in wonder and amazement. The food concessionaire and the money
changer saw them; perhaps they were treated squarely, but I have a lingering
suspicion that some of the money changers do not always adhere rigidly to the
Ten Commandments in dealing with newly arrived aliens.
No effort has ever been made to convince these people that the land they are
entering differs in any respect from the one they came from. No effort has been
made to convince them that they are entering a country where the will of the
people becomes the supreme law of the land. Nothing has been done to assure
them of our welcome and that they may eventually take their places as citizens
of this Republic. Owing to lack of time and funds these vital questions could
not receive consideration. .
They should be told the moment of admission that they are entering here as
subjects and not as citizens. The word “subject ” should be explained to them
in its full significance, and thev should be told in kindly phrase in their own
tongue that once the mantle of American citizenship is placed upon their shoulders
they are no longer subject to any man or set of men known as sovereigns;
that the status changes from subject to citizen; and that thereafter, instead of
being subject to one man called a sovereign, they themselves become sovereigns
and stand the equal of all others before the law, which they themselves may
have a hand in framing.
No admitted alien should be permitted to depart from the immigration station
at which he is admitted until he has been given full information concerning
the country he is entering, and particularly that part of it to which he is
558 REPORTS OF DEPARTMENT OF LABOR.
lnes.tineih, In.^rY.ctl?ns Jn ho'v t0 get along, what avenues of advantage to folow,
what pitfalls, to shun, how to guard against rogues, swindlers, and eximPar.
ted- . “ The resources, products, and physical characteristics
ot the place he is going to should be explained to him. The names of
the proper officials in the town or city they are going to should be made clear
to them, and they should be told that these officials have no power over them
and no business to meddle with ably and properly. them so long as they conduct themselves 1peace-
The first thing that should be impressed upon all of them is the necessity for
studying and learning.the American language as quickly as possible, and they
should be warned against men of their own race who may have lived here for
yeai s, who may have acquired the American language, and who may attemot
to use it to their injury. . J 1
In a dozen different ways now known, and others which may become known
hereafter, our alien acquisitions should be carefully instructed in their rights
privileges, and duties before taking up their residence among us. A good place
to do this would be aboard ship during the voyage across the sea
A representative of the Division of Information should travel on every vessel
carrying alien immigrants to the United States. That representative should be
provided with a full line of up-to-date literature giving necessary information
concerning everything of advantage to the alien, this literature to be issued bv
the Division of Information or under its supervision.
States, counties, and towns desiring immigration could have descriptive
literature published in various languages and distributed through the Division
of Information on shipboard.
It is not necessary to enter into detail concerning the advantages of shin
travel instruction or the various items of information which could be given the
alien during the time consumed on the voyage. Each succeeding day might
disclose something of interest for the immigrant to know. What he would learn
in that way would be of service to him, of advantage to the United States and
tend to shorten his stay at the immigration station. Only those awaiting the
arrival of friends or desirous of studying more closely the possibilities of life
in this country would need to remain for any length of time at the station. It
should noi be left to the self-seeker and exploiter to prey upon men and women
who come to us with a view to better their condition among us and during the
process the word Americanization need not be mentioned.
A small silk American flag should be given to each admitted alien with a
brief history of its origin and its meaning. What it stands for should be impressed
upon them, and in the doing of all this the predominating characteristic
of the instructor should be kindness.
Each admitted alien should be told that on becoming an American citizen he
will not be asked to surrender love for his native land. A man on marrying
does not have to cease loving his mother because he promises to love another It
should be fully explained to him that he surrenders allegiance to the Govern
ment of his country and not love for his native land when he becomes an
We are complaining in the United States of the presence among us of that
child of greed and ignorance now called Bolshevism, but it is the same old manifestation
of distrust, discontent, ignorance of our ways and customs, and ignorance
of what we owe to each other that has been known to us under othernames
for the last 50 years.
Men come, here to better their conditions, it is true; but we have no riffiit to
find fault with them for not understanding us, since we do not take the time to.
go through the formality of properly introducing them to ourselves. This T
maintain is a duty incumbent on the Government, operating through the Bureair
of Immigration, iiT proper functioning of the Division of Information
A man, if honest and industrious, must be actuated by good motives and inspired
by high ideals to select the United States from among the nations of
earth as a future home. He must have come to believe, or at least hope that our
country and its form, of government are better than his Own. We can strengthen
that belief and inspire him with a stronger hope by meeting him in kindness
treating him humanely, and informing him accurately wherein our countrydiffers
from others, and where he may give full play to the power within him tocarve
out a home among us.
Steps.should be taken at once to impress upon the members of the Committee
on Immigration of the House and Senate that the most effective wav to prevent
Bolshevism in the United States, or at least reduce its swelling tide, is to tell
each admitted alien at the immigration station what it means to be an American.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 559
There is submitted herewith a draft of “ A Plan ” to receive, and impart information
to, admitted alien immigrants. It may be urged as an objection to
the “ plan ” that it will add to the expense of admitting immigrants, or to the
expense of regulating immigration; but in advocating the adoption of that
“ plan ” or a better one, it should be borne in mind and urged that no money
appropriated by Congress can be put to better use than the trifling sum which
may be necessary to carry on the work indicated in said “ plan.” Repressive
measures will not prove anywhere near as effective or as inexpensive as prevention
of necessity for such.
To put this “ plan ” into effect will not cost the taxpayers of the United States
one cent, for the immigrants who come to the United States will foot the bill. A
moment’s consideration of the laws regulating immigration will show that it
was the intention of those who, in Congress, enacted the first inmigration laws
to provide for the care of those entering the United States as prospective citizens.
The act of August 3. 1882, fixed a head tax of 50 cents on “ Each passenger
not a citizen of the United States who shall come to a port of the United States
from any foreign port, said tax to constitute a fund to be used * * * to
defray the expense of regulating immigration * * * and for the care of
immigrants arriving in the United States, for the relief of such as are in distress,
and for the general purposes and expense of carrying this act into effect.”
Acts of Congress passed since then increased the head tax from 50 cents to
where it now stands at $8. and provided for converting the money so collected
into the general fund, but the fact stands that immigrant aliens do pay a head
tax, that the money goes into the Treasury, and that no citizen will be burdened
to the value of one penny in putting this “ plan ” into practical operation.
It should be clearly apparent that the very best possible use to which this
money can be put is to expend it or a part of it in the work briefly outlined in
a “ plan ” herewith submitted for your consideration.
In conclusion, I deem it proper and timely to call your attention to a recommendation
made by me in the first annual report of the Division of Information,
submitted to the Commissioner General of Immigration on July 1, 1908.
Mr. F. P. Sargent, then Commissioner General, was in favor of the proposition
and was considering it at the time of his death, which occurred but a few
weeks after the report had been submitted to him. From that report I quote
the following:
“ To more effectually deal with the question of imparting up-to-date information
to admitted aliens and to warn them against the pitfalls ahead, it would
be well to assemble them, after admission and prior to departure, in a room
or hall connected with the immigration station, and there explain to them in
familiar language what to do and how to proceed after landing. The bulletins
of the Division of Information could be read and explained and, in case of
detention for any length of time, lectures on various topics of value to them
could be delivered. With this idea in view, the division early in the year instituted
inquiry as to the practicabilty of making use of lantern-slide exhibitions
and the phonograph in this work, and without argument in favor of its
benefits it is strongly urged that the matter be favorably considered.”
T. V. Pow de rly ,
Chief Division of Information.
■ “A PLAN ”
TO RECEIVE, AND IMPART INFORMATION TO, ADMITTED ALIEN IMMIGRANTS.
First. Every alien admitted at an immigration station should be carefully
instructed how to proceed after admission.
Second. Supplementing the instructions on board ship, a commodious hall,
or lecture room, should be provided and suitably furnished at every immigration
station.
Third. In every such hall a number of phonographs should be installed.
Suitable lectures, or talks, on topics relating to the Government of the United
States, its origin, the differences between it and the Government of the country
from which the alien came, should be carefully prepared and delivered through
the medium of these talking machines. These lectures or talks should be in
plain, simple language and in the native tongue of the newly admitted alien
immigrants.
Fourth. To each admitted alien should be given a small silk American flag.
The presentation of the flag should be accompanied by a talk on the flag, its
origin, its significance, and what it stands for.
560 REPORTS OP DEPARTMENT OP LABOR.
Fifth. In the lecture hall or room the flags of all nations should be suspended
• from the walls, or in evidence, with a large American flag fronting the audience.
Sixth. There should be present at each lecture, or talk, an official of the
Government competent to speak the language of the admitted aliens. The duty
of this official should be to answer questions and otherwise instruct those in
attendance.
Seventh. The bulletins of the Division of Information dealing with the “ resources,
products, and physical characteristics ” of the various States should
be ready for distribution at each lecture and proper explanation of their necessity
and importance orally imparted to those present.
Eighth. Each adult admitted alien should be presented with such bulletin or
literature as he might select, the same being inclosed in an envelope or wrapper
bearing his name, this to be obtained from the manifest. In the instructions
orally imparted and in the envelope containing literature for the alien full
information concerning how to become naturalized should be included.
Ninth. The importance of learning the American language as speedily as
possible and the necessity for so doing should be dwelt upon in a talk on the
phonograph, this to be supplemented by a statement from the interpreter,
who from personal experience should relate how very essential it will be to
know how to conduct business in the place where the alien may go to, in the
language of the United States.
Tenth. Everything should be done in such a way as to impress the admitted
alien with the idea and feeling that he is welcome, that he shall stand on an
equality with all others before the law, etc.
Eleventh. The surroundings of the immigrant alien at an immigration station
from the time of arrival to departure, either as an admitted alien or as a
deported one, should be cheerful, the treatment considerate and kind, while
everything should be as homelike as possible.
Twelfth. States, communities, or industries such as agricultural societies,
coal-mining associations, and associations of other industries (but no individual
company) should be permitted to have permanent exhibits in the hall referred
to, so that the admitted alien may be informed in detail as to certain industries,
the wages, hours, working and living conditions, the possibility of securing
employment promptly, and other matters of vital interest to the new
arrival. Provided always that any industry or association, before being allowed
to maintain such exhibit or distribute information in the hall referred
to, or at any other place provided by the Federal Government, must be vouched
for by competent State authority as to its integrity and ability to provide
all that it represents and in the manner promised, this in addition to convincing
the immigration authorities, through the Division of Information, that
its offers are genuine, its intentions good, and that it has the power to deliver,
the Secretary of Labor to reserve the right at all times to exclude any person
from the privileges mentioned, acting through the Immigration Service, upon
recommendation of the Division of Information.
Thirteenth. The foregoing relates chiefly to the work to be done at immigration
stations, but the principal and really important duty can be performed
on board the vessel carrying the alien to the United States. If the alien is
well and truly informed aboard ship he will not be so worried or ill at ease
when he presents himself for admission. He will be, as nearly as possible,
care free during the voyage, will be in receptive mind, will have time to formulate
and ask questions, and will have learned more to his advantage, and as a
consequence to our advantage, than if he awaits full instructions at the immigration
station.
It is admitted that existing facilities at the various immigration
stations are not adequate to the carrying out in full of the “ plan ”
outlined in the foregoing, but with full explanations and representations
to Congress it ought to be apparent that this long-delayed work
should be begun at once and an appropriation sufficient to begin the
work allotted.
It is recommended that during the next sitting of Congress every
effort be exerted to impress upon the members of the appropriation
committees the necessity for carrying this most important “plan,”
or a better one, into practical operation.
REPORT OF COMMISSIONER GENERAL. OF IMMIGRATION. 561
FIRST AID TO THE ALIEN.
In order that each arriving alien may know that the Government
of the United States takes a personal interest in his welfare, the
Division of Information prepared a leaflet, or card, to be handed to
each one on admission. The form of this card is such that it takes
but little space and may easily be retained for future reference.
It is said that in their haste and anxiety to land aliens in the past
threw away such literature as was handed to them—at least the
division was informed that they did.
With adequate force at the immigrant station to carry on the work
this difficulty may be obviated in future. The convenient form and
size of this card of instruction will commend it to the favor of the
alien, and when handed to him with a kind word advising that it be
retained for future reference there is little doubt that in most cases
it will be preserved and prove of service afterwards. The card is as
follows:
PRESERVE THIS—DO NOT PART WITH IT.
You are entering a country new to you; manners, customs, language, everything
is strange to you. To understand it all, you will need advice, direction,
and help, especially help. Self-help is best, and to be successful you should
learn the American language as quickly as possible.
In this Nation there are 48 States, and each one differs, more or less, in
climate, soil, products, opportunities for labor—in some agriculture and in
others manufacturing and mining.
After a short time you may wish to learn where to locate or to earn your living.
If so, the Government of the United States will offer you a helping hand and
tell you where to go and how to get there. Write, or have some friend write
for you, to the address given below and tell what you can do, where you would
like to go, and you will receive full information. You may wish to know about
shops, factories, mines, farming, schools, churches, or banks. If so, do not
hesitate to state fully what your wishes are, and you will receive an answer to
all your inquiries.
Address as follows: Divi sio n oe Info rmat ion ,
Bure au of Immig rat io n ,
Depa rtme nt of Labo r ,
Washington, D. C.
PREPARATION OF BULLETINS.
In its preparation of the bulletins explanatory of the “ resources,
products, and physical characteristics” of the various States, the
Division of Information has experienced a great deal of difficulty in
securing reliable data from State and county officials. Many of these
are new to their duties and do not appreciate the importance of having
the advantages of their States set forth in such a way as to give
a comprehensive idea of the advantages they have to offer to settlers,
either alien or citizen.
Some State officials have turned the requests of the division over
to “boomers” of corporations, but such literature as they have to
offer is not dependable in all cases, and the division has to grope
elsewhere for its data.
Much of what is required may be obtained from statistics gathered
by the Census Bureau of the Department of Commerce, but that is
not yet available, and as a consequence the completion of the full set
of bulletins is being held up. In the meantime correspondence has
to take the place of printed literature in responding to inquiries for
information.
15283—lab 1920-----36
562 REPORTS OF DEPARTMENT OF LABOR.
NEEDS OF THE DIVISION OF INFORMATION.
The division needs more office room and more clerical assistance.
This is a matter that can be discussed with you personally.
A representative at each immigration station to take charge of the
work of imparting information to admitted aliens is of vital necessity.
Such societies, charitable, religious, benevolent, or otherwise,
as may be accorded space or facilities to carry on their work, should
be under the scrutiny, if not the supervision, of a representative of
the Division of Information at every immigration station. No organization
of any kind or description at any immigration station
should be authorized to direct admitted aliens to places of employment
or inform them of opportunities for employment without the
knowledge and approval of the representative of the Division of Information.
This, of course, does not contemplate restricting the
activities of representatives of States appointed pursuant to the provisions
of section 30 of the immigration law of 1917.'
In order to properly, efficiently, and satisfactorily perform its duties
in the interest of the admitted alien and the country he is entering.
the sum of at least $100,000 should be appropriated by Congress
during its next session. No need can be presented to Congress
of greater concern, or of more pressing importance to the welfare
of the people or institutions of the United States than that of accurately
informing and properly directing newly admitted aliens on
the day and hour of their admission. It is the duty of the Government
to do this, and this duty should not be passed on to propagandists
of foreign Governments or any other agency that may seek
to influence aliens after they have been admitted to the United States.
RECIPROCITY BETWEEN THE BUREAU OF IMMIGRATION AND THE
VARIOUS STATES.
A great many, perhaps a majority of, aliens admitted to the United
States have their minds made up as to where they intend to go.
Neither the Division of Information nor any other agency has authority
to divert the course of such aliens, and as a rule they proceed
to the destination selected by them before they began their westward
journey. Many of them if informed, either on board ship or at an
immigration station, of actual conditions might of their own volition
change their minds in order to better their chances of securing
employment.
Many aliens on arrival at destinations selected by them before
leaving home find that conditions are not as they were represented
to be by an agent of some transportation company or other interested
party, and wish to change. It may happen also that close to
the place at which they arrive opportunities for profitable employment
exist, but in ignorance of that fact, they may undertake long and
expensive journeys to distant localities in the hope of finding employment.
If the card presented by a representative of the Division of Information
has been retained, they may improve their lot by corresponding
with the division as directed.
In any event, a record should be made and kept at each immigration
station, by one representing the Division of Information, of the
name, age, and calling of each admitted alien, particularly of those
REPORT OF ^COMMISSIONER GENERAL OF IMMIGRATION. 563
who are heads of families. A list of aliens going to any point in any
of the various States should be sent to the chief of the bureau of
immigration or to the chief of the bureau of labor statistics of the
State to which the aliens are destined. This official should be informed
of the destination of the aliens so that he may, if deemed
necessary, supply them with literature and information pertaining
to the advantages the State has to offer. In this way the State officials
may assist in improving the lot of the newcomers by directing
them to where they may find suitable homes, particularly as farmers.
If no other gain is apparent, the aliens will realize that the governments
of State and Nation are taking a personal interest in their
welfare, and they will not so readily fall a prey to land or labor
sharks who would mislead them. By this means they will be brought
in close contact with the Government of the land they live in and
will not yield to the wishes of those who would enlist their aid to
overthrow that Government.
EVERY EMPLOYEE OF THE BUREAU AN AGENT OF THE DIVISION OF
INFORMATION.
About a year after the Division of Information was established a
letter of instruction was issued by the Bureau of Immigration, as
follows:
Octo ber 14, 1908.
To Commissioners of Immigration and Inspectors in Charge, U. S. Immigration
Service.
Sirs : To aid the Division of Information of the Bureau of Immigration and
Naturalization in promoting a beneficial distribution of arriving aliens and others
as provided by act of Congress, it is directed that active cooperation be extended
to the said division and the same measure of attention given to the
work of this branch of the service as is accorded other immigration work.
It is directed that one employee, whose name is to be sent to the division as
early as possible, be detailed to take charge of information and distribution
work at each station; to receive and distribute documents; to keep and mail to
the division on proper blanks a comprehensive record of all applicants for information
and of those who are directed to employment; and to perform such
other duties as circumstances may require. It is understood that the person
so designated shall devote as much of his time, under the direction of his superior
officer, as may be necessary, and such designation shall not relieve him for
the remainder of his time from the performance of his other duties.
The fullest measure of assistance is expected and required.
Respectfully,
F. H. Larned ,
Approve,d : Acting Commissioner General.
Osca r S. Stra us , Secretary.
It is recommended that when the bulletins of opportunities for all
the States are ready for distribution a letter of similar import be
issued by the bureau.
There is no good reason why the entire staff of the bureau should
not take an active interest in this important work.
CONCLUSION.
The great interest now manifested in the work of educating and
“Americanizing” alien residents of the United States is an augury
of good to come through cooperation between the societies engaged in
such activities and the Division of Information.
564 REPORTS OF DEPARTMENT OF LABOR.
The Daughters of the American Revolution are at the present
time preparing to extend a welcome and a helping hand to arriving
aliens. Literature being prepared by this great organization will
be placed at the disposal of admitted aliens, and the Division of
Information is confident that the example thus set will prove an
incentive to others to cooperate in the work of giving our alien acquisitions
first aid to citizenship the day we welcome and afford
them a place among us. This first aid to citizenship should be extended
the alien together with full information concerning the State
or locality he is destined to. If he has no particular place selected
as a future residence, the representative of the Division of Information
should be on hand and fully prepared to answer all inquiries
and properly direct the newly admitted alien to where he may find
profitable employment and begin the work of Americanizing himself.
T. V. Powde rly ,
Chief of Division of Information.
Hon. A. Camin ett i,
Commissioner General.
APPENDIX III.
REPORT ON SEAMEN’S WORK.
U. S. Depa rtme nt of Lab or ,
Bur ea u of Immig ra tio n ,
~W ashington, June 30, 1920.
Sir : In submitting his report for the fiscal year 1919 the special
representative of the Bureau of Immigration on seamen’s work called
attention to changes in the seamen’s rule (rule 10 of the immigration
regulations), which general experience and special activities growing
out of the World War had shown to be necessary, and pointed out
that the year’s happenings had demonstrated the correctness of the
bureau’s oft-repeated view that reasonable restrictions could be enforced
successfully and with fairness to all concerned in the cases of
alien seamen so as, on the one hand, to prevent evasions and violations
of the immigration laws by aliens of the inadmissible classes
traveling in the assumed guise of seamen; and, on the other hand,
without any undue interference with the free and full operation of
the underlying principles of the seamen’s act; also, that proper control
is entirely consistent with the provisions of the established rights
and privileges of the seamen themselves, as well as the rights of the
various commercial interests engaged in the foreign trade.
Another year’s operations not only repeat but emphasize the experiences
of the first complete year under the revised regulations.
True, it has demonstrated, along with some other things, that the
provisions of the immigration act relating to seamen are not perfect
and need to be changed and strengthened in several respects; nevertheless
the regulations have been found to work effectively and to be
capable of being so applied as to accomplish, measurably at least, and
to a very considerable extent the purposes it is known Congress had
in view when enacting the seamen’s provisions of the immigration
law. Certain proposed changes in and additions to the law are discussed
hereinafter. The bureau’s view as to the necessity and practicability
of enforcing proper regulations in the cases of alien seamen
has been confirmed over and over again by the experiences of the
past year.
With the return of shipping to normal conditions, the seamen’s
work has attained such proportions as to challenge painstaking consideration
of its import. During the year 933,081 seamen employed
on vessels arriving from foreign ports were examined; of this number,
288,710 were furnished with identification cards, 4,775 were certified
to be afflicted with loathsome or dangerous contagious diseases,
of whom 3,958 were removed to hospital for treatment, and fines
amounting to $75,818.21 were imposed on vessels for violations of
sections 32, 35, and 36.
565
566 REPORTS OF DEPARTMENT OF LABOR.
SEAMEN’S IDENTIFICATION CARDS.
Several conferences have recently been had with the officials of the
Department of State with regard to the advisability and practicability
of discontinuing the use of seamen’s identification cards, but
as yet no definite conclusions have been reached. In view of the
changed conditions since the issuance of the proclamation of August
8, 1918, governing the issuance of passports and the granting of
permits to depart from and enter the United States, however, an
agreement was reached to abolish the system of viseing of seamen’s
cards, Forms K and L, upon the arrival of the holders. Even
though the State Department should decide to abolish the cards now
in use, it would be necessary under rule 10 of the immigration regulations
to return to the use of the old card, Form 685, as a means
of identification, as it is apparent from reports received from United
States consuls through the Department of State that a large number
of dangerous and undesirable aliens are using every effort to enter
the country in the guise of seamen. Obviously, there must be some
thoroughly practical method of identifying aliens who enter our
ports as seamen. It is known that many such desert; and while it
is also known that a majority of those deserting reship sooner or
later, there is always a good-sized minority who remain here unlawfully
and whose identification is important. The work involved in
issuing the cards will be materially reduced if a suggestion made in
last year’s report is adopted, to wit:
Should the passport regulations be discontinued and the control of seamen
revert to the Immigration Service, it is strongly urged that a supply of blank
forms of seamen’s identification cards be forwarded to the American consuls
at foreign seaports, with instructions to give the widest publicity to their use
and to notify all steamship companies having vessels sailing from ports within
their jurisdiction to ports in the United States that under the immigration
regulations no seaman in their employ will be permitted to leave the vessel
upon arrival at a port in the United States unless he is in possession of an
identification card bearing his photograph. If this plan shall be approved by
the bureau, a provision • should be inserted in the new immigation bill—now
pending before Congress—imposing a penalty of $10 on the master, agent, owner,
or consignee of any vessel arriving in the United States from any foreign
port or place who shall bring to the United States as one of the crew of such
vessel any alien not in possession of an identification card bearing his photo-’
graph, the fine not to be remitted or refunded in cases of seamen who are
furnished with identification cards by immigration officials prior to the departure
of the vessel foreign. In every instance when immigration officials
have served written notice upon the master to retain on board seamen who are
not in possession of identification cards, or for any other reason, an officer
should be detailed to the vessel to check up and verify the departure of every
such seaman.
CREW LISTS.
Ever since the bureau issued its circular letters of September 11
and 12,1919, there has been constant improvement in the enforcement
at most of the ports of the provisions of section 36 regarding crew
lists and lists of changes in crews. As the law has now been in
operation for over three years it seems strange, indeed, that some
masters still arrive at United States ports without having a crew
list prepared and ready for delivery to the boarding officer upon the
arrival of their vessels in port, and to deliver the same to said officer
upon his boarding the vessels in accordance with the provisions of
REPORT OF COMMISSIONER GENERAL, OF IMMIGRATION. 567
section 36. It appears that the principal excuse for the nonpresentation
of crew lists upon arrival is due to the interpretation of the
words found in section 36 of the statute, “ That upon arrival of any
vessel in the United States from any foreign port or place it shall be
the duty of the owner, agent, consignee, or master thereof to deliver
to the principal immigration officer in charge of the port of arrival
lists * * *,” the steamship interests maintaining that the words
“upon arrival” should be construed to mean within a reasonable
time “ after arrival,” for instance, as suggested by them, 12 or 24
hours thereafter. However, it has been repeatedly pointed out that
to adopt this policy suggested by them would prevent an expeditious
inspection, and the enforcement of that portion of the law relating
to seamen would be practically destroyed. This is especially true at
the larger ports which have many miles of water front, and where
it would be impossible to detail a sufficient number of inspectors to
make proper inspections. Formerly, many complaints were received
from the steamship interests to the effect that the words “ shall be the
duty of the owner, agent, consignee, or master to deliver to the principal
immigration officer in charge of the port of arrival lists * *
they pointing to the fact that section 36 printed on the reverse of
Form 680 (alien seamen crew list) is misleading in that masters
were under the impression that it was necessary for them to deliver
such lists to the immigration office after their arrival. As it is the
desire of this service to have the lists ready for the boarding officer
when he boards the vessel, and in order to clear up the possible alleged
ambiguity in this section, an additional notation is now stamped or
printed on all issues of Form 680 specifically setting forth that such
form “ shall be prepared and ready for delivery to the immigration
inspector boarding the vessel at the port of arrival, and shall in no
instance be taken from the vessel.” It now appears that this situation
has been clarified by the additional notation, and protests from
that source have practically ceased. The bureau has devoted considerable
time and energy to interviews with representatives of various
steamship lines and masters of vessels relative to the requirements
of the provisions of section 36 with respect to the presentation of crew
lists. Other than the excuses set forth above which have been offered
for not presenting Form 680 properly viseed by American consuls
was one to the effect that the consuls advised that the lists which
they had presented were sufficient provided they contained the consul’s
vise. In this regard it was pointed out that it was not incumbent
upon the consuls to prepare or furnish the required lists, but
rather was it incumbent upon the masters themselves, through their
agents, or otherwise, to familiarize themselves with the requirements
of entering ports of the United States; although in this connection it
might be stated that consuls usually have supplies of immigration
forms on hand and readily supply such forms to masters and advance
any information regarding entrance and clearance of vessels at ports
of the United States. It might be added that the Department of
State has twice during the past year cabled American diplomatic
missions in Europe directing them to—
Resume vis6 of crew lists. Use manifest form required by immigration law
instead of form previously prescribed by this department. Require additional
information in your discretion. Withhold bills of health until lists visaed.
Notify local officials and steamship companies. Instruct consuls.
568 REPORTS OF DEPARTMENT OF LABOR.
If masters of vessels would exercise the same care and interest in
regard to crew lists as they do in obtaining bills of health and passenger
and cargo manifests prior to their departure from foreign ports,
the necessity of imposing immigration fines would be reduced to a
minimum. Moreover, if the shipping interests engaged in foreign
trade would adopt a plan similar to the one put into operation by
the Shipping Board authorities at Washington, of issuing printed
instructions to all masters in their employ relative to the requirements
of the provisions of section 36 relating to the preparation and
time and place of delivery of the crew lists, Form 680, and the furnishing
of a report of changes in the crew, Form 689, to the principal
immigration officer at the port of arrival prior to the vessel’s departure
foreign, there would be a marked decrease of fines imposed
upon vessels for violation of the provisions of section 36. The bureau
is satisfied that in the interest of good administration it is justified in
recommending the imposition of penalties for the failure of masters
to deliver these lists containing information which is very essential
in the handling of cases of alien seamen arriving at ports of the
United States and departing therefrom.
REMOVAL OF DISEASED SEAMEN.
On account of the increasing demand for bed space in the marine
hospitals throughout the country for the care of War Risk and other
beneficiaries of the Public Health Service, and the refusal of other
hospitals to accept as patients seamen afflicted with venereal diseases,
it was found necessary in some instances to hold such seamen on
board and permit them to depart foreign with the vessel.
Conditions are such aboard most vessels that it is often practically
a physical impossibility to make promptly a thorough examination
with the object of discovering whether the seamen employed thereon
are physically sound or are suffering with any loathsome or dangerous
contagious disease. In the interest both of thoroughly safeguarding
the public against the spread of contagion and of protecting
the crews and in some cases the passengers and also reducing
to a minimum the confusion and delay which result from even
attempting to make thorough medical examination aboard vessels it
is the practice under the regulations to remove alien seamen suspected
of or certified to be afflicted with disease to an immigration
hospital or other suitable place where a thorough observation
and examination may occur and to furnish medical treatment to such
of the seamen as are diseased. The right of the department and the
bureau to enforce this practice has been questioned in some quarters.
It has been the contention of the department and the bureau that
the immigration officials are authorized to examine alien seamen
and remove such as are diseased or suspected to be so to hospitals
for treatment at the expense of the vessel. This contention is sustained
by the advice of experienced immigration officials and approved
by the United States district attorney at Norfolk, Va., and
incidentally sustained by the decision of the District Court for the
Eastern District of Virginia in a case entitled Anker W. Henricksen
v. Alector, in which Judge Waddill, while upholding the right of the
immigration officials to examine alien seamen and to place such seamen
in hospital for treatment at the expense of the vessel if they
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 569
should be found to be afflicted with any loathsome or dangerous contagious
disease, held that the vessel on which such seamen were employed
at the time of arrival could reimburse itself for expenses in
curred in connection with the treatment of such diseased seamen by
making deduction of wages due them.
Although the decision will undoubtedly be of assistance to the
department and the bureau in effecting settlement of hospital bills
by the responsible steamship lines, it is believed that all of the
present difficulties will practically disappear with the enactment of
the proposed legislation on the subject. H. R. 7930 only failed of
passage for lack of time, it having been favorably reported on
by the Senate Committee on Immigration, after having passed the
House of Representatives.
The bureau desires to point out that in addition to the benefits
that will accrue to seamen by preventing their entry while in a
diseased condition this method of action will be beneficial to seamen
as a class, and from an exhaustive study of the subject matter
believes that the procedure followed under the existing law and regulations,
not only lends encouragement to, but confers positive benefits
on, the American merchant marine.
GREAT LAKES SEAMEN.
Commissioner Clark, in referring to the work of the examination
of seamen on the Great Lakes, reports as follows:
There have been no instances in which seamen have deserted their vessels
and applied for admission as regular applicants nor were any seamen removed
to hospitals for treatment because of being afflicted with loathsome or dangerous
contagious diseases or otherwise.
The reports from the various subports indicate that the seamen regulations
are operating as satisfactorily as can be hoped for under the existing conditions;
it being a matter of record that immigration officers are not stationed
at all ports of call for vessels operating on the Great Lakes, although most of
these ports are covered by customs officers who are paid a nominal compensation
for their services in addition to their regular salaries as customs officers.
The class of seamen on the Great Lakes is undoubtedly superior to that
operating on the seacoast, it being quite a common occurrence to find a vessel
manned entirely by members of the same family, and in many instances vessels
have the same crews from year to year, recruited from the home town of the
master, or the immediate vicinity thereof. The fact that none of the seamen
examined were found to be afflicted with a loathsome or dangerous contagious
disease or other disabling ailment is in itself an indication of the class of
seamen employed on these vessels and the number of desertions is negligible.
DEEP-SEA FISHERMEN.
In accordance with the provisions of paragraph 41, confidential
instructions of August 8, 1918, it is the duty of immigration officials
acting as control officers in the enforcement of the provisions of the
act of May 22, 1918, to issue seamen’s identity cards to alien deep-sea
fishermen to sail from and land in the United States in pursuance
of their calling.
As a result of a proper enforcement of the regulations at the ports
of Boston and Gloucester, Mass., a number of aliens who were rejected
by boards of special inquiry at the seaports of Canada were
prevented from attempting to gain unlawful admission to the United
States in the guise of fishermen.
570 REPORTS OF DEPARTMENT OF LABOR.
The new immigration bill now pending before Congress includes
deep-sea fishermen in the definition of the term “seamen.” The
necessity of passing a law which will give immigration officials full
control and supervision over aliens following the occupation of
fishermen is found in the fact that reports which have reached the
bureau indicate that fishermen employed on boats operating out of
San Pedro and San Diego, Calif., are actively engaged in the smuggling
of contraband Chinese, Japanese, and considerable quantities
of opium and whisky out of Mexico.
RETURN OF SEAMEN TO PORTS OF THE UNITED STATES BY AMERICAN
CONSULS.
In view of the fact that the Public Health Service and the bureau
had failed by means of correspondence to reach an agreement on
the question of which branch of the Government service should
assume responsibility in cases of distressed American seamen (aliens)
returned to ports of the United States by American consuls, it was
decided to have the point at issue thoroughly discussed in conference
by representatives of the interested departments. During the conference
the representative of the bureau took the position that as
consuls are required under the navigation laws of the United States
to return to ports of the United States all destitute and distressed
American seamen (aliens), and as such seamen are, by virtue of their
previous employment on vessels of American registry, entitled to be
regarded as beneficiaries of the marine hospital fund, immigration
officials could not refuse such seamen permission to land in pursuit
of their calling or for the purpose of receiving care and treatment
in a Public Health Service hospital, provided such seamen were in
possession of documentary or other satisfactory evidence indicating
that they are bona fide American seamen (aliens) returned under
consular regulations. The representative of the Public Health Service,
however, expressed the opinion that such seamen (aliens) were
not entitled to be regarded as beneficiaries of the Public Health
Service, and when they were found upon arrival at ports of the
United States to be afflicted with any of the diseases or disabilities
enumerated in section 35 of the immigration act it was the duty of
immigration officials to institute deportation proceedings in all such
cases, and that all hospital expenses incurred pending deportation
were a proper charge against the appropriation “ Expenses of regulating
immigration.”
As a result of the bureau’s action in refusing to pay the hospital
bills or to institute deportation proceedings in such cases, the Public
Health Service referred the matter to the Attorney General and
requested an opinion as to whether that part of the seamen’s act
making provision for the return of alien seamen employed on American
vessels was repealed by the immigration act approved February
5, 1917, and stated:
The main point at issue appears to center on the decisions as to whether this
last-named statute (secs. 4577 and 4578, R. S.) is repealed, in so far as it concerns
alien seamen, by the immigration act of February 5, 1917, or is otherwise
affected by the act. If not, the obligation of the Public Health Service to
receive as a beneficiary the above-cited case would be clear.
re por t of commi ssi on er ge ne ral of immig rati on . 571
The Solicitor of the Treasury Department held:
The said immigration act, being general, and being the last expression of
Congress on the subject, repeals by implication only such laws as are in direct
conflict with its provisions. While the immigration act mentions several acts
expressly repealed by its provisions, it nowhere mentions the sea.men s act, and
if any provisions of the seamen’s act are repealed, it is only by implication.
*******
Inasmuch as the immigration act does not expressly repeal the laws governing
the return of sick or disabled American seamen, sections 4577 and 4578, K.
such laws are still in force and effect.
The solicitor further held that such mentally defective or diseased
seamen returned by United States consuls are not subject to exclusion,
but, rather, that they shall be admitted to the United States as
beneficiaries of the Government through the Public Health Service.
In this connection the bureau, under date of April 27, 1920, issued
a circular letter to all commissioners and inspectors in charge and
explained in detail the method of procedure which should be followed
in the handling of all cases of seamen (aliens) returned to ports of
the United States by American consuls.
The following tables show the number of seamen examined by our
officials at the various seaports, the number of vessels boarded, the
number of seamen’s identification cards issued, the number of seamen
certified for loathsome or dangerous contagious diseases and removed
to hospitals for treatment, and the amount and nature of penalties
imposed upon transportation companies, or the masters, owners, or
agents of vessels, for violations of those sections of the immigration
act which relate to alien seamen.
Alien sea-
District. Vessels Alien Seamen’s
cards
issued.
fled for
loathsome
seamen
removed to
boarded. seamen
examined. or
dangerous
hospitals
for treatcontagious
ment.
diseases.
New York.............................
Boston.............. ....................
Philadelphia..........................
Baltimore..............................
Norfolk..................................
Jacksonville..........................
New Orleans.........................
Galveston..............................
Seattle....................................
Portland................................
San Francisco.......................
Southern California ports...
Chicago..................................
Cleveland...............................
Montreal (other Lake ports)
Porto Rico............................
Honolulu...............................
Total............................
5,495
660
361,066
44,249
98,292
28,363
1,136
131
1,136
109
1,224 47,452 14,300 453 453
1,313 51,229 18,500 486 165
2,636 106,754 71,316 1,161 996
2,554 29,733 14,085 295 295
1,822 79,919 9,402 399 399
1,480 47,756 9,083 497 216
2,052 70,194 4,949 89 89
31 1,149 3,168
691 31,687 n; 717 99 71
996 8,764 1,131 2 2
17 408 126
18 248 248
3,861 2,592
1,038 17^349 '791 27 27
711 31,263 647
22,738 933,081 288,710 4,775 3,958
572 REPORTS OF DEPARTMENT OF LABOR.
A.dministi ative fines assessed against transportation lines on account of violation
of sections of immigration act relating to alien seamen.
District. Section.
New York.. 36
Boston............ 35
Philadelphia........
36
36
Baltimore........ 36
Norfolk........... 36
Jacksonville....... 36
New Orleans............... 35
Galveston....
36
36
Seattle............. 35
San Francisco....
36
36
Southern California
ports..................... Alaska........ 36 36
Total..........
___________ ”1
Number
assessed.
Amount
of fine.
Total
amount
assessed.
3, 756 $10.00 $37,560.00
3 50.00 150.00
100 10.00 1,000.00
149 10.00 1,490.00
824 10.00 8,240.00
951 10.00 9,510.00
171 10.00 1,710.00
2 50.00 100.00
1,344 10.00 13, 440.00
34 10.00 340.00
8 50.00 400.00
64 10.00 640.00
5 10.00 50.00
51 10.00 510.00
7 10. 00 70.00
•7,469 75,210.00
Cause of assessment.
Failure to furnish crew list.
Bringing diseased alien seamen.
Failure to furnish crew list.
Do.
Do.
Do.
.Do.
Bringing diseased alien seamen.
Failure to furnish crew list.
Do.
Bringing diseased alien seamen.
Failure to furnish crew list.
Do.
Do.
Do.
FINES IMPOSED IN COURT PROCEEDINGS FOR VIOLATIONS OF SECTION 32
New York....................... 32
Baltimore.................. 32
32
32
Jacksonville... . 32
New Orleans..................
Total................
32
1 $100.00
1 200.00
2 25.00
1 25.00
2 25.00
$183.21
100.00
200.00
50.00
25.00
50.00
Permitting alien seaman to land without
inspection.
Failure to detain diseased seaman
Do.
Permitting alien seamen to land without
inspection.
Do.
Failure to detain diseased seamen.
Appreciation should be expressed now and here of the cooperation
o± the immigration officials at the various ports and of the splendid
work by the Surgeon General’s Office and the various doctors of that
service assigned to duty of examining seamen. The work involved
m the enforcement of the provisions relating to seamen is not only
extensive but is a very important matter, and success in its performance
can be obtained only through that kind of close attention to duty
and cooperation in its performance which it is believed has generally
obtained among both sets of officers concerned during the past year.
Jer emia h J. Hur le y ,
Special Representative on Seamen’s Work.
Hon. A. Cami ne tt i,
Commissioner General.
APPENDIX IV.
REPORT OF SPECIAL REPRESENTATIVE ON CHINESE PRACTICE.
U. S. Depa rtme nt of Lab or ,
Bure au of Immig ra ti on ,
~Washing ton, June 30, 1920.
Sir : I have the honor to submit the following report in my capacity
as special representative of the bureau on exclusion work,
covering the fiscal year 1920. ....
During the previous year, upon two occasions, the writer visited
the various ports of entry, observing conditions, making suggestions,
and issuing instructions, with a view to the adoption of unilorm
and expeditious methods of handling Chinese cases, and in
further pursuance of this purpose much of his time during the
period covered by this report was spent in the bureau reviewing and
presenting appeal cases to the department and assisting generally in
directing the officers in the field.
It being apparent that the manifests covering Chinese passengers
and the descriptive lists for transits which had been in use for some
time were cumbersome and not readily adapted to their respective
purposes, new forms prepared by the writer were submitted and
approved by the bureau, and it is believed that their use will materially
facilitate and lessen the work at the various ports.
The procedure under amended rule 3 of the regulations, providing
that the cases of Chinese applying for admission be heard before
boards of special inquiry, and which was adopted in consequence of
a decision of the Circuit Court of Appeals for the Ninth Circuit,
has been a decided improvement, it is believed, over the. method of
examination by individual officers formerly in use, notwithstanding
the fact that because of the limited number of inspectors it has been
necessary to assign clerks to duty as board members. Undoubtedly
it safeguards the interests of the applicants, as .well as those of
the Government, as it results in more thorough investigations because
of the opportunity afforded each board member to observe and
question the witnesses and to cause the record to contain all the
information available which in his opinion is pertinent to the issue.
The chances for mistakes and misunderstanding are materially reduced,
opportunities for fraud are lessened, and a fair and just decision
made more likely because of the fact that each case is considered
by three officers instead of being left to the judgment of one.
In this connection, it is worthy of note that since the initiation of the
present practice the Government has been unusually successful in
securing dismissal of applications for writs of habeas corpus in the
cases of Chinese aliens, which are generally based upon the claim
that the hearing accorded is unfair.
573
574 REPORTS OF DEPARTAIENT OF LABOR.
However, it is recommended that subdivision 4 of this rule, providing
that where the board is not entirely satisfied from the evidence
submitted that the applicant is entitled to land 10 days shall be
allowed within which additional evidence may be presented, be rescinded.
The time consumed in investigating and passing upon applications
for admission is an important factor in these cases, and
frequently forms a basis for complaints to the department; and the
provision in question, which was designed to obviate the submission
of additional evidence after an excluding decision is rendered, has
not accomplished the result anticipated, apparently for the reason
that attorneys decline to submit additional evidence until they have
had an opportunity to review the record, which is not open for their
inspection until the applicant is rejected by the board. Consequently,
the effect of this rule is simply to delay final disposition of the cases.
It is intended that the applicant shall present at the original hearing
all the evidence available, and there would seem to be no valid reason
for accepting any evidence later, unless the applicant shows clearly
that it could not be secured at that time, in which event provision is
made for reopening the case.
A recent decision of the Supreme Court, in the case of United
States v. Chin Fong, holds that Chinese applying for return certificates
or readmission to the United States upon the ground that they
have been engaged in this country as merchants shall be required to
establish only that they have maintained such status for a period of
one year immediately preceding such application for return certificate
or departure from the United States, the question of their lawful
domicile, if in issue, to be determined by judicial process and not by
administrative officers. This will necessitate an amendment to rule
15 of the regulations, and will undoubtedly serve to increase the
number of applications of this character, the question of lawful residence
having been the basis for many denials in such cases in the
past. Experience has demonstrated that it would be futile in a majority
of these cases to institute proceedings before United States
commissioners.
The Chinese exclusion law has been modified by court decisions to
such an extent as in large measure to defeat its purpose of preventing
Chinese from entering the labor market of this country. It has been
held repeatedly by the courts that Chinese “ exempts ” permitted to
land and later found employed as laborers are not subject to deportation
unless the Government establishes that their entry was fraudulent,
or, in other words, that it was their intention at that time to become
laborers. Thus, while technically ruling, in accordance with
the statute, that the administrative decision is not final as to status,
they have, to all intents and purposes, placed the burden of proof
upon the Government, a condition which was not contemplated by the
act. Applicants admitted as the minor sons of domiciled merchants
are permitted to engage immediately in laboring pursuits, and the
ease with which others engaged as laborers and who can not show
lawful admission may establish citizenship before the courts renders
ineffectual any attempt to secure deportation through judicial process.
In the writer’s opinion, this situation can be remedied only by the
enactment of a new law, or at least by amendments providing that any
Chinese admitted as an exempt or as the minor child of an exempt
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 575
who shall be found at any time subsequent to such admission employed
as a laborer, and any other Chinese laborer not in possession
of a certificate of residence, shall be subject to arrest and deportation
upon departmental warrants.
It is probable that more Chinese cases have been considered at the
ports and by the bureau during the past year than ever before during
a similar period. Considering the difficulties encountered, particularly
in maintaining a force of competent employees in the face of inducements
offered outside of the Government service, the bureau is to
be congratulated upon the manner in which the law has been enforced.
H. R. Siss on ,
Special Representative (Exclusion "Work}.
Hon. A. Cami ne tt i,
Commissioner General.
APPENDIX V.
REPORT OF OFFICER IN CHARGE OF DEPORTATION AND
TRANSPORTATION.
U. S. Depa rt men t of Lab or ,
Bur ea u of Immig ra ti on ,
Washington, June 30, 1920.
Sir : I have the honor to submit herewith a report of the deportation
and transportation section for the fiscal year ending June 30,
1920. As this is the first annual report of this section, I shall first
outline in detail how this work is being carried on. This phase of
the _ bureau’s work was formerly handled in the Correspondence
Division, but after the war it increased so rapidly that it became
necessary to organize a section. The section was organized in June
1920.
TRANSPORTATION OF ALIENS EAST AND WEST.
Deportation parties to the west coast generally have their starting
point at New York. At Chicago the party is transferred to a
Southern Pacific barred car, and arrangements have been made
whereby that company furnishes the department with guards and
meals at a fixed rate to each point involved. This saves annually
a tremendous amount of money to the Government because of the
fact that the rates for meals and guarding are so much cheaper than
if the department had to pay those ordinarily charged by the railroad
companies. It also does away with the department’s having
to furnish guards, which is another great saving.
Parties from the west coast to the east coast generally leave San
Francisco or Seattle. A specially constructed kitchen coach is furnished
by the Southern Pacific Railroad, and meals are furnished
at the rate of 75 cents each. The meals are prepared in this car
and thus the aliens do not have to change during the time they are
being fed.
ORGANIZATION OF PARTIES.
A record is kept in the bureau of the outstanding cases of aliens
for whom warrants of deportation have been issued. When a
party is about to be formed, these names are gone over and certain
ones selected to be taken to Mexican border points for deportation
to Mexico, or to San Francisco for deportation to Japan, China, or
Mexico, and others to be brought forward to points east for deportation
to European countries or to Canada. Each district is
then notified that a deportation party will start from a given point,
and a request is made to each district for the names of aliens they
have ready, their list being compared with that in the bureau. In
this way the bureau may keep a check on cases to be added to a
party, which the district concerned does not report. When the
576
REPORT OF COMMISSIONER GENERAL, OF IMMIGRATION. 577
* time for the departure of a party is agreed upon, itineraries are sent
to each of the districts, which show over just what railroads the
party is to travel, and what points it will touch; and the districts
are instructed to join their aliens at the point nearest them, through
which the deportation train passes.
DEPORTATION OF ALIENS.
During the past fiscal year there were nine round-trip deportation
parties, and one party to El Paso. By round trips is meant
that a party leaves New York for San Francisco, for instance, and
when returning picks up aliens going to New York or the Canadian
border for deportation. There were 709 aliens of all classes deported
in these parties. Of course, these regular deportation parties can
not take care of all of the aliens under order of deportation. For
instance, Montreal may secure information from Ellis Island that
a sailing date for certain aliens can be obtained, and if the aliens are
brought forward immediately they can be deported without delay.
This, of course, is due to the passport regulations, which will be
taken up later, and also to the infrequent sailings of certain lines
which have not yet recovered from conditions incident to the war.
Outside of the regular deportation parties there were delivered by
immigration officials to different ports 770 aliens, making a total
of 1,479 aliens transported to points in the United States for deportation.
During the past fiscal year there were 2,762 aliens actually
deported. There is a difference between the number of aliens transported
to different ports for deportation, and of those actually deported,
but this is due to the fact that many aliens were deported in
the districts in which their cases originated and therefore were not
transferred to another district.
Herewith is submitted a statement showing the number of warrants
of arrest issued, the number of warrants of deportation issued,
the number of warrants of arrest and deportation canceled, and the
number of cases in which action was deferred, covering the period
from July 1, 1919, to June 30, 1920.
Month.
1919.
July.................................
August............................
September......................
October.........................
November.......................
December1....................
1920.
January1........ ...............
February....................... .
March.............................
April..............................
May.................................
June............................... .
Total........ ........... .
Warrants issued. Warrants canceled.
Action
deferred.
Total.
Arrest. Deportation.
Arrest. Deportation.
354 141 49 839
334 167 116 34 651
213 148 71 32 464
255 210 103 60 628
801 234 85 1,155
3,067 418 103 60 3,648
2,797 200 219 44 3,260
'379 167 160 56 762
461 464 256 34 33 1,248
330 318 1,269 33 104 2,054
482 430 582 91 48 1,633
378 370 814 103 83 1,748
9,851 3,421 3,919 261 638 18,090
1 During these months a large number of warrants of arrest were issued for aliens falling within the anarchistic
provisions of the immigration law.
15283—la b 1920----- 37
BSD
578 REPORTS OF DEPARTMENT OF LABOR.
ALIENS DETAINED IN STATE INSTITUTIONS FOR THE INSANE FOR
WHOM WARRANTS OF DEPORTATION HAVE BEEN ISSUED.
On account of the war and due to infrequent sailings the number
of aliens in State institutions for the insane accumulated to a great
number, and it has been possible only in the last three or four months
to make any headway in giving relief by the deportation of the
aliens detained therein.
The writer is pleased to advise you, however, that in all State institutions
west of the Mississippi River the congestion has been relieved,
and there are very few cases, with the exception of Russians, whom
we can not actually deport at this time. In those institutions east
of the Mississippi River the situation has been relieved to some
degree, but owing to the vast number of anarchist cases handled in
the bureau no such relief is felt as in those west of the Mississippi.
However, the last months have seen a great many of these aliens
deported, and the situation has cleared to such an extent that it is
safe to say that within the next six months this problem will be settled
to the satisfaction of all concerned. This statement is based on
information received from several of the steamship companies to the
effect that travel to foreign countries is not as heavy as it has been,
and that accommodations may be secured without much trouble.
It might be stated further that when the armistice was signed it
was figured that there were approximately 3,000 deportable aliens
confined in institutions all over the country, and it may safely be
said that this figure has been cut in half during the past year, and
that there are probably not more than 1,400 or 1,500 aliens now confined
in institutions throughout the United States.
PASSPORTS.
Another problem with regard to deportation, which confronts the
department, is that of securing passports. The English, German,
Swiss, Roumanian, Swedish, Norwegian, and Jugo-Slav authorities
require that the department submit documentary evidence in each case
before the passport can be issued. In addition to this documentary
evidence, the Germans, Roumanians, and Swedish insist that any
aliens who have been out of their countries for a period of 10 years
lose their nationality, and are no longer citizens of those countries.
The situation is a difficult one in this connection, inasmuch as very
few aliens who have been in the United States for approximately four
years, can show documentary evidence proving their citizenship. In
connection with this 10-year period, an alien may have been away
from, say, Sweden for 10 years, but have been in the United States
for only two years, yet we can not secure a passport for him, and the
alien will probably become a permanent charge on the United States.
In the case of the Germans, the 10-year period starts prior to 1914.
Unless some kind of compromise is made on this question, the
bureau will be compelled in almost every instance to communicate
with the American authorities abroad, through the State Department,
and endeavor to obtain the necessary evidence. This, of
course, will create a long delay, and it is feared that it will serve to
hold up many deportations during the coming year.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 579
ORGANIZATION.
This section, as now organized, is composed of three persons. Another
clerk is badly needed because of the many outstanding cases
to be examined to determine whether warrants of deportation can
be canceled, whether the aliens can be deported, or just what has
become of the aliens involved.
That portion of the service involving transportation of aliens to
certain points for deportation is in charge of Deporting Officer E. M.
Kline. Mr. Kline took charge of this work in February, 1920, when
the writer was assigned to duty in charge of the deportation and
transportation section. Mr. Kline had formerly been in the employment
service, and was familiar with forming parties such as those
which are now organized. He is thoroughly familiar with this phase
of the work, and should be complimented on the efficient manner in
which he has conducted it since February of this year.
In the field service there should be a regular force handling deportation
cases. This system is now in effect at only a few immigration
stations, and many times when aliens are delivered to the train the
officer delivering them is not in possession of the documents needed
to deport the alien. The organization at San Francisco with regard
to this work is one of the best in the service. There certain employees
are assigned to the deportation and detention division, and work on
warrant cases exclusively. These cases are handled entirely by this
division until the aliens are delivered to the deporting officer for actual
deportation. This should be applied at all large stations. Of course,
at small stations at which only two or three men are employed this
would not be possible, but even at these points one man could be
designated to handle the deporting end of all cases.
In connection with the securing of attendants necessary for deportation
parties, it is recommended that specially designated persons be
assigned to this work. In case this is not possible and the department
finds it necessary to secure these people outside, they should be persons
of suitable qualifications, men or women connected with institutions
or with some municipal or Federal organizations, such as the
police department, United States marshals, sheriffs, etc., who are
accustomed to handling prisoners of this kind.
The work in this section is increasing daily, and it is believed that
by the end of the next fiscal year the section should be one of the
largest in the bureau. It is operating efficiently, and the writer
wishes to take this opportunity to thank all of the officers and employees
here in the bureau at Washington, who have so ably cooperated
in helping to organize it.
Leo B. Rus se ll ,
Immigrant Inspector in Charge,
Deportation and Transportation.
Hon. A. Cami ne tt i,
Commissioner General.
APPENDIX VI.
REPORTS OF COMMISSIONERS, SUPERVISING INSPECTOR, AND
INSPECTORS IN CHARGE OF DISTRICTS.
The following compilation from the reports of commissioners of
immigration, supervising and other inspectors in charge, giving in
detail the transactions for the year of the respective districts, and
the views of such officers upon immigration matters, is inserted for
information.
COMMISSIONER OF IMMIGRATION AT NEW YORK, IN CHARGE OF
DISTRICT NO. 3, COMPRISING NEW YORK AND NEW JERSEY AND
THE IMMIGRATION STATION AT ELLIS ISLAND, NEW YORK HARBOR.
I hereby submit a brief summary of the work performed at the Ellis Island
Immigrant Station during the fiscal year ended June 30, 1920, so far as I have
ascertained the facts since assuming office in May last.
The number of aliens who arrived and the disposition made of them is shown
by the following table. The figures are approximately correct, but some slight
corrections may be found necessary upon rechecking.
APPLICATIONS (INCLUDING CHINESE).
Total number who applied for entry__________________ 328, 269
Total number admitted_____________________________ 325, 799
Total number debarred_____________________________ 1, 722
Of the 1,722 debarred, 764 were stowaways, 324 were unable to read, 264 were
persons likely to become public charges, 107 were certified for tuberculosis or
loathsome or dangerous contagious diseases, 49 were suffering from mental defects,
including insanity, 86 were physically defective, 41 were contract laborers,
28 were excluded under the passport and vise regulations, and the balance on
miscellaneous statutory charges.
Appeals from excluding decisions were filed to the number of 2,160, and 41
aliens made application for hospital treatment; 498 aliens were admitted outright
by the department on appeal, 40 were landed for hospital treatment, and
1,422 on bond.
On comparing the total with that for the preceding fiscal year (62,304), it will
be observed that five times as many aliens arrived during the year just closed.
The increase has been marked each month since January last, and there is no
indication that it has as yet reached the highest point. Upon assuming office
it was found that the available force was quite inadequate to handle the situation
properly, but this condition will be referred to in detail later.
SEAMEN.
One of the additional duties imposed upon the immigration authorities under
the act of February 5, 1917, is the inspection of alien seamen arriving as members
of crews. The following table gives concisely a few of the particulars
concerning this part of our work:
Total number of vessels inspected--------------------------------------------- 5, 495
Total number of seamen inspected-------------------------------------------- 361,066
Alien seamen’s identification cards issued------------------------------------ 64,639
Citizen seamen’s identification cards issued---------------------------------- 33, 653
580
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION, 581
Alien seamen ordered to Edis Island hospital, account of venereal disease
------------------------------------------------------------------------------ 822
Alien seamen ordered to Ellis Island hospital for other causes, trachoma,
etc---------------------------------------------------------------------- 47
Alien seamen ordered or permitted to remain in ships’ hospitals for
treatment, account venereal disease, etc______________________ 15
Alien seamen ordered to outside hospitals for treatment, account
venereal disease, etc______________________________________ 252
Total number of alien seamen ordered to hospitals___________ 1,136
A conscientious effort has been made to examine all arriving alien seamen,
but owing to the shortage of the force it not infrequently has happened that
small vessels could not be boarded immediately upon arrival, and when our
inspectors reached them it was ascertained that members of the crew had gone
ashore. The crews of some of the larger passenger carriers exceed 1,000 in
number, and here again—owing to the inadequate force and the failure of the
steamship companies to detain these men aboard ship until inspected—it has
frequently occurred that a number of them were not examined.
So far as securing accommodations for members of crews who may be found
upon medical examination to be diseased, the situation has been considerably
relieved by the ability of the Public Health Service to accept a large number
of such seamen in the Ellis Island hospitals, which said service is now operating.
However, they are a very troublesome class to keep in detention, particularly
those suffering from venereal diseases, and, notwithstanding all reasonable
precautions which the hospital authorities have taken, a number of
these diseased seamen have succeeded in escaping. r
' Of the arriving seamen, 744 made formal application for admission to the
United States. Of these, 11 were rejected and deported and 13 admitted on
appeal after rejection by boards of special inquiry.
STOWAWAYS.
As will be shown by the following table, there arrived and were detected
three times as many stowaways as during the preceding year:
Total arrivals_____________________________________ 1, 264
Pending July 1, 1919------------------------------------------------ 17
Admitted:
At port____________________________________ 267
On appeal to department_____________________ 35
----- 302
Total debarred_____________________________________ 764
Pending July 1, 1920------------------------------------------------- 215
Chinese:
Debarred______________________________________ 6
Admitted---------------------------------------------------------- 5
Japanese:
Debarred_______________________________________ 7
Admitted ------------------------------------------------------- 0
Aliens who arrive in this manner are usually of a very undesirable class,
and extremely troublesome while in detention. Many come on small ships and
the lines concerned have infrequent sailings, so that the detention is sometimes
prolonged. There have been approximately 100 of these stowaways detained
here at one time, and their obstreperous actions and numerous attempts to
escape have added greatly to the usual difficulties. It is not intended to convey
the impression that stowaways usually arrive on smaller vessels, since
some of the larger passenger carriers have brought in from 8 to 15 on one trip.
It seems that some of the companies concerned do not take adequate precautions
to see to it that unauthorized persons are prevented from getting aboard
their vessels abroad.
WARRANT PROCEEDINGS, IMPOSITION OF PENALTIES, FINES, ETC.
The year just closed has been a very busy one in the law division. Under
“ Court actions ” is set forth in detail the activities during the past year, including
writs of habeas corpus and suits instituted under various sections of
the law.
582 REPORTS OF DEPARTMENT OF LABOR.
COURT ACTIONS.
Fines for violation of various sections of the immigration act and penalties
on forfeited bonds amounting to $2,828.21 were recovered during the fiscal year
as follows: Section 8, $20; section 10, $1,600; section 20, $1,000; sections 32 and
33, $183.21; compromise settlement on bond requiring reports as to location
and occupation of alien, $25.
Nineteen court cases carried over from previous fiscal years are still unsettled,
7 cases pending from the fiscal year 1919 have been disposed of, and 44 new
cases have been reported by this office to the United States attorney for appropriate
action during the fiscal year just closed; 39 of these cases are now
pending in the courts or the United States attorney’s office, 2 have been discontinued,
2 defendants were sentenced to fines and imprisonment, and penalties
on 2 bonds were recovered.
Writs of habeas corpus were sued out in behalf of 30 aliens who were the
subject of deportation proceedings, and 9 who were excluded by boards of
special inquiry; 14 of the writs were dismissed, 17 were sustained, 6 were
withdrawn, and 2 are pending.
EXECUTIVE FINES.
Executive fines aggregating $89,000 were imposed. These fines are not
credited to the appropriation for the conduct of the Immigration Service, and
possibly it would not be advisable to have this occur; but certainly Congress
should take some heed of this item in making appropriation.
One hundred and thirty-two steamship companies, agents, and consignees
were penalized for infractions of sections 9, 14. 18 and 36 of the immigration
law, fines having been assessed by the Department of Labor and certified to
the collector of customs at this port amounting to $89,000, as follows: For
bringing illiterate aliens, $41,800; for improper manifesting, $4,840; for failure
to guard, detain, and deport excluded. aliens, $4,800; for failure to furnish
proper crew lists, $37,560.
WARRANT PEOCEEDINGS.
There were 1,246 warrant cases pending at the beginning of the fiscal year,
694 of which are still pending. One hundred and seventy-four of the aliens
concerned were deported, and warrants were canceled as to 378 others. During
the fiscal year 1920 warrants were issued in 1,179 cases. Of these, 628 were
canceled after the requisite hearings, 409 are still pending, and in 142 cases
deportation occurred. Particular attention is called to the fact that in 214 of
the pending cases the warrant of arrest has not been served by reason of the
inadequate force.
The foregoing relates only to cases arising in this particular district, and
has no bearing upon the many aliens brought here from other districts under
warrants of deportation for return to the countries whence they came. It will
be recalled that on December 21, 1919, 249 aliens, nearly all of whom were of
the anarchistic class, were deported to Russia on S. S. Buford. Among them
were the notorious Emma Goldman and Alexander Berkman. On January 3.
1920, and succeeding days approximately 700 aliens, presumably of the anarchistic
class, were arrested and brought to Ellis Island. The task of according
hearings, accepting bonds authorized by the department, and the many
details incident to such transactions, was a tremendous one.
Many of the aliens who have become public charges or whose deportation has
been ordered on other grounds must be sent at the expense of the Government.
There have been no sailings to some countries, and to others sailings are
infrequent; and to further complicate the situation, the passport requirements
are now such as to compel the assignment of two capable men to this work
alone. Even though they are now experienced and are energetic in obtaining
required details and submitting the applications to the respective consulates,
there are approximately 70 cases now pending in which up to the present time
it has been impossible to meet the various requirements; and until these passport
requirements are withdrawn or amended, deportation can not be accomplished.
PASSPORT OR FOREIGN PERMIT WORK.
Since about September, 1918, it has been the duty of the immigrant inspectors
at this port to assist the State Department in the issuance of permits to
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 583
various classes to depart. These requirements have been amended in many
respects during the past year and the work somewhat curtailed; but notwithstanding
this latter fact, 15,339 such permits were issued through the division
of this office handling this class of work at the barge office.
FINANCIAL.
It cost $408,326.64 for supplies and such minor repairs as it was feasible to
make with the money available. The chief item of this expenditure was coal,
and even at the increased prices much difficulty was experienced in securing
the required quantity, and on several occasions the necessity of closing down the
plant was just avoided, which would have meant the closing of the hospitals
and the entire station. Another item is that of fresh water. With increasing
immigration the bills for fresh water have grown greatly, and it is anticipated
that the average will be about $3,000 per month hereafter. Owing to lack of
funds many needed repairs to the buildings, including a restoration of impaired
hot-water,' steam, and fresh-water supply lines necessarily were not made;
but unless these important matters receive attention there will be dire results.
Although not a part of the governmental expenditures, a great volume of
business is handled in remittances for immigrants and the deposit by them of
money and valuables for safe-keeping. During the fiscal year just ended there
were 7,335 remittances, the value of which aggregated $695,138.02. The aliens
for whom 1,415 remittances had been sent could not be located or properly identified,
and these remittances were returned to the senders.
In 958 instances aliens deposited funds for safe-keeping during their temporary
detention here. The value of these deposits aggregated $473,857.81. While
it is undoubtedly to the aliens’ interest to have this office receive these valuables,
the feeling is expressed that the employees should not be burdened with and
held accountable for such deposits, particularly as it involves a great deal of
detail, and that the time of the clerks should be devoted to current business.
Likewise as to the remittances, it is felt that it is not a legitimate part of the
duties of this office to accept and distribute the same. If the steamship companies
which bring these aliens to the United States saw to it that they were
properly equipped with funds and transportation to destinations prior to their
embarkation abroad, the service would be relieved of this great responsibility.
There is some question as to whether aliens who come here so poorly provided
as to burden the Government with this work of receiving funds for them should
not be excluded and deported. Certainly there is a question as to the likelihood
of their becoming a public charge at the time of their arrival.
There are many matters relating to personnel, repairs to buildings, and the
welfare of the alien while detained here which have been taken up by correspondence
and orally, and which it is not deemed necessary to dwell upon in
this brief summary of the yearly transactions. It is highly essential that the
situation here be impressed upon Congress in a most energetic manner, so that
it may realize the necessities of the service and make such appropriations as
will enable this dffice to conduct its very important business in a creditable
manner.
The following report submitted by the Chief Medical Officer gives the details
of the medical examination. It is unnecessary to comment upon the great
importance of a thorough medical inspection of all arriving aliens, and the
report of the Chief Medical Officer justifies careful consideration.
REPORT OF CHIEF MEDICAL OFFICER.
With the termination of actual hostilities November 11, 1918, and the gradual
release of ships from military service during the succeeding six months a
new epoch in immigration may be regarded as having begun. During the two
years preceding June 30, 1920, the numbers of arriving aliens had declined to
the lowest in a generation.
While there was a slight increase of passengers during the fiscal year 1919
as compared with 1918, the numbers being 55,191 for 1918 and 62,253 for 1919,
no marked increase was observable until after the beginning of the fiscal year
1920. During this last-mentioned year the passengers and crews arrived at
New York from foreign ports were as follows:
584 REPORTS OF DEPARTMENT OF LABOR.
Aliens:
Cabin------------------------------------------------------------ 120,986
Steerage______________________________________ 212, 741
Total----------------------------------------------------------- 333,727
Citizens:
Cabin------------------------------------------------------------ 67, 877
Steerage--------------------------------------------------------- 17, 643.
Total_______________________________________ 85, 520
Grand total aliens and citizens_______________________ 419, 247
Crew (aliens)____________________________________ 361, 068
Grand total aliens, citizens, and crew____________ 780, 315
SURVEILLANCE OF MEMBERS OF CREWS.
The examinations of members of crews were made aboard ship on arrival,
with occasional examinations of individuals in the barge office. The numbers
increased somewhat during the year. These may be expected to vary within
narrow limits from year to year.
As previously reported, venereal diseases formed the bulk of all cases of
seamen held under the immigration law. The practical result was their treatment
until cured of these affections.
In consequence of the detention of those suffering from venereal diseases, it
is understood some of the largest steamship companies have instituted regular
systems of inspection to exclude such cases from among their crews.
In accordance with department policy, the expenses of care and treatment of
alien seamen apprehended under the immigration laws have been referred to
the Commissioner of Immigration for reimbursement, regardless of whether
such seamen were from foreign or American ships.
EXAMINATION OF PASSENGERS.
The number of arriving passengers was over five times the number examined
in either of the two preceding years; in fact, the annual immigration during
these years is believed to be less than for 50 years, if not for a century. Until
March 16, 1920, all examinations of passengers and crews were made aboard
ship. On the date mentioned the medical inspection of steerage passengers was
resumed at Ellis Island. With present facilities it is practicable to carefully
examine the steerage passengers arriving, each one being seen by two medical
officers.
The necessity of thorough work is fully recognized and the medical inspections
are being developed accordingly. In order to do so, a number of officers
eminent in the specialties have been assigned to devote part time to cases in
their specialties. In addition, staff conferences have been devoted regularly to
the medical problems arising.
As compared with social and economic questions related to immigration,
there are medical and public health problems which require special consideration
at this time. Thus it is a reasonable requirement that vermin-infected
persons should not be dumped on our shores, particularly in view of the widespread
prevalence of typhus fever in Europe. Furthermore, those generally infected
with scabies should be required to undergo treatment before landing,
otherwise there is danger of the spread of this infection.
Especially is it important to inquire carefully as to the freedom from tuberculosis,
insanity, and mental defects. For this purpose it is necessary to hold
for thorough secondary examination large numbers from certain sections.
In general, the physical types arriving have been equal to those of previous
years, but it is believed they represent selections from among hosts who desire
to come. Judged by physical conditions and habiliments, they give little evidence
of adverse environment abroad.
EXAMINATION AND TREATMENT OF WARRANT CASES.
Under the immigration laws aliens previously landed are constantly being
gathered up on warrants and brought to Ellis Island from different parts of the
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 585
United States. All of them must be examined to determine whether they may
be safely detained in the main building or whether by reason of some physical
or mental disability they should be kept in hospital.
During the past year the number of this class examined has been considerable.
Many of them have had to be sent to hospital on account of insanity, or
have found their way there later on account of developing some infectious
disease, especially respiratory, while in detention.
It has been the practice for years for medical officers to visit the detention
rooms at least three times daily to minister to those who may be sick. By this
means also the spread of contagious disease is guarded against.
AN OUTBREAK OF INFLUENZA.
Notwithstanding these precautions an outbreak of influenza developed and
rapidly spread in the detention rooms during December, 1919. While outbreaks
of coryza and tonsilitis had been noted from time to time among those detained,
no specially severe cases were recorded until the last week of December, when
the number of admissions to hospital suddenly increased. Many of the cases
were complicated by pneumonia and many additional cases were diagnosed
pneumonia from the outset.
The total number of cases of influenza admitted to hospital during this outbreak
were 1 each day during October and November, 15 during December, 52
during January, 10 during February, 11 during March, and 2 during April. The
total number of cases of pneumonia during like periods were: Seven during
December, 48 during January, 16 during February, 23 during March, and 13
during April. Not only were aliens in detention affected, but officers and employees
as well. The outbreak preceded in point of time the recrudescence of
the" epidemic throughout the country. There was no evidence that the infection
came from abroad. In fact, the bulk of the cases were among so-called
radicals who had just previously been collected together from many parts of
the country. Conditions analogous to those prevailing in the military camps
during 1917 were approximated, when large numbers of young nonimmunes
were assembled in crowded quarters. An outbreak of respiratory diseases was
the inevitable result, the infection having in all probability been brought to the
station by them.
DEVELOPMENT OF HOSPITAL FACILITIES.
On July 1, 1919, the hospitals were returned by the Army to the Immigration
Service, and their administration was resumed by the Chief Medical Officer for
the latter service.
In consequence of arrangements made between the Bureau of Immigration
and the United States Public Health Service, the hospitals were turned over to
the last-mentioned service September 1, 1919, to be operated as United States
Public Health Service Hospital No. 43. It was the understanding that alien
patients would at all times be given precedence so far as admissions were concerned,
and that the remaining facilities of the hospital would be available for
beneficiaries of the United States Public Health Service, including American
seamen and persons discharged from the military and naval services.
NUMBER OF PATIENTS TREATED.
The total number of patients admitted to hospital were as follows:
Public Health Service beneficiaries------------------------------- 758
Aliens_____________________________________________ 5, 297
Aliens in hospital July 1, 1919------------------------------------- 23
Total treated-------------------------------------------------- 5, 978
In addition to those admitted to hospital, 67 service beneficiaries were treated
as out-patients. It was the practice also to render out-patient treatment in emergencies
to officers and employees of the Government. The number of these
treated during the year totaled 245.
As previously stated it is the practice for medical officers to make three daily
rounds through the detention rooms. In consequence many aliens are given outpatient
treatment. The number so treated during the year was 3,376.
586 REPORTS OF DEPARTMENT OF LABOR.
LABORATORY ACTIVITIES.
With the great increase in the number of patients in hospital the laboratory
work of the station has become very heavy.
During the past year there were examined 10,550 specimens. By reason
of the diverse nature of the diseases encountered, coming as they do from all
parts of the world, there is abundant opportunity for studies of exotic infections,
especially from the tropics. There is particular need of intensive studies
of mycotic infections, as they form an important group from immigration and
public health standpoints.
The laboratory should have departments of bacteriology, pathology, and
physiological chemistry fully developed.
As full use as possible has been made of the X-ray apparatus on hand.
While this is complete, the current which is manufactured locally is not entirely
suitable for its operation.
In consequence considerable periods elapsed when parts of rhe machine
were out of commission.
RECONSTRUCTIVE WORK,
i
As a means of maintaining morale and hastening recoveries among patients
two occupational therapy nurses were attached to the hospital. In addition a
representative of the American Library Association was assigned regularly to
distribute literature, and the social workers arranged for by the bueau through
the Red Cross were on duty daily during the year. As an example of the
scope and utility of this work it is interesting to note that 9,209 books were
distributed in the hospital in 26 different languages during the year and periodicals
in 4 additional languages. These agencies have been helpful in every way
possible, and their aid is hereby acknowledged.
REPORT OF MEDICAL CERTIFICATES RELATING TO ALIEN PASSENGERS.
Class A.— (1) Including 35 insane, IS feeble-minded, 6 idiocy, 3 constitutional
psychopathic inferiority, 15 imbecility, and 28 certified for tuberculosis; total,
105. (2) Loathsome or dangerous contagious diseases, including 71 trachoma’
34 syphilis, 42 chancroid, 69 gonorrhea, 1 leprosy, 16 favus, 16 trichophytosis
unguium, 2 trichophytosis tonsurans, and 15 trichophytosis barbae; total, 266.
Class B.—Diseases or defects which affect ability to earn a living, 6,309.
Class C.—Diseases or defects of less degree, 869.
REPORT OF MEDICAL CERTIFICATES RELATING TO ALIEN SEAMEN.
Class A.— (1) Including 2 insane and 11 certified for tuberculosis; total, 13.
(2) Loathsome or dangerous contagious diseases, including 13 trachoma, 92
syphilis, 190 chancroid, and 321 gonorrhea; total, 616.
Class B.—Diseases or defects which affect ability to earn a living, 30.
Class C.—Diseases or defects of less degree, 1.
SUMMARY OF HOSPITAL TRANSACTIONS.
Number of patients in hospital at the beginning of year_____________ 23
Number of patients admitted to hospital during year_______________ 1 5, 297
Total treated:
Men-----------------------------------------------------------------------3, 009
Women____________________________________________ 1; 026
Male children------------------------------- --- ----------------------- 680
Female children_____________________________________ 605
-------- 5,320
Births:
Male__________________________________________ 2
Female_______________________ ____________________ 4
-------- 6
Deaths:
Men_______________________________________________ 38
Women------------------------------------------------------------------- 31
Male children_______________________________________ 32
Female children____________________________________ 27
--------128
1 758 beneficiaries not included in this statement.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 587
Pay patients treated during year------------------------------------------------
Free patients treated during year----------------------------------------------
Number of days’ treatment:
Pay patients--------------------------------------------------------------------
Free patients________________________________ ___________
Total number of days’ treatment for hospital cases------ - -----------------
Maximum number of patients in hospital at any time during year-------
Daily average number of patients in hospital---------------------------------
Number of patients in hospital at end of year--------------------------------
4, 619
678
65,626
12,537
78,163
416
214
355
Hospital.
From
pre\ious
year.
Admitted.
Total
treated.
Recovered.
Improved
Not improved.
Died. Remaining.
Days’
treatment.
Aliens..........
Beneficiaries.
5,297
758
5,320 ',923
213
654
56
128 355 78,163
105 25,009 I
CHINESE INSPECTOR IN CHARGE DISTRICT NO. 3, COMPRISING NEW
YORK AND NEW JERSEY.
APPLICATIONS.
Two hundred and thirty Chinese applied for admission at this port during the
past year, only one of whom was rejected and deported. Practically all were
members of the exempt classes, applying under the provisions of section 6 of
the act of July 5, 1884, or as holders of return certificates previously granted by
this office. This is more than three times the number of applicants during the
previous year, which was 75. Despite this increase in work, all the cases were
handled without delay or inconvenience to the applicants, many of whom were
members of the official class, whose cases received special attention and courtesy.
In the last report attention was called to the fact that in a number of cases
of applicants for admission at this port coming from Trinidad, British West
Indies, it was believed that the section 6 certificates presented by them had been
secured through fraud. An investigation subsequently conducted by direction of
the State Department developed facts indicating that our suspicions were justified.
although the American consul in Trinidad, who also acts as representative
of the Chinese Government there, ascribed this condition to the fact that through
congestion of important business in his office and lack of sufficient, help it was
impossible for him to spare the time necessary to visit the rural districts where
most of these applicants resided for the purpose of conducting the investigations
contemplated by this office. In commenting upon this statement this office replied
that, notwithstanding these conditions, it was not considered proper that
the consul should issue or vise any section 6 certificates unless he was thoroughly
satisfied as to the status of the applicants. Nevertheless, the personal appearance
and the circumstances in the cases of most of those holding such papers who
have applied during this year does not indicate that any change has occurred
in the situation, and, while in most instances this office is unable to controvert
the statements made in the certificates, it is still satisfied that the law is not
being complied with.
TRANSITS.
During the year 1,019 Chinese applied for and received the privilege of transit
through the United States to other countries, and the departure of 2,106 to whom
this privilege was granted at other ports was verified. Last year there were 504
of the former class and 253 of the latter.
DEPORTATIONJS (EXPULSION S).
Twelve Chinese were arrested on departmental warrants, which, with the 1
case pending from the previous year, made a total of 13 cases considered. Four
of these Chinese were actually deported, 1 has been ordered deported but a stay
of one year granted, and the other cases are pending, mainly for the reason that
the arrests were only recently made.
Six of those arrested were taken into custody while attempting to smuggle
into the United States during the time they were traveling from Montreal to
588 REPORTS OF DEPARTMENT OF LABOR.
this city; 4 were seamen who had abandoned their calling; and the other 2,
who claimed to be husband and wife, were taken into custody in a local hotel
after having secured entry apparently through fraud. In each instance the alien
was charged with having entered without inspection, and in the last two cases
mentioned an additional charge was made that the woman had entered for an
immoral purpose and that her companion had assisted her entry.
sea men . '
Under the present law and regulations Chinese seamen are included in the
general term of “seamen ” and are therefore entitled to the same rights and privileges
as those of other nationalities, including shore leave and discharge if they
intend to reship foreign. It is understood by this office that the last-mentioned
privilege is granted in accordance with the terms of the seamen’s act, in order
that seamen may have an opportunity to secure the prevailing port wages.
During the year 370 vessels arrived at this port, having aboard 5,189 Chinese
in crew, and in all these cases seamen’s identification cards were issued or
indorsed. Of this number, 1,637 deserted the vessels and 1,733 were discharged.
The departure of 4,071 was verified, and 356 are employed on vessels now in
port. The difference between the number of arrivals and departures (including
those in port), which is 762, does not necessarily indicate that this number of
seamen have abandoned their calling and are employed on shore, although this
office is satisfied that many of them have done so. Seamen who arrive here
on foreign vessels have in most instances signed on at wages lower than
those prevailing at this port, and to some extent the number of desertions may
be attributed to this cause, although in most cases it is believed that the
Chinese who are bona fide seamen reship on other vessels. The vessels are
boarded upon arrival by representatives of the Oriental Seamen’s Union,
recently organized in this city, who inform the seamen of the opportunities
for securing better conditions which are afforded through the exercise of their
rights and privileges under the seamen’s act.
It is apparent, however, that these privileges are being abused through their
employment as a means of gaining surreptitious entry by seamen who desire
to remain here permanently, and also by those who are not bona fide seamen,
but who obtain employment as such with this purpose in view. At present
this situation can not be controlled. After these persons have entered the labor
market they are almost impossible to locate or to identify as seamen, and when
arrested claim American citizenship, which in most instances they succeed in
establishing before the courts by perjured testimony.
CHINESE ARRESTED BEFORE UNITED STATES COMMISSIONERS AND COURTS.
Nine Chinese were arrested upon the charge of being unlawfully within the
United States, which, with 10 cases pending from the previous year, made a
total of 19 cases considered, of which 8 were discharged, 4 actually deported,
5 are awaiting deportation, and 2 are pending.
While undoubtedly there are a large number of illegally resident Chinese in
this district, including seamen who have abandoned their calling, no attempt
has been made to cope with the situation because of the inadequacy of the
force and the large amount of other business and because experience has shown
that efforts to effect deportation through the courts almost invariably meet
with failure and simply provide a means for the defendants to legalize their
residence and lay a basis for the subsequent admission of their wives and
families.
The arrests made this year were practically all in cases where the Chinese
were apprehended while attempting to smuggle into the country from Canada.
CRIMINAL CASES.
Six smugglers were apprehended in the act of conveying Chinese from Canada
in automobiles, 5 of whom have been convicted of conspiracy and aiding and
abetting the unlawful landing of Chinese persons, and sentenced, 1 to imprisonment,
2 to pay fines, and 2 to both fine and imprisonment; the remaining
smuggler, who is now serving a term of imprisonment for theft of an automobile,
has been indicted under the conspiracy charge and will be brought to
trial when released from the State penitentiary.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 589
Our officers along the border are nearly all located at railroad stations, and
hence it is practically impossible for them to intercept smugglers entering
the country from Canada over the many public highways. The only effective
way of securing results along this line is by enlisting the assistance and cooperation
of the police of the interior towns through which the smugglers will
pass, and it was by following this plan that the arrests reported above were
made.
PREINVESTIGATIONS.
Twenty-four applications for return certificates were considered in cases of
Chinese—19 exempts and 5 natives—departing and returning through this port,
all of which received favorable action.
Three hundred and fifty-eight preinvestigations were conducted by this office
in the cases of Chinese—134 exempts, 194 natives, and 30 laborers—departing
through other ports.
MISCELLANEOUS INVESTIGATIONS.
One hundred and thirty-one miscellaneous cases were referred to this office
for investigation, covering Chinese applying for admission to the United States
at other ports, and in addition thereto various investigations were made concerning
the right of Chinese to be or remain in the United States, of which no
records were made, the facts developed not necessitating further action.
FINANCIAL AFFAIRS.
The sum of $3,000 was allotted to this district, and at the present writing our
accounts show an excess of expenditures over allotment amounting to $27.03.
PERSONNEL.
Although the foregoing shows that a much greater volume of business was
handled by this office than during the previous year, no additions were made to
the force, and the results obtained indicate the loyal and conscientious service
rendered by the officers.
COMMISSIONER OF IMMIGRATION AT BOSTON, IN CHARGE OF DISTRICT
NO. 2, COMPRISING THE NEW ENGLAND STATES
The passenger business at the port of Boston very nearly disappeared during
the last year of the World War by reason of the virtual annihilation of its
passenger fleet. Most of the passenger lines now are building ships for the
Boston service and a few companies already have resumed a limited passenger
service at this port; but anything like normal conditions can not, of course, be
restored until new shipping is available.
In spite of the existing and continued handicaps, however, immigration has
shown a remarkable renascence during the year just closed. Thus alien arrivals
at Boston increased from a total of 688 for the fiscal year 1919 to a total of
17,134 for the fiscal year 1920. At the subport of Providence the corresponding
figures were 376 and 8,264, respectively. Immigration for the entire district
totals 26,520, as compared with 1,857 for the previous year. The larger part of
the passenger traffic came from Italy, Portugal, and the Azores Islands, which
belong to Portugal. The less part came from Great Britain, India, South Africa,
and Central America. A small number came also from Egypt and South
America.
Other branches of the service have shown healthful activity, although efforts
in certain directions continue to be restricted by lack of available men.
APPLICATIONS.
Of the 7 ports reporting arrivals in this district during the year 4 show a
gain and 3 a loss in immigration totals. The net gain for the district, as compared
with the previous year, is 24,663.
The total of applications for entry at all ports in the district was 26,520, the
total admitted being 26.423, and the total debarred 96; 20,298 were admitted on
primary inspection, and 6,125 were held for special inquiry, of whom 139 were
refused admission, 62 of these having later been admitted by the department on
appeal or for hospital treatment.
590 REPORTS OF DEPARTMENT OF LABOR.
DEPORTATIONS.
The continued inability of this office in numerous cases to effect deportation
by reason of conditions abroad has reacted on State officials in such manner as
to discourage attempts on their part to cooperate with the Federal Government
in the enforcement of the expulsion provisions of the immigration law.
With the funds of a special appropriation available, however, and the gradual
return of normal conditions in Europe, we may expect a revival of interest on
the part of State and municipal officials in efforts to relieve the burden of support
of alien public charges.
Within the year 1,339 warrants of arrest were issued, of which 478 have been
canceled, and 289 warrants of deportation were issued, 7 of which were later
rescinded.
ANARCHISTIC CLASSES.
The campaign of the past winter against alien radicals has passed into history.
The officers and employees in this district were overwhelmed with the tremendous
amount of extra work involved in arresting, guarding, and hearing the
large number of alleged Communists and other radicals taken into custody in
Massachusetts, Connecticut, New Hampshire, and Rhode Island. It was necessary
to employ additional stenographers, both in Connecticut and Massachusetts,
as well as special guards at the temporary detention quarters in Hartford
and at Deer Island, Boston Harbor. A number of deportations were made in
December. Warrants of deportation are now outstanding and further action is
in abeyance pending final decision by the courts.
One thousand and thirteen warrants of arrest were issued by the department
for aliens of the anarchistic classes. The consideration of these cases resulted
in the issuance of 133 warrants of deportation, and cancellation of proceedings
in 430 cases. Two cases in which deportation was directed were later reconsidered
by the department and release of the aliens directed.
At the port of Boston medical certificates were issued during the year in the
cases of 445 seamen. Of this number 131 related to loathsome or dangerous contagious
diseases.
STOWAWAYS.
Stowaways to the number of 78 were apprehended, none of whom were Chinese
or Japanese; 14 of these were admitted, 2 by the department on appeal, and the
remainder, 64, were debarred.
ESCAPES.
All but 4 of the 15 aliens who escaped during the year were in the custody
of the steamship company. Four aliens have escaped from the new immigration
station since April 16, the date on which we took possession. These escapes
were due in part to defective grilles upon the windows, but largely because of
an insufficient number of watchmen properly to guard the premises.
FINANCIAL AFFAIRS.
The amount allotted for this district was $55,000, while the disbursements
totaled $59,328.24. The largest single item of expense this year, as last, is that
for “ Detention and maintenance of aliens,” aggregating one-half of the total expenditures.
Of this item special attention is invited to the cases of the aliens
Gustav Obrieter and Carl Anderson, who, because of inability to effect deportation,
have been a charge upon the Government for several years, as indicated
by the following statement of annual expense to date:
Gustav Obrieter.
Carl Anderson...
Total.
1917 1918 1919 1920 Total.
$10 $730
6
$730
730
$735
735
$2,205
1,471
10 736 1,460 1,470 3,676
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 591
The fines imposed during the year because of violation of different sections
of the immigration act approved February 5, 1917, total $5,770, as compared
with a total of $2,025 for the preceding year.
CIVIL SUITS AND CRIMINAL CASES.
There were no civil or criminal proceedings instituted during the past year
and no adjustment or settlement of pending cases was reported. One exception
to this statement is noted, however, in the case of one Edwin Soares, who
arrived June 25,1918, by S. S. Ulric Holm. Proceedings were instituted through
the United States attorney on November 4, 1918, for violation of section 10, and
the case was settled February 6, 1920, by the defendant pleading guilty and
paying a fine of $200.
HABEAS CORPUS.
During the past year there were 60 petitions for writs of habeas corpus in
this district, 58 of which referred to the arrested Communists. Some 30 of
the petitions in the Communist cases were either refused or withdrawn and the
remainder were heard before Judge Anderson. The first petition of the Communist
class was brought by one Peter Frank, who claimed to be an American
citizen. At the hearing he testified that he was born in Ohio The court ruled
that the burden of proof in this case was on the Government’s representatives
to furnish evidence showing that Frank was not a citizen. No proof being
available the man was released from custody by this office and the petition
was withdrawn.
The remainder of the petitions were grouped with those of William T. and
Amy Colyer and heard by Judge Anderson in April. Inspector (Sec. 24)
Mulkern of this office has summarized the court’s findings as follows:
“ The opinion of the court in these cases was handed down on June 23, 1920,
and after a severe criticism of the Department of Labor, the Immigration
Service, and the Department of Justice, involving the legality of the arrests,
the securing of evidence, and the conduct of the hearings before the inspectors,
the court summarized the findings as follows:
“(1) That there was no evidence that the Communist Party is an organization
advocating the overthrow of the Government of the United States by force
or violence. Hence all the petitioners ordered deported are to be discharged
from the custody of the immigration officials.
“(2) That if the first conclusion be not sustained by the court above, and if
the final holding be that duly proved or admitted Communists are obnoxious to
the statute, then in the cases of William T. Colyer, Amy Colyer, Frank Mack,
and Lew Bondar, the petitions should be dismissed, the writs discharged, and
the petitioners remanded to the custody of the respondent for deportation,
unless in the opinion of the court above further hearings be requisite to determine
whether the ‘ undercover informants ’ of the Department of Justice were,
in any material degree, influential in giving form and color to the documents
of the Communist Party on which the Secretary of Labor based his conclusion
against said aliens. .
“(3) That assuming such final decision to be against duly proved or admitted
Communists, then the records in the cases of all the aliens other than the
Colyers Mack, and Bondar ordered deported are, on all the evidence, found to
be vitiated by lack of due process of law: these aliens are therefore entitled
to be discharged from the respondent’s custody, but without prejudice to the
right of the Department of Labor on new proceedings hereafter to find said
aliens Communists and on that ground to deport them.
“(4) That the cases of aliens admitted to bail pending final decision by the
Department of Labor are, after final decision by the Secretary, to be disposed
of by discharging aliens in whose cases warrants may be ordered canceled and
remitting the other aliens to their right either to apply for a further hearing
to determine whether they are to be classified with the Colyers, Mack, and
Bondar, or with those aliens whose records are vitiated by lack of due process.
“At the conclusion of the hearing before Judge Anderson the court took custody
of seven aliens who were held in custody at this station and in whose
cases bail had been set by the department, in one case in the sum of $10,000 and
in the others at $5,000. After taking custody of these aliens the court admitted
each to bail in the sum of $500. No decision had been made by the department
in these cases, the contention being that they were held in excessive
592 REPORTS OF DEPARTMENT OF LABOR.
bail. Judge Anderson stated in his opinion'referred to above that ‘No such
responsibility would have been taken by the court if there had been a scintilla
of evidence that any alien thus set at liberty was committed in any way to acts
of force or violence against person or property.’
“ With reference to the petitions brought by the two aliens not included in
the Communist class, one referred to the alien stowaway Jacobs, who has since
been admitted by the department, and the other referred to the case of Maria
Dheilly, French female stowaway, who claimed to have been married to the
mate of the vessel on the high seas, and therefore claimed the right of admission
as the -wife of an American citizen. This alien was admitted to bail by
the court, but no hearing as to the merits has been held and no final disposition
made of the case by the court.”
WHITE SLAVE MATTERS.
The matron who serves as special officer at this station endeavors to keep in
touch with the local courts for the purpose of interviewing alien women and
girls who appear to be possible cases for warrant procedure. She reports an
increasing difficulty in securing the requisite information through interviews.
It appears that the lawyers who specialize in such cases have become somewhat
familiar -with the procedure of this office and charge their clients to keep
silence—to refrain from talking to anyone about themselves. Consequently,
neither the probation officers nor representatives of the service are always able
to obtain the necessary facts regarding the aliens’ previous history. It is believed,
also, that the number of delinquent women and girls is actually decreasing
by reason of prohibition and improved industrial conditions. The
report of the special officer for the year shows that 30 cases of female aliens
were investigated during the year, 15 of whom were deported.
CONTRACT LABOR. ,
The contract-labor inspector (sec. 24), to whom are referred contract-labor
cases arising in this district, reports investigations in 33 cases of alleged violation
of the contract-labor provisions of the immigration law involving 66 persons.
Of this number, 13 were arrested; 2 have been ordered deported; the
cases of 11 are now pending.
Investigations have also been conducted in 9 cases of applications to import
labor, skilled or unskilled, as well as so-called student laborers, the applications
being made on the ground that like labor unemployed could not be found in
this country. The largest order of this nature emanated from a syndicate
lumber company, which requested permission to import 1,000 skilled lumbermen
for work in the woods of northern New England. This and other applications
indicate a scarcity of help in various industries.
WORK OF THE MEDICAL OFFICERS.
The medical officer in charge at the port of Boston invites attention to the
increasing business of the port, as indicated by a comparison of figures for this
year and last:
1919. 1920.
Number of vessels boarded___________________ 623 691
Number of passengers------------------------------------ 685 17,147
Number of seamen__________________________ 27, 605 32, 297
The hospital problem—or the problem of finding hospital accommodations for
defective aliens—continues to consume much time and energy. Eight hospitals
have been utilized within the city limits. Great difficulty has been experienced
at times because of the local demands for hospital space, but the hospital authorities
have shown a friendly spirit and a practical degree of cooperation at
all times. During the year 341 aliens were sent to hospital, of whom 3 died.
“ Every quota of detained immigrants brings a certain amount of vermin
and some provision should be made for delousing. There have been no epidemics,
with the exception of the usual outbreaks during the winter of acute
infections of the upper respiratory tract, which were promptly controlled.
Sporadic cases of diphtheria, measles, and meningitis have occurred, but were
detected early and suppressed.”
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 593
SMUGGLING OPERATIONS.
Nothing unusual in this field has occurred during the year.
SOCIETIES FOR THE BENEFIT OF ALIENS.
There is neither occasion nor opportunity, speaking generally, for work
among the immigrants at the immigration station. The inspection of arriving
aliens is made at the different steamship docks and the immigrant aid societies
are useful in looking to the welfare of the immigrants after they leave our
hands. The detained immigrants are brought to the immigration station for
safe-keeping. Relatives or friends, as well as agents of the societies, are allowed
to visit the detention quarters under reasonable restrictions.
The Massachusetts State board of immigration, under a reorganization of
the State administrative departments, has become the division of immigration
and Americanization of the State department of education. Plans are in
process providing for the establishment by this division at the steamship docks
of a clearing house of aid and information, in and through which the activities
of the various societies interested in immigrants will be centered.
SETTLEMENTS OF ALIENS OF PARTICULAR RACES.
Last year’s report referred to the industrial situation in this district and
the complications in industrial fields arising from the presence of large bodies
of unassimilated immigrants whb become the dupes of agitators representing
various brands of radical and anarchistic doctrine. An account of the campaign
against alien radicals will be found in another chapter of this report.
Southern New England continues to receive a large proportion of the arrivals
of Portuguese, Portuguese Africans, and Italians, with a considerable number
of Poles, Russians, Lithuanians, and English-speaking immigrants. The concentration
of large numbers of non-English-speaking aliens in certain manufacturing
districts has produced conditions more or less responsible for the existing
industrial unrest.
INVESTIGATIONS.
The subject of investigations continues to absorb a large part of the attention
of this office in spite of the fact that the possibilities in this field of effort
have never been developed beyond the primary stage.
Following is a statement of investigations recorded during the year. These
figures relate to requests for investigations received from other offices and do
not include numerous cases of a local nature, nor are investigations in warrant
cases included:
Applicants for admission---------------------------------------------- 379
Contract labor_______________________________________ 39
Miscellaneous_____________________ .-------------------------- 187
Total____________ .--------------------------------------------605
Requests for verifications of landing continue to increase in number. During
the year at Boston 21,406 requests have been received; 341 at Portland, 150 at
Providence, and 25 at New Bedford. Over 80 per cent of these requests related
to naturalization. In numerous cases immediate attention was demanded, for
the reason that the declarations were about to expire. The increase in the
number of requests may be accounted for by reference to discharged soldiers
availing themselves of the exemption granted for naturalization and by reference,
also, to the approaching election of a President of the United States.
STATION AND EQUIPMENT.
Last year’s report referred to' the contractor’s expectation of having the new
immigration station on Marginal Street, East Boston, ready for occupancy in
October, 1919. As a matter of fact, the new station was not occupied until the
middle of April, 1920.
The new station represents a distinct compromise. The original plans called
for three stories, but delay in carrying these plans into execution steadily
diminished the working value of the appropriation so that it became necessary
15283—la b 1920---- 38
594 REPORTS OF DEPARTMENT OF LABOR.
at last to accept a one-story building which is 150 feet in length, one-half of
which is on piles, with the tide flowing beneath. No inspection quarters or
hospital accommodations are provided. Officers still continue, as heretofore,
to inspect arriving passengers at the various steamship docks, which are scattered
about the harbor in widely separated districts. Diseased or defective
aliens will, as heretofore, be distributed among local hospitals in Boston and
suburbs.
The premises had been occupied less than a week when the officials began to
realize the incompleteness of the structure and the lack of various indispensable
appliances and accessories. In an official communication addressed the bureau
we set forth in 11 counts a rough statement of the changes requisite for the
proper equipment of the station. Some of these changes have been made and
others are still in process.
The contrast, however, between our old quarters—occupying the second floor
of a wooden building hopelessly infested with vermin—and the new fireproof
station built of brick and cement is noteworthy. The new quarters are well
lighted and ventilated and thoroughly sanitary. For so much, everyone is
indeed thankful. It may be added that the new station is so constructed as to
permit the addition of one or two stories to conform with the original plans at
such time as an appropriation may be available.
PERSONNEL.
There is probably no advantage in recounting conditions in this district, which
are doubtless similar to those in other districts, as regards the struggle for
survival on the part of men and women working for Government salaries. In
this continuous battle with the high cost of living employees are under the
absolute necessity in many cases of eking out their livelihood by outside work.
Among the cases recalled at random of such extra labor may be mentioned several
engaged in teaching night school, shorthand reporting, insurance soliciting,
clerking in provision store, athletic coach, packing and shipping, and poultry
raising.
The need of such exertion is clearly the low salary scale that still persists in
Government employment. Thus, the average basic salary of the clerical force in
this district, including stenographers and accountants, is $1,270 per annum;
for watchmen, $960; firemen, $930; laborers, $840; matrons, $830. In spite of
the fact that the laborers are greatly underpaid as compared with those in private
employ, it will be noted that they are receiving more than the matrons. It
must be admitted, however, that the latter class of employees, occupying positions
of responsibility, serving as deporting officers and in many ways performing
duties akin to those of a trained nurse, are entitled to compensation in excess
of that paid unskilled laborers. Perhaps this and other discrepancies will be
cleared up in the reclassification of the civil service to be considered during the
next session of Congress.
The average basic pay of all regular employees in this district, including the
commissioner of immigration, inspectors, and all lower grades, is $1,373. It is
interesting to compare these figures with the minimum amount required for the
support of a family of five persons, which, as stated by the Bureau of Labor
Statistics of the Department of Labor, is somewhat in excess of $2,200 per
annum.
The service in this district continues to be undermanned. It is physically impossible
with the existing staff to give full force and effect to the immigration
laws. While the service is perhaps maintaining the general standard of recent
years, it is still unable satisfactorily to cover such fields as inspection of seamen,
control of deep-sea fishermen, and general investigations. There continues to
be a dearth of stenographers, and the routine work of the office is in arrears.
The writer is constrained to refer again to the unjust burden imposed upon
the officers of this service who are restricted to a per diem allowance of $4 for
subsistence. It is an impossibility for a man who attempts to maintain an
American standard of living to exist on that amount while traveling away from
official station. Our officers and matrons are subjected to unnecessary hardship
and humiliation by this unreasonable restriction which is entirely incompatible
with the dignity of a Government official.
As an illustration of the high degree of efficiency, which is not uncommon
among the employees in this district, it may be of interest to cite the case of
one of our boarding officers, who, according to records on file, boarded a
Japanese freight steamship at 4.15 p. m. some months ago and inspected the crew
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 595
of 58 men. It was necessary to check the crew list; to write 58 seamen’s cards
in duplicate, making a total of 116 cards; to affix 116 photographs; to make notations
on each card indicative of port, date, class, and name, or a total of 580
entries, and to take 58 thumb prints. The entire job was performed by one
man and completed at 6.22 p. m., permitting the ship to leave that night for New
York.
GENERAL COMMENT.
Among the immigration problems of this district is one for which no solution
in law has yet been discovered. Reference is made to certain features of the
passenger traffic conducted by sailing vessels plying between ports of this
district and the Cape Verde Islands. The business of these vessels is, of course,
limited by climatic conditions to the warmer months of the year. It begins
usually in April or May and ends in October. The passengers consist of socalled
Portuguese Africans; that is, persons of African race speaking the
Portuguese tongue or a dialect based on that language, natives of the Cape Verde
Islands, which belong to the Portuguese Republic. The average capacity of these
vessels is 50 passengers, but that number is often swollen by the addition of
ostensible members of the crew whose names appear on the crew list instead
of the passenger manifest. The traveling accommodations are of a rather primitive
character, corresponding with the primitive race of people which is carried
back and forth between the islands and the ports of southern New England.
It is the invariable custom to exact from the master, agent, or consignee of an
arriving vessel a deposit sufficient to cover the anticipated immigration expenses,
including head tax, fines, and maintenance of detained aliens. After the passengers
are finally disposed of, the balance, if any, is returned to the depositor.
But no provision is made for the expense of possible expulsion under warrant
proceedings of aliens who, after landing, may be arrested and ordered deported.
The ownership of these sailing vessels is subject to frequent change; the socalled
agents may be, in fact, merely consignees, whose responsibility ceases with
the disposal of the ship’s cargo; and there is slight chance of determining responsibility
for the deportation of an alien after the departure of the vessel by
which he arrived. The result is that deportation must be effected at the expense
of the Government. The Government thus becomes a victim of circumstances
which so far we have been unable to control.
A typical case is presented by the schooner America, which arrived at Boston
in July, 1919. A deposit of $600 was secured to cover anticipated expenses. Of
this amount there was expended for—
Head tax_________________________________________$240. 00
Maintenance of detained aliens_______________________ 81. 20
Travel expense___________________________________ 1. 92
Balance to be returned to depositor----------------------------- 276. 88
600. 00
Within a year, however, this office was notified by the Massachusetts State
authorities that one Candidade St. Maurice, aged 36, who arrived with her
(laughter, aged 10, by schooner America, had become a public charge at the State
infirmary. Warrant of deportation has since been issued for both mother and
daughter, but no one responsible in any manner for the schooner can be located,
so that deportation to the Cape Verde Islands evidently will have to be made at
the expense of the Government.
The writer feels constrained respectfully to protest against the continuance
of the practice of filing appeals through the bureau instead of through this
office. While this office is supposed to pass on the merits of, and to make recommendation
in, every case of appeal from the excluding decision of the board of
special inquiry, it occasionally happens that the bureau telegraphs for a copy
of the board record to be used in handling a petition on appeal filed at Washington.
It is believed that the petition in such cases should be transmitted to
this office for the usual procedure.
Another reason in favor of this position is the apparent lack of appreciation
or gratitude on the part of those who thus seek to evade the usual channels of
administrative action. An Italian alien, for example, was ordered deported and
was taken to New York for deportation. At the request of a United States Senator,
however, deportation was stayed and the alien was removed from the vessel
just before sailing. No further action was asked or taken, and after a considerable
period of detention at Ellis Island the alien was actually deported.
596 REPORTS OF DEPARTMENT OF LABOR.
One would have supposed that the interested parties might be willing at least
to pay the cost of the alien’s detention at Ellis Island. The entire charge, on
the contrary, was eventually paid by the Government.
FOREIGN PERMITS.
There were 1,330 permits issued through the Boston office on applications
filed for permission to depart from the United States. The applicants included
Germans, Turks, Austrians, and subjects of the former Russian Empire.
The majority were natives of Turkey and Russia—the latter principally
Lithuanians.
ENFORCEMENT OF CHINESE EXCLUSION ACT.
ADMISSIONS.
At the close of the preceding fiscal year two cases were pending—one, the wife
of a merchant who had been admitted on parole by the department, and who has
since been admitted outright by the department; the other, the son of a citizen
whose appeal had been dismissed but reopened by the department, and pending
before inspectors at the end of the last fiscal year, who was since ordered deported
by inspectors, appeal dismissed again by the department, and actually
deported.
One hundred and sixty-two Chinese have applied for admission during this
fiscal year, viz:
Class. Number
applying.
Admitted
by inspector.
Rejected
by inspector.
Admitted
by department..
Application
dismissed
by department.
Deported.
Pending.
Raw natives...................
Returnins: citizens.........
Sons of citizens..............
Daughters of citizens...
Wives of citizens............
Returning laborers........
Returning merchants...
Wives of merchants......
Sons of merchants.........
Daughters of merchants
Exempt class merchant.
Exempt class student..
Total.....................
1
14
109
5
16
213
7211
162
12 11
11
2
142 11 13
72
1 Pending habeas corpus proceedings.
WARRANTS.
At the close of the last fiscal year seven cases were pending search for the
aliens involved, one having been pending from the year before. During the
present fiscal year warrants in three of these cases have been canceled by the
department before service. The remaining four are still pending search for
the aliens involved, three of them being deserting seamen covered by one
warrant.
Two warrants of arrest have been issued and served during this fiscal year.
One, the case of a prostitute, is still pending the completion of hearing before
inspector; the other, covering an alien alleged to have secured admission by
means of false testimony, was ordered deported by the Secretary, but the case
is now pending hearing on habeas corpus petition in the United States Court
at Boston.
HABEAS CORPUS.
Two petitions for writs have been filed this year—one in the case of an
alleged son of citizen ordered deported on appeal, and the other of a man about
to be deported on Secretary’s warrant; both cases are still pending in the
United States District Court of Massachusetts.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 597
ARREST CASES BEFORE THE COURTS.
At the close of the preceding fiscal year there were pending one case before
United States commissioner, one before the United States district court, and
one before the United States circuit court of appeals. The one pending before
the commissioner has since been discharged on the ground of birth in this
country; the other two are still pending, as they have been for some years
past, despite all efforts to have them disposed of.
One arrest for unlawful residence was made during the year, and the
defendant was discharged by the United States commissioner on the ground
of birth in the United States.
retu rn cer tifi ca tes .
Three hundred and sixty applications for return certificates have been filed
during the present fiscal year, and 32 cases were pending at close of previous
fiscal year, a total of 392, minus 13 cases withdrawn,, leaving a net total of
379, viz:
Class.
Number
appeals
filed.
Primary disposition
by officers
in charge. '
Disposition on
appeal.
Number
granted.
Number
finally
refused.
Pending.
Granted. Refused. Sustained.
Dismissed.
Native born....... 280 214 15 214
54
Exempt classes.... 15 51 61 46 9 8 2 1 6 Laborers................... . 38 33 2 1 1 34 1 3
Total................ 379 79 11 223 18 302 17 60
Approximately 100 cases have been investigated in addition to the foregoing
during the fiscal year, including cases for other districts and surveillance cases.
One criminal prosecution involving four defendants indicted on the charge
of smuggling Chinese has been handled during this fiscal year. Two of the
defendants pleaded guilty, one having been sentenced to one month’s imprisonment
and $1,000 fine and the other to three months’ imprisonment and $500 fine
and confiscation of his boat in which he smuggled the Chinese. A third of the
defendants, who has confessed, will not be sentenced until he is discharged from
prison on another charge next December, and the fourth has not yet been
apprehended.
COMMISSIONER OF IMMIGRATION, PHILADELPHIA, IN CHARGE OF
DISTRICT NO. 4, COMPRISING EASTERN PENNSYLVANIA AND
DELAWARE.
APPLICATIONS.
The total number applying for entry was 6,991, 6,814 being admitted and 169
debarred. None of these were Chinese or Japanese. There were 7,881 and
2,830 alien and United States citizen departures, respectively.
DEPORTATIONS (EXPULSIONS).
The cases of 473 aliens believed to be unlawfully in the United States were
investigated, resulting in the issuance of warrants of deportation with respect
to 99 aliens, 49 of whom were deported. 10 being anarchists; and action on the
balance deferred for various causes. Thirteen of the aliens so ordered deported
were found to have been likely to become public charges at time of entry, while
8 had become public charges from causes existing prior to entry. In addition,
the cases of 14 Chinese persons were investigated, 9 warrants of arrest being
served as a result. But one deportation was ordered and 10 warrants canceled,
5 of which were pending from the previous year. Four Japanese cases were
investigated, but one warrant having been issued and deportation ordered.
598 REPORTS OF DEPARTMENT OF LABOR.
SEAMEN.
Vessels to the number of 1,224, American and foreign, were boarded, 47,452
seamen having arrived as personnel. It is always understood that such statistics
record two or more arrivals o'f the same man. Applications for permanent
admission into the United States were received from 159 seamen, 1 of
whom was rejected. There were 1,068 desertions and 453 were removed to
hospital. Identification cards to the number of 14,300 were issued.
There were 120 desertions of Chinese and 19 of Japanese.
Prosecutions in one case under section 32 and five cases under section 33
have been directed, and while two prosecutions under section 33 (for discharging
members o£ crew prior to inspection under immigration law) have been
instituted, they have not been finally disposed of; the other prosecutions will
be instituted as soon as the vessels involved return to this port.
As stated in our reports for the two previous fiscal years, the privileges
afforded and status accorded alien seamen under the present immigration law
constitutes one of the principal causes against the effectiveness of the law.
Large numbers of aliens otherwise inadmissible, at whose exclusion the law
aimed, such as Chinese coolies, Japanese laborers, Hindus, and diseased seamen,
gain admission ostensibly for the purpose of reshipping or for hospital
or medical treatment and remain in the country and engage in occupations
ashore. In this district a number of Chinese and Hindus, particularly seamen,
employed on shore have been apprehended, and it is felt that if conditions permitted
a systematic search many more might be found.
From one viewpoint the removal of diseased seamen from ships, principally
alien seamen from vessels of foreign registry, works to the disadvantage of
conditions in this country, especially at this port, where there is no marine or
Public Health Service hospital and no other hospital operated by the Government.
Such aliens are of necessity placed in public institutions, where there is
no restraint upon them and from which they frequently abscond; the institutions
are universally crowded and the authorities thereof loath to receive such
aliens. By far the greater majority of such cases are venereal diseases, and
as they do not require a bed, they are afforded only outdoor treatment and
are thus at liberty to disseminate the germs of the diseases they have. Howevei’
this accentuates the necessity of a hospital at this station, which subject
is treated in another paragraph hereof.
STOWAWAYS.
Two hundred and twenty-one stowaways arrived on vessels, of whom 45 were
admitted and 143 deported. The cases of 17 are pending, while the remaining
16 escaped. There were no Chinese or Japanese stowaways.
There has been a considerable increase in the number of alien stowaways
arriving here. The majority of these stowaways arrive on so-called tramp
vessels; that is, vessels not belonging to any regular line and running between
fixed ports. Many of the stowaways are found to belong to the excluded classes,
and the requirement that they be returned to the country whence they came
frequently causes lengthy detention in their cases until their return can be
arranged on vessels destined to the proper points.
ESCAPES OF ALIENS FROM VESSELS AND STATION (EXCLUSIVE OF SEAMEN).
There were 19 escapes of aliens in general, and one of a Japanese. No Chinese
alien escape was made.
There being no Government hospital at this port, aliens in need of hospital
treatment must be removed to public institutions, where in the usual course of
events there is little check upon them. There were four escapes from the Philadelphia
General Hospital.
There were two escapes from this station during the year, and while this is
regretted, it is felt that it was extremely fortunate that the number was not
greater. A great many aliens have been detained here, many of them dangerous
stowaways and convicts, always on the alert to make their escape. A number
of attempts have been made to escape from the detention house by sawing away
bars, metal window frames, etc., with saws fashioned out of knives, and the
fact that most of the attempts were foiled testifies to the alertness of this force.
However, our watch force is much too small to meet the situation with justice
to all concerned; this subject is referred to in another paragraph herein.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. ^599
The one Japanese alien who escaped was a deportee placed on a vessel at New
York; the vessel touched at this port en route foreign, and the alien escaped
from the ship.
FINANCIAL AFFAIRS.
Head tax amounting to $23,536 was collected. Administrative fines assessed
under various sections of the immigration law aggregated $3,810. The sum of
$700 was collected as a result of cases in the courts. The allotment for this district
was $15,000, and disbursements were $13,600.22.
While no fines were assessed at this port in criminal prosecutions, a case
arose in which the sum of $200 was recovered at Baltimore for violation of
section 10, permitting escape of stowaway. The case in question was the S. S.
Clemence C. Morse, in which notice was served on the master to produce a stowaway
named Benefacio Lopez at this station for examination. The alien was not
presented and it was not until the ship sailed that the escape of the stowaway
was discovered. The ship sailed to Baltimore and the commissioner there was
immediately advised. He instituted court proceedings, as a result of which
the master of the ship was fined $200 and costs. The commissioner at Baltimore
will probably make return of this case in his report.
A considerable increase is noted in the number of fines assessed for failure
to furnish proper crew lists (sec. 36). We are endeavoring to acquaint the
shipping interests with all the requirements of the law, particularly in this
connection, to which end a detailed letter of instructions has been prepared
and sent to every shipping firm at this port and arrangements made to have the
master of each vessel furnished, through the pilots’ association, with a copy
of the letter and all necessary blank forms on arrival at the Delaware Breakwater
where the harbor pilot is taken aboard.
CHINESE ARRESTED BEFORE UNITED STATES COMMISSIONERS AND COURTS.
Twelve cases were pending from the previous year and 4 new cases were
instituted. Of these, 2 aliens involved were discharged by the United States
commissioners and 2 died. One case is pending before a United States commissioner
and 11 on decision and appeal.
CIVIL SUITS.
One new case and one remaining from the previous year were disposed of,
the former covering suit under a school bond, which was compromised on a
settlement of $200 in favor of the Government, and the latter on a bond conditioning
delivery of the alien in question for deportation. This stipulation not
having been lived up to, the $500 penalty was recovered from the bondsmen.
Civil suits were instituted in the cases of two Chinese, both of which were
withdrawn in consequence of their reshipping.
CRIMINAL CASES.
Three new cases have been instituted, all of which are pending. Two of the
three cases referred to consist of prosecutions under section 33 for discharging
alien members of crew prior to their inspection under the immigration law.
The third case consists of the prosecution of a number of persons, under section
10, engaged in a conspiracy to smuggle two stowaways into the United States.
The stowaways arrived at this port on the S. S. Warszawa, of the Polish-
American Line. True bills have been found against two minor officials of the
Polish-American Line and another civilian, but they have not yet been brought
to trial. The case is discussed in detail under caption “ Smuggling operations.”
WRITS OF HABEAS CORPUS.
Writs of habeas corpus in three cases were sued out and disposed of as follows
: One dismissed and two granted. No cases are pending.
WORK OF THE MEDICAL OFFICERS.
At the present time there are assigned to duty in connection with the inspection
of arriving aliens (passengers and seamen) one surgeon and two acting
assistant surgeons of the United States Public Health Service, and because
I
600 REPORTS OF DEPARTMENT OF LABOR.
of the great number of arriving vessels, the crews of which must be examined
(there were 47,452 seamen examined during the year), said vessels docking
along a river front of about 50 miles, because of the arrival of passenger vessels,
and the necessity of these officers being in attendance at the detention
house here to treat the sick among the detained, they are busily occupied, and
it is deemed proper to testify at this time to their effective and courteous cooperation.
SMUGGLING OPERATIONS.'
But one smuggling operation is reported, as follows: The American S. S.
Warszawa, of the Polish-American Line, arrived at this port May 15, 1920,
with two alien stowaways, who escaped from the ship prior to being inspected.
They have not been apprehended. Investigation showed the existence of a conspiracy
to smuggle these aliens into the United States, and, after proper presentation,
three persons were indicted for violation of section 10, namely,
Anthony Robliski, a civilian; Michael Pianowski, an agent of the Polish-American
Line; and Bronislaw Domke, the Philadelphia agent of the said line.
They have not yet been brought to trial.
CHINESE PREINVESTIGATION MATTERS.
Twenty-nine preinvestigations were applied for, subdivided as follows: Students,
2 ; merchants, 9 ; laborers, 6; alleged natives, 11; and wife of merchant, 1.
Return certificates were granted originally by this office in 26 cases, 3 having
been denied.
INVESTIGATIONS.
There were 65 investigations of applicants for entry in addition to 384 warrant
investigations, 340 in naturalization matters, and 174 for other causes.
Besides the 29 preinvestigations for Chinese persons referred to above, 70
investigations for the same class of aliens are recorded.
The investigations covering “ naturalization matters ” consist of nunc pro
tunc inspections for naturalization purposes. Our statistics show 5,077 searches
made at the request of the Naturalization Bureau for records of arrivals, as
well as 67 searches of arrivals for other purposes. The matter of searches for
records of arrivals for naturalization purposes has become quite laborious; we
averaged about 17 requests per working day from this source alone, and this
number does not include second, third, and oftentimes more requests covering
the same individual, principally in cases wherein record of arrival can not be
found owing to faulty information, etc. The information furnished in these
cases is frequently of the most meager kind, requiring hours of search, oftentimes
fruitless in the end.
RULE 1 7—A.
While no aliens were released at this port during the year under the terms
of rule 17-A, there were 11 cases pending from the previous year. Three aliens
violated their parole and are still at large. Two aliens were deported during
the year; at the time of their deportation they had on deposit, in the United
States postal savings bank, representing 25 per cent of their wages while on
parole, $225 and $186.25, respectively. Of course, arrangements were made
for the return to them prior to deportation of the amounts on deposit to their
creDduitr.ing the year the warrants of deportation in 5 other cases were canceled;
the money they had on deposit was returned to them; they had on deposit at
the time of their release the following amounts, respectively, $420, $138.50,
$427.87, $219.20, and $105.47. One alien is still on parole and making returns
to this office; she has on deposit $135.66.
PASSPORT-PERMIT WORK.
Applications to the number of 1,271 were received, 1,132 of which were
granted, 120 refused, and 19 pending, involving principally Germans, Hungarians,
and Ukrainians.-
ANARCHISTS AND MEMBERS OF RADICAL CLASSES.
Under this caption will be considered cases arising under the act of February
5, 1917, and the act of October 16, 1918. The members of three particuREPORT
OF COMMISSIONER GENERAL OF IMMIGRATION. 601
lar organizations were subjected to special investigation during the year—
first, the Union of Russian Workers, the members of which will be called
Russian Workers; second, the Communist Party of America and the Communist
Labor Party, the members of which, jointly, will be called Communists; and,
third, anarchists and other radicals.
Out of 14 warrants of arrest issued for the class first mentioned, service was
attained in 11 cases. Ten warrants of deportation issued, in all but one of
which expulsion was effected. The aliens in three instances have not been
apprehended and one case is pending before the bureau. ■
Warrants of arrest numbering 226 were issued in Communist cases, 166
of which were served. Of this latter number, 131 were canceled and 28 warrants
of deportation issued; 27 of the aliens involved are awaiting deportation
and the remaining one was discharged by the court on a writ of habeas corpus.
Under the third class in question, 13 warrants of arrest issued, including
those pending from the previous year, 12 having been served. Out of this number,
11 were canceled and 3 warrants of deportation issued, only 1 alien concerned
having been deported.
The work in connection with the handling of these cases, especially the
Communist cases, was most voluminous and trying. Several hundred aliens
were taken into custody early in January last, and the task of applying for
warrants, arranging for their detention and for the preparation of bonds and
their release thereunder, according them hearings under the warrants, preparing
the records, and handling the correspondence and other details in connection
therewith was a severe ordeal for our force, which is insufficient under ordinary
conditions. However, the matter was handled as expeditiously and
thoroughly as possible under the circumstances, and in this connection it is
only proper to testify to the efficient cooperation of the local office of the Department
of Justice. In the handling of the Communist cases we were further
handicapped by the fact that one attorney represented about 80 or more aliens.
To facilitate disposition of the cases it was necessary to assign several inspectors
to grant hearings, and as the attorney in question could be present at
but one hearing at a time and refused to secure assistance it was decided to
proceed with the hearings in his absence, it being felt by all concerned that
the attorney was endeavoring to delay the proceedings. The attorney later
decided to secure several assistants, but his monopoly of the cases resulted
later in the discharge of one of the aliens on writ of habeas corpus and necessitated
rehearings in a number of cases. At the time of the hearing on the
writ of habeas corpus in the case in question the court criticized the action of
the attorney in monopolizing the cases and stated the Government should be
in position to appoint other counsel to properly represent the alien under such
conditions; however, the alien was released because the hearing was held in
the absence of his counsel.
STATION AND EQUIPMENT.
Attention is called to the necessity of repairs to the pier at this station, due
to faulty construction. The repairs necessary are estimated at this time at
about $50,000, and the cost will increase progressively as the work is delayed
in view of the fact that the pier is constantly disintegrating.
Alterations and repairs to the detention building here, especially the plumbing
and sanitary equipment, are urgently required; it is estimated the work
will cost about $50,000 at this time. Recently that amount has become available
by transfer from the construction appropriation. It is hoped that the
preliminary arrangements will be concluded promptly so that the work may be
begun at an early date. Increased immigration and large numbers of detained
aliens make it important that the detention house be placed in proper condition
as soon as possible.
A laundry and disinfecting building with equipment is also urgently required.
The disinfector is already here but has not been put in complete
operation owing to the lack of a suitable building. It has been estimated that
such a bu’lding would cost $22,000, and while the building was heretofore
designed and bids secured for the erection of same, the work was postponed
on account of lack of funds.
Our water-supply system is in need of repairs and extension; filtration and
further aeration is desired; the steam pipe should be extended to the water
tank to prevent freezing; the fire line system should be extended, etc. It is
estimated this will cost at least $11,000.
602 REPORTS OF DEPARTMENT OF LABOR.
The administration building, fences, etc., require painting. This it is estimated
will cost about $2,000.
Repairs, which it is estimated will cost about $1,000, are necessary to engines,
boilers, heating system, plumbing system, etc.
Originally, when this station was laid out, it was planned to build a hospital
to the south of the administration building, same to be similar to the detention
building placed on the north. This plan has not been followed out, although
we daily see the need of such a hospital. There is no Public Health Service
hospital or Government hospital of any kind at this port. Under the law,
diseased seamen must be removed from vessels and placed in hospitals. The
hospitals in this vicinity are overcrowded, and moreover the authorities are
loath to receive Government cases, particularly diseased seamen, which are
usually venereal cases. As a result many of the seamen secure outdoor
treatment and wander about the city, free to spread the diseases with which
they are afflicted. Other cases sent to the hospital, aliens coming here in violation
of law and excluded, escape at will, there being no means of restraining
them. Moreover, it is felt that such a hospital would be self-supporting, the
expense of treating the aliens and their maintenance being chargeable to the
various steamship companies responsible. The writer deems it his duty to
bring to the attention of the bureau this crying need and imperative necessity,
and trusts that it will receive consideration at the earliest possible moment.
PERSONNEL.
Early in the fiscal year this force was greatly reduced by furloughs and
transfers. In order to meet the financial situation, the officials have carried
on the work to the best of their ability with the available force. Of necessity
many things have been left undone or not done as exhaustively or thoroughly
undertaken as would have been the case if a sufficient force were available.
This is particularly true of the watchmen force. With men, women, and children
detained, including violent and desperate stowaways and other aliens,
arrested under warrants, some of them criminals, and with but five available
watchmen and the other departments so depleted as to be unable to be drawn
upon, it becomes impossible properly to protect the property and the lives of
the detained, to prevent escapes, make deportations, verify departures (deportations),
serve notices, etc. Shipping has increased enormously, as high as 150
and more vessels being in port at one time scattered along over 50 miles of
river front, immigration has increased and is still increasing, and it is obvious
that in order to attempt to enforce the existing laws and take care of the many
phases of work arising at this station and in this district additional officers and
employees must be provided.
It is a pleasure and only fitting to testify to the efficient and untiring cooperation
of the officers and employees at this station and to express the hope
that they will be rewarded in the near future with such recognition in the way
of increased salaries as may be commensurate with their- duties and work, and
more favorably compare with salaries paid for like services in other fields.
COMMISSIONER OF IMMIGRATION, BALTIMORE, MD., IN CHARGE OF
DISTRICT NO. 5, COMPRISING MARYLAND AND THE DISTRICT OF
COLUMBIA.
APPLICATIONS.
Aliens to the number of 397 were admitted during the year, these including
passengers on arriving vessels, seamen under rule 10, a few stowaways and
workaways, and one alien admitted on payment of head tax when a warrant of
arrest was canceled. The passenger arrivals are mostly on fruit vessels from
the West Indies, but an occasional passenger vessel has arrived, diverted from
other ports for various reasons. It is, of course, hoped by local interests that
immigration through this port in numbers prevailing before the war will again
be seen, but there is nothing definite as yet toward the realization of this hope,
although several of the large trans-Atlantic lines which have recently established
freight schedules to and from this port are reliably reported to be considering
the feasibility and desirability of diverting a share of the European
immigration movement to this district.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 603
DEPORTATIONS (EXPULSIONS).
Out of 151 warrants of arrest received for execution in the district 81 were
served. The remainder of the aliens thus involved either could not be apprehended
or their warrants were sent to other districts for service. Forty-two
warrants of deportation were issued, 1 being canceled later, and 24 removals
under warrants were actually made. The disparity between the number of
warrants issued and served arises from the fact that at the instance of the
Department of Justice, on the furnishing of prima facie proof, numerous warrants
were issued for aliens charged with membership in proscribed organizations
who apparently had fled from this State before arrest was possible.
With regard to institutional cases, it is presumed that the authorities may
still not be prompt in reporting alien public charges, due to their recognizing
the difficulty experienced by the service in effecting deportations during the war.
One Chinese was arrested under departmental warrant, and one Japanese, for
whom a warrant was issued, has not been located.
SEAMEN.
American and foreign vessels numbering 1,313 were boarded and given immigration
inspection. This is an increase of considerably more than one-third
over the preceding year, and this augmented boarding work has been carried
on with no additional detail of officers. The foreign commerce of Baltimore is
increasing appreciably from month to month, the arrivals for the last month of
the fiscal year being the largest of the 12-month period, immigration duties
increasing correspondingly.
The vessels boarded carried 51,229 alien seamen, being an increase of nearly
18 000 more than arrived during the preceding fiscal year. Of course, this
gross number will in some instances include more than one arrival of the same
alien. The total reported of departing alien seamen was 46,606; of those discharged
and reshipped, foreign, 4,671; and of those signed on at this port,
5162- desertions reported, 1,174. Thirty-three vessels arrived with Chinese
forming a portion of the crews, totaling 349 of this race. Of this number 12
deserted and 64 were granted the privilege of landing to reship foreign. No
horsemen’s certificates were issued, but 59 attendants arrived from abroad who
had been signed on at other ports of this country. Twenty-three alien workaways
were admitted and three debarred.
The observations made in the report of this district for the preceding fiscal
year concerning, the impracticability of strictly enforcing the provision of, section
36, requiring the furnishing of the list of all changes in crew prior to departure
as a condition precedent to the granting of clearance, and the requirements
of the rules as to compulsory hospital treatment to certified alien seamen
are still applicable here. In many instances it seems not only impracticable but
impossible to do more than approximate the strict requirements of the seamen’s
sections of the law and rule 10. However, this is clearly due, at least in part,
to the lack of hospital facilities under our own administration or supervision.
It is thought that the rule should be amended to take cognizance of actual
physical conditions at certain ports of the country, which render difficult or
unfeasible the strict application of the ideal conditions set forth in the current
regulations; and, as a preliminary to such recommended revision, it is suggested
that either the different districts which are concerned with alien seamen be
called upon to make specific recommendations on the subject or that a conference
should be called at the bureau of representatives from the various ports to
work out the changes which local experiences with the rule have demonstrated to
be Iafd vthisea bSleta. te Department identification card .i s to be retained much .longer,
rule 10 should obviously be altered somewhat, as the description of the old form
685 found therein, is not applicable to present practice, and if the furnishing
of any identification card is to be continued permanently, it is thought perhaps
that provision for some penalty to be inflicted upon the masters of vessels and
others (like that found in sec. 36) for failure to furnish the cards for arriving
alien members of the crews should be obtained.
It is thought that some leeway should be afforded by the regulations to permit
placing back on board their vessels just prior to sailing those diseased seamen
who are undergoing medical treatment, but who fire not quite cured at the time
of departure, when this can be done without injury to the seaman himself and
without danger of contagion to other members of the crew, and when there is
604 REPORTS OF DEPARTMENT OF LABOR.
an understanding that the seaman will not be returned to these shores'until
certified as cured by some physician.
In round numbers, 13,500 alien seaman identification cards have been issued
during the year and 5,000 citizen cards, the customs service, of course, participating
in those cases wherein the passport regulations call upon it to furnish
the card in the first instance. The boarding officers find that the vis6 of subsequent
arrivals on cards presented by seamen are omitted on the majority, which
is probably due to lack of help at the different ports.
Inasmuch as there is no longer any general checking out of vessels foreign
bound, the passport regulations are now ineffective in preventing the departure
as seamen of suspected or dangerous aliens. There is no practicable means of
assuring that all seamen signed on for departure are in possession of identification
cards.
STOWAWAYS.
One hundred and fifty-five aliens of this class arrived, of whom 34 were admitted
for various reasons. There were 16 American stowaways found in the
same period. The last few months has seen a great increase in arrivals of this
class, the principal contributing causes for which are quite apparent. These
are, briefly, the distressing economic conditions in some parts of Europe and in
the West Indies; the consular vise requirements, which many aliens can not
comply with or measure up to; the help afforded by sympathetic members of
crews in assisting and facilitating the hiding on board of destitute aliens, many
of whom are or have been of the seafaring class; and laxity in searching vessels
prior to sailing for this country. There is every reason to believe that the influx
of stowaways, for these reasons, will be even greater in the coming year.
Five stowaways were certified for dangerous or loathsome contagious diseases.
ESCAPES.
One stowaway and one workaway escaped before they could be produced for
examination, and appropriate action was taken in the matter, as well as in the
cases of certain seamen ordered held on board their vessels because of having
excludable diseases, and whose illegal landings were not prevented.
FINANCIAL AFFAIRS.
The sum allotted to the district from the appropriation for regulating immigration
was $5,000, and there will be an approximate deficit of $150 when all
debits are accurately known. From the appropriation “ Enforcement of laws
against alien anarchists, 1920,” there has been expended $1,263.17, with several
outstanding charges yet to be received.
FINES.
The total of administrative fines actually covered into the Treasury was
$1,820. There are six fines pending for decision. In libel proceedings in the
Federal courts three cases were decided under section 10, by imposing a fine of
$200 and costs in each, or a total of $600 and costs. Two libels were instituted
under section 32, resulting in fines of $100 and $200, respectively, or a total of
$300 and costs.
Head tax amounting to $2,336 was covered in for arrivals, and many collections
were sent to other ports, representing payments made by aliens given
examination here, but whose actual landings were elsewhere.
CHINESE ARRESTED BEFORE UNITED STATES COMMISSIONERS AND COURTS.
No arrests were made during the year, both because of the lack of time and
because the advisability of such action in this jurisdiction is questionable, in
view of what seems to be the attitude of the courts with regard to the question
of the burden of proof, etc., which have been sufficiently commented upon in
prior years.
One arrest case pending in the Washington courts from a former year was
disposed of by the affirmance of the commissioner’s order of deportation, and
the actual removal to China of the alien. Two cases are still pending on appeal.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 605
CIVIL SUITS AND CRIMINAL CASES.
In libel proceedings referred to under the caption of financial affairs, five cases
were disposed of, resulting in total fines of $900 and costs.
A prosecution was brought under section 8 against several members of the
crew of an American vessel for bringing and landing two French girls, stowaways
and immoral.
The men were indicted under this section, as were three officers of the vessel
under section 10, the latter having knowledge of the presence on board of said
stowaways, and having taken no steps to prevent their landing. At trial all seven
defendants pleaded guilty, but as the judge apparently concurred in the view of
the United States attorney that the master of the vessel, the charge against
whom, under section 10, had been dismissed on the preliminary hearing by the
United States commissioner, was largely responsible for the illegal acts of the
officers and members of his crew in landing the aliens, the defendants in court
were sentenced to 2 days in jail, the judge taking into consideration that some
of them had already spent 30 days in confinement awaiting trial. The girls
were subsequently deported on departmental warrants.
A prosecution was laid under section 8 against a member of the crew of an
American vessel arriving from South America for concealing or harboring on
board an alien stowaway, but as corroborative evidence of guilt was unavailable,
the charge was dismissed by the United States commissioner.
The foregoing does not represent all matters laid before the United States
attorneys for civil or criminal procedure, as often the prosecuting officials do
not deem judicial action advisable or justifiable.
WHITE-SLAVE MATTERS.
There were but two cases of this category during the year, in which this and
the Department of Justice were jointly interested, the latter department prosecuting
the men concerned. Conviction was secured in one case and dismissal
resulted in the other. The women involved were made objects of warrant of
arrest proceedings.
A man and woman arriving as passengers were excluded on similar grounds.
WORK OF THE MEDICAL OFFICERS.
The Public Health Service surgeon in charge of the examination of aliens
reports the issuance of but four certificates for diseases or affections found in
the examinations of 535 alien passengers, or those seeking legalization of entry.
Seamen numbering 486 were certified as having loathsome or dangerous contagious
diseases, of whom 76, employed on American vessels, were required to be
treated in hospitals, and 127 of this class were given out-patient treatment.
Eighty-nine employed on foreign vessels were recommended for hospital treatment,
and detention and treatment on board vessels were advised in the cases
of 209 on foreign ships, because of the short time the respective vessels were to
remain in port. Certificates as to less serious diseases or disability were furnished
regarding 577 alien seamen. No alien passengers were accorded hospital
treatment.
There has been a recent change in the personnel of the Public Health Service
here, and happily there is now a prospect of a complete agreement in the enforcement
of certain features of rule 10, which has been a matter of some controversy
and friction in the past. The surgeon in charge complains, with reason,
of the loss of time caused the physician who accompanies the boarding officers
of this service, occasioned by the delays incident to the work of the customs
service on coastwise vessels, in searching for undeclared liquor, etc. While such
delay and inconvenience are regretted, there is no prospect of a betterment of
the conditions complained of as long as this service is dependent upon the courtesy
of the customs service in granting the privilege of transacting our boarding
duties by means of the revenue cutter.
The quarantine station at this port now seems definitely to be under the
control and direction of the Public Health Service, and to be a Federal adjunct,
after several disappointing attempts in this direction. This was one of two
ports in the country, at .least on the Atlantic coast, at which the quarantine
work was carried on under municipal auspices.
606 REPORTS OF DEPARTMENT OF LABOR.
CONTRACT LABOR.
There have been quite a number of rejections of individuals coming under
promises of employment, but there has been found no concerted effort to
import labor. The evidence obtained in specific cases did not warrant proceedings
against the reputed employers in this country.
SMUGGLING OPERATIONS.
No information or evidence of smuggling on any scale, or as a result of concerted
effort, has been reported or brought to light. Undoubtedly, as referred
to in preceding remarks regarding stowaways, some seamen actively help aliens
to hide on board vessels with the expectation that a way may be found to bring
about their landing without inspection; and others, who take no direct part
in these attempts, yet have cognizance of the same and sympathize with them.
This practice has many exemplifications, one being the recent finding on a
vessel, just before arrival at port, of several stowaways who had been hidden
during the entire and slow voyage from an Italian port, and undoubtedly fed
and harbored by certain of the crew. In this sort of cases successful prosecution
is very seldom possible, even when the stowaways will incriminate those
who aided them, because the latter will be emphatic in their denials, and their
shipmates customarily will affect entire ignorance regarding the presence on
board of the undesirables.
A prosecution, then, resolves itself into conflicting testimony, and a consequent
lack of corroborative evidence to support the charge.
This office is greatly indebted to the customs service for efficient searches
of arriving fruit steamers, the principal source of attempted illegal entries.
Eighty such vessels were searched thoroughly by this cooperating branch of the
Government.
CHINESE PREINVESTIGATION MATTERS.
Forty-one preinvestigations of claimed status, mostly for return certificates,
were made, divided as follows: Four laborers, 4 merchants, 4 students, 24
alleged native-born citizens of the United States, and 5 alleged sons of native
borns. Very few of the preinvestigations were for the purpose of. obtaining a
determination of exempt status or citizenship, so as to facilitate later admissions
of members of families. All but two of the requests were granted. The
number represents a large increase over the preceding year, due primarily to
the greater number of sailings to the Orient, following the end of the war;
modification in passport permit requirements; peace-time security of travel;
and the greatly increased earnings of Chinese in this country during the war
period.
Investigations connected with applicants for admission at other ports were
conducted in five cases; in two cases of preinvestigation on account of applicants
at other ports; and there was one applicant for issuance of a duplicate
certificate of identity. There were several informal Investigations, in the
routine of work, to determine legality of residence or domicile.
INVESTIGATIONS.
Other than in Chinese matters, 60 recorded investigations were made, by
direction of the bureau or on requests from other districts, and embracing various
features of immigration work. Additionally, as a preliminary to naturalization,
and to establish legality of residence, 59 nunc pro tunc examinations were
conducted. Out of 3,902 requests for verifications of landings, 3,424 were accomplished
mostly as a basis for naturalization, although there were a comparatively
few searches in public charge cases, and to determine age for work permits.
ANARCHISTS.
The experiences in this district with cases coming under this descriptive
heading have been quite strenuous during the year. In strict compliance with
instructions, and in cooperation with the Department of Justice, hearings were
granted under warrants of arrest to 66 aliens, mostly charged with memberREPORT
OF COMMISSIONER GENERAL OF IMMIGRATION. 607
ship in, or affiliation with, such organizations as come within the prohibitive
definitions of the act of October 16, 1918. Most of these were alleged members
of the Union of Russian Workers or the Communist Party of America, and were
apprehended by the Department of Justice in the raids made in November and
January last.
The hearings were held during the winter months, and, with the current
work of the district, taxed our resources to the utmost. Decisions from Washington
in these cases were long deferred, due doubtless to the great accumulation
of records of hearings in the bureau, but these delays caused many and repeated
inquiries here by the aliens, their relatives and friends, and anxious
bondsmen.
Thirty-seven arrest warrants of this class were canceled outright and 22
aliens have been ordered deported, of whom 9 have actually been sent out of
the country. Six have been deferred for surveillance for various periods and
later reports, and decision in the remaining case is still awaited at the close of
the year. One anarchist ordered deported in the preceding year was removed
this year, while deportation is deferred in the case of another until the expiration
of a penitentiary sentence. ' .
The act of June 5, 1920, strengthens the Government’s hands materially with
regard to those aliens who so far fail to appreciate, or who repudiate, the
advantages and betterments of the institutions and laws of this country, to
which they voluntarily migrated to escape political or economic oppression, as to
work actively or passively for the overthrow by violence of our system of government,
or who lend their aid and support to individuals or organizations
openly or secretly striving to that end.
WRITS OF HABEAS CORPUS.
Three writs affecting aliens of the so-called anarchistic class were sued out
during the year. They presented no novel or interesting features and were all
abandoned in open court by attorneys before the actual hearings.
COOPERATION.
With most of the Federal and State bureaus with which this service necessarily
has contact there has been complete and cordial cooperation, but with
two or three with which we have intimate dealings there occasionally has developed
friction, which it is the constant endeavor to avoid or minimize.
ILLITERACY AND RULE 17-A.
The same reason as given in the preceding year, viz, the practical stoppage of
general immigration to this port, precludes intelligent comment upon the effect
of the illiteracy test upon the immigration problem, and whether it serves to
better the quality of the immigrant stream, while decreasing the quantity. For
the same cause we have had no cases during the year to which the privileges of
rule 17-A have been granted, nor any aliens temporarily admitted for agricultural
or other work under departmental instructions.
ALIEN ENEMIES.
The cases of 33 alien enemies transferred to a Government insane hospital in
this district during and since the war, from the war prison barracks at Fort
Oglethorpe, Ga., and Fort Douglas, Utah, and who were never released or
paroled, are being investigated at the close of the year with a view to their
arrest and deportation under the act of Congress of May 10, 1920. Two more
of such aliens have escaped from the institution.
There have been several applications for admission of aliens of this class
arriving as seamen, which have been denied. Four German stowaways have
been excluded. A few other alien enemies have arrived as seamen with an
expressed intention of not leaving their vessels, and so have been remanded on
board.
STATION.
Near the close of the fiscal year the War Department discontinued its use. as
a hospital of the new immigrant buildings at Fort McHenry, and early action
608 REPORTS OF DEPARTMENT OF LABOR.
is awaited on the request of the Public Health Service for authority to use the
more important of the group of buildings for the extensive medical work devolving
upon it at this port, with the understanding that when this service has
need of them, on the resumption of immigration in fair numbers, they will be
relinquished. The buildings to be utilized by the Public Health Service are the
administration structure and the hospital, with a possibility of the power house
being also needed.
FOREIGN PERMITS.
There were 180 applications for permits to depart from the country, all having
been granted. The relaxation of the requirements for outgoing aliens has restricted
the applications during the year to alien enemies, persons of doubtful
nationality, or those owing allegiance to countries which have no accredited
or accepted diplomatic representatives in the United States.
PERSONNEL.
It is pleasant to report that the officials have done their duty well and faithfully.
In the various grades there are 16 employees, and their work has been
commendable and meritorious under trying circumstances. Since April there
has been an insufficient number of inspectors and stenographers to satisfactorily
handle the rapidly increased shipping coming to Baltimore. The routine work
arising from day to day, which must be disposed of promptly, permits, with the
limited force, but little time for duties entailing extended investigations or constructive
effort in several branches of our work.
In the last few years the country at large has come to have a more intimate
knowledge and appreciation of the importance of the duties imposed upon this
service, in safeguarding the best interests of the country, and it is confidently
thought the public would indorse more adequate appropriations to permit carrying
on the work in a more satisfactory manner and of paying salaries proportionate
to its importance if the need therefor could be placed before the country.
The meagerness of the salaries paid the rank and file is deplorable under present
economic conditions, and the inadequacy can not be too strongly emphasized.
A casual reader of the Immigration Laws and Regulations can not fail to realize
and appreciate the caliber of the work an inspector is called upon to perform
daily, and yet the average inspector receives as compensation an amount about
on a par with the wages of unskilled labor to-day. Exemplified in another way,
his salary is hundreds of dollars below what several impartial and thorough
investigating bureaus or commissions, State and Federal, including a bureau
of our own department, have reported to be the minimum yearly earnings upon
which the average American family can maintain the American standard of
living. There is mere justice in bringing about a correction of these conditions,
which industrial corporations and others are acknowledging and doing every day.
INSPECTOR IN CHARGE. DISTRICT NO. 6. COMPRISING VIRGINIA AND
NORTH CAROLINA, WITH HEADQUARTERS AT NORFOLK.
APPLICATIONS.
A total of 2,351 applications for admission were filed by aliens, being an increase
of 550 over the number for the fiscal year 1919. Of this number, 2.164
were admitted and 187 debarred, an excess of exclusions over the previous fisca1
year of 147.
DEPORTATIONS (EXPULSIONS).
Twenty-two aliens were covered in applications for warrants of arrest, and
the same number of warrants issued. Three of the warrants were sent outside
the district, 9 were canceled, 3 executed, and 7 pending at the close of the fiscal
year.
SEAMEN.
A total of 244 seamen applied for admission, 10 of whom were rejected.
This is a slight decrease from the previous fiscal year. There were 1,389 escapes
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 609
or desertions, an increase of 1,200 over the past year. The following tabulation
indicates the number of seamen arriving in the district during the fiscal year
1920:
From— Norfolk. Newport
News.
V> ilmington,
N. C. Total.
Foreign . ....................................................................... 63,809
12,806
40,863
21,008
2,082
1,453
106,754
Coastwise.............................................................................. 35,267
Total . ................................. 142,021
__________
At Norfolk it has been found impossible to board all vessels arriving coastwise,
which accounts for the reduced number of seamen shown under said
heading; in fact, it is understood such vessels need not be boarded, and that is
the practice usually followed. The total of arriving seamen for the year 1919
was 122,673, so it will be seen that there was a material increase for 1920.
As mentioned in previous reports, the issuance of seamen’s identity cards is a
task of great magnitude, and this work takes up a large part of the time of the
force of inspectors at both Norfolk and Newport News, so that other classes of
immigration work have suffered on account of the necessity of issuing said cards.
The work of issuing the cards is so tedious in detail and requires so much time
that the labor involved in writing and stamping them tends to prevent an intelligent
examination of the seamen. Several years’ experience with seamen’s
identity cards on the ground leads to the conclusion that they are of no real
value, since each alien seaman is required, before he can be issued a card, to
produce documentary evidence of his nationality. If he already has such evidence
in his possession there appears little merit in issuing him a further document,
at great expense of time and labor to the Government, besides the delay
to landing of crews and the enormous aggregate cost to steamship companies for
photographs. To really control the landing of alien seamen it would be necessary
to have an elaborate system of guards at each pier, with an immigrant
inspector always on duty, the guards to be armed and prepared to use their arms.
Of course, such a system would be impracticable on account of the cost, and even
then alien seamen would desert without identity cards or medical inspection, as
they have always done and will likely continue to do. The present system of
identity cards works a hardship both on the immigration force and the seamen,
as an insufficient force is furnished to issue the cards promptly, thus detaining
the seamen on board. Vessels frequently touch for bunker coal after a long
voyage, and shore leave can not be had because of insufficient time to issue
identity cards. The approximate number of seamen’s identity cards issued in
district No. 6 for the fiscal year was 71,316.
The number of alien seamen medically certified in the district under amended
rule 10 was 1,161, of which number 996 were treated in hospital. The handling
of these medical cases has vastly increased the work, as the agents must be
billed for hospital treatment in each case, bills collected and paid, and a great
deal of other detail work in connection. This business, coupled with the issuance
of identity cards, has overwhelmed the force with work, so that immigration
work in general has to be performed in great haste and not in the thorough
manner desirable, and many things must be left undone which ordinarily would
receive attention. Commencing September 20, 1919, the medical inspection of
arriving aliens was removed from Federal quarantine (Fort Monroe) and conducted
at Norfolk and Newport News by an officer of the United States Public
Health Service assigned to each port, who accompanied the immigration boarding
officer in boarding vessels. This is a much more satisfactory arrangement
than conducting the inspection at Fort Monroe, since the medical examiners
there had their quarantine duties to perform, besides having insufficient time
within which to make a proper immigration examination, they really not having
been in a position to give immigration work proper and sympathetic attention.
The most serious difficulty in carrying out rule 10 is the lack of adequate hospital
facilities to receive the alien seamen certified. The hospital space available
has been inadequate a number of times to meet the requirements, thus
creating a very embarrassing situation. Beds for only 70 patients were available
at the close of the fiscal year, while at least double that space is necessary.
As recommended in the previous annual report, it is believed that a fine should
be provided for the bringing of alien seamen afflicted with loathsome and dangerous
contagious diseases.
15283—la b 1920---- 39
610 REPORTS OF DEPARTMENT OF LABOR.
STOWAWAYS.
Of the 217 stowaways (all aliens) arriving in this district, 41 were admitted
and 176 debarred. During the fiscal year 1919 the number of alien stowaways
arriving was only 49, so it will be seen that the increase in number of stowaways
has been great. As a matter of course, the holding of boards of special inquiry
and effecting deportation in these cases, has materially increased the work.
ESCAPES.
Fourteen aliens escaped during the yepr, 10 from the immigration detention
room and 4 from vessels after having been placed on board for deportation.
The Norfolk immigration detention room is a most inefficient arrangement, so
that it has become necessary to confine practically all detained aliens (who are
principally stowaways) in the city jail to guard against escape. Some new detention
arrangement, with an adequate force of guards, is necessary to handle
the work properly. In fact, without suitable watchmen or guards, in view of
the number of stowaways, etc., present arrangements are most inadequate in
effecting deportation, etc., as the small force of inspectors can not be spared
from the issuing of identity cards, and it is necessary to require steamship
interests to employ special oflicers to handle deports and bring in aliens from
vessels.
HEAD TAX.
During the fiscal year alien head tax was collected in the sum of $5,90S. The
foregoing shows an increase over the last fiscal year of $1,252.
FINES.
Fines assessed in this district during the fiscal year aggregated $10,110. An
increase of $9,700 is shown over the previous fiscal year. A large number of
fine deposits in addition were required, but the fines were remitted by departmental
action.
ALLOTMENTS.
The allotment for the fiscal year was $13,000. The deficit will amount
approximately to $350.
HABEAS CORPUS.
No writs were sued out during the fiscal year, but three cases remain pending
which originated in the fiscal year 1917.
ARRIVING VESSELS.
The total number of vessels arriving from foreign at Norfolk, Wilmington,
and Newport News during the fiscal year was 2,636.
In addition to these from foreign 319 vessels from coastwise were boarded
at Norfolk and 518 at Newport News. As heretofore stated, the boarding of
all coastwise vessels is not undertaken at Norfolk, and no figures are available
to show how many such vessels arrived at Norfolk. For the previous fiscal
year the total of vessels in the foreign trade arriving, both coastwise and from
foreign, was given as 2,999. It will be seen, that approximately 2,636 vessels
arrived'from foreign in the fiscal year 1920; so had al] coastwise vessels been
boarded and counted in the total for 1920 would have been materially larger
than for 1919. In short, there has been a great increase in the number of
vessels arriving in the district from foreign, particularly toward the close of
the' fiscal year, so that it has been impossible to handle the crews and issue
identity cards in a prompt and efficient manner with the force available.
CHINESE PREINVESTIGATIONS.
During the year there were 7 preinvestigations of status for return certificates
(5 laborers and 2 merchants) and 7 investigations of alleged American-born
Chinese as to citizenship, a total number of 14 investigations, as compared with
10 cases last year.
REPORT OF COMMISSIONER GENERAL, OF IMMIGRATION. 611
INVESTIGATIONS.
These was a total of 221 miscellaneous investigations during the fiscal year,
including 40 warrant and 175 naturalization investigations.
CHINESE SEAMEN.
During the fiscal year 2,353 Chinese seamen are accounted for on board
vessels arriving in this district. This figure shows a decrease of 3,353 from the
number of Chinese seamen arriving during the fiscal year 1919. Under this
heading it may be stated that many Chinese stowaways have been arriving on
vessels from England during the latter part of the fiscal year, it being understood
that Chinese seamen are no longer allowed by the seamen’s union to ship on
British vessels in England, and these stowaways state that they are no longer
able to earn a livelihood in England on this account. A considerable number
of Chinese seamen are deserting in this district, and there is little doubt that
the Chinese-exclusion law is being violated through this method of entry.
ANARCHISTS.
Five cases under this heading were investigated during the year, and in 4
of them warrants of arrest were secured and served, and canceled after due
hearings were held. Of the 4 warrant cases, 3 involved alien seamen employed
on American vessels, who had personal difficulties with the ships’ officers,
which resulted in the officers filing charges of anarchy, etc., against the seamen.
In no case were the charges substantiated, and it was impossible to determine
who was most at fault, the officers or the seamen. The alien population in
both Virginia and North Carolina is light, so there are no strongholds of unassimilated
foreign peoples, wherein the teachings of anarchy usually take root.
COOPERATION WITH OTHER DEPARTMENTS.
During the year 1920 this office has cooperated with other Government
agencies fully, and almost without exception they have accorded this service
the same treatment.
ALIEN ENEMIES.
There have been no transactions under this heading, except the exclusion
of German stowaways and of German aliens coming in as members of crews
of American vessels. On several occasions American vessels have signed on
German citizens in German ports, claiming other crew men could not be found.
ILLITERACY TEST.
But few exclusions on the grounds of illiteracy occurred, and those cases
which did occur were usually stowaways from southern Europe, Malta, etc.,
and the applicants would have been inadmissible on other grounds.
PERSONNEL.
Owing to the constant increase of foreign arrivals of vessels the hospital
treatment of alien seamen under rule 10 and the issuing of identity cards K
and L, as well as increased number of alien stowaways, the force has been
greatly overworked during the entire fiscal year. Two additional inspectors
and a male stenographer are badly needed at Norfolk, while at Newport News
the services of a male stenographer are also urgently required. At the latter
port provision was made at the end of the fiscal year for four inspectors and
the appointment of a clerk was authorized.
When .a suitable' clerk is secured, making a force of four inspectors and a
male clerk, it is believed the needs of that port will be filled. Norfolk being the
headquarters of the district, of course all filing, correspondence, warrant work,
statistical work, stamping up and filing identity cards, crew lists, changes of
crew, and similar work is carried on in that office. The time of one competent
clerk could be fully utilized in handling hospital files, making out hospital bills,
letters, etc., under amended rule 10 alone, while stamping up, filing, etc., in connection
with identity cards could hardly be accomplished on the time of one
clerk. This office has never been able to properly file the duplicate identity
612 REPORTS OF DEPARTMENT OF LABOR.
cards. The boarding of vessels at Norfolk is also a difficult problem on account
of the length of the harbor—in the neighborhood of 8 or 10 miles. A majority
of arriving vessels tie up or anchor out about 8 miles from Norfolk (Sewalls
Point). So many vessels arrive some days that it is impossible for the boarding
officer to board all of them; and if shipping increases at the same rate as during
the last three months of the fiscal year, two boarding launches may be necessary
to handle the work, with an increased inspection force.
As the bureau is well aware, the cost of living is still on the increase, and no
adequate provision has been made by adjustment of salaries to permit Immigration
Service officers and employees to maintain themselves and families in
accordance with reasonable American standards of living, and a majority of
them are hardly able to provide the bare necessities of life. Practically every
employee (excepting commissioners and inspectors in charge) who has a family
to provide for is bowed down under a burden of poverty which grows heavier
from month to month. It is almost impossible under these conditions for employees
to perform their duties with cheerfulness and dispatch. They can only
drag along from day to day, hoping to make both ends meet financially the best
they can, and that something may happen to better conditions. Those who had
small savings have seen them melt away long since. Increases of$10 per month
do not even meet the annual increases in house rent alone in this locality, one
employee having had an increase in rent of $15 per month to meet his wage
increase of $10 per month. These most deplorable conditions are bound to
react more strongly every day upon the efficiency of the service. Experienced
men will leave the service as soon as openings are found, and it will be found
impossible to secure efficient help at the wages now being paid. There would
seem to be no more important consideration than the existence of the employees
of the service, for without them the service can not exist. The bureau is most
respectfully asked and urged to do all in its power to secure living wages for its
employees.
INSPECTOR IN CHARGE, DISTRICT NO. 7. COMPRISING SOUTH CAROLINA,
GEORGIA, FLORIDA, AND ALABAMA. WITH HEADQUARTERS
AT JACKSONVILLE, FLA.
APPLICATIONS.
The total number who applied for entry at ports in this district was 21,684,
the total number admitted being 21,414 and debarred 262; 13 cases remain
pending. Four Chinese persons were admitted and 10 were granted the privilege
of transit across land territory of the United States. Of the 32 Japanese
who applied for entry, 31 were admitted on primary inspection, 1 was debarred,
leaving 1 case pending. All those admitted were in possession of proper
passports. . . . x
There were 19,660 arrivals of United States citizens, as against 17,437
departures.
DEPORTATIONS (EXPULSIONS, INCLUDING CHINESE).
During the year 142 cases were considered, detailed investigations having
been conducted in 138 of these, and as a result 74 warrants of arrest were
issued by the department. Action as follows was taken in these latter cases:
Twenty-one arrest warrants canceled; 34 deportation warrants executed; aliens
in 16 instances conveyed to other ports for deportation; 2 aliens released on
bond; and 1 case is pending. . , .
Two Chinese cases were investigated, warrants being applied for in both
instances. These cases are pending. No Japanese cases arose during the year.
SEAMEN. ,
Vessels from foreign ports boarded during the year totaled 2,554, necessitating
the inspection of 29,733 alien seamen and 16,813 United States citizen
seamen—a total of 46,546. Identification cards to the number of 14,085 were
issued covering both classes. Two hundred and ninety-five alien seamen were
certified for loathsome or dangerous contagious diseases and ordered conveyed
to hospital. Desertions numbered 715.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 613
STOWAWAYS.
One hundred and sixteen stowaways were apprehended, 23 of whom were
admitted and 93 excluded and deported. None were Chinese.
FINANCIAL AFFAIRS.
Head tax amounting to $98,944 was collected and fines aggregating $4,490
were assessed against transportation lines under sections 9, 14, 18, and 80,
$1,200 being on account of the bringing of illiterate aliens.
The allotment for the district was $6,000, and disbursements amounted to
$7 570. It is estimated that $8,000 will be required during the coming year.
One court fine of $25 and costs was imposed for the landing of an alien seaman
without inspection, the master of the vessel making payment thereof.
WHITE-SLAVE MATTERS.
It is reported that practically all cities in this jurisdiction are enforcing then
ordinances doing away with the old order of “ restricted districts, and while
there are reports that such women occupy hotels and boarding houses to some
extent there is no doubt but that the moral conditions of the country are vastly
The Savannah office reports that many societies throughout the State of
Georgia are endeavoring to secure employment and find practical remedies
to improve conditions for girls and women, and the same condition may be
said to prevail with respect to the State of Florida.
CONTRACT LABOR.
During the past fiscal year the number of Spanish laborers traveling in groups
through the ports of Tampa (principally) and Key West, Fla., destined mostly
to Ohio, became so apparent as to necessitate the closest scrutiny and examination
of all such passengers, and as a result extended investigations at the
seaports concerned were made and hundreds of aliens held for boards of special
inquiry. From the figures furnished herein it will be noted that 1,378 aliens
were detained for boards of special inquiry, and that 79 aliens were debarred
as contract laborers. During last April, Mr. Brice Edwards, Chief of the Contract
Labor Division of our bureau, investigated conditions in the district
with respect to the entry of Spaniards destined to Ohio through the ports
mentioned above and also with respect to Bahama laborers enteiing at Miami
from the Bahama Islands. His report to the Commissioner General of April
28 last covers the situation in detail. Our officers were pleased to cooperate
with Mr. Edwards to the fullest extent, and it is believed his visit to the district
was of material advantage to the service. By the assignment to duty
of one additional inspector at Tampa and one at Miami, Fla., those, poits are
now in a much better position to cope with the contract-labor situation, and it
is believed that this provision of the law is being strictly enforced at all ports
throughout this district.
WORK OF MEDICAL OFFICERS.
While a spirit of hearty cooperation between medical and immigration officials
prevails at all ports in district No. 7, and the service rendered at certain
ports is highly commendable, nevertheless one can not help being impressed by
the small number of defective seamen certified and ordered removed to hospital
at many ports, when the large number of seamen inspected is taken into
consideration.
SMUGGLING OPERATIONS.
The number of Chinamen passing in transit from China via San Fiancisco
and Key West to Cuba is increasing. During the fiscal year 1919 approximately
3,000 of such Chinamen passed out of the port of Key West, Fla., while
during the fiscal year last past there were 4,599 transit Chinese who departed
from that port. This large movement of Chinese into Cuba has naturally resulted
in attempts at Chinese smuggling into this district from. Cuba, and
there is no doubt that a small number of Chinamen have gained illegal entry
614 REPORTS OF DEPARTMENT OF LABOR.
in that manner despite every precaution taken by the force available, which is
altogether inadequate to properly handle the situation.
On May 16 last the Cuban fishing smack Remplaza was seized off the Florida
coast, near Tarpon Springs, and there were found on board, in addition to a
large amount of liquor, 17 contraband Chinese. The Chinamen were promptly
landed in the county jail at Tampa, along with the crew of six men. Twelve
of the Chinamen were excluded and deported by the board of special inquiry
at Tampa, and at the close of the fiscal year five Chinamen were still being
detained by the Department of Justice as material witnesses in the prosecution
of the crew.
There have been a few cases of aliens—arriving on passenger vessels at
Tampa and Key West—who were smuggled into the United States with the
assistance of certain members of the crews of said passenger vessels. A vigorous
fight was made against this practice by our service and by the responsible
officers of the vessels, with the result that the men implicated are reported
to have been discharged, and all attempts at smuggling in this manner have
ceased.
SOCIETIES FOR THE BENEFIT OF ALIENS.
There are no special organizations in this district for the benefit of arriving
aliens.
SETTLEMENTS OF ALIENS OF PARTICULAR RACES.
At Ybor City and West Tampa, Fla., both of which are suburbs of Tampa,
Cubans and Spaniards are practically co onized. There is also quite a colony
of Negroes from the Bahama Islands at Miami, Fla., and a considerable number
of others live in the small towns adjacent to Miami, and along the east
coast of Florida.
CHINESE PREINVESTIGATIONS.
The cases of 4 laborers, 4 merchants, and 9 natives, applicants for prejnvestigation
of status, were considered; return certificates were granted in 15
cases, the remaining case being still pending.
INVESTIGATIONS.
Investigations were conducted as follows: Regarding applicants for entry, 9;
in warrant cases, 2; and in naturalization matters, 370. None of these concerned
Chinese persons.
STATION AND EQUIPMENT.
Aside from the immigration station at Charleston, S. C., which has been
turned over to the Navy Department, there is no regular immigration station
in this district. At Key West, Fla., the Peninsular & Occidental Steamship
Co. has established a small station, consisting of a two-room building on the
wharf, for the temporary detention of aliens arriving at that port by vessels
of their line.
PERSONNEL.
The officers and employees of this district are loyal and efficient and the cooperation
is admirable. From comparative figures shown farther on in this
report it will be noted that during the past year the business conducted in this
district was about double that transacted in any preceding year, and this, considering
the additional duties incident to the enforcement of the new immigration
act, the new seamen regulations, and the enforcement of the many wartime
regulations, has more than doubled the work performed under former
conditions. It has been necessary at practically all stations in this district
for the employees to work overtime, oftimes on Sundays and holidays, and to
forego annual leave in many instances, all of which has been cheerfully and
uncomplainingly done. Nevertheless, to properly carry on the work, and in
justice to many overworked employees, immediate steps should by all means
be taken to increase the number of employees assigned to duty in this district,
especially at Key West, Fla., where the largest increase in business is noticeable
and where from al1 indications business will continue to increase from
year to year. The question of salaries is also worthy of serious consideration
if experienced and capable men are to be retained in service, for while
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 615
the slight recognition recently received is fully appreciated by all, the fact
remains that the standard of salaries in general paid immigration officers is
about one-half that paid under former normal conditions.
COOPERATION WITH OTHER DEPARTMENTS.
The results under this heading are all that could be desired and have been
in every manner entirely satisfactory.
ALIEN ANARCHISTS.
Arrest warrants were issued in 30 cases, action thereon having been taken
as follows: Aliens released on bond, 2; deported, 10; and warrants canceled,
18.
ALIEN ENEMIES.
The United States internment stations at Fort Oglethorpe and Fort Mc-
Pherson, Ga., have closed during this fiscal year, and all internees either repatriated,
deported, or admitted.
MISCELLANEOUS.
On account of trans-Atlantic transportation having discontinued during the
period of the war, the greater portion of traffic to and from Cuba having previously
been carried by those lines—for instance, the German and Austrian
lines—the Cuban business man and producer has had to depend entirely on
the markets of the United States in which to buy and sell, and consequently all
the traffic has been thrown to the lines plying out of the Gulf ports. The
Peninsular & Occidental Steamship Co. repoits that with the daily service
through Key West, Fla., the increase of business has been so great as to make
the tax on the present transportation facilities beyond any anticipated preparations
The natural consequence is that the passenger traffic follows the
freight traffic in order to facilitate the buying, selling, and shipping both to and
from the United States, and the company above named reports that passenger
traffic has likewise overtaxed the capacity of all passenger-carrying vessels
to the extent that lines plying through Florida ports at times have all their
snace sold three or four weeks in advance.
The Peninsular & Occidental Steamship Co. states that the demand for passage
is so "reat that it is now negotiating for a vessel licensed to carry something
over 400 passengers and that it is also building a ship having 142 staterooms,
which will go into service the first of the year. Until she is completed just what
the limit of her capacity will be can not be stated.
COMMISSIONER OF IMMIGRATION, NEW ORLEANS, IN CHARGE OF
DISTRICT NO. 8, COMPRISING LOUISIANA, MISSISSIPPI, ARKANSAS,
AND TENNESSEE.
APPLICATIONS.
During the fiscal year ended June 30, 1920, applications to the number of
6144 were passed on within this district, which, compared with arrivals during
the fiscal year 1919, shows an increase of over 36 per cent. Of these 6,006 were
admitted and 138 debarred. Of the total arrivals, 377, or 6.1 per cent, were held
for examination by the board of special inquiry. Aliens arriving at this port
came mainly from South and Central America, the West Indies, Mexico, and
Spain As new steamship lines are being established between New Orleans and
other ports in the countries named, it is confidently expected that the passenger
traffic through this port will continue to increase in volume, and during the fiscal
year 1921 will undoubtedly extend to European countries other than that named.
The class of applicants reaching this port is above the average, a large percentage
being business men coming for a temporary stay of varying periods of
time. As business between New Orleans and the countries mentioned grows,
arrivals of the class referred to will also increase through this port. The increase
in arrivals at New Orleans since the war ended can not be attributed to
the cessation of hostilities, as applicants from European ports, except Spam,
have not arrived here. It is anticipated that passenger-carrying vessels between
616 REPORTS OF DEPARTMENT OF LABOR.
New Orleans and France, England, and Belgium will be put in service at an
early date.
Within the time covered by this report, 5,802 United States citizens arrived at
New Orleans. Citizen arrivals decreased from the previous year by 2,020.
Of the 39 Chinese arrivals during the year, 3 were stowaways—2 arriving
from England and 1 from Habana, Cuba. Six were diplomats and other exempts,
and 30 others applied for the transit privilege, and were admitted to pass
out at San Francisco to Hongkong, China. Applicants of this race for the
transit privilege at this port have decreased steadily for several years past.
The decrease may be accounted for on the basis that some difficulty has been
experienced in the past by such applicants on account of being unable to proceed
promptly from New Orleans to San Francisco. Delays here occasioned the
transits considerable extra expense, and to avoid that Chinese are now applying
at other ports.
The 13 Japanese applying within this district during the year were of the
exempt classes and held proper passports. All were admitted.
Within the fiscal year 598 Chinese transits admitted at other ports passed out
at New Orleans for Cuba and South and Central American countries. This number
is far below what it should be considering the. thousands of Chinese proceeding
to Cuba throughout the year. The small number passing out at this
port is due to strikes and limited steerage accommodations on vessels trading
between this port and Habana, Cuba.
DEPORTATIONS.
Investigations in 25 cases were made, including 1 Chinese, warrants of arrest
in 14 instances having been served. Of this number, 4 were canceled and
5 warrants of deportation executed, the aliens in question having been deported,
and 5 cases pending, the aliens in 3 cases within the latter class awaiting deportation.
In addition to the above, 18 cases remained pending from the previous fiscal
year. Of these, 6 warrants of arrest were canceled and 8 warrants of deportation
executed; 2 cases are pending, and the aliens involved in the remaining 2
have been conveyed to New York for deportation.
SEAMEN.
Only 19 seamen applied for admission during the year, all of whom were
admitted. There were no applications for admission filed by any Japanese or
Chinese seamen.
The comment set forth under this heading in the last annual report might be
repeated here, since no very important* changes in the rule have been made.
It is believed that the facts set forth regarding diseased seamen are sufficient
to definitely establish the beneficial results growing out of the enforcement of
the law and rules governing the treatment of diseased alien seamen. Much
difficulty is being experienced by masters of vessels reaching this port with
Chinese crew men. These seamen desert in large numbers to reship on other vessels
from United States ports in order to obtain higher wages. There seems to
be no way to prevent these wholesale desertions, as Chinese seamen are entitled
to shore leave without bond and invariably avail themselves of the privilege.
Masters and agents have called on this office for assistance in the matter, but
no aid could be rendered them. A careful check has been kept of all desertions
of this class, and it has been found that practically all deserters have left one
ship to join another going foreign. Vessels to the number of 1,822 arrived at
the various ports in this district during the fiscal year just closed, resulting
in the examination of 79,919 seamen, 1,269 of whom deserted. Seamen’s identification
cards to the number of 9,402 were issued and 70,517 cards were viseed,
certifications for loathsome contagious diseases amounting to 399. The total of
Chinese' seamen arriving from foreign ports was 1,968, 52 of whom deserted.
There were 26 Japanese seaman desertions.
stowa ways .
As was the case in the prewous year, a large majority of the 135 stowaways
arriving at this port within the year were young Negroes. Most of them were
without means and but few of them were in possession of proper passports.
Ninety-five of them were excluded as stowaways and as persons likely to become
public charges, 3 of this number being Chinese.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 617
ESCAPES OF ALIENS FROM VESSELS AND STATIONS.
Of the 7 aliens who escaped during the year, only 1 was retaken. Five succeeded
in escaping from the detention quarters and 2 from vessels. Four were
being held under warrants of deportation; 3 were stowaways.
FINANCIAL AFFAIRS.
There was collected and turned into the Treasury during the year head tax
amounting to $24,928. Administrative fines under the several sections of the
act were imposed, collected, and turned into the Treasury to the amount of
$17,620. Fines assessed by the courts in civil and criminal prosecutions
amounted to $550. Receipts from medicines furnished diseased alien seamen,
$335.15; receipts from concession for restaurant privilege, $50; receipts from
structural iron on burned wharf, $50; one Chinese transit bond paid, $500; making
a total of $44,033.15 turned into the Treasury from this district during
the year.
The allotment for the year was $11,000, of which $10,938.58 was expended.
Of the expenditures, $470.38 constituted an outlay on station and equipment.
The amount of allotment recommended for the ensuing year as necessary for
the satisfactory administration of this district ($15,000) should prove sufficient
to relieve the effort and annoyance experienced in trying to operate within
a limit of expenditure inadequate for the actual requirements of the district.
The amount needed for equipment, etc. ($1,000), is for replenishment of supplies
used in properly caring for detained aliens, including a reasonable stock
of drugs. The sum of $28,525 is needed, as set forth in the last annual report,
to cover repairs to the dock and runway leading thereto, as specified in the
report of Civil Engineer Howell, submitted to the bureau July 7, 1919.
CHINESE ARRESTED BEFORE UNITED STATES COMMISSIONERS AND COURTS.
* No Chinese were arrested on United States commissioner’s warrants during
the year. No new cases arose during the year. The four cases pending from
last year will very likely be disposed of during the early part of the coming
fiscal year. The United States attorney has been requested to arrange for
hearings as early as possible, and, while exceedingly busy with other important
cases, has agreed to dispose of the pending Chinese matters at the anticipated
time.
civ il suit s .
Five cases under section 32 remained pending from last year, 6 new cases
arising’ during the present year, 2 under section 10 and 4 under the first-named
section. Fines were imposed in but 2 cases (sec. 32) ; the others are still
pending.
Civil suits under section 32 have not resulted very satisfactorily in this district.
The court usually imposes a fine of $25 in such cases. Such penalties
are too light to produce a deterrent effect, but the court seems to feel that the
offense committed is slight and does not warrant a heavier penalty.
CRIMINAL CASES.
Two new criminal cases arising under section 8 of the act resulted in as
many convictions. A Chinese smuggling case at Gulfport, Miss., tried in the
district court at Biloxi, Miss., resulted in the conviction of an American seaman
hailing from the Pacific coast. He was held in jail a number of months prior
to the trial of the case, which was taken into consideration by the court,
which sentenced him to serve one month in jail and pay a fine of $500. The
other case resulted from an American seaman attempting to smuggle into the
country five illiterate Spaniards. The trial resulted in a conviction, and the
court sentenced the defendant to serve a year and a day in the Atlanta Federal
Penitentiary. These two convictions served to put seamen generally on notice
that the smuggling of aliens through ports of this district is not only a difficult
but also a dangerous undertaking, and, so far’as known, no other similar
attempts were made during the year.
WRITS OF HABEAS CORPUS APPLIED FOR.
The past year proved to be the first in several in which the service has not
been called upon to fight applications for writs of habeas corpus. This is
618 REPORTS OF DEPARTMENT OF LABOR.
largely clue to the character of aliens who apply at this port. Most of them are
clearly admissible, and those found to be inadmissible are so entirely undesirable
that they accept rejection complacently.
WHITE-SLAVE MATTERS.
No cases have arisen under this heading during the year requiring comment.
A few investigations have been made in certain cases of alleged immorality
of girls and women, but the facts developed were not sufficient to warrant
action by this service.
CONTRACT LABOR.
Only 3 aliens were debarred at this port during the year as contract laborers.
Many applicants suspected of coming in violation of the contract-labor laws
were held by primary inspectors for examination before the board of special
inquiry, but sufficient evidence could not be obtained to warrant exclusion.
Such aliens usually admit on primary examination that they are coming to
accept prearranged employment, but when they appear before the board they
are prepared to tell an entirely different story. As these aliens are primarily
examined at quarantine, 90 miles below New Orleans, it is possible for them to
be advised as to the law bearing on their cases prior to their appearance before
the board. To offset this possible imposition, it is intended to obtain sworn,
signed statements from future suspect contract laborers at the time of their
examination at quarantine by primary inspectors. Such statement may be
used to good advantage before the board in the final examination of the alien.
It stands to reason that, of the more than 6,000 aliens applying at New Orleans
during the year, more than 3 of that number were coming to accept prearranged
employment.
WORK OF THE MEDICAL OFFICERS.
No cases out of the ordinary have come before the medical officers, and no
epidemics have occurred. The surgeons doing immigration work at the quarantine
station have been commendably diligent in detecting diseased aliens,
and the surgeon attached to the service at New Orleans has performed his
duties in a like satisfactory manner. To indicate the work of the surgeons at
quarantine and New Orleans, it may be stated that 1,729 vessels were boarded
and the passengers and crewmen physically examined during the year. Only
157 vessels were permitted to pass quarantine for examination at New Orleans
proper. All vessels brought a total of 61,688 alien passengers and seamen.
Of the seamen, 399 were certified and removed from the vessels for treatment
under the terms of the act. Of the passengers, 35 were certified. Of the "seamen
certified, 237 were placed in the marine hospital and 162 were treated at the
station. On account of insubordination and other causes, 16 of those placed in
the marine hospital were subsequently transferred to this station for completion
of treatment, thus making a total of 174 treated here. Among the
seamen detained and treated at the station,' there existed or developed 374
cases which required 2,399 treatments by the surgeon attached to this station.
It will be noted that the number of seamen certified falls far below the number
found to be diseased during the previous fiscal year, when 607 were removed
from vessels. The decrease in the number of diseased seamen found on board
vessels indicates the degree of improvement brought about under the operation
of the act. Surgeons declare that the improved conditions on board ship are
easily discernible and masters and crewmen are more particular regarding the
health conditions of those connected with the vessels than at any time in the
past.
SMUGGLING OPERATIONS.
One attempt to smuggle aliens through this port, as indicated heretofore in
this report, was made during the year.
An attempt to smuggle Chinese through this district was frustrated at the
subport of Gulfport, Miss., tduring the year. An American citizen seaman
attempted to land a Chinese laborer unlawfully at Gulfport on August 6, 1919.
The Chinese was taken into custody and made a full confession of his agreement
with the seaman to bring him from Cuba and land him in the United
States for a money consideration. After proper procedure the seaman was
sentenced to serve 30 days in jail and to pay a fine of $500.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 619
If any other attempt has been made to land Chinese unlawfully within this
district during the year, it has not been discovered. There may have been successful
landings effected, but if so, no intimation of any has reached officers of
tlio service.
The results obtained in the cases reported undoubtedly proved of great value
to the service in deterring other seamen who might have engaged in the very
profitable business of smuggling aliens into the country through ports in this
district. Constant vigilance on the part of all officers within the district has
not disclosed other attempts to violate the laws.
SOCIETIES EOK THE BENEFIT OF ALIENS.
Nothing additional to .what has been stated in previous annual reports can
be furnished under this heading. The aliens arriving at New Orleans are
quickly disposed of and the interest of societies has not been directed toward
them.
INVESTIGATIONS.
Investigations were conducted in 30 warrant cases, in 57 naturalization matters
and in 12 other matters. Investigations of applications for admission of
aliens were made in 27 cases. Under the head of Chinese investigations were
handled the cases of 9 applicants for admission, 52 for preinvestigation of status,
1 as a basis for warrant proceedings; and application for duplicate certificate
of residence was denied in one instance.
Under this heading, it is only fair to the district to state that the investigations
made cover only such cases as were presented for consideration. In other
words, no special effort was made to seek out individuals for investigation. All
cases coming within the knowledge of the officers and requiring investigation
were given attention but such cases were not actively sought out for the reason
that the official force was reduced 50 per cent from the fiscal year 1919. Five
inspectors have done practically all the primary examinations and most of the
miscellaneous investigation work during the year. To give prompt and satisfactory
attention to matters as they came up was as much as could be reasonably
expected of these officers, two of whom were continually on detail at the
quarantine station. The results accomplished under all the circumstances do
credit to the officers which is a source of gratification.
STATION AND EQUIPMENT.
Owing to the industry and efficiency of the two general mechanics, the janitor,
laborers, and charwomen the buildings and grounds present a well-kept appearance
and may be said to be in a first-class condition. The two general mechanics
employ each summer season in making general repairs wherever needed on
buildings and the commissioner’s residence. Deterioration wherever found is
promptly marked for repair, with the result that the property is very well
preserved without any considerable money outlay having been necessary up
to the present time. All equipment on the reservation is in good condition. It
will be necessary to replenish the stock of blankets used in the detention quarters
and other supplies used on account of detained aliens. These matters will
be presented to the bureau in proper form when the appropriate time arrives.
Practically the same conditions set out in the last annual report under this
heading exist at the present time.
The detention quarters have been in constant use throughout the year, from
25 to 50 aliens being detained therein daily. In addition to the detention
quarters proper, several rooms have been set aside and equipped for the accommodation
of aliens afflicted with certain contagious diseases, by class, in order
that other detained aliens may not come in contact with them. The plan works
very satisfactorily and the best results are obtained. A total of 653 aliens were
detained for varying periods of time during the year.
The hospital facilities of the station are limited. The equipment is ample
for the service contemplated and the results obtained in the past have been
entirely satisfactory. Many distressingly diseased seamen have been successfully
treated at the station and the service could be greatly extended by the
employment of trained nurses and a competent interne. This, however, is not
deemed necessary at this time.
620 REPORTS OF DEPARTMENT OF LABOR.
PERSONNEL.
The personnel of this district is very satisfactory and officers and employees
have worked willingly and faithfully throughout the year. On account of the
reduction in force each individual has found it necessary to extend his efforts
to the limit to keep the efficiency of the service up to the high standard previously
set, and it is to their credit that it can be said they have increased their
efforts and correspondingly their ability without urging. Their pride in the
service and their work has prompted them to greater effort with the result that
a 50 per cent reduction in the force of inspection officers failed to show any
deficiency in the results accomplished during the year when compared with the
results reported in tliQ previous year. This was made possible by the increased
efforts of the officers and the establishing of inspection service at quarantine.
The increased compensation granted some of the officers and employees with
the beginning of the new year is duly appreciated and the fortunate ones are
correspondingly encouraged. It is regretted, however, that the increases
granted could not be made more substantial or more in keeping with the value
of the services rendered. The salaries paid, under the existing conditions, are
too low, and the slight advances granted in certain cases will not meet the increase
in house rent the officers will be required to pay after September 30. It
is feared that the slight increases granted will not prove sufficient to hold those
officers in the service who may be able to secure employment with private concerns
at greater compensation.
GENERAL COMMENT.
The establishment of inspection service at the quarantine station on February
26, 1919, has proved to be of great advantage in every way. It has made it
possible for five inspectors to examine a total of 61,688 alien passengers and
crewmen, issue 8,941 seamen’s cards in duplicate, vise 69,866 such cards, in
addition to the various other duties they were required to perform, including
the examination of 29,665 United States citizen passengers and crewmen. Had
not the examination work, been segregated it would have been impossible for
the five officers to handle it promptly and satisfactorily.
BOARDING DIVISION.
This division, located in room 102, Customhouse, has been an exceedingly
busy place throughout the year. The division has direct charge of all incoming
vessels; handles all matters pertaining to seamen; verifies all departures;
keeps all records relating to diseased seamen; seamen’s duplicate identification
cards; record of arriving vessels, showing number of passengers and crewmen,
etc. Officers attached to the division conduct investigations, warrant hearings,
etc., when required. The officer in charge of the division reports for administrative
action all failures of masters, owners, or agents to comply with the
terms of the various statutes, with all facts bearing upon such violations. The
volume-of work originating in the boarding division is immense, and when it is
considered that all the affairs of the division have been promptly disposed of,
including passport and permit matters, it must be conceded that the officers
have merited praise.
COOPERATION WITH OTHER DEPARTMENTS.
Harmonious cooperation with other Government services has marked the
closing year. It has been found that the interests of this service, the customs
service, and the Department of Justice are closely allied, and mutual benefits
have come to these services by close and unselfish cooperation established during
the war and continued without the slightest friction to the present time.
ANARCHISTS.
As set out in the last annual report, this district continues to be free of
anarchists, communists, or Bolshevists. Numerous strikes have occurred during
the year and a restless condition among the laboring classes exists, but so
far radicalism has played no part in disturbances, and all strikers are union
men who seem to realize that their difficulties are temporary and they are loyal
citizens of the best and fairest country on earth.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 621
INSPECTOR IN CHARGE, DISTRICT NO. 9, COMPRISING SO MUCH OF
TEXAS AS IS CONTIGUOUS TO GALVESTON.
APPLICATIONS.
<
The total number of arrivals during the past year, including American citizens
and nonstatistical aliens, was 1,172. This is a very decided increase over
the arrivals during any 12 months since the fiscal year ended June 30, 1915.
During the period from July 1, 1915, to June 30, 1919, there was practically a
cessation of immigration through ports in this district, due, of course, to the
war and conditions resulting therefrom. There is every indication that the
arrivals during the coming year will approximate the arrivals during the prewar
days. It is understood that plans have been consummated whereby three
vessels, having accommodations for 60 first-class passengers each, will very
soon be operating between Galveston and Mexican ports. An Italian line is
now endeavoring to perfect arrangements for passenger service between Galveston
and Italian ports, while one or two other European lines are contemplating
inaugurating passenger service to this port. Two small vessels belonging
to one of the oil companies are now being fitted out for carrying passengers
between Beaumont and Mexican ports. If these plans are carried out, it may
be necessary to arrange for detention quarters during the coming year. Because
of the lack of better facilities incoming passengers continue to arrive
singly or in small parties on tramp steamers, private yachts, tugs, and even oil
barges. These vessels are frequently destined to small out-of-the-way ports
and arrive at unusual hours, thus greatly increasing the work in connection
with the inspection of arriving passengers.
Four hundred and eighty-three aliens were admitted and 49 debarred.
Galveston is not a port of entry for Chinese, and for that reason there are no
transactions to report under this heading.
There were no applications for admission by aliens of the Japanese race
through ports in this district during the past fiscal year.
DEPORTATIONS (EXPULSIONS ) .
At the beginning of the fiscal year there were pending 47 warrants of arrest
and 60 warrants of deportation.
Service of arrest warrants was accomplished in 45 cases, 617 cases having
been considered and investigations conducted in 310 of these. Seventeen warrants
were canceled, 9 covering the arrest and 8 the deportation of aliens. Deportation
for various causes was effected in 54 cases. At this writing 47 arrest
warrants and 49 deportation warrants are pending.
Of the 47 pending warrants of arrest 32 are for aliens whose whereabouts
are unknown to this office, 3 have been served and the cases are now pending
before the department, 4 are pending service, and 8 were deferred by the
department pending further reports. Of the 9 warrants of arrest canceled 3
were for Mexican aliens who voluntarily returned to their native country, 1
person for whom a warrant was issued proved to be a citizen of the United
States, and 5 were admitted to this country upon payment of the usual head
tax. Of the 49 warrants of deportation now pending 32 are for aliens serving
penal sentences in State penitentiaries; 15 are for aliens whose whereabouts are
unknown to this office, and 2 are pending deportation. Eight warrants of deportation
were canceled by the department. Two of these were for aliens who
voluntarily returned to Mexico, their native country, 4 aliens died, and 2 aliens
whose cases originated before the war, were permitted to remain in the United
States. Of the 54 aliens deported 11 who were seamen were permitted to reship
foreign in lieu of deportation, resulting in a considerable saving in the matter
of expenses. Forty laborers imported under departmental exceptions voluntarily
returned to Mexico through the instrumentality of officers of this district,
as did 2 insane Mexican aliens without the institution of deportation proceedings.
The departure of these 42 aliens was verified by the immigration authorities.
All but 1 departed through border ports. As the bureau is aware,
Mexican aliens who have been convicted of crime in this country involving moral
turpitude and in whose cases deportation proceedings are instituted are, upon
their release from penal institutions, deported through New Orleans to Tampico
or Vera Cruz, thus removing them as far as possible from the border and minimizing
the possibility of their return to this country. In view of the proposed
passenger sailings between Galveston and Mexican ports, it is anticipated that
622 REPORTS OF DEPARTMENT OF LABOR.
all such cases can, in the very near future, be deported through this port, at a
very great saving of expense. It is believed that it would be an excellent idea
to adopt this plan generally in cases of deports from other districts, where the
aliens are of the criminal class or are prostitutes. The principal objection,
however, to conveying such aliens to this port for deportation is the present utter
lack of detention facilities. The only places in this district for the detention
of aliens at the present time are county jails, and this would work a grave hardship
in some cases, especially where female aliens are involved.
There were no Chinese cases transacted.
At the beginning of the fiscal year there were pending 5 warrants of arrest
for Japanese aliens and 1 warrant of deportation.
But 1 case called for issuance of an arrest warrant during the present fiscal
year, and as service was not had and decision regarding the 5 previously mentioned
has not been rendered, 6 cases are held for further proceedings. One
warrant of deportation is still pending.
The entire district is singularly free from the activities of anarchists, communists,
extreme radicals, etc. Even the I. W. W.’s have made no attempts to
perfect organizations in this section of the country. A number of investigations
were conducted during the past year regarding alleged extremists, but only
one alien of that class was deported from the district.
SEAMEN.
During the past fiscal year 1,480 American vessels from foreign ports and
vessels of foreign registry arrived at ports in this district, all of which were
boarded and inspected. Last year American vessels formed 64.83 per cent of
the total arrivals, while this year they form 63.80 per cent of the total arrivals,
there being 936 of the former and 544 of the latter. The total number of seamen
arriving on the above vessels was 47,756. A total of 1,712 Chinese seamen
arrived as members of crews of 174 vessels. There were 566 deserting seamen
reported by masters of vessels, of whom 16 were of the Chinese race, 4 were natives
of the Asiatic zone described in section 3, and 6 were subjects of Japan.
Permits were issued to 530 seamen to be discharged to reship foreign.
A total of 288 seamen applied for admission to the United States, 2 of whom
were rejected.
Identification cards were issued to 9,083 seamen; 497 aliens following such
calling were certified as afflicted with a loathsome or dangerous contagious
disease, of whom 216 were removed from vessels to hospitals for treatment.
Arrangements have now been perfected at practically every port in the district
whereby the medical examination of arriving seamen is conducted by
officers of the United States Public Health Service at the time the vessel is
boarded for quarantine inspection. A memorandum is made by the examining
surgeon of every certificate which will later be issued and given to the master
of the vessel for the information and guidance of the boarding officer. As
soon as the vessel is docked it is boarded by an immigration officer who examines
all officers and crewmen in accordance with the law and regulations,
directs the removal to the hospital for medical treatment of all hospital cases,
arranges for the issuance of seamen’s identification cards, and issues such
instructions as may be deemed appropriate and necessary.
The adoption of Form 689, “ Statement of master of vessel regarding
changes in crew prior to departure,” has greatly simplified the matter of
securing the required data regarding changes in crews. Much confusion
resulted from the attempted use of the old Forms 682 and 684, the principal
error being the use of the wrong form in reporting transactions. At the principal
ports and subports in the district arrangements have been made with the
customs officials whereby vessels will not be cleared until a certificate from an
immigration officer is presented to the effect that all provisions of the immigration
laws and regulations have been complied with. This method has proved
very satisfactory to the masters of vessels, agents, and this service, as it is a
mutual protection to all concerned. Fairly accurate records are being secured
regarding all arriving and departing seamen; the exceptions are the unexpected
changes in crew made at the very last moment before sailing, but in most
instances the masters make supplemental reports in such cases and send the
reports back by the pilots. In connection with the handling of seamen this
office has the most active and hearty cooperation of practically all steamship
agents, masters of vessels, customs brokers, and the various consuls.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 623
Relative to deserting Chinese seamen, it was ascertained by correspondence
that a number of such aliens who deserted vessels in this district reshipped foreign
at ports in other districts.
STOWAWAYS.
There were 70 arrivals of stowaways, 31 of whom were admitted and 39
debarred.
During the past year a number of American citizens, mostly young men,
arrived at ports in this district as stowaways, usually from Mexican or European
ports. Those arriving from Mexico are always closely questioned to
ascertain whether they are draft evaders, while those arriving from European
ports are questioned with a view of determining whether they may have
deserted the American Army in France or elsewhere. Where there was the
slightest suspicion of either, such persons were invariably turned over to the
officials of the Department of Justice for further investigation and such action
as might be deemed appropriate.
Four stowaways, who apparently landed without the officers of the vessels
on which they arrived being aware of their presence, were apprehended and
deported.
ESCAPES OE ALIENS FROM VESSELS AND STATIONS, EXCLUSIVE OE SEAMEN.
In September, 1919, the acting Chinese inspector in charge at New York
advised that eight Chinese, who were under arrest in the district of Pennsylvania,
had been permitted to reship foreign from New York on a British
steamship sailing for Calcutta and Singapore, via ports in this district. The
vessel carried other Chinese crew; and, while in port at Beaumont and Sabine,
Tex., in this district, 5 Chinese members of the crew deserted, of whom 2
were among those permitted to reship at New York. Every effort was made by
officers of this service to apprehend all the deserters. Two were found by local
officers at Sabine, both of whom agreed to return to and depart with the vessel.
One of the 2 last mentioned was 1 of the 8 permitted to reship from New
York. None of the other 3’ deserters has been found.
There was an escape of an Italian stowaway at this port. The usual fine was
imposed and collected. In addition thereto, a stowaway ordered deported and
sailing from one of the other ports in the district escaped at this port. He was
later apprehended and. despite the institution of warrant proceedings for his
deportation, was permitted to reship foreign.
The escape of a Polish stowaway from the hospital room aboard ship, placed
there by the master for safekeeping, is recorded. He was apprehended, however,
whereupon warrant proceedings were instituted. Recommendation was
made that the warrant be canceled and the alien released, final disposition
being awaited.
FINANCIAL AFFAIRS.
The amount of head tax collected was $3,192, to which may be added administrative
fines collected aggregating $730 and fines totaling $1,510 pending
at the close of the year.
There were no prosecutions under the provisions of section 32 of the immigration
act.
In this connection it may be stated that the previously described arrangement,
whereby clearance of vessels will not be granted until all requirements
of the immigration law and regulations have been complied with, has greatly
reduced the number of fines assessed.
ALLOTMENT.
The allotment granted this district amounted to $5,175, the disbursements
equaling $5,439.39.
CRIMINAL CASES.
One prosecution was undertaken against a crewman for assisting an alien stowaway,
and another against a steamship company for permitting the escape of
an alien stowaway. The latter was apprehended, however, with the result that
deportation proceedings have been instituted.
624 REPORTS OF DEPARTMENT OF LABOR.
WHITE-SLAVE MATTERS.
A number of cases of the sexually immoral class were investigated, but none
of unusual interest were found. A Mexican prostitute of a rather vicious type
was deported from Houston. An attempt was made to institute habeas corpus
proceedings in her case, but the effort was not successful. Another Mexican
alien entered the United States surreptitiously near one of the border ports,
bringing with him a woman for an immoral purpose. Both were apprehended
and deported. The matter of instituting criminal proceedings against the man
was referred to the United States district attorney, who advised against it.
There are a number of warrants of arrest now pending for women of this type,
but their present whereabouts is unknown to this office.
CONTRACT LABOR.
There is no section 24 inspector stationed in this district. All investigations
in contract-labor cases are conducted by the regular inspectors. There were
approximately 125 cases investigated of Mexican laborers imported under departmental
exceptions. Of this number 40 voluntarily returned to Mexico, their
departure being verified by immigration officials in each instance. Ten were
deported on warrant proceedings, and the expense incurred in connection therewith
collected from their respective importers. Several were admitted to the
United States upon payment of the usual head tax, others disappeared and their
present whereabouts is unknown, and the remaining cases are still pending.
Aside from the above-mentioned cases of Mexicans imported under departmental
exceptions, there were but 12 contract-labor cases investigated in this district
during the past year. Practically all of these were of Mexican aliens
applying for admission at border ports going to destinations in this district.
So far as is known none of the cases developed facts sufficient to justify prosecution
of the alleged importers.
WORK OF THE MEDICAL OFFICERS.
As stated in previous reports, the work of medical officers has been greatly
augmented by the operation of the immigration act of February 5, 1917, which
requires a much stricter examination of alien seamen. These officers willingly
performed all duties required of them, and their cheerful cooperation with this
service has been very helpful and satisfactory to this office.
SMUGGLING OPERATIONS.
While a careful watch was kept throughout the year for any indications of
smuggling, no such matters came to the attention of the service; and it is believed
that no such operations have gone on in this district during the fiscal
year.
SOCIETIES FOR THE BENEFIT OF ALIENS.
No societies for the benefit of aliens have operated in this district during the
past year, except that the Methodist Episcopal Church South has maintained
a port missionary at Galveston.
SETTLEMENTS OF ALIENS OF PARTICULAR RACES.
There are no settlements of aliens of particular races within this district.
There are several places where Japanese have settled and are engaged in farming
operations, but not in such numbers as to form distinct communities.
CHINESE PREINVESTIGATION MATTERS.
Of the 8 cases considered, 2 of which concerned natives and 6 sons of natives,
7 have been disposed of, return certificates having been granted, and the
remaining 1 is pending.
At the request of the New Orleans office an investigation was conducted at
Houston, Tex., to determine whether fraud had been used by a Chinese who had
been preinvestigated at New Orleans and granted a return certificate as a
merchant. A Chinese alien was granted privilege of transit at El Paso, Tex.,
to Tampico, Mexico, through this port.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 625
INVESTIGATIONS.
One hundred and sixty-two investigations were conducted in connection with
cases of aliens applying for entry, or after admission temporarily, or on bond;
310 investigations in warrant cases, 65 in naturalization matters, and 125 in
other matters.
There were 3 applications for admission of Chinese and 8 preinvestigations for
the same race; 11 investigations were made in warrant cases.
STATION AND EQUIPMENT.
As stated in previous reports, the immigration station on Pelican Spit was
badly damaged by the tropical hurricane of August, 1915, and because of the
fact that during the war the building was not needed for immigration purposes
only temporary repairs were made. In January, 1916, quarters were secured
and the office force moved to the sixth floor of the American National Insurance
Co. building, in Galveston proper, in the center of the business district, where the
service still maintains its headquarters for the district. In October, 1916, the
use of the immigration station building was tendered to and accepted by the Secretary
of the Treasury for use of the United States Coast Guard Service. The
formal transfer, however, was not consummated until November 14, 1918.
The station is not now occupied or used by this service, except to store a large
amount of extra furniture and equipment.
Should future conditions require the use of same, the writer has under consideration
the rental of a large three-story brick structure in the down-town
section of Galveston proper, very near both Union Station and the wharf, which
can be remodeled and converted into a sanitary and strictly up-to-date immigrant
station.
PERSONNEL.
It affords me pleasure to state that with few exceptions the various officers
and employees have performed their duties willingly, faithfully, and efficiently.
Their efforts have resulted in a satisfactory administration of the affairs of the
district during the past year. The relations of this office with all other
branches of the Government service are most cordial and pleasant.
The very gratifying information has been received that effective July 1 there
will be a number of increases in compensation. In each individual case it was
both merited and much appreciated. This action will do much toward the
elimination of a growing dissatisfaction and discontent on the part of many of
the employees who have felt that the salaries paid them were not in proportion
to salaries paid men in commercial life, and who because of the high cost of
living have found it very difficult to live within their means.
There is an imperative need for additional help in the district at the present
time; but as the matter will be submitted to the bureau in detail in the very
near future, no extended mention will be made of it in this report.
PASSPORT-PERMIT WORK.
During the year 26 aliens applied for permits to depart, 10 of these applications
being verbal. Six subjects of Germany were refused permits—3 to go to
Germany, 2 to the Isle of Pines, and 1 to Mexico.
COMMISSIONER OF IMMIGRATION, SAN JUAN, P. R., IN CHARGE OF
DISTRICT NO. 21, COMPRISING PORTO RICO.
APPLICATIONS.
Of the 2,582 aliens who arrived from foreign ports in this district, 2,530 were
admitted, 570 of whom were immigrants and 1,960 nonimmigrants. There were
also admitted 7 nonimmigrant aliens whose cases were left pending at the close
of the last fiscal year. Of /the 242 aliens who arrived from the insular possession,
Virgin Islands, 238 were admitted. 30 of whom were immigrants and 208
nonimmigrants. Of the 930 aliens who arrived from the mainland of the
United States, 26 were classed as immigrants and 904 as nonimmigrants.
15283—la b 1920---- 40
626 REPORTS OF DEPARTMENT OF LABOR.
Of the 2,756 aliens who sailed from ports of the island for foreign ports, 647
were emigrants and 2,109 nonemigrants. Of the 200 aliens who departed for
the Virgin Islands^ 26 were emigrants and 174 nonemigrants. Of the 854 aliens
who left for the mainland of the United States, 13 were classed as emigrants
and 841 as nonemigrants.
Of the 5,907 citizens who departed for a foreign destination, 2,978 were emigrants
and 2,929 nonemigrants. Of the 515 citizens who left for the Virgin
Islands, 2 were emigrants and 513 nonemigrants. The 8,910 citizens who
departed for the mainland of the United States were al! nonemigrants.
DETENTIONS.
Of the 2,824 aliens who arrived during the fiscal year at ports of this district
from foreign and the insular possession, Virgin Islands, 2,304 were admitted
on primary inspection, 520 detained, and of these 208 released after secondary
examination.
There were 312 aliens examined by boards of special inquiry; 257 were admitted,
48 excluded, and the cases of 7 are still pending.
EXCLUSIONS AND APPEALS.
Of the 2,824 aliens who arrived during the fiscal year from foreign and the
Virgin Islands, 48 were excluded by boards of special inquiry and 20 filed
appeals.
Five of the excluded aliens were admitted on appeal, 2 mconditionally under
provisos 7 and 9 of section 3, 1 on a public-charge bond, 1 temporarily without
bond, and 1 temporarily on a public-charge bond.
With respect to 12 aliens the excluding decision of the board was affirmed
and the cases of 3 aliens are still pending on appeal. In the cases of 4 aliens,
with respect to whom the excluding decision of the board of special inquiry
was affirmed, the department authorized departure to the country of nativity
or citizenship in lieu of deportation, and they were, therefore, accounted for,
for statistical purposes, as deported in conformity with section 20.
Of the 48 aliens excluded by boards of special inquiry, 37 have been actually
deported, 3 are awaiting deportation, 3 are still pending on appeal, and 5 have
been admitted on appeal.
DEPORTATIONS.
Of the 2,824 aliens arrived from foreign and the insular possessiqn, Virgin
Islands, 37 were actually deported, of whom 33 had arrived from foreign and 4
from the Virgin Islands.
In addition to the 37 aliens who had arrived during the fiscal year, there
were also deported 2 nonimmigrant aliens whose cases had been pending from
the previous year.
There were further deported 7 aliens under warrant procedure, of whom
6 had entered without inspection through false and misleading statements and
were persons likely to become public charges at the time of entry, and 1 had
been convicted of a crime involving moral turpitude, namely, counterfeiting.
The last-named alien had served a term of two years in the Federal penitentiary
at Atlanta, Ga. Two additional warrant cases have been canceled, and
one case is pending, the alien not having been apprehended.
DETENTION QUARTERS.
There is no detention station at the port of San Juan nor at any of the subports
of the island. Detained aliens are placed by the steamship companies in
hotels, and when necessary under guard, the latter to be approved by the commissioner
with respect to aliens detained at San Juan and by the immigrant
inspector with regard to aliens detained at subports. This method has worked
satisfactorily ever since its adoption in 1913, only one alien having escaped
since that time.
ALIEN SEAMEN.
There were examined during the fiscal year at ports of the island 17,349
arriving alien seamen, 612 of whom were furnished with seamen’s identity
cards, “ Form L.” There were also seamen’s identity cards furnished to 179
American citizens arriving as crew members from foreign ports.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 627
There deserted during the fiscal year 32 alien seamen. Of the 32 deserters,
17 voluntarily presented themselves for examination, 12 being permitted to
reship foreign in accordance with their application and 5 being regularly
admitted. »
With respect to 2 alien seamen who had deserted their vessels, warrants of
arrest were applied for, but the aliens reshipped foreign before warrants were
served. Of the total number of deserting seamen there are, therefore, only 13
unaccounted for, all of whom it is believed have reshipped in pursuit of their
regular occupation.
Fifty-nine alien seamen applied for regular admission at ports of the island
during the fiscal year, 53 of these at San Juan, 1 at Ponce, and 5 at Mayaguez.
Of these, 56 were admitted and 3 deported, the latter being illiterates.
One hundred and ninety-four alien seamen arriving from 'foreign at ports of
the island during the fiscal year were permitted to land for the purpose of reshipping
foreign, namely, 174 at San Juan, 5 at Ponce, 1 at Guanica, 12 at Mayaguez,
and 2 at Fajardo.
In addition, 27 alien seamen were landed for hospital treatment at ports of
the island during the fiscal year, namely, 24 at San Juan, 2 at Ponce, and 1 at
Guanica. . Three were certified for loathsome or dangerous contagious diseases.
Of the 27 alien seamen given hospital treatment, 22 reshipped foreign after
a cure had been effected, 1 died, and 4 are still in the hospital.
There were issued during the year 32 medical certificates against alien seamen,
27 being landed for hospital treatment, 1 being detained aboard the vessel,
and 4 being regularly admitted; the latter suffered from minor physical defects
not affecting their ability to earn a living.
STOWAWAYS.
During the fiscal year 11 stowaways arrived at ports of the island from
foreign, 5 of whom upon examination were found to be American citizens and
6 aliens. Of the latter, 2 were detained aboard the vessel on which they had
arrived, as they had no desire to apply for admission, and 4 were examined
by boards of special inquiry and excluded. With respect to 3 of them the
cause of exclusion was stowaway and likely to become a public charge, and
1 was excluded as a stowaway and illiterate. All 4 stowaways were deported.
HOSPITAL TREATMENT.
One alien, passenger, who had been excluded by a board of special inquiry
on account of tuberculosis of the lungs, was given immediate hospital treatment
for humane reasons.
He was still at the tuberculosis hospital at the close of the fiscal year, but on
July 4 had sufficiently recovered to be deported in the care of a physician and
nurse to *his home in Santo Domingo.
FINANCIAL AFFAIRS.
During the fiscal year head tax in the total amount of $12,312 was turned
into the permanent fund of collections.
The sum of $24, representing head tax erroneously assessed in three cases
and turned into the permanent fund of collections, was refunded under department
order from the appropriation “ Expenses of regulating immigration,
The sum of $540 was covered into the Treasury, being the total of administrative
fines pending from the previous fiscal year. Fines amounting to $2,740
were assessed during the present year, $340 having been paid, and $1,170 ordered
refunded. The total amount of fines now pending is $1,230.
ALIEN CERTIFICATES.
There were 884 alien certificates, Form 546, issued during the year covering
903 alien passengers intending to proceed to the mainland of the United States.
Of the latter number only 854, however, actually departed for the mainland
before the close of the fiscal year.
NUMBER OF VESSELS BOARDED.
In this district 1,038 vessels were boarded during the year in the interests of
the Immigration Service, as compared with 941 in the preceding year. Of
628 REPORTS OF DEPARTMENT OF LABOR.
these, 601 arrived at San Juan, 100 at Guanica, 101 at Mayaguez, and the remainder
at the smaller ports.
There were 2,537 admissions of alienk from foreign during the year.
Only 570 of these were immigrants, which represents about 29 per cent of the
total number of aliens admitted. The character of immigration on the whole
was of a high order, especially with regard to arrivals from European countries.
This undoubtedly is due to a considerable extent to the continuation of the
travel control enforced under State Department regulations. The immigrants
were principally persons in the prime of life and from every point of view well
fitted for self-support. Financial.y the immigrants made a better per capita
showing even than, last year, when in this respect they were far above the
average.
The 238 aliens admitted during the year at ports of Porto Rico as coming
from the insular possession, Virgin Islands, were as in years past principally
African blacks and West Indians from near-by islands under foreign control
who had passed in transit through ports of the Virgin Islands en route to Porto
Rico and the mainland of the United States. Only 30 immigrants arrived from
the Virgin Islands, and practically all of these remained in Porto Rico, where
there is a good demand for laborers and domestic servants speaking English.
FINANCIAL CONDITION OF ALIENS.
The 2,537 aliens admitted into Porto Rico as coming from foreign during
the vear had in their possession money in the total amount of $1,214,446, divided
as follows: 570 immigrants, $92,943. or $163.01 per capita; 1,967 nonimmigrants,
$1,121,503, or $570.16 per capita.
CONTRACT LABORERS.
The inspection officers and boards of special inquiry have during the year
exercised the greatest care with a view of an effective enforcement of the contract-
labor provisions of the immigration law. There were, however, only 8
aliens excluded and deported as contract laborers. Arriving aliens, especially
those coming from Spain, are uniformly so well informed on the contract-labor
nrovisions of the immigration law that boards of special inquiry find it very
difficult to secure sufficient evidence for exclusion. There are no section 24
inspectors attached to this district who might investigate cases of suspected
contract laborers who are admitted upon arrival on account of lack .of ei idence
to exclude The regular force of inspection officers is at all times fully occupied
with the examination of arriving passengers and crewmen and can devote no
time to the investigation of suspected contract laborers who are scattered
throughout the island. The 8 aliens deported during, the year as contract
laborers represent 1.29 per cent of tbe total number of alien immigrants <111 bed
from foreign and the insular possession, Virgin Islands.
ILLITERACY.
During the year there were excluded by boards of special inquiry 8 illiterate
aliens 7 of whom were actually deported and 1 admitted on appeal under
section 3 proviso 7. Among the 7 illiterates wbo were actually deported there
were 3 seamen who had applied for regular admission and 1 stowaway. Of
the 8 illiterates excluded by boards of special inquiry 4 had arrived as passengers.
and 4 fines were assessed against the transportation companies bringingO
ft htehme .fines 3 have been refunded and 1 is still pending.
Thirty-one illiterates who arrived during the year at ports of the island as
transit passengers were permitted to proceed to their final destination aftei
arrangements had been made for departure in accordance with the provisions
of Nrou led e9t,a isluebdd irveicsoiordn h2.as been kept in this district regarding illiterate seamen
arriving and departing in pursuit of their calling. It is estimated that of the
17,349 alien seamen examined at the time of arrival, approximately 9 per cent
were illiterates.
MEDICAL EXAMINATION.
There were medically inspected at ports of the island during the year 20,173
aliens, of whom 17.349 were seamen, 2,582 passengers arriving from foreign,
and 242 passengers arriving from the insular possession, Virgin Islands.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 629
There were issued during the year 41 medical certificates against alien passengers
and 32 against alien seamen.
Of the 41 medical certificates against alien passengers, 6 were for major
mental and physical defects and 35 for minor physical defects, 3 of the aliens
involved having been deported, 2 admitted, and 1 excluded awaiting deportation.
The medical inspection at the port of San Juan, where during the year there
were examined 11,777 alien seamen and over 2,000 alien passengers, was conducted
by one medical officer, who is also connected with the Public Health
and quarantine services. The time of the medical officer being divided among
three assignments, the inspection of alien seamen and passengers can not be
entirely satisfactory, because the medical officer, in spite of his best efforts,
frequently can not devote such time and care to the examination of aliens
as is necessary for a proper enforcement of the immigration act.
The commissioner urgently recommends that a medical officer be assigned to
this port exclusively for immigration work.
PASSENGER SHORE LEAVE. •
During the fiscal year 982 alien passengers arriving at ports of the island
from foreign were granted shore leave, as against 160 in the previous, year.
In all cases where shore leave was granted the aliens had to comply in every
respect with the requirements of the immigration laws, State Department regulations,
and the act of May 22, 1918. ,
OFFICE QUARTERS.
The office quarters at San Juan are located on the third floor of the Federal
building and modernly equipped in every respect. Although consisting of but
four rooms, they are quite adequate for the transaction of public business,
since it is no longer required, as in the previous year, to use one-half of the
office space for the conduct of the passport permit work. At the subports
immigration offices are located in the customhouses, and they are, without
exception, amply large and well equipped.
PROSECUTIONS.
One case against the master of a. British vessel and one against an American
vessel for violatiofis of section 32 of the immigration act were dropped.
Prosecutions were instituted against 10 persons for violation of various Federal
laws, as a result of reports made by this office.
ANARCHISTS AND RADICALS.
There were in the district of Porto Rico during the past fiscal year no arrests
or deportations of alien anarchists and members of radical classes.
HABEAS CORPUS.
On April 27, 1920, a Spanish alien, who had been excluded by a board of
special inquiry as an assisted alien and contract laborer and whose exclusion
had been affirmed upon appeal, petitioned the District Court of San Juan for a
writ of habeas corpus. The court denied the writ and the alien was deported
June 10, 1920, in conformity with the department’s decision.
PASSPORT PERMIT AND CONTROL ACTIVITY.
The permit offices established November 1, 1918, at San Juan, Mayaguez,
Guanica, and Ponce were continued during the fiscal year. At San Juan and
Guanica regular officers of the service acted as permit agents, and at the other
two ports immigrant officers (excepted), who were also customs officers.
From July 1, 1919, to February 9, 1920, immigrant inspectors acted as permit
agents for aliens, and also during that time were charged with the issuance of
identity cards, Form J, to American citizens for travel to Santo Domingo. On
February 9, under instructions from the Secretary of State, officers of the gov630
EEPORTS OF DEPARTMENT OF LABOR.
ernment of Porto Rico took charge of the issuance of citizens’ identity cards,
Form J, and immigrant officers from that date on had to deal only with applications
of aliens. There were issued during the year 2,718 identity cards (Form
J) to American citizens traveling to Santo Domingo and 5 applicants were
refused cards.
There were received at the four permit offices of the island 189 new applications
for alien permits to depart. Of these, 179 were granted, 5 refused, and 5
were pending at the close of the fiscal year. Twenty-five applications pending
from the previous year were disposed of, making a total of 214 applications,
covering 325 aliens considered during the year, 315 of the aliens involved being
authorized to depart.
CONTROL ACTIVITY.
Immigrant inspectors in Porto Rico as control officers under the passport regulations
examined during the year 25,927 persons arriving from foreign and the
insular possession, Virgin Islands.
Of the 7,078 passengers arriving from foreign and the Virgin Islands none
had to be detained under State Department regulations, the 520 detentions made
during the year being solely for immigration causes.
Of the 17,349 alien seamen arriving from foreign about 60 per cent were detained
aboard ship, principally on vessels arriving from European ports. No
seaman was granted shore leave unless he was in possession of the documentary
evidence required under State Department regulations and unless the inspection
officers were fully satisfied that the alien’s coming ashore would not be detrimental
to the interests of the United States. The greatest possible care was
exercised to prevent the illegal landing of seamen of the anarchistic and radical
classes.
Two alien seamen, who had been detained aboard ship, escaped from their respective
vessels, were arrested under the act of May 22,1918, but were discharged
by the court. Immediately after their release they reshipped foreign.
The number of American seamen arriving from foreign is estimated at 1,500.
PERSONNEL.
The officers and employees of this district have performed their duties with
loyalty and commendable efficiency. They have at all times willingly and cheerfully
fulfilled their assignments, although frequently called upon to work exceedingly
long hours, under trying circumstances. Owing to the exceedingly high
cost of living in Porto Rico, they could barely exist on their salaries.
SUGGESTED AMENDMENTS TO IMMIGRATION LAWS, RULES, AND REGULATIONS.
As pointed out in the last annual report, Porto Rico and the Virgin Islands
of the United States are foreign to each other under section 1 of the present
act, although less than 50 miles distant from each other and notwithstanding
the fact that the social and economic conditions of the two insular possessions
are closely interwoven. The commissioner begs to suggest that the immigration
law should be amended at an early date so as to do away with this
anomaly.
The commissioner further begs to repeat his recommendation contained in
the last annual report that provision should be made for the exemption from
payment of head tax of aliens having a bona fide residence in Porto Rico or
the Virgin Islands of the United States, who, without relinquishing such
residence, visit West Indian Islands under foreign control, for a temporary
period of less than six months. This would place alien residents of the insular
possessions on a par with alien residents of the mainland, who, for social or
business reasons, may visit Canada, Newfoundland, Cuba, or Mexico and return
to the United States without payment of head tax, provided they have been
absent less than six months. The social and economic life of the insular possessions
is closely connected with that of the West Indian Islands under foreign
control and it would for this reason seem but just and fair to make the provision
indicated.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 631
COMMISSIONER OF IMMIGRATION, SAN FRANCISCO, IN CHARGE OF
DISTRICT NO. IS, COMPRISING NORTHERN CALIFORNIA AND NEVADA
AND THE ANGEL ISLAND IMMIGRATION STATION.
APPLICATIONS.
The total number of alien applicants for admission examined at this poit
during the fiscal year ended June 30, 1920, was 23,044, of which 22,853 were
new applications, there having been 191 cases pending at the close of the
previous fiscal year. Of these, 22,698 were admitted, 190 were debarred, and 156
were still pending on June 30. 1920. Included in the 190 debarred are 35
Chinese persons found to be inadmissible under the provisions of the exclusion
laws. Of those applying, 8,594 were Chinese, 6,367 were Japanese, and 7,892
belonged to other races. ,
The foregoing figures do not include any passengers landed as citizens ot the
United States, or any coming from the insular possessions of the United States,
or any in transit by water, but do include all other transits, among whom are
6 855 Chinese in transit under bond, of whom 43 were debarred.
’ In addition to the above, there were 1,199 new applications for admission as
American citizens of the Chinese race, of which applicants 1,118 were admitted,
15 debarred, and 1 died prior to the determination of his status, leaving 65
cases pending at the close of the year. Thirty-eight cases of this class weie
pending at the close of the fiscal year 1919.
As was expected, applications for admission into the United States have been
continually on the increase since the termination of the war. During this
fiscal year there arrived, in excess of those reported for the fiscal year ended
June 30 1919, 3,521 Chinese, 762 Japanese, and 371 of other races. During
the year there were 881 of the 2,943 female Japanese arriving classed as
“picture brides,” as compared with 570 arriving last year, and they have come
in greater numbers since the Japanese Government determined on refusing the
issuance of passports to this class of aliens after February 29 of this year.
While a considerable number of “ picture brides ” have arrived since the date
on which issuance of passports was to cease, it is our undei standing that
the Japanese Government had made provision for permitting the departure
for a period of six months from February 29 of all those “picture brides”
who had complied with the necessary requirements in contracting marriage
prior to that date. There is such a universal sentiment in this State against
he admission of Japanese into the United States that it would seem that
legislation should be considered looking to at least the exclusion of Japanese
laborers under an act similar to that applicable to Chinese, as from our experience
it seems warranted to assume that the gentlemens agieement in
n6 wise will make possible the exclusion of this class of immigrants.
In several cases where Japanese sought admission for their wives and children
and could not prove their own legal admission, theieby establishing lawful
domicile, applicants were excluded and appeals taken to the department, where
they were dismissed, when writs of habeas corpus were immediately obtained,
and recently Judge Dooling, before whom the cases weie heaid, decided that
the action of the board of special inquiry was erroneous for the reason that
the “ gentlemen’s agreement ” had no standing in law, and if the alien was
found to be admissible under the general immigration law it was the duty of
this service to admit.
DEPORTATIONS.
Service of 115 warrants of arrest was attained as a result of the investigation
of 196 cases, 58 additional having been considered. Cancellation of warrants
of arrest occurred in 3 Chinese cases and deportation of an alien of
the same class was effected. Out of 7 warrants served on Japanese persons,
3 were canceled, and the remaining 4 were followed by orders of deportation.
Action on the other cases is as follows: 105 arrest warrants served, 62 having
been canceled; final decisions canceled 15 warrants of deportation which had
issued, leaving 98 executed, 8 of which involved anarchists and other radicals.
The immigration law should be amended so as to attach the same penalty to
those of the criminal class who return to the United States as applies in the
cases of those of the immoral class. This for the reason that many of this
class of criminals, especially those who have been deported to Mexico, soon
return and become public charges through continuation of their criminal inclinations.
632 REPORTS OF DEPARTMENT OF LABOR.
ANARCHISTS.
During the year 39 warrants were issued in connection with aliens of the
anarchist or radical class, and of this number 5 have been deported, 31 cases
were canceled, and 3 are still pending. The greater number of these arrests were
the result of a raid on a Communist Labor Party headquarters in this vicinity
by the officers of the Department of Justice. The principal reason for the cancellation
of warrants was that it was decided by the Department of Labor that
mere membership in the Communist Labor- Party was not sufficient to warrant
deportation.
SEAMEN.
A total of 691 vessels were boarded, alien seamen to the number of 31,687
were examined during the year, and seamen cards issued to 11,717. In 213
instances head tax was paid by the vessel, in 238 by the applicant, and there
were 386 desertions, of which 135 were Chinese, 85 Japanese, and 53 Javanese,
the others being Europeans. During the fiscal year 99 crewmen were certified
for loathsome or dangerous contagious diseases, 71 of whom were sent to hospital
for treatment.
Your attention is solicited to the 135 Chinese desertions as compared with
the number of Chinese deported under the immigration and Chinese-exclusion
acts—124—of which latter number 43 were transits who were deported on
account of having dangerous contagious diseases, which leaves but 81 who were
excluded and deported. This demonstrates the flagrant advantage that is being
taken by not only Chinese, but also Japanese, of the consideration they are
entitled to under the seamen’s act. If some legislation is not immediately enacted
the abuses already being practiced will entirely nullify the purposes of
the Chinese-exclusion act and other laws and agreements, by the desertions of
Japanese, Javanese, and other orientals. It is believed that the desertions are
greatly in excess of the number specified, for the reason that on several occasions
when captains reported desertions and afterwards a check of their crew
was made, a considerably larger number than was reported was found to have
actually left the vessel. e
The force is inadequate to make possible the checking of all vessels prior to
departure, and only when physical opportunity presents itself is this done, invariably
with the result above stated.
PASSPORT-PERMIT WORK.
Although the restrictions on permits were dispensed with last July when only
alien enemies and aliens whose nationality was doubtful were not granted passports
but were required to file applications for permission to depart, 320 of said
applications were passed on. Certificates of identity for insular travel were
issued—110 to Filipinos, 93 to Americans, and 5 to Koreans. On telegraphic
instructions from the Department of State, 84 permits were granted to Germans
for travel to the Philippines.
STOWAWAYS.
There was a total of 37 stowaway arrivals, 13 of whom were admitted and
24 debarred, the latter including 1 Chinese and 14 Japanese persons.
While the number of stowaways is comparatively small when considered with
the large numbers of passengers and crewmen arriving at this port, it is thought
that, with an efficient force of officers to properly cover arriving vessels, a considerably
greater number of stowaways than those reported or brought to the
attention of this office would be found seeking entry by this means. If the masters
of the vessels or other officials of the steamship companies were penalized
for bringing stowaways into the United States no doubt greater precautions
would be taken to prevent the abuses being practiced. In many instances the
officers of the vessel have failed to report the presence of stowaways aboard,
and they were only discovered through the diligence of our officers. When such
is not the case the alien will effect entry without even our knowledge of his
presence aboard.
ESCAPES OF ALIENS FROM VESSELS.
During the year two Japanese passengers in transit to South America and
two Japanese in transit to Peru escaped from vessels which called at this port,
and one Mexican escaped from the vessel on which he was being deported to
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 633
Mexico when she touched at Wilmington, the port of call on her-way. It is
understood that after breaking the door of the quarters in which Im was confined,
he jumped overboard and swam ashore. One Chinese transit passenger
destined to Habana, Cuba, escaped from this station, presumably through connivance
with Chinese who were visiting him, and on whose pass be probably
returned. An Australian stowaway escaped from the detention shed and was
rescued in the bay by a launchman who found him clinging to a plank. He
was returned to the station and then placed in the county jail of San Francisco
for safekeeping until the departure of the vessel on which he is to be deported.
FINANCIAL AFFAIRS.
During the fiscal year just closed, a total of $93,080 in head tax was collected,
which is greater by $5,240 than the amount collected during the previous year.
ALLOTMENT.
The bureau allotted for the expenses of this district, exclusive of salaries,
transportation, and refund of head tax, the. sum of $45,000 at the beginning of
the fiscal year. This amount was subsequently increased to $55,000. Adding to
this amount a deficit of approximately $5,700, which existed at the end of the
year, it is found that $60,700 was required for operating expenses in this jurisdiction.
The estimate submitted by this office was $61,600, which amount the
bureau subsequently reduced. If all improvements allowed for in office estimate
had been made, said estimate would have been greatly exceeded. All repair
and improvement work postponed during the fiscal year just ended will necessarily
cause a considerable drain on our allotment for the ensuing fiscal year.
AMOUNT REQUIRED FOR ALLOTMENT.
As representing the minimum amount required for the allotment of this district
for the ensuing fiscal year, the sum of $88,000 was requested. When it is
borne in mind that with the most rigid economy being exercised $61,000 was
required for the expenses of this district, exclusive of transportation, salaries,
and refund of head tax during the year just ended, the sum requested for the
coming year is considered extremely low. The item of fuel oil alone will require
one-half of the allotment, possibly more, as the oil companies in this vicinity
are entering into no contracts and no definite estimate can therefore be made
as to the probable cost of this item. Among the principal necessary expenditures
for the coming year which were not incurred during the last year might be
mentioned: Painting all buildings at Angel Island, which are now in a state
of deterioration for want of paint, $5,000; constructing an addition to the fireproof
vault, the present vault not now holding all the alien manifests and Chinese
records of this port, $5,000; overhauling the water barge, $2,500.
The present water barge may not be worth repairing, in which event it will be
necessary either to have a new one constructed or to sink another well on this
reservation so that an independent water supply may be had. It is probable
that with another well here no water would have to be secured from the Marin
municipal water district.
Our stocks of lumber, paints, oils, and plumbing supplies are very low and will
have to be replenished during the next six months.
CHINESE ARRESTED BEFORE UNITED STATES COMMISSIONERS AND COURTS.
All but one of the six cases now pending before the commissioner are aliens
now serving time in the various State penitentiaries, and whose hearings before
the commissioner will not be had until they have served their sentences or are
released on parole.
CIVIL SUITS.
The one case pending from last year is still unsettled. No new cases arose.
CRIMINAL CASES.
The 14 cases pending from last year and the 1 new case which arose remain
undisposed of.
As stated in last year’s annual report, the cases of Lee U. Ong and Theodore
Kaphan were pending on appeal to the United States Circuit Court of Appeals.
634 REPORTS OF DEPARTMENT OF LAB(fa.
On April 17 the Circuit Court of Appeals filed its mandate in the Kaphan case,
affirming the judgment of the district court, and Kaphan is now serving his
two years’ sentence at McNeil Island. On May 8 the same court handed down
its mandate affirming the judgment of the district court in the case of Lee U.
Ong, who is also serving a sentence of two years at McNeil Island. These are
the last of the criminal cases arising as a result of the investigation at this station
made by Mr. Densmore and his corps of officers.
In the case of United States v. Moy Ni Food and Lee Moon, indicted for
conspiracy to obtain from the commissioner of immigration at this port favorable
indorsement of a merchant’s return certificate for Moy Ni Food, the defendant
Lee Moon died some months ago, and Moy Ni Food being the only
defendant remaining in the conspiracy, it is the intention of the United States
attorney’s office to file a nolle prosequi in this case. Moy Ni Food, however,
was returning from a visit to China and was refused admission. He is now out
on bond, and his surrender will be required as soon as the case is disposed of in
court.
In the case of James Butt, alias Wong Sing, referred to in last year’s
report, he was again indicted July 11, 1919, for a violation of section 8 of the
act of February 5, 1917. On September 6 his attorney filed a motion to quash
the indictment, which, after argument, was granted by District Judge Rudkin
on December 12, 1919. On January 7, 1920, the case was taken to tiie United
States Supreme Court on writ of error, and the case is now pending there.
CRIMINAL CASES (INVOLVING ALIENS OTHER THAN CHINESE).
The one case pending from last year remains undecided, and no new case
has arisen.
WRITS OE HABEAS CORPUS APPLIED FOR.
Applications for writs of habeas corpus numbering 24 involving Chinese
persons arose during the year, and 27 remained pending from the previous fiscal
year. Twenty-seven cases were disposed of, leaving 24 to be acted upon. In
addition there arose 32 new applications concerning aliens other than Chinese,
and 5 cases were pending from last year; 31 of the foregoing cases were disposed
of and 6 remain pending.
Of the 18 cases now pending in the district court there are several which
were reported as pending at the close of the last fiscal year, among them being
four Swatow Section Six Merchants. The Quan Hing Suu case has been
ordered reheard before a board of special inquiry, thus disposing of all the
cases in which the question of the alien’s right to hearing before a board of
special inquiry where citizenship was involved is concerned. Of the six cases
reported as terminated unfavorably to the department four were cases in which
this very question was involved and in which rehearings have already been
given the aliens as directed before a board of special inquiry in conformity with
a Circuit Court of Appeals decision in the Quan Hing Sun case.
There were 29 cases decided in favor of the Government during the past year
and 29 cases decided against the Government. Of this latter number, however,
23 cases were those of Japanese photo brides coming to join their husbands
who could not show a lawful entry into the United States.
There has been a large increase over last year in the number of new petitions
for writs of habeas corpus. 56 new writs having been applied for.
WHITE-SLAVE MATTERS.
During the year 14 warrants of arrest were issued for persons of immoral
character, 6 being of Chinese nationality and 8 Europeans. Eight of these cases
are still pending, the aliens being at large on bond; 2 have not been apprehended,
and in 2 cases warrants were canceled and 2 were deported. In
addition there were 2 cases carried over from the previous fiscal year, wherein
the department has not as yet rendered final decision. One particularly flagrant
case that developed was that of a French woman who brought her 18-yearold
daughter here and arranged and permitted immoral relations between her
and her mother’s paramour. Warrants of arrest were issued for all three,
and their cases are still pending in view of the criminal proceedings instituted
in the State court upon the same charge as stated in our warrants.
CONTRACT LABOR.
The section 24 inspector at this port had under investigation during the
year 26 contract-labor cases. It developed in few instances that the alien
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 635
contract-labor law was involved. An exception was one ease wherein it was
admitted that advertisements had been printed in foreign papers soliciting
help by the Metal Trades Clearance Bureau of San Francisco. It is the opinion
of the inspector that where aliens Bright be coming in under contract they
are so well coached that it is impossible to prove violations of the law, and
in particular he refers to aliens of the Spanish race coining here to work
in the canneries.
ALIEN LABORERS TEMPORARILY ADMITTED.
No laborers were admitted at this port under the terms of any of the department
circulars permitting the admission of certain aliens for agricultural pursuits.
SMUGGLING.
Heretofore smuggling was confined almost entirely to Chinese. During the
year persistent and insistent information, both anonymous and otherwise, has
come to this office concerning large numbers of Chinese being smuggled on boats
leaving the Orient. On receipt of such information diligent search of the vessels
concerned was made, with practically no success in the location or capture
of Chinese seeking to gain entrance into the United States by such means. However,
it is still believed that the information received was somewhat reliable,
and only indefinite as to the manner in which imposition was to be practiced,
and that the confusion was caused by the fact that the Chinese, instead of being
brought here to be smuggled in, were members of the crew who were to take
advantage of the opportunity to gain entry as crewmen by manipulation and
use of the seamen’s card.
ADMINISTRATION OF RULE 17-A.
There were no cases to which this rule would apply at this station during the
year.
SOCIETIES FOR THE BENEFIT OF ALIENS.
The Hebrew Immigrant Aid Society has a representative who looks to the
interests of Hebrews in detention, and attends to all matters in their behalf.
The Japanese Association of America has a most competent representative
who attends to all details in connection with the interests of the Japanese detained
at the station.
A representative of the Woman’s Home Missionary Society of the Methodist
Episcopal Church visits the station almost daily and devotes herself to the welfare
of all aliens in detention, irrespective of race or creed.
Presbyterian, Baptist, Congregational, and other denominations maintain
missions and schools in San Francisco in the interests of Chinese, and occasionally
concern themselves in individual cases.
. CHINESE PREINVESTIGATION MATTERS.
A total of 1,472 Chinese preinvestigations' was conducted, 1,427 certificates
having been granted, subdivided as follows : Native born, 765 ; exempt, 502 ; and
laborers, 172. There were 33 certificates denied, 15 covering aliens of the first
class mentioned; 8 of the second; and 10 of the third.
INVESTIGATIONS.
Investigations were conducted as follows: Cases of applicants for entry at
other ports, 280; of applicants for return certificates at other ports, 43; after
temporary admission, 187; after admission on bond, 4; to determine lawful residence,
24; ad interim investigation (prior to arrival of applicants), 310; applicants
for duplicate certificates of residence and of identity, 14 and 8, respectively
; naturalization matters, 687; applicants for certificates of identity, 1,4.44.
REPORT OF MEDICAL DIVISION.
The report of the medical officer in charge shows the total number of
cases admitted to hospital as 759, apportioned as follows: Japanese, 234;
Chinese, 424; Mexicans, 17; and others, 84. A great majority were cured and
discharged within a brief period; 269 after a few days detention; and 252
636 REPORTS OF DEPARTMENT OF LABOR.
within a week. The largest number of detained were for observation of eyes,
201 being held, and 113 were treated for uncinariasis (hookworm), 99 of these
latter being cured and discharged within the first week after their arrival.
The total receipts for the treatment of 5,126 aliens was $6,221.50, as against
an expense for conducting the hospital—not including permanent fixtures or
any expense except that necessary for the aliens’ board and treatment—of
$6 920.12, which shows an actual loss of $698.62. It does not seem that this
should be borne by the Government when it is considered that the alien derives
all the benefits in connection with his treatment; therefore, your attention
is directed to a letter from this office under date of March 19, 1920, wherein
it is recommended that hospital charges be set at $2 per day for adults and
$1.25 per day for children under 12 years of age. This charge would not be
exorbitant, and it is recommended that it be made effective.
STATION AND IMPROVEMENTS.
It seems desirable at this time to call the bureau’s attention to the constantly
increasing cost of maintaining the immigration station on Angel Island.
The cost of operating the ferryboats has become almost prohibitive, the price
of fuel oil, salaries of boat crews, and cost of overhauling the vessels increasing
more and more each year. As set forth in another part of this report, the
item of fuel oil alone will require approximately $35,000, or almost one-half
of the allotment for this district for the fiscal year 1921, and about onehalf
of this oil is used on the boats. Furthermore, this commodity is very
scarce, and it may be impossible to obtain it at any price.
The only remedy that seems possible is to move the station to the mainland.
While the convenience of having the station in a more accessible location is,
of course, only a secondary consideration, it is nevertheless an important one.
The bureau has been supplied on several occasions with estimates of the initial
cost of such a move and its ultimate saving, and while up-to-date figures are
not now at hand the annual saving in our appropriation that would result therefrom
would be tremendous.
Special consideration is also requested to the conditions surrounding the
water supply at this station, which is also mentioned under the caption
“Amount required for allotment,” with the request that authority issue for the
sinking of an additional well, with the idea of eliminating the necessity of
securing water from Marin Water Co., and doing away with the conveyance of
same by a water barge. .
No extensive improvements have been made at this station during the past
fiscal year, owing to the limited funds at our disposal. It is trusted, therefore,
that this office will have the full cooperation of the bureau when authority is
requested for the making of such improvements and alterations as are urgent
during the coming fiscal year.
TRANSPORTATION.
The steamer Angel Island and the cutter Inspector were placed in dry dock
during the past year and given a much-needed overhauling. The Angel Island
has held up remarkably considering the long time she has been in service since
she was last dry-docked, and her propeller is badly honeycombed and will
probably have to*be replaced at an early date.
GENERAL.
The number of Chinese arrivals of all classes applying for outright admission
during the year was 3,307, as compared with 2,046 of last year, or an increase
of 1,261. The number of departure cases, applications for return certificates
as native born, exempts, and laborers, investigated and considered
was 1 472 as compared with 641 last year, or an increase of 831. Miscellaneous
investigations, such as applications for entry at other ports,, for return certificates
at other ports after temporary admission, after admission under bond,
and to determine lawful residence, ad interim investigations, applications for
duplicate certificates of residence, for duplicate certificates of identity, naturalization
matters, and applications for certificates of identity are again found
REPORT OF COMMISSIONER GENERAL pF IMMIGRATION. 687
to be materially in excess of the number of similar cases disposed of during
ffie previous year, the total being 1,931, as compared with 1,504, or an increase
°f It~should be borne in mind that the change of method applied in arrival cases
from investigations before one inspector to a board of special infi™ry has
reduced the relative strength of the inspectors’ force more than one-third.
However, the increase in the personnel of the Chinese division made from time
to time during the past three or four months has enabled the removal of a very
serious congestion in all the work in the Chinese division, which cond .
is felt can be maintained or even probably improved if the present force is left
undisturbed. It is doubtful whether the determination of the admission or
Chinese by boards of special inquiry is any advantage over t^e procedure formerly
in practice, when, with one inspector, stenographer, and interprete , -
termination could be had in the same or less time required by a board consisting
of three inspectors and interpreter. The only seeming benefit is the quick
decision in those cases where admission is granted. However, as the records
of the board hearings are not written up, shorthand notes are continually
accumulating, which in time will assume such proportions that slowing up of
our operations will be brought about by the necessity of haying transcribed
records of former board hearings for reference in cases of applicants arriving.
Attorneys stipulate in all cases outside of San Francisco that they will accept
the findings of a board of special inquiry based on the evidence taken and
report made by a single inspector, as was formerly in vogue, and proceedings
are being carried on with this understanding, as it would be absolutely impossible
to have a board of special inquiry consider each case in line with the law,
rules and regulations without having all witnesses appear at this station.
This situation when considered with the small number of exclusions effected,
would seem to warrant that, if possible, all Chinese be examined under the
exclusion law as was formerly the custom, with the exception of those claiming
nativity rights, for the reason that it is our understanding that the courts
decision only referred to this class.
While nothing authentic is at hand, it is no doubt true that shortly the
arrival of Japanese “picture brides” will be a thing of the past, as it is our
understanding that all of this class of aliens were obligated to depart from
Japan within six months after February 29, 1920. It is believed that a reduction
in the number of Japanese females arriving will be noticeable for a short
time However, there is no reason to conclude from this that such a reduction
will be at all permanent, as without doubt Japanese males will return to Japan
to contract marriages and immediately bring their wives to this country, and
it is thought that the next fiscal year will most probably demonstrate that the
number of Japanese females admitted, irrespective of whether or not a considerable
portion of them might have been classed as “picture brides,” will be
as great as the number admitted this fiscal year. Should this prove to be the
case it would seem that if it is undesirable to permit the admission of this
class of alien it will be necessary to enact laws to remedy such conditions.
recomme nd ati on s and su gg esti on s for bet ter ment of th e service and fo b
REMEDIAL LEGISLATION.
Immediate consideration should be given by the bureau to effect legislation
and promulgate rules and regulations that will make impossible the surreptitious
entry of Chinese and Japanese seamen by desertion or simply failing to
return to the vessels on which they are employed after having obtained shore
leave by means of their seamen’s card of identification. If bond were required
for shore leave, as was formerly the custom, there is no doubt that much of
this imposition would be eliminated. In furtherance of this subject see comment
under caption “ Seamen ” in this report.
From time to time we have called to the attention of the bureau the impossibility
on account of an insufficient personnel, of properly guarding aliens at
this station and surrounding them with necessary care in case of fire, of checkino'
up crews of departing vessels and guarding them on arrival, or of detailing
a sufficient number of men to search vessels for stowaways. There are still
five watchmen on furlough, who should immediately be reassigned, and in addition
five extra men should be appointed to make possible in a small way the
covering of many necessary details and the prevention of many impositions
which this office is now obliged to ignore.
638 REPORTS OF DEPARTMENT OF LABOR.
PERSONNEL.
It will be seen from the foregoing comment that the business in this district
has almost doubled this year, as compared with last year. As the enforcement
of the Chinese-exclusion law is the largest part of our business, the bureau
will realize the handicap under which we are working with many of the
employees furloughed at a time when the work was on the increase. Separation
from the service by furlough without notice, and the comparatively low
wage standard caused many to resign. Notwithstanding the general willingness
to cooperate, which has been manifested by all the personnel, it was
impossible to overcome the disadvantage of familiarizing new and inexperienced
employees with the work. The policy of assigning lower-paid officers
to positions formerly paying higher salaries, and withdrawing the amount represented
in the difference in salaries from this district has had a particularly
pernicious effect upon the morale of the entire force. The increase
of a number of salaries effective July 1 was greatly appreciated, but it is felt
that proper consideration was not given the lower-paid employees or those
occupying positions at the head of divisions, or those performing work requiring
extraordinary qualifications. However, notwithstanding that all that is
desired can not always be obtained, it is proper and just to assure the bureau
that the entire personnel is trustworthy, honest, and worthy of complete confidence,
and the atmosphere is most congenial.
After particularly calling the bureau’s attention (as will shortly be done by
letter) to the employees who have received no consideration in connection with
increase in compensation and those who should have received additional consideration
by reason of their exceptional qualifications and duties performed—
which it is felt sure will bring about the desired results—this office will have
accomplished what it has been striving for—almost perfect service.
COMMISSIONER OF IMMIGRATION, SEATTLE, WASH., IN CHARGE OF
DISTRICT NO. 16, COMPRISING THE STATE OF WASHINGTON AND
WESTERN CANADIAN BORDER PORTS AND STATIONS.
APPLICATIONS (INCLUDING CHINESE).
A total of 39,200 aliens applied for entry at all ports in district No. 16 during
the fiscal year ended June 30, 1920, 37,153 of whom were found admissible and
1,736 debarred. The cases of 147 applicants for admission remain pending at
the date of this report, while 7,942 United States citizens returning to resume
their residence in this country were admitted. The total number of passengers
of all classes examined was 535,843, including the 1,736 aliens who were
debarred.
Five hundred and eighty-four aliens of the Chinese race were admitted on
primary inspection and 119 by boards of special inquiry; 13 were debarred
under the exclusion laws and 175 under the general immigration law. During
the year 5,809 Japanese were admitted and 86 debarred. Of those admitted,
4,163 were of the nonlaboring classes and 1,646 were laborers. All of
the latter held proper passports excepting 48, 47 of whom were deserting
seamen, recorded statistically as admitted aliens. Of the Japanese who were
excluded, 25 were laborers without passports.
Aliens numbering 8,569 and 11,611 American citizens, departing, were recorded
during the year. »
At Canadian border ports 29.276 alien applications for admission were acted
upon, with 27,343 admissions and 1,622 rejections. At Canadian seaports
3,254 aliens applied for entrance, 3,243 of these being admitted and 11 excluded.
DEPORTATIONS (EXPULSIONS, INCLUDING CHINESE).
The total number of deportation cases in which departmental warrants were
issued was 122, including 19 pending from the previous fiscal year, although
5,531 cases of aliens suspected of being in the United States in violation of the
law received consideration by this office.
The deportation of 124 aliens was accomplished, including 62 whose cases
were pending from the year 1919. At the close of the fiscal year 122 warrants
of arrest remain pending, including 19 from the previous fiscal year.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 639
ALIEN ANARCHISTS AND MEMBERS OF THE RADICAL CLASSES.
Of the 131 cases of this class that were pending at the beginning of the fiscal
year, in which the alien had been paroled or released on his own recognizance,
87 were still pending and their status unchanged at the close of the year.
During the fiscal year 7,628 cases of this class of aliens were investigated
and considered. Two hundred and thirty warrants of arrest were applied for,
93 of which were served. Orders of deportation were obtained in 57 of these
cases. Warrants of arrest were canceled in 28 cases, 5 aliens were paroled,
and proceedings in 5 cases are still pending.
Of those ordered deported, 14 were actually deported and 2 are now on bond
awaiting deportation. In one case the warrant of deportation was later canceled
; 2 aliens escaped while awaiting deportation, and 38 are being detained
until deportation can be effected.
SEAMEN.
During the present fiscal year there were 2,052 vessels boarded in this district
and a total of 70,194 seamen examined. There were 239 desertions during
the year, 202 of these being Japanese. In addition, 159 Japanese deserted after
being furnished with seamen’s identification cards.
The number of Japanese desertions in this district is gradually increasing.
During the year 1919, 103 deserted before they received identity cards and 58
afterwards; during the current year 202 deserted before receiving identity
cards and 159 afterwards. Many of these Japanese who deserted ran away
from hospitals in which they were placed for medical treatment. Many hundreds
of other Japanese would, no doubt, have deserted had the masters of
the vessels not exercised the utmost care to prevent their doing so. Many of
the officers of the Japanese vessels place their crews under lock and key at night
in order to prevent their leaving the vessels.
Seamen’s identity cards were issued to 4,949 seamen during the year. There
were 89 seamen found to be suffering from disease and placed in hospitals for
treatment. Seattle, being our principal port of entry, is badly in need of a
marine-hospital station. We have in the city of Seattle contract hospitals only,
and during the latter part of the year these hospitals have refused to receive
aliens found to be afflicted with loathsome or dangerous contagious diseases, and
these are the diseases with which most of our seamen are afflicted.
STOWAWAYS.
Owing to the fact that we have a limited number of officers in this district,
no attempt has been made during the year to search incoming vessels for
stowaways. But 13 stowaways were discovered during the year, all of them
being Japanese. Eleven of these Japanese stowaways were deported, the
remaining 2 being admitted. A much larger number of stowaways have undoubtedly
gained admission to the United States through this district in this
manner. Under the present manner of handling seamen, however, it is such
an easy matter for seamen to gain admission to this country after being granted
identity cards that there is little incentive for aliens who desire to gain unlawful
admission to come as stowaways.
The vessels’ officers are in a position to and should know who are aboard their
vessels, as they are in absolute charge and control thereof. They should be
required to apprehend and deliver to the immigration officers all stowaways
immediately upon arrival, and failure to do so should subject them to a heavy
fine as a penalty. This should be left entirely to the discretion of the Secretary
of Labor.
ESCAPES OF ALIENS FROM VESSELS AND STATION, EXCLUSIVE OF SEAMEN.
There were 12 escapes of aliens, but none of Japanese or Chinese. Of this
number, 3 females were later apprehended and are now in detention. Two
aliens escaped from county jails.
This office £eels that it is to be congratulated that more escapes have not
occurred during the year. Our detention quarters were not built primarily
to take the place of jails; our watchmen are not armed, and are supposed to
use force only in cases of self-defense; many of the aliens detained in our detention
house are of the criminal class; others are detained for long periods
640 REPORTS OF DEPARTMENT OF LABOR.
of time. They naturally become restless and ill natured. They have friends
on the outside who are only too glad to help them escape from their confinement.
There are visiting days twice each week and their friends are allowed
to mingle freely with the inmates, and it is a very easy matter to pass to those
confined a file, or even a dangerous weapon.
_ Most of these conditions this office would not care to change, as it is believed
that aliens whom it is necessary to confine should be treated in the most
humane manner possible.
The remedy should consist in the handling of all cases with the utmost dispatch,
thus reducing the time of detention to a minimum. Known criminals
and others who are not amenable to discipline should be placed in jail when the
officer in charge deems it necessary.
FINANCIAL AFFAIRS.
Head tax aggregating $148,600 was collected, and the total fines assessed
amounted to $4,240, being for various causes under the immigration laws.
There was collected in fines in criminal prosecutions in the courts $1,800.
The sum allotted to this district for 1920 was $40,000, and disbursements
thereunder totaled $35,482.32.
CRIMINAL CASES.
Out of 10 cases before the courts, 1 of which remained pending from the previous
fiscal year, 5 convictions and 2 dismissals were secured; the remaining 3
are still pending. ।
The two criminal cases against Chinese charged with smuggling, 1 of which
arose during the year covered by this report, were disposed of, convictions
having been attained.
WRITS OF HABEAS COBPUS.
Three writs of habeas corpus were sued out in behalf of aliens, two cases
being dismissed and the alien in the third instance being released by the court.
WHITE-SLAVE MATTERS.
Six persons were apprehended in the act of bringing in women or girls for
prostitution or other immoral purposes; 18 persons were arrested on departmental
warrants charging them with bringing in women or girls for prostitution
or immoral purposes; 10 immoral alien women and girls were excluded
and 22 arrested after their entry into the United States.
Five prosecutions of men charged with importing alien women or girls for
prostitution or other immoral purposes have been started in the United States
District Court, all of which are pending. A large number of investigations
have been made in this district concerning aliens of this class, comparatively
few of which justified action.
CONTRACT LABOB.
Four hundred and twenty-seven aliens suspected of violation of the alien
contract-labor law were held for board of special inquiry. Two hundred and
thirty-three were rejected, 68 of whom appealed to the department. Of the
latter, 35 were admitted and 24 excluded. Eight were admitted temporarily
under bond. Five appeals were pending at the close of the year.
Eighteen aliens were arrested on departmental warrants charged with violation
of the alien contract-labor law, 6 of whom were deported, 7 allowed to return
to their native country of their own volition and at their own expense,
1 allowed to remain in the United States on payment of head tax, and 4 cases
were pending at the close of the fiscal year.
Six criminal actions for importation of alien contract laborers were started
in the United States District Court, in 4 of which convictions were obtained,
1 was dismissed, and 1 is pending.
A large number of investigations of alleged violations of the alien contractlabor
act have been made in which action was not justified.
The number of contract-labor cases handled by our boards of special inquiry
has more than doubled, compared to those handled during the preceding year.
EEPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 641
More than one-half of all the cases handled by the boards as suspected contractlabor
cases were rejected.
Several violations of the contract-labor law have been brought to the attention
of the United States attorney but, in his opinion, they were not sufficiently
flagrant to justify a prosecution with the exception of those mentioned above.
In a large majority of the border contract-labor cases the applicant had received
promises of employment through information furnished by or at the
solicition of friends and relatives. In other cases the promise of a position
was given by the owner, manager, or foreman of the establishment to which
they were destined.
BULE 17—A.
The disposition of the 7 cases of aliens temporarily released under order of
deportation is as follows: 1 canceled, 3 still under release, and 3 disappeared.
The case of the one alien who was temporarily released after excluding decision
is still pending.
From the foregoing, it will be seen that few arrested aliens have taken
advantage of the provisions of rule 17-A in order to secure their release. The
conditions are regarded by many as too irksome for the aliens; and, from the
Government’s standpoint, over one-half of those released under this rule have
disappeared. It would seem that although much good was expected from this
rule at the time of adoption, it has accomplished very little.
WORK OF THE MEDICAL OFFICERS.
During tlio year, the medical officers huve certified 731 aliens as being afflicted
with diseases of different kinds. The great majority of these aliens are certified
on the ground of uncinariasis (hookworm).
In addition to examining arriving passengers, the medical officers have examined
during the year 20,794 alien seamen, and have also made a great many
examinations on the request of this office in the cases of aliens seeking to have
their entry legalized, and others. ,
The medical officers at the different stations in this district, without exception,
have handled their work in a highly satisfactory manner. At most places it
had been found necessary to employ physicians who were engaged in private
practice, who received the title of acting assistant surgeon; and, although the
salary for this position is usually quite small, yet they have never failed to
respond when their services were required.
SOCIETIES BOB THE BENEFIT OF ALIENS.
The Hebrew Sheltering and Immigrant Aid Society, with headquarters in
New York has branch offices in Seattle, Vancouver, Victoria, and probably in
some of the other cities of the district. They are continuing to give the same
aid and assistance to those of their race as heretofore. Practically all the alien
arrivals being orientals, there is but little work for the various societies to do
in this district. Several of the churches have auxiliary societies which stand
ready to give any assistance to Japanese females who are in need of the same.
SETTLEMENTS OF ALIENS OF PARTICULAR RACES.
There are no settlements of aliens in this district other than those mentioned
in Tfohremree ri sr eopnoe rctsl.a ss of aliens, however, that it would seem m.i g,h t, ,b e ment,i. oned,
with propriety in this report—a religious sect known as Mennonites. There
are a number of colonies of these aliens in British Columbia and Alberta. It
is reported that they are now taking steps to migrate to the United States
en Smtraosnsge . objections have been made to the attitude of this sect by provincial
and municipal authorities in Canada by reason of the fact that they absolutely
refuse to comply with the civil laws in regard to sending their children to school
or to meeting the requirements of the vital statistics in reference to births
and deaths. They live and are ruled by the community plan, and implicitly
follow the dictates of their leaders in a manner closely resembling the tribal
15283—la b 1920---- 41
642 REPORTS OF DEPARTMENT OF LABOR.
customs of the Indians; and their disregard for the law has resulted in their
being brought into court and fined on numerous occasions.
During the war these people were the most radical of “ conscientious objectors,”
refusing in any way to engage in any activities which in the remotest
manner aided in the prosecution of the war.
Illiteracy and disease are prevalent among them, as proved by the large percentage
of rejections among those who have applied for admission.
It is reported that the Dominion Government has passed a law absolutely
excluding members of this sect from gaining admission to Canada. It is to be
hoped that none of them will be allowed to enter the United States.
CHINESE PEEINVESTIGATION MATTERS.
Out of the 48 applications for return certificates, so far as laborers are concerned,
47 were issued and 1 refused. The appeal filed in this latter case was
sustained by the bureau. Of 61 applications for certificates for the merchant
class, 59 were issued and 2 refused.
INVESTIGATIONS.
Investigations numbering 1,210 were made on account of aliens applying
for entry; 179 after temporary admission, and 31 after admission under bond.
There were 923 investigations in warrant cases, 540 in naturalization matters,
and 2,383 covering other phases. Eight hundred and eighty applications for
admission of Chinese were also investigated, in addition to 114 preinvestigations
and 11 in warrant cases.
PASSPORT-PERMIT WORK.
Applications numbering 289 were filed in behalf of aliens desiring permits
to depart from the United States, this number including alien enemies. Their
disposition is as follows: Granted 267, of which 45 apply to alien enemies;
17 refused, including 1 alien enemy application; 11 pending, 3 belonging to the
latter class; and 2 withdrawn. In addition to the number above stated, 80
permits were granted to citizens of the United States to go to insular possessions.
STATIONS AND EQUIPMENT.
The various offices of our service in the State of Washington, with the exception
of the one at Seattle, are located in the Federal buildings and are all
that could be desired. At Seattle a building is rented near the center of the
city, which was constructed on plans furnished by this service. It is conveniently
located and in most respects a very desirable station. The station
is, however, very much in need of a roof garden or .other place where those
detained may secure the necessary physical exercise. It is not conducive to
the health of anyone to be confined in crowded quarters for long periods of
time without furnishing them means for exercise.
Hospital quarters also should be provided for those held for further observation
and where those with slight ailments may be properly segregated when
necessary. *
In Canada office quarters are furnished our service by the different railroad
and steamship companies, who receive the benefit of having officers located
where their passengers may be examined with the least delay, annoyance, and
embarrassment.
The United States immigration office in Vancouver, B. C., is located in a firstclass
office building and comprises nine rooms, the maintenance of which is now
paid by the Canadian Pacific and the Canadian National Railways. Previous
to the entry of the United States into war with Germany the upkeep of these
quarters was equally distributed between the Canadian Pacific Railway Co., the
Canadian National Railways, the Great Northern Railway, the Northern Pacific
Railway, the Oregon-Washington Railway & Navigation Co., and the Chicago,
Milwaukee & St. Paul Railway, but at the outbreak of the war the American
lines declined to share further in the maintenance. It is understood that all
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 643
these different railway companies are again arranging to participate in th«
support of our office.
ILLITERATES.
It very seldom happens that an oriental applies for admission who is illiterate
and who is not coming to some one in the United States entitled under the law to
send for him. Little difficulty has been experienced in enforcing the illiteracy
feature of the law at any ports.
On the Canadian border it is thought that some modification of the law could
be made with profit, especially as it affects aliens coming to the United States
to engage solely in agriculture.
The Canadian Government in adopting its illiteracy regulations provided for
the exemption of aliens destined to Canada solely for agricultural purposes. As
a result it has been found that Canada has secured an excellent rural population,
which they could not have secured if they had not made this exemption. It is
well known that it is very difficult at this time to secure a class of immigrants
\viio will remain in the agricultural districts if they were qualified to enter the
industrial life of the country. We have had many cases of immigrants who have
been refused admission, although they have every qualification of making excellent
immigrants, with the single exception that they can not read or write, but
who, with this handicap, have made a splendid success of their farming enterprises.
In some instances families have applied for admission to the United States who
had 8 or 10 children, all under 18 years of age, the head of the family having in
his possession $5,000 or $10,000 in cash, and it is thought that consideration
should be given this class of aliens regardless of the illiteracy test.
GENERAL COMMENTS.
The industrial conditions in Canada are not so good as they are on this side
of the line. By reason of this fact there are a great many undesirable people
now in Canada who desire admission to the United States. This is our main
problem in this district. By reason of the limited force of inspectors on the
border it is a physical impossibility to cope with this situation.
The problem has increased very materially by reason of the liquor question
Canada is partially “ wet.” At least liquor is sold wholesale in Canada Bv
reason of this country being “ dry ” the price of Canadian whisky is high and
the inducement to smuggle whisky into this country is great. The smugglers
of contraband whisky and narcotics are closely associated with the undesirable
elements on both sides of the line, and thus the smuggling of individuals is
increased by reason of the heavy traffic in liquor. This office is actively cooperating
with the customs service, with the Federal prohibition officers and
with the sheriffs in the counties along the border, and attempting to cope with the
problem to the best of its ability, but the results obtained are not at all
flattering.
There appears to be no way of correcting this abuse except in the manner outlined
in last year’s annual report.
JAPANESE.
The bureau’s attention is called to the comments made by this office in Juf>
report of last year, relative to the Japanese question. The conditions as out
lined therein as regards the agitation are still aggravated, so much so that
the Immigration Committee of the lower House of Congress is now making- an
investigation of this Japanese question. s d
By reason of this agitation this office has been more careful as to the en
forcement of the immigration laws relative to Japanese immigration than it
probably would otherwise have been, and it is safe to say that all the laws and
regulations affecting Japanese immigration have been strictly enforced The
aaaaal ™eport of last year showed Japanese arrivals at this port numbering
0,858. This year’s report shows Japanese arrivals to the number of 5,872
This increase, however, is not appreciable. It is believed that practically all
of the arrivals were admissible under the “ gentlemen’s agreement ” and the
immigration law, and by reason of the aforesaid care in this matter no serious
mistakes have been made.
644 REPORTS OF DEPARTMENT OF LABOR.
PERSONNEL.
The personnel of the service is improved over what it has heretofore been, and
it can be reported that good work is being done by the service in this district.
The retirement law, as recently passed by Congress, although not extending
far enough, will be beneficial to a slight degree, for some few have reached the
age of retirement who are not able to do the required amount of work.
The service appreciates the increases secured, but they have not been commensurate
with "the increased cost of living, and some of the officers have difficulty
in meeting their legitimate expenses.
COOPERATION WITH OTHER DEPARTMENTS.
A close cooperation has existed between the officers of this service and practically
all the other branches of the Government. Without this it would have
been impossible to accomplish the results obtained..
It is a pleasure to mention the hearty cooperation of the Canadian immigration
service, the local and provincial police departments of the various cities,
and the Northwest Mounted Police. Through this cooperation it has been possible
to secure information on short notice of persons residing in Canada, and
whose cases it was necessary for this service to investigate.
INSPECTOR IN CHARGE, DISTRICT NO. 17, COMPRISING THE STATE
OF OREGON, WITH HEADQUARTERS AT PORTLAND.
APPLICATIONS.
There were 9 applications for admission at this port, all of which weie gianted.
In addition 21 deserting seamen—3 of whom were Europeans, 14 Japanese, and
4 Chinese—are carried in statistics as admitted. There was 1 debarment.
The foregoing relates to seamen who sought admission to work ashore or
in the American coastwise trade, together with 21 seamen, 18 of whom were
Asiatics, who deserted their vessels and remained in the United States unlaw-
Action as follows was taken with regard to warrants of arrest served: Canceled
for various causes, of which 18 covered the radical classes, 65; deportation
accomplished, 83, in addition to the riddance of 13 others who, after arrest
were permitted to return to their respective countries at their own expense;
awaiting deportation, 28, consisting almost entirely of aliens still serving tune
in the State penitentiary, and a few insane Russians, Turks, etc., who can not
ns vet be delivered to their respective war-torn countries. The deportation of
2 Chinese and 2 Japanese persons was attained, and 1 Japanese is awaiting
dpnortation Of the 83 deportations above mentioned, 31 were public charges,
13 of them'being insane public charges upon the Federal Government, having
been confined at'Morningside Hospital, Portland. Their deportation has saved
the United States Department of the Interior in maintenance expense over $5,000
this vear and like amounts each succeeding year. Figuring their life expectancy
Of 10 years a saving is accomplished of $50,000. As a greater number of insane
aliens ’were deported from the State asylum, it may be estimated that the
qtate of Oregon was saved thereby approximately a like amount.
Notwithstanding that last year broke our prior records for arrests and denortation
cases, during the fiscal, year just closed we have doubled our investigations
and doubled the number of aliens actually deported. We have this
veor saved the Federal Government (Department of the Interior) in the deportation
of insane aliens alone more money than our annual allotment amounts
to We have saved the State of Oregon a like sum in the same manner. This
has been done without the addition of a man to our force.
The fact that we have found and deported 16 aliens upon the ground that they
had unlawfully entered the United States within one year after rejection or
deportation prompts the repetition of the recommendation that a penalty be
nut upon such willful violation and’ defiance of our statutes. Such action is
reuuired to bring certain people to a proper respect for and observance of our
laws Exclusions at and deportations across our land boundaries under existing
conditions are only partially effective, and sometimes approach a travesty.
REPORT OP COMMISSIONER GENERAL OF IMMIGRATION. 645
The foregoing deportation cases included investigations of alien members of
the Industrial Workers of the World, members of the Communist Labor Party,
and various alien radicals, as follows:
I. W. W.
and similar
cases.
Communist
Labor
Party
cases.
Cases:
Considered..................
Investigated......... . .........
Warrants:
Applied for.......................
Issued................................
Served...............................
Department action:
Warrants canceled....
Warrants executed—
Actually deported...
Deportation pending
23
23
8 14
6 14
2 12
5 13
1 Two in jail serving sentences and whereabouts of one unknown.
SEAMEN.
There were nine applications of seamen for admission, all of which were
granted. Desertions totaled 21, including 4 Chinese and 14 Japanese persons.
The boarding of 31 vessels necessitated the examination of 1,149 seamen.
Identification cards for seamen to the number of 169 were issued.
During this year there was an increase in the number of ships arriving in this
district, most of which increase was confined to the last few months, promising
thereby a very material further development of business during the next
12 months; and recently plans of a very definite character have been undertaken
to establish here large steamship lines, carrying passengers, in which
event an immense increase in immigration to this distrct is inevitable—all of
which will make imperative a considerable increase in our complement.
FINANCIAL AFFAIRS.
The sum of $72 in head tax was collected and no fines were assessed. The
allotment for the fiscal year 1920 was $3,125, and the disbursements totaled
$3,950. No fines were imposed by the courts.
The close of the year finds us somewhat in arrears financially. However,
we have done a much greater volume of business than last year, and our deficit
is less notwithstanding our allotment was smaller. Had it not been for the
unprecedented number of deportations and the unusual expenses incident to
the arrest and detention of the Communist Labor Party members we should
have incurred no deficit whatsoever. The bureau should not discount the fact
that Oregon is a rapidly developing State and that immigration business here
is growing constantly, and that the service can not stagnate in this district.
Even at this writing this office is approached by steamship officials with inquiries
as to our facilities for handling here all kinds of passenger business
from the Orient, as well as from South America and Mexico, and whether the
Government will erect or rent a detention house and make the suitable and
necessary arrangements for the proper detention and inspection, medically
and otherwise, of the immigrants that will come on these vessels to this port.
With this impending and unparalleled passenger traffic to this port, important
developments may be expected, and new and larger calls are bound to be made
upon the bureau for more men and equipment.
CHINESE ARRESTED BEFORE UNITED STATES COMMISSIONERS AND COURTS.
No new cases arose this fiscal year, but one remained pending from the last.
The alien in question was ordered deported but disappeared, whereupon bail
put up for his appearance was forfeited.
CRIMINAL CASES.
But one new case came up for action, conviction having been secured.
l646 REPORTS OF DEPARTMENT OF LABOR.
WRITS OF HABEAS CORPUS APPLIED FOR.
The one writ of habeas corpus pending from the last fiscal year was dismissed,
and no new cases occurred. Lawyers in this district have not been
in the habit of seeking writs generally, and our success in those instances
where they have done so has discouraged the practice. This year we won the
very important case of Neil Guiney, secretary of the Lumber Workers’ Branch
of the I. W. W., which case went to the United States Circuit Court of Appeals
with a result very gratifying to the Government. This is the most important
case we have ever had before the courts in this district, but since prior
report was made thereon no further comment would appear appropriate here.
WHITE-SLAVE MATTERS.
Violations of the Mann Act come within the province of the special agents of
the Department of Justice with whom we cooperate whenever aliens are concerned.
The officers in this district have continued to arrest alien panderers
and operators of cheap, lodging houses who have permitted prostitution to be
covertly practiced therein. The success of these apprehensions and the uniform
support of the bureau and department have been gratifying, not only to this
office but also to the community.
CONTRACT LABOR.
No section 24 men have visited us during the past year, nor have any flagrant
violations of the contract-labor laws come to our notice. Officers of this district
have arrested and deported a number of undesirable Mexican contract
laborers who for various reasons left the employment for which they were
specifically admitted, some of whom, in one way or another, had come into
contact with the local police, others becoming insane. The deportations were,
where possible, made at the expense of the responsible importers.
SMUGGLING OPERATIONS.
At this time there appears to be no direct smuggling into this district, though
undoubtedly certain aliens who are smuggled across from Canada proceed
through the State of Washington and find their way to friends and relatives
here, as do a lesser number who enter from Mexico. However, it is now so
much easier and cheaper for a Chinese or Japanese to gain entry by coming as
a seaman that it is expected that that method of bringing “ contraband ” into
the country will become more popular than the more cumbersome, dangerous,
and expensive methods formerly in vogue.
SOCIETIES FOR THE BENEFIT OF ALIENS.
There is nothing really pertinent to be added to comment under this bead
appearing in annual report of 1919, save that this office has come into greater
contact than heretofore with the British Red Cross on account of the increased
number of British and Canadian returned soldiers and their dependents, or
associates, who have, in one way or another, violated the immigration laws.
CHINESE PREINVESTIGATION MATTERS.
The total of preinvestigation cases considered was 70. Return certificates
were granted to 18 merchants, 28 laborers (3 additional applications for investigations
having been denied and 1 withdrawn), 12 citizens, an additional 2
still pending, 2 students, 1 citizen’s wife, and 1 teacher. Five applications were
denied, one of which was appealed to the bureau; action thereon is still pending.
As compared with last year, Chinese preinvestigations have increased about
40 per cent, and it is expected that this approximately represents what may be
expected in the future, unless and until a passenger line is established liere,
when the applications will, as a matter of course, multiply.
INVESTIGATIONS.
A total of 1,062 investigations in immigration cases and 145 in Chinese matters
were conducted in the past year. With certain few exceptions, there have
been made during the year closed many more investigations of all kinds and
classes than ever before.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 647
STATION AND EQUIPMENT.
This service is located in the new post-office building on Broadway and
Glisan Street, where we have six rooms on the third floor. The quarters are
sufficient for our present needs, but when passenger lines become operative a
detention station will have to be established elsewhere.
PERSONNEL.
The personnel of this district is deserving of commendation for conscientious
and constant devotion to their duties, despite the fact that part of them are not
properly remunerated. It is hoped that eventually these inequalities will be
corrected. For years our business has been steadily growing and our complement
either slowly decreasing or standing still, until now we have reached
the irreducible minimum, and with any further growth in business there must
come an increase in our office force.
There are no officers or employees among the small complement in this district
who served in the Army, Navy, or Marines during the recent war.
PASSPORT-PERMIT WORK.
One hundred and twelve aliens applied in this district for permits to depart
from the United States, of which number 97 were granted, 7 refused, and 8 are
pending. ______
INSPECTOR IN CHARGE, DISTRICT NO. 22, COMPRISING TERRITORY
OF HAWAII, WITH HEADQUARTERS AT HONOLULU.
APPLICATIONS.
During the fiscal year ended June 30, 1920, there were examined at the port
of Honolulu 4,463 alien applicants for entry. Of these, 4,402 were admitted
and 42 debarred, the remainder awaiting examination at the close of the year.
Of those applying for admission 459 were Chinese and 3,479 were Japanese. Of
the Japanese, 3,435 were admitted, and 36 debarred.
There has been no appreciable difference in the immigration between this
and the last year. This office has been working under the war regulations, and
the work involved has been largely of a routine character. A large percentage
of the aliens were held for the board of special inquiry, entailing a great
amount of work.
The Hawaiian Sugar Planters’ Association has brought in during the year
3,628 Filipinos, of whom 3,238 were males and 390 females. There were 1,146
departures for the Orient, showing a larger percentage of departing Filipinos
than there were last year. There were 68 departures of Filipinos for other
foreign ports.
The bulk of the immigration, as heretofore, has been largely Japanese. There
were 1,298 certificates to depart for the mainland issued to aliens who were
citizens of various countries, those from Spain exceeding any other in number.
It is to be noted that, although the strike of about 6,000 Japanese here has
caused large wages to be offered to strikebreakers, the departures for the
mainland of “ white ” laborers has been greater than last year. The Spanish
and Portuguese, who were brought in by the territorial board of immigration
some years ago and were given employment on an oriental scale of wages, have
increasingly left the islands.
DEPORTATIONS.
This office handled 14 warrant cases, 1 involving a Chinese person and 3
Japanese. Four warrants of deportation have been executed.
SEAMEN.
Four alien seamen applied for admission into the United States, all of whom
were admitted. Ninety-three alien seamen were admitted to reship foreign, and
647 identity cards were issued, 171 to alien and 476 to citizen seamen. There
were 27 desertions, 8 of which involved Japanese persons.
648 REPORTS OP DEPARTMENT OF LABOR.
The number of vessels boarded during the year from domestic ports totaled
481, and from foreign ports 230, making a total of 711. The total number of
Chinese seamen checked out by boarding officers on the arrival and departure of
vessels was 8,685, the total number of Japanese seamen 13,115, the total number
of Javanese seamen 13, and the total number of other alien seamen arrivals
passing through this port was 9,450, making a grand total of 31,263.
STOWAWAYS.
There were 4 stowaway arrivals, all of whom were debarred, none being of
the Japanese or Chinese races.
' ESCAPES OF ALIENS FROM VESSELS AND STATIONS.
The only alien escaping from this station during the year was a Japanese
woman who was being held under a warrant of arrest. She escaped from a
hospital room in which she was being detained.
FINANCIAL AFFAIRS.
The sum of $29,548 was collected in head tax and $1,000 in administrative
fines. Fines in court cases amounting to $1,000 were covered into the Treasury.
The allotment for this district was $5,700, and the total disbursements were
$5,593.90.
CRIMINAL CASES.
The one case arising during the fiscal year in question was that in which
Theo. H. Davies & Co., agents for the Canadian-Australasian Royal Mail Line,
were fined $1,000 for permitting the illegal landing of an alien. The fine was
paid and no appeal taken.
WRITS OF HABEAS CORPUS APPLIED FOR.
Seventeen habeas corpus cases were pending from last year, and 9 writs were
applied for in new cases arising during the fiscal year. Eight aliens have
been deported and 18 cases are still pending.
WORK OF THE MEDICAL OFFICERS.
The work of the medical officers of the United States Public Health Service
at this station has been, during the past year, most satisfactory.
SMUGGLING.
We have'found no efforts to smuggle aliens in at this port.
SOCIETIES FOR THE BENEFIT OF ALIENS.
A large part of the aliens held in detention for the board of special inquiry
are Japanese women awaiting the arrival of their husbands, and they are
visited by workers of the Young Women’s Christian Association, who follow
up their interest in them after they have been admitted.
SETTLEMENTS OF ALIENS OF PARTICULAR RACES.
The matter of racial distribution of aliens is left to their individual determination,
and they locate on plantations or settlements where they have friends
or people of their own nationality.
CHINESE PREINVESTIGATION MATTERS.
Consideration was given to 550 preinvestigation matters during the year, 55
of which were pending from the previous fiscal year. Return certificates were
granted to 130 natives, 45 exempts, and 244 laborers; and 396 holders of
return certificates had departed for China at the close of the year.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 649
INVESTIGATIONS.
Investigations were conducted as follows: Regarding, applicants for entry, 4
Japanese claiming citizenship, none of whom were admitted; in wairant cases,
14 • in naturalization matters, 41; in cases of Chinese residents desiring to
bring in relatives, 72. In addition, there were issued 1,298 alien certificates for
insular territory; 973 certificates to citizens for insular travel; and 25 certificates
to hostile aliens to go to the mainland, 2 of which were pending from
the previous year. Certificates of citizenship to go to the mainland were granted
in 264 instances, denied in 5. and 66 are pending, the latter figure involving all
Japanese The section 6 certificates of 10 Chinese members of the exempt classes
going to the mainland were visaed. Investigations were had in 2 warrant
cases.
STATION AND EQUIPMENT.
There have been practically no changes in the building at this station during
the year, with the exception of its continued deterioration. Some necessary
modifications, alterations, and minor repairs were made, the work being done
by the laborers at this station.
As you have already been informed, the timber of this building has been
attacked by an ant that has been making great inroads, and, while the structure
may suffice for its purposes for a few years, after awhile it will be absolutely
unsafe for immigrants to be quartered in the second story. It is recommended,
that steps be taken looking toward the construction here of a new station of
concrete, which should be fireproof and constructed in such a manner that the
insects can not render it unsafe for occupancy.
PERSONNEL.
The men in the service have all worked well. You have been advised that,
owing to the fact that there are but three inspectors besides the inspector in
charge in this office, for several years one inspector has been on boarding duty
from sunrise to sunset. These excessive demands resulted in failing health,
and on his return from a vacation on the mainland it was found necessary to
assign the three inspectors to boarding duty in succession for a week at a time.
You are aware that all Chinese cases are now handled by boards of special
inquiry, to which the inspectors are designated as members, and the interruptions
in the hearings of cases by the inspectors being called for boarding duty
and the inability to meet appointments made for hearings are a constant source
of delay, and it* is to be deplored that we have not here an officer who can give
himself wholly to the boarding duty and attend to the seamen, and who, as to
overtime, could share with and be relieved by the other inspectors, so that the
burden of service could be placed equally upon all.
A careful consideration of this subject is respectfully invited in view of the
presentations made in this report of the work at this station, and it is hoped
that you may see your way clear to designate another inspector, of proper age
and physical ability, to perform the boarding duty.
GENERAL COMMENT.
Our relations with other departments and the Territorial government have
been cordial and satisfactory.
TRAVEL PERMITS.
Most of the travel permits this year have been issued to Filipinos returning
to Manila It seems strange that this should be required, for these people are
coming here from Manila without any papers or permits of any kind whatsoever.
HOSPITAL TREATMENT.
Treatment in hospital was accorded 19 aliens, 7 of whom were Chinese and 12
Japanese persons. The disease in all instances was trachoma, and cure was
effected in every case.
650 REPORTS OF DEPARTMENT OF LABOR.
INSPECTOR IN CHARGE DISTRICT NO. 19, COMPRISING WESTERN
PENNSYLVANIA AND WEST VIRGINIA, WITH HEADQUARTERS MT
PITTSBURGH.
APPLICATIONS.
The only applications for admission to the United States in this district were
at Erie, Pa. Nine applied and were admitted. As Erie is considered a border"
port, statistical data were furnished the United States commissioner at Montreal
and will no doubt be covered in his report. The admission of 10 aliens
who for various reasons gained illegal entry to the United States, was legalized
and head tax amounting to $80 collected and transmitted to the proper immigration
station.
DEPORTATIONS (EXPULSIONS, INCLUDING CHINESE).
There were 314 cases considered, 224 of which were investigated. Of this
number, 214 warrants of arrest were issued, 190 having been served. The
final action as to these cases is as follows: 61 warrants of arrest canceled; 78
warrants of deportation executed; 22 additional awaiting execution; and 42
cases pending. One Chinese person forfeited bond. No Japanese cases occurred
in this district.
RUSSIAN WORKERS.
One hundred and seventy-six cases of the anarchistic type were investigated,
78 being Russian Workers and 98 Communists, these being a part of the cases
enumerated in the preceding paragraph. Fifty-four additional cases of this
type were investigated, but not sufficient evidence was adduced to justify warrant
issue. Many other cases of anarchistic tendency were considered but not
investigated.
It may be interesting to note that approximately 90 per cent of the number
of Russian Workers taken into custody by this office entered the United States
in 1913 and 1914. Most of them were of the ignorant peasant type and were
unable to read and write. Americanization work practically ceased with the
beginning of the war in 1914. These ignorant Russian Workers were therefore
cast adrift with no effort on the part of our own people to teach and
inculcate in them the spirit of Americanism. Of the number arrested, four
had families in this country. The rest of them left their families in Russia.
After Russia made peace with Germany and the Allies declared a general
blockade of the Russian ports these men were unable to communicate with or
hear from their families. They had not been here long enough to learn to
speak English and their only associates were their own people. The worry
and suspense as to the fate of their families in Russia was such as to place
them in a proper frame of mind to seize upon any pretext offered to oppose the
policy of our Government, and when organizers for the Union of Russian
Workers presented themselves, they quite readily became members of the
organization. • The majority of them, however, insisted that their only thought
was to have the ports opened and be permitted to return to their native land.
COMMUNISTS.
The Communist type of alien anarchist differed from the Russian Workers
in that it embraced a number of foreign nationalities, such as Poles, Lithuanians,
Croatians, Ukrainians, and other peoples from southeastern Europe.
The organization of this society appears to have been a direct result of their
expulsion from the Socialist Party. Many of them were automatically transferred
to the new organization without their knowledge or consent, while others
entered the new society fully aware of its nature and its teachings and subscribed
to its principles and tenets. The latter class in most part were ordered
deported by the department, while the warrants were canceled in the cases of
the former class.
In connection with the above cases it is desired to acknowledge the wholehearted
cooperation of the Bureau of Investigation, Department of Justice.
That office and this service worked in the closest relation and entire harmony
throughout the handling of cases of this type.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 651
SEAMEN.
The number of seamen examined at Erie, Pa., and cards issued was 60.
Complete data were furnished the commissioner of immigration at Montreal,
Canada.
ESCAPE OF ALIENS FROM VESSELS AND STATIONS.
No escapes from vessels to report. Five aliens under orders of deportation,
but released on bond, escaped and their bonds were forfeited, 1 being a
Chinaman and 2 of the anarchistic type.
FINANCIAL STATEMENT.
The amount allotted to this district was $4,000. This allowance was subsequently
increased by $2,000, making a total allotment of $6,000. The total
expenditures were $6,816.23.
CHINESE ARRESTED BEFORE UNITED STATES COMMISSIONERS AND COURTS.
Owing to the work being unusually heavy along other lines, there was little
done other than the usual investigations in Chinese cases during the fiscal
year. There is a large Chinese population in and about Pittsburgh, and no
doubt there are many who should be brought before a United States commissioner
with a view to deportation, but with our available help it has been a
physical impossibility to give this part of our work the attention that its importance
properly deserves. It is hoped that during the ensuing year a careful
survey may be had throughout the district and steps taken to bring those found
to be illegally in the United States before the proper authorities.
There were no new cases, and 2 remaining from last year are still pending.
WRITS OF HABEAS CORPUS.
This district was extremely fortunate in that no writs were applied for or
granted this year. This was largely due to the fact that most of the aliens
under arrest were promptly released on bond. It is the practice of this office
to encourage the attorneys to effect the release of their clients on bond, and
more especially so when it is believed that such a release will serve to restrain
the aliens from pursuing the policy that brolight them into disrepute. In two
instances aliens were released upon $1,000 bond each, but owing to the fact
that they continued their radical agitation it became necessary to recall the
bonds and place them in confinement. The attorneys for these aliens in both
instances considered taking out a writ, but were discouraged by this office and
by the court, with the result that no writ was applied for.
WHITE-SLAVE CASES.
Two white-slave cases were investigated by this office during the year, but
no criminal action was taken. A careful investigation indicated that they
did not come within the jurisdiction of rhe Immigration Service.
ALIEN CONTRACT LABOR.
Three cases were investigated during the year with respect to the provisions
of the contract-labor act. No suits were instituted.
MEDICAL SERVICE.
With respect to the city of Pittsburgh and vicinity, this office depends upon
the surgeons attached to the marine hospital, and it is desired to take this
opportunity of acknowledging their courtesy and consideration. They have
always been ready and willing to conduct examinations and submit certificates
upon request. In the State of West Virginia and in counties other than those
adjoining Pittsburgh, it has been found advisable to employ special practitioners
in the vicinity where the cases arise. This policy has proven
satisfactory.
652 REPORTS OF DEPARTMENT OF LABOR.
SOCIETIES FOR THE BENEFIT OF ALIENS.
All of the principal cities in this district are equipped with societies and
organizations for the purpose of assisting incoming aliens, and in addition
thereto in most cities, societies are conducting a systematic Americanization
campaign. Three societies in the city of Pittsburgh are now planning to meet
incoming trains for the purpose of assisting and protecting aliens upon their
arrival. This work was discontinued with the beginning of the European war,
but as the tide of immigration is once more fast resuming its normal proportions
they are again taking up the work. It is believed, however, that there
should be some systematic coordination of the various organizations in order
that they may approach the maximum of efficiency.
CHINESE PREINVESTIGATION MATTERS.
A total of 92 cases under this heading were investigated, 45 return certificates
granted, 3 applications denied, and 3 cases are pending. Of the 45 Chinese
whose cases were favorably acted upon, 22 were natives, 8 laborers, 12 merchants,
and 3 students.
inv est iga tio ns .
Investigations were conducted as follows: Applicants for entry, 168; after
temporary admission, 27; after admission under bond, 14; warrant cases, 224;
contract-labor cases, 3; other matters, 60; naturalization cases, 77; Chinese
matters, 41.
MEXICAN LABORERS.
Considerable space was taken in last year’s report with respect to the question
of Mexican laborers. Many of them during that year had been brought
to this district by the Pennsylvania Railroad Co. and by private corporations,
and had become stranded. It is gratifying to say that this question has ceased
to be a problem. The Pennsylvania Railroad Co. returned many of them to>
their former homes in the South, and with respect to others, as they became
acclimated and more accustomed to American ways, learning a little of the
language, etc., they gradually grew to be more self-reliant and were able to
make their own way in this country. Only two cases of Mexican public charges
were brought to the attention of this office during the year. One of them was
finally returned to Mexico, and the other decamped before warrant proceedings
were instituted.
PASSP'oRT-PERMIT WORK.
There are four permit offices in the district, viz, Charleston and Fairmont,.
W. Va., and Erie and Pittsburgh, Pa. There was a total of 2,017 applications
during the year, of which 1,906 were filed at the Pittsburgh office and the
remainder about equally divided among the other three cities.
No additional help was had in connection with the passport-permit work.
STATION AND EQUIPMENT.
At the beginning of the fiscal year this office was removed to the Hartje
Building, corner of First Avenue and Wood Street, where it procured ample
accommodations, and it was hoped that the question of suitable quarters was
settled for some years to come. Unfortunately, however, a lease can be
entered into by this service for a period of only one year. Furthermore, owing
to the delay in making the appropriation, the lease was not signed until after
we had taken possession of the new quarters. When the lease was prepared
the owners of the building, contrary to the agreement with their agent, refused
to enter into a contract beyond April 30, as that is the date upon which all
leases in Pittsburgh expire. During the year the building was sold, and as
the purchaser desired to use all the space, it became necessary for us to seek
new quarters. In common with other cities, rents in Pittsburgh have doubled,
and, in fact, it was almost impossible to procure suitable quarters at any price.
After a careful survey of the situation we were fortunate in securing an
appropriate place in the Solomon Building, corner of Fifth Avenue and Grant
Street. The building was remodeled and the space we procured was partitioned
to meet the needs of the service. The 1st of May we took possession,
and with respect to office quarters we are now well equipped to handle the work
of the district, at a rental of $2,940 per annum.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 653
gen eral .
This office is working other Government servic eisn Itnh et hcel odsiessttr ihcta.r mTohney haenadd sc ooofp tehraet ivoanr iwouitsh Gaollv etrhne,
merit offices, as well as other Government employees, have been unite in y
courteous and have never failed to render assistance when necessary. It is
desired to acknowledge the courtesy of the police departments of the various
cities in this district. Without the cooperation of this important agency it
would have been difficult to carry to a successful termination the apprehension
detention, and final disposition of the Communist and Russian Worker ca.ses
handled in this district. The police departments in the various districts
within this jurisdiction have always been found not only willing but anxious
to lend such aid and assistance as was within their power. _
In conclusion, acknowledgment is made of the many courtesies and consideration
extended by the bureau, all of which have helped to make the work of
the district a pleasure and added to the efficiency of the service.
INSPECTOR IN CHARGE, DISTRICT NO. 10, COMPRISING OHIO AND
KENTUCKY, WITH HEADQUARTERS AT CLEVELAND.
APPLICATIONS.
The statistics covering applicants for admission are reported to the United
States commissioner of immigration, Montreal, Canada, to be included in the
renorts of Canadian border stations. The data in this respect are limited to
the business of passengers manifested from the S. S. Theodore Roosevelt, runnin°-
between Port Stanley, Ontario, and Cleveland; the S. S. Pelee, from Pelee
Island Ontario to Sandusky, Ohio; and occasional other aliens who may land
from Lake vessels. Incidentally, however, 47 aliens have been examined nunc
pro tunc for eligibility to enter, and head tax in the sum of $336 forwarded
to cover entries at other ports.
DEPORTATIONS (EXPULSIONS, INCLUDING CHINESE).
A total of 366 cases were considered and investigations conducted in 341 of
these Two hundred and eight warrants of arrest were applied for by this service
and 341 by the Department of Justice. Action as follows was taken in cases
where warrants of arrest were served, some of which were pending from the previous
fiscal year: Warrants canceled, 155, including 1 for a Chinese person , warrants
of deportation executed but deportation withheld, 61, 6 of which involved
Chinese persons; and pending final decision, 38, including the cases of
3 Chinese.
SEAMEN.
Not applicable except in relation to inspection of crews of vessels and issuance
of identification cards to Lake seamen under the modified rule 10 for
the Canadian border. During the year 248 cards have been issued to crewmen
on 18 vessels. In view of the continued failure to provide officers at
various Ohio ports along Lake Erie, this work has not been complete. However
the observations in last year’s report are respectfully renewed—either
that’ adequate arrangements be made for the enforcement of the rule or that
it be abolished or reduced to a minimum requirement within the discretion
given the Secretary of Labor under section 36 of the immigration act. Obviously
there is no comparison between the conditions pertaining to seamen on
the Great Lakes and on salt water. The Government may as well and as
reasonably require crews of trains crossing the border to provide themselves
with such identification cards as men on vessels, ferries, etc., which usually
cross from one border to another within a period of a few hours.
FINANCIAL AFFAIRS.
Head tax for aliens arriving at ports under the jurisdiction of this office is
collected and reported by the United States commissioner of immigration at
Montreal. It may be stated, however, that $336 in head tax has been collected
from aliens who entered at other ports of entry and whose residence in the
654 REPORTS OF DEPARTMENT OF LABOR.
United States was legalized, the amount of the tax in each instance beinsr
forwarded to the appropriate port of entry.
The allotment _ to this district was $6,000, and the disbursements were
$6,214.68; in addition, $1,702.05 was expended from the appropriation for the
“Enforcement of laws against alien anarchists,” and $30.50 from the appropriation
for the “ Deportation of aliens.”
CHINESE ARRESTED BEFORE UNITED STATES COMMISSIONERS AND COURTS.
As in many phases of our work during the past year, the operations with
respect to arresting and deporting Chinese by judicial process have been practically
nil by reason of activities of the office in other directions. Consequently
no new arrests in cases of this character were made. The cases of
two Chinese aliens who were deported had been pending in the courts for
several years and were finally disposed of without incident. These cases have
been discussed in previous annual reports. There are still pending four of
such cases—two of them (Woo Mon and Woo Yam) have been before the
District Court for the Eastern District of Kentucky for upward of three years
After much delay the court heard the testimony'in the cases and then continued
them for arguments. The United States attorney wished this service
to pay for the transcript of the stenographic record which the bureau refused
to authorize, and consequently for this and other reasons the cases have been
permitted to drag in the court pending argument or decision for more than
a year and a half since the hearing. The case of Chan Ut Foo in the Southern
District of Ohio has been kept in a state of perpetual continuance owing to the
disposition of the court to order deportation, but to defer the same to give the
alien an opportunity to finish his education in the United States. In the
fourth case, that of Lo Hop, which was remanded to the district court by the
Circuit Court of Appeals during .the past year, there is involved the question
of the privilege of a Chinese to enter the United States as a merchant, and
almost immediately cast off such mercantile status and become a laborer; the
decision of the court being that the Government must affirmatively show that
there was an actual fraud perpetrated in gaining admission. The writer’s personal
view is that the present case may as well be marked off the docket and the
alien discharged without prejudice, because it would be extremely difficult to
make such a showing in the above case if the subsequent acts of the alien are
excluded from the evidence upon which the decision would be based.
CRIMINAL CASES.
The crime of importation of a girl, for an immoral purpose was perpetrated,
but no evidence of commercialism was shown. The criminal in question was
indicted under the Mann Act; pleaded guilty after four months’ detention; was
sentenced to 30 days in jail, and afterwards deported to Canada.
One person, indicted at Louisville, Ky., for interfering with an immigration
officer in discharge of his duty, was fined $100 and costs by the United States
district judge.
WRITS OF HABEAS CORPUS APPLIED FOR.
In April, 1920, applications were filed by an attorney in Youngstown, Ohio,
representing the Communist Party of America, in behalf of 16 aliens held in the
Mahoning County jail, at Youngstown, Ohio, in process of deportation. Before
service was had upon the immigration officials 7 of the aliens involved either
had been released upon bond or by cancellation of the warrants of arrest.
Hearings were had before Hon. D. C. Westenhaver, judge of the United States
District Court for the Northern District of Ohio, in Cleveland, on April 17,
and at Youngstown on May 20. Many superfluous allegations were made in
the application for the writ, including much prating about the violation of the
alien’s constitutional rights (the first howl of those who would destroy the
Constitution and all else American) ; mistreatment and abuse by arresting
officials (not immigration officials) ; improper seizure of evidence, etc.; and in
hearing the cases the court took special pains to listen to a great deal of testimony
and argument and allow an unusual latitude to the aliens and their
counsel to present what they appeared to term their grievances, and after taking
the cases under advisement rendered an opinion in which he refused to grant
the writ of habeas corpus and dismissed the rule upon which the proceedings
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 655
were held. His decision should be of considerable interest to the service,
because it sustains fully the action of the department in ordering deportation
in cases where the aliens’ admissions prior to the serving of the warrant, of
arrest were used against them and the hearings partially conducted prior to the
admission of counsel, upholding the practice which obtained in the service for
a number of years and demonstrating that the method used can and will
stand the test of the courts, if not abused by the officers who may exercise the
discretion permitted by the rule. This very fact suggests the recommendation
that the provisions of rule 22 with respect to the admission of attorney be
restored to the wording contained in bureau circular letter of December 30, so
as to give officers of the service a fair opportunity to make their cases before
admitting counsel to the hearings.
No cases are pending, and the 16 abo\e referred to arose during the fiscal
year under discussion.
WHITE-SLAVE MATTERS.
There are no sensational cases to report. Several cases were handled in
which aliens had come to the United States for immoral purposes, but no cases
where commercialized vice was concerned, except the arrest of several foreign
boarding-house keepers who permitted prostitution and shared in its proceeds.
The case of one young girl came to our attention, wherein her paramour and
importer apparently had brought her from Canada under promise of marriage.
After arrest of both the girl was disillusioned upon learning that the man had
resided with another w Oman at Hamilton, Ontario, and had two children by her.
CONTRACT LABOR.
There is no section 24 (contract labor) officer assigned to this district.
The cases handled were routine in nature, involving investigations, but no
civil or criminal actions; 9 investigations of applications to import skilled labor
by permission were conducted.
WORK OE THE MEDICAL OFFICERS.
There is no particular comment to make, except that officers of the United
States Public Health Service cooperate fully.
CHINESE PREINVESTIGATION MATTERS.
The disposition of the 47 cases considered follows: Return certificates granted
to 25 natives, 7 laborers, 4 merchants, and 2 students; and 3 were denied to
natives. Four applications, involving 2 natives, 1 merchant, and 1 student, are
pending; and 2 applications were withdrawn.
INVESTIGATIONS.
Investigations were conducted in the cases of 165 applicants for entry; in 2
cases after temporary admission; in 16 cases after admission under bond; in
356 warrant cases; in 242 naturalization matters; in addition to 97 miscellaneous
investigations, including 24 cases of United States citizens deported
from Canada. There were also 91 investigations in Chinese matters, subdivided
as follows: 11 covering applicants for admission; 47 preinvestigations;
1 after temporary admission; 11 in warrant cases; and 21 to determine lawful
residence.
STATIONS AND EQUIPMENT.
As stated in previous reports, the offices of the immigration service at
Cleveland and Cincinnati are housed in the Federal building, and the equipment,
except typewriters, stationery, etc., for these offices is provided by the
Treasury Department. At Toledo the office has been maintained in rented
quarters for the past 16 years, during the last 10 of which two suitable rooms
have been obtained in the Ohio Building. The rent for these rooms originally
was $40 per month, but owing to the increases which have been made from
time to time, the service has been compelled to pay approximately $80, and
finally has been ordered to vacate. The undesirability of our office as a tenant
may perhaps be ascribed to the evils of the passport-permit affairs, and to
656 REPORTS OF DEPARTMENT OF LABOR.
the slowness with which the Government settles its accounts. The leases do
not, of course, permit of a sliding-scale raise or advance payments which the
building company can readily require and obtain from private tenants.
PASSPORT-PERMIT MATTERS.
The total number of applications filed during the fiscal year 1920 was 2,428;
all but 10 were granted. Shortly after the beginning of the year the State
Department abolished the requirement of permits for citizens or subjects of
neutral or allied countries, and finally, toward the close of the year, abolished
altogether card permits, but still allowing certain aliens who could not obtain
passports to file application for affidavits of identity upon which they might
leave the country. This phase of the work was practically eliminated at
the close of the fiscal year, so that it seems we are to be finally free from
the exasperating duties imposed by the passport-permit rules.
It may be added that the foregoing applications were taken without any
additional officers or clerks being assigned for that work—in fact, the force
allowed for that purpose was discontinued on July 1, 1919, and our subsequent
efforts to take these applications in connection with our regular work was
quite embarrassing.
PERSONNEL.
The spirit in which the force in this district has discharged its duties and
met with an unprecedented burden of work is the best testimonial of their
faithfulness to the service. The anarchistic cases alone would easily balance
an average year’s work, and with barely an exception that task was readily
shouldered and carried to the finish by several members of our permanent
force, in the midst of an unusually severe winter. And it should be borne
in mind that all these are serving the Government at a rate of compensation
less than half pay—figuring in the scale of things they must buy—than that
received by them four or five years ago. The small increases granted at the
end of the fiscal year, ranging from 19 to ^5 cents per uav after the deduction
for pension fund, are so very trifling when compared to the increased cost
of shoes or sugar or bread as to make the prospect of the Government employee
gloomy indeed, and render him an object of pity to those in private employ
whose compensation has been raised (with Government encouragement) from
time to time until in many trades the increase is now nearly twice the original
pay of five years ago.
RULE 17—A.
There was no material operation under this rule during the fiscal year.
ANARCHISTIC CASES.
The activities in Cleveland and vicinity with respect to aliens of the anarchistic
and kindred classes may be said to have had their inception from the riots
which took place in the down-town section of Cleveland on May 1, 1919. Shortly
thereafter the police department, the officials of the Department of Justice,
and this service cooperated in the apprehending of some two score so-called
“ Reds,” in a few of which cases warrants of arrest were issued. In November,
1919, a more or less concerted campaign was instituted against aliens who
were members of the Union of Russian Workers, resulting in the arrest of 27
aliens at Youngstown, Ohio, and 8 at Akron, Ohio. After the usual hearings,
31 of these aliens were ordered deported, and in company with 2 of similar
classes from Cleveland were conveyed to New York for deportation on the transport
Buford, which sailed on December 21, 1919. The warrants were ultimately
canceled in the remaining cases. On the afternoon of December 31 this office
received 271 warrants of arrest from the bureau for aliens alleged to be members
of the Communist Party of America or Communist Labor Party. Over 200 of
the above-mentioned warrants were for aliens located at Youngstown, Ohio,
and vicinity, only about 20 per cent of whom could be located in the raids conducted
on January 2 and thereafter. Of the Cleveland aliens 50 per cent were
located, and of course in connection with these raids many other aliens were
taken into custody for whom warrants were applied for and served. The total
number of these warrants served during the fiscal year was 429. The department
saw fit to cancel 111 warrants in this class of cases during the year, and
there were at the close of the year 37 awaiting deportation and 25 pending final
EFFORT OF COMMISSIONER GENERAL OF IMMIGRATION. 657
decision. The handling of the mass of warrant cases indicated herein without
the augmentation of our regular force of inspectors, save a brief temporary
detail of one inspector from another district, placed upon the officers of this
district a very heavy burden and subjected them to the hardship of unusually
long hours or absence from their official stations, or both, in the most severe
winter weather experienced in this vicinity for many years; and when it is
considered that most of the records were taken with the aid of stenographers
who were either loaned by commercial organizations through arrangements
made by the Department of Justice or stenographers employed by that department
temporarily for oui' assistance, coupled with the constant clamor and
harangue of the aliens, their relatives, and attorneys with respect to bond
matters, etc., and a considerable absence of inspectors owing to illness, a slight
conception of our difficulties and embarrassments may be gained. Whatever
criticisms may be made as to wholesale deportations, it is apparent to one who
has observed at close range the development of the foreign branches of the
Communist Party that some drastic measure was necessary to check the growth
of such organizations, and whatever influences may have caused the activity
against these organizations, the result has been the certain disintegration of
the foreign branches, at least for the present. The officials of the Government
must be prudent and watchful lest there be a repetition of the same offenses.
The writer heartily entertains the view that the immigration establishment
should be provided with sufficient men and money to take complete charge of
and control entirely the investigations in connection with the enforcement of
the immigration laws. It should be said, however, that the officials of the
Denartment of Justice in this district cooperated splendidly, and much credit
should be ffiven the head of the Cleveland office of that department, who prior
to his present assignment was an efficient inspector in the immigration service.
gen er al comm en t .
It is believed that concerted effort should be made upon Congress to increase
the rate of per diem allowed employees traveling upon official business. It is
ridiculous to expect that an officer can travel these days and maintain himself
decently on the road for the totally inadequate sum of $4 per day. Hardly
anywhere can a room be obtained for less than $2.50 to $3, and the cheapest
sort of meals cost two or even three times as much as they did five years ago.
Furthermore; it is an imposition upon an employee of the Government to compel
him to furnish his own funds for traveling purposes and to await the pleasure
of the disbursing official in securing the return thereof. All reputable commercial
concerns provide their traveling officers with a drawing account so
that they are always in funds. It occurs to me, however, that since the advancing
of funds to Government travelers would probably entail a great deal
of bookkeeping, etc., some arrangement should be made to reasonably compensate
the Government traveler for the use of his money. Most generally the
funds are in use in traveling accounts for a period in excess of 30 days before
final adjustment is made, and from a standpoint of simple accounting, and equal
fairness to the traveler, it would seem that the least consideration to be given
would be the privilege of adding to the travel voucher in each distance a sum
equal to 1 per cent of the amount of the voucher and include the same as the
last item thereof. Of course this probably would require an act of Congress,
but I have heard that incidents have been known where persons borrowing
money from banks for expenses were permitted to include in their vouchers an
item for the interest charged by the bank.
CERTIFICATE OF ARRIVAL.
There is a constantly increasing number of applications for nunc pro tunc
certificates of arrival for naturalization purposes in the cases of aliens who,
tor one reason or another, were not inspected and registered at the time they
arrived in the country. It is believed that the system of examinations for these
certificates should be revised entirely, and as the persons involved are required
to appear anywray before naturalization examiners, the so-called certificate of
arrival should be issued only upon the certification of the naturalization examiner
and his request therefor, and then only by the officer in charge at the
place where the alien actually entered the United States. The writer can not
see much satisfaction to the Immigration Service in the plan whereby such
15283—lab 1920----- 42
658 REPORTS OF DEPARTMENT OF LABOR.
an alien may make an affidavit before a notary public, and thus avail himself
of an issuance of a certificate of identity by an immigration official at a place
other than that where he entered the United States.
IDENTIFICATION.
The “ tin ” badges which have been supplied the Immigration Service for
many years may be sufficient for show purposes about ports of entry, but they
are wholly inadequate as a proper means of identification of an officer detailed
to .points distant from his headquarters. The display of the badge affords no
introduction, nor even identification. It is recommended that especially those
officers who conduct investigations be supplied with an adequate credential in
the form of a card or folder (similar to those issued to the personnel of the
Employment Service in 1918), which should contain a sealed photograph of
the person to whom issued, and, of course, a credential over the signature
of the head of the bureau or department.
INTERDISTRICT CONFERENCES.
It is believed that there should be frequent interdistrict or group conferences
held in different sections of the country at which the officers in charge and
specialists in certain lines of the work would meet with officials of the bureau
and department and exchange views and offer suggestions for the best and
most uniform practice throughout the service. These groups would naturally
embrace the different coast sections, the interior districts, and the north and
south borders. Our interest locally would naturally be one participated in by
representatives from Chicago, St. Louis, Cleveland, Pittsburgh, Detroit, and
other stations similarly situated. Such conference could be held annually at
Cleveland, for instance, and.be readily reached by officials from Washington,
and in addition to the representatives could very profitably have present an
officer from New York, and one, say, from Montreal, and in a couple of days
secure an interchange of ideas that would be most valuable to the service, and
could be in turn communicated to the personnel of the various districts, thus
stimulating the work of all concerned. Thus would be exerted a “leavening”
influence that would far outbalance the expenditure involved.
In conclusion, the writer can not urge too strongly that there must be some
means provided for the financial relief of the officers and employees in this
district, if there is any expectation of adequate returns in the way of service
and morale. He is very frank to say that his own salary is insufficient to meet
current expenses, to say nothing of any thoughtful provision for his family in
the future; and the situation is equally keen with the others in the district,
especially those who have dependents. The only apparent source of relief at
the present time is to endeavor to find employment in some other line of work
outside of our office hours and to be relieved of the burden of overtime and
overwork in our official employment. It is respectfully urged, therefore, that
every possible effort be exerted by the officials of the bureau and the department
to secure a living wage for those who may remain in the service.
INSPECTOR IN CHARGE, DISTRICT NO. 11, COMPRISING ILLINOIS,
INDIANA, MICHIGAN, AND WISCONSIN, WITH HEADQUARTERS AT
CHICAGO.
APPLICATIONS.
Aliens examined at Chicago as a port of entry have been reported to the
commissioner of immigration at Montreal and are included in his statistical
returns. This includes aliens who entered from Canada and whose admission
was subsequently legalized by the department.
DEPORTATIONS (EXPULSIONS, INCLUDING CHINESE).
The total number of deportation cases in which departmental warrants were
issued was 854, although 1,180 cases of aliens suspected of being in the United
States in violation of the law received consideration by this office. Warrant
hearings were held in 559 cases. Twenty-two of these are pending before the
REPORT OF COMMISSIONER GENERAL, OF IMMIGRATION. 659
department and 12 are pending before this office at the close of the year; 381
arrest war ?ants have been canceled; 38 warrants of deportation executed; 74
warrants of deportation are in the hands of this office for execution; and action
has been deferred by the department in 32 cases.
But one Chinese person was arrested under the immigration law, his deportation
having been ordered.
FINANCIAL AFFAIRS.
Head tax collected at this station has been promptly forwarded to the commissioner
of immigration at Montreal to be included in his report.
The allotment to this district was $8,000 and the disbursements totaled
$7,691.69.
The stated amount of disbursements includes only ascertained expenditures
at the close of June 30, 1919. A conservative estimate of unascertained sums
yet to be paid indicates that the total will not be less than $8,500. With the
gradual elimination of the conditions which have restricted immigration and
made deportation impossible in so many cases it' is obvious that the expenses
incurred on account of deportations will increase.
CHINESE ARRESTED BEFORE UNITED STATES COMMISSIONERS AND COURTS.
Seven Chinese persons were arrested this year on commissioner’s warrant,
and thei;e were 41 such cases pending from 1919. Deportation was ordered by
the United States commissioner in 7 cases and by the Circuit Court of Appeals
in 1 case, the aliens in 5 instances having been deported.
The number of arrest cases indicates that there has been less fraudulent
entry to the United States since war-time conditions in Canada have made
that country more attractive to the Chinese landing there and war-time conditions
in Mexico have made passage through that country so precarious. It
seems probable, too, that the new Canadian laws relating to Chinese will lessen
the number coming to the United States via Canada.
CIVIL SUITS.
The 6 cases mentioned as pending in last year’s report have not been disposed
of. No new cases have arisen during the present fiscal year.
No criminal prosecutions have been instituted.
WRITS OF HABEAS CORPUS APPLIED FOR.
Writs in 9 new cases were sued out, and 5 cases are pending from the previous
fiscal year. One alien was discharged on a writ, which leaves 13 cases
pending.
Five of the cases pending, which were brought in the district court at Milwaukee,
arose from the arrest for deportation of members of the Communist
Party of America. They have not been argued yet, on account of pressure of
other business in that court, and the aliens were released on bail. It is
expected that they will be heard by Judge Geiger, whose opinions command
much respect.
WHITE-SLAVE MATTERS.
Practically no cases involving prostitution have come to our attention, due
to the fact that repressive measures by municipal authorities have scattered
the business and caused it to be conducted with the greatest caution. Possible
additional reasons are the changed industrial conditions and the fact that few
unsophisticated alien women have arrived in this country since the war began.
CONTRACT LABOR.
No violations of any magnitude were discovered during the year, in spite of
the scarcity of labor. Employers as a rule have become familiar with the
broad character of the present law and are not disposed to take any chances
with it. Numerous inquiries are received about importing skilled labor in
accordance with rule 27, and a circular covering it has been mimeographed
for the benefit of such inquirers. All applications so far made have received
660 REPORTS OP DEPARTMENT OF LABOR.
favorable action by the department. Many inquiries are also received about
importing domestic and farm help, testifying to the great scarcity of this kind
of labor.
WORK OF MEDICAL OFFICERS.
What was said in preceding reports of the cheerful cooperation of the officers
of the Public Health Service still remains in effect.
SMUGGLING OPERATIONS.
There have been no indications here of any organized smuggling of Chinese
or other aliens.
SOCIETIES FOR THE BENEFIT OF ALIENS.
No new organizations of this sort have come to our notice during the year
except the recently organized United Americans of Illinois, one of whose purposes
is to furnish non-English-speaking people, and especially the foreignlanguage
press, with authentic information about the regulations governing
immigration, alien-income tax, passports, travel permits, etc. This office recently
furnished the organization with a concise statement of the immigration
regulations, which has been translated into many foreign languages and
furnished the foreign-language press of this vicinity. Similar statements have
been furnished the “welfare departments” of some of the mills, etc., where
foreigners are employed and have been printed in their “ house organs ” with a
view to preventing the exploitation of resident aliens who wish to send abroad
for relatives.
The office of the Immigrants’ Protective League has been moved to rooms in
the building adjoining this office, which has facilitated the execution of affidavits
for arriving aliens, etc.
SETTLEMENTS OF ALIENS OF PARTICULAR RACES.
These settlements have not changed materially during the past year. The
gradual extension of the business and manufacturing districts encroaches on
the territory occupied by the poorer foreigners and they gradually move to
better neighborhoods.
CHINESE PREINVESTIGATION MATTERS.
Forty-seven members of the exempt classes were granted return certificates,
in addition to 28 laborers and 63 natives. Investigations numbering 129 were
conducted in Other matters connected with the enforcement of the exclusion
laws. Applications for duplicate certificates were granted in the five cases
occurring during the year.
It will be noted that these figures are from three to four times as large as
those for last year. As travel conditions improve a marked increase in these
figures may be expected.
INVESTIGATIONS.
The records show a reasonable increase over last year in applications for
admission at ports of entry, 103 having been investigated, as were 2 after temporary
admission of the aliens concerned; and 4 after admission of the aliens
on bond. In addition, there were conducted investigations in 1,184 warrant
cases; 592 in naturalization matters; and 1,313 in other matters.
STATION AND EQUIPMENT.
The present quarters are adequate and convenient, and the rental is very
low in comparison with prices fixed within the last year; the rate of $1 per
square foot which we enjoy was made two years ago for a three-year term,
and since then rentals in the older office buildings have increased 40 per cent
or more, while there has been an even greater increase in the newer and more
ornate buildings.
Just at the close of the year some of the equipment which had been used
by the Children’s Bureau in this building was loaned to the station for use
until needed elsewhere by that bureau or the Employment Service.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 661
PERSONNEL.
The officers in this district have performed their duties with the utmost interest
and energy. The figures set forth earlier in this report show a great
increase in the work, which hag been taken care of with little additional help.
During the Communist raids in November, December, and January the Department
of Justice kindly loaned stenographers to report some of the hearings.
Comment on the inadequacy of the salaries which can be paid with the appropriations
available is needless. Expenses have doubled in the last six
years, but compensation has not kept pace. The loyalty and industry which
have characterized all officers under these trying conditions reflect the greatest
credit on their patriotism.
COOPERATION WITH OTHER INVESTIGATIVE BRANCHES OF THE GOVERNMENT.
There is nothing new to be said under this head. Relations with fellow
officers in all departments have been most cordial.
ALIEN ANARCHISTS.
Various reasons have made it inexpedient to hold hearings under the warrants
issued for the alleged alien anarchists now under sentence in Leavenworth
Penitentiary. Their cases have not been passed upon by the Circuit
Court of Appeals; if that court decides against them we will proceed under
the act of May 10, 1920, which will make it necessary only to show alienage
and the commission of a crime under the war-time laws. If their conviction
is not upheld by the Circuit Court of Appeals we will proceed under the
anarchist provisions of the law. As a result of the Communist raids in January
we applied for 738 warrants, of which we were able to serve 453 to date; 349
have been canceled; 4 aliens have been deported; 57 are awaiting deportation
as soon as transportation can be arranged; in 28 cases final action has been
deferred for three or six months; 10 cases are pending before the department,
and 5 cases remain to be completed by this office when Important witnesses are
located. Needless to say, this work and the peculiar conditions under which
it had to be done called for extraordinary effort on the part of all officers. It
is no secret that the raids were not popular with a considerable element in
each locality and the greatest pains were taken to insure each alien a hearing
so fair that neither he nor his friends nor the courts could find any fault with
it. The extremely short time between the receipt of the warrants and the
date set for their service made their classification as to locality, their indexing,
etc., in itself no little task. In this city it was fortunately possible to get
the use of one whole cell wing at the house of correction, made vacant by the
operation of the prohibition law, and aliens arrested in this vicinity were detained
in comparative comfort until their friends could arrange bail. Detained
aliens were, of course, accorded hearings before those who were at large on
bail. All aliens but three were promptly released on bond, those three being
deported with the least possible delay. All the aliens in any locality were
examined by the same inspector, who was thus able to dovetail together all the
facts brought out at all their hearings and give each one a more thorough
examination than would have been possible otherwise.
All reports were reviewed by one inspector before being submitted to the
bureau, this reviewing officer thus acquiring a broad knowledge of all Communist
activities in this district. One of our most efficient inspectors was on
furlough and was recalled to duty to assist in this extra work, and the bureau
kindly detailed a very capable man from the Jacksonville district for two
months. The clerical force was increased for 90 days by two temporary stenographers
and, as mentioned before, by the services of some stenographers from
the Department of Justice. The service should be proud of the fact that, while
the attorneys for the aliens sought diligently for some fault to find, none of
them had any criticism to offer on the transcripts made by our stenographers;
clerks who are being paid less wages than the average amanuensis in a law
office did the work of court reporters. The use of Liberty bonds as collateral
for bail worked to the advantage of the service and the aliens; real estate
bonds in the State of Illinois are worth little more than the paper they are
written on, as the bondsman may transfer his property five minutes after he
gives the bond and render the bond absolutely valueless; under these circumstances
we could not have released aliens on real estate bonds without first
662 REPORTS OF DEPARTMENT OF LABOR.
making the most searching investigation as to the integrity of the signers, and
that would have meant practically indefinite delay.
INTERNED SEAMEN.
On account of its inland location this office did not participate in this work.
PASSPORT-PERMIT WORK.
Applications for permits to depart from the country numbered 3,051, of which
2,586 were granted, 33 refused, and 432 remained pending at the end of the
fiscal year in question.
TEMPORARY ADMISSION OF EABORERS FOR WAR WORK.
One Mexican, imported by the Chicago & Alton Railroad, was deported at
the company’s expense. The Chicago, Rock Island & Pacific Railroad returned
1 Mexican and reported the desertion of 27 others. The Santa Fe reported 3
desertions. Miguel Munoz, imported by the Holly Sugar Corporation, was deported
at its expense. Alberto Flores was imported by the Baltimore & Ohio
Railroad, but when he wanted to return to Mexico the company refused to
furnish him transportation; the matter was promptly referred to the bureau
and the higher officials of the company directed that transportation be furnished,
but in the meantime the alien had disappeared.
ILLITERACY.
This office does not come in touch with the workings of the illiteracy test
to such an extent as to be qualified to discuss it.
RULE 17—A.
No new releases under this rule were made during the year, but one alien
was paroled to the Central Howard Association, whose business it is to assist
released prisoners in securing employment. One alien so released has bought a
good home, and has made himself a highly respected member of his community
through the assistance given him by this association. Another alien
released under rule 17-A joined the Army and is making a good record there.
SEAMEN.
A total of 408 seamen were examined who arrived at this port as members
of the crews of vessels coming from Canada, to 126 of whom seamen’s cards
were issued. None were certified during the year for loathsome or dangerous
contagious diseases, or removed from vessels for hospital treatment.
INSPECTOR IN CHARGE, DISTRICT NO. 12, COMPRISING MINNESOTA
AND NORTH AND SOUTH DAKOTA, WITH HEADQUARTERS AT
MINNEAPOLIS.
Many of the adverse conditions imposed by the World War, and which seriously
curtailed and handicapped all regular immigration work here and elsewhere
have been removed or partially overcome during the year just closed.
It is sincerely hoped that normal conditions will again be restored early in the
approaching year, thereby permitting the expeditious handling of all immigration
work, especially deportations .
As this is an interior district there are, of course, no arrivals to report.
Entries to this district from Canada, via Minnesota and North Dakota, are
through 14 border ports, under the jurisdiction of the commissioner at
Montreal.
DEPORTATION S (EXPULSION S ) .
During the year just closed, 60 aliens (35 men, 17 women, and 8 children)
were deported by this office—22 to Canada, 38 to Europe. Twenty-two of these
were insane public charges removed from State hospitals; 11 were aliens conREPORT
OF COMMISSIONER GENERAL, OF IMMIGRATION. 663
victed of crime and removed from penal institutions, and the remaining 27
were deported on various immigration charges. Five additional aliens under
orders of deportation voluntarily left the United States at their own expense
and their departure was verified by this service. Eighteen other deportations
from this district by stations under the Montreal office were: Portal, 2; Winnipeg,
9 ; International Falls, 4; Duluth, 3.. Grand total of deportations from this
district during the year, 78; by Minneapolis office, 60; by border stations, 18.
As was to be expected, this number (60) is the largest deported by the
Minneapolis office in a year since the fiscal year ended June 30, 1914, when the
total was 64.
The year closed with deportation warrants in hand for 64 aliens. (Whereabouts
unknown of 9 of these, who violated parole or escaped from State
institutions.) Twenty-four of the 64 aliens are now serving sentence in penal or
reformatory institutions, while most of the others can not be deported at
present owing to other reasons.
During the period covered by this report 121 deportation cases were dismissed
locally or by the department for various reasons, such as insufficient
evidence, death, escape, legalization of entry, loss of jurisdiction, and transfer
of cases to other offices.
At the close of the year, applications for 5 arrest warrants were pending
before the department, 15 warrants of arrest were in hand and unserved, 15
hearings were before the department for decision or decision had been deferred,
and there were approximately 45 open cases.
Included in the foregoing summary were 37 warrants of arrest under the act
of October 16, 1918 (alien anarchists, etc.), issued during the year and based
on evidence obtained by agents of the Department of Justice. These aliens were
alleged to be members of the Communist Party or Communist Labor Party. Thirtyfour
of the 37 warrants received have been served and hearings conducted, with
the following results: Dismissed, 23; ordered deported, 9; decision deferred, 2.
The present report, I believe, would be incomplete without brief comment on
these cases. Actual membership in the parties named was admitted or proved
in only a limited number of cases. Testimony in most of the' cases was
voluminous, covering past and present affiliations and personal beliefs. As
stated, there were few clear or “ perfect ” cases where membership in one of the
two organizations was positively established. Inspectors Robert F. Davis and
O. B. Holton conducted all these hearings, assisted by Clerks William G.
Nyquist and George Weaver. Recommendations in each case were made by the
examining officer and myself, based upon the evidence introduced at hearings,
and our interpretation of the law. As was to be expected, the examining inspectors
and myself frequently differed in our recommendations in the same
case. However, each received careful personal consideration of both the
examining inspector and myself. The recommendations reflected our individual
convictions. Representatives of the Department of Justice were present at
these hearings, and, with a few exceptions, all aliens were represented by
counsel. Painstaking attempt was made, as always, to accord aliens a full
and fair hearing, and no adverse comment has been heard from any source
regarding our handling of these cases. The deposit of $18,500 in Liberty bonds
for release of those aliens arrested under the act of October 16, 1918, imposed
an additional responsibility in receiving, depositing, and returning them.
It is a pleasure to state that almost all these bonds have been finally accounted
for at this time.
COMMENTS ON DEPORTATION WORK.
As formerly, there has been active and hearty cooperation with other offices
in handling deportation cases, especially in the delivery of aliens to eastbound
deportation parties. Success of deportation parties inaugurated by the bureau
and in charge of its own representatives naturally depends upon the clocklike
cooperation of the various field offices. Although ample advance notice of the
movement of parties is usually given, it is at times difficult to make deliveries
at a specified time and place. This is due, however, to a limited force, and
varying local conditions unknown to the bureau.
Increased activity in deportation work is inevitable when it becomes possible
to deport all aliens whose removal has been deferred on account of war conditions,
and to deport current cases irrespective of nationality, shortly after
issuance of warrants.
664 I REPORTS OF DEPARTMENT OF LABOR.
An embarrassing condition of present deportation work is the necessity of
obtaining passports (or production of evidence necessary to obtain them) for
aliens to be deported at Government expense. This is especially true in the
cases of insane aliens and those from European countries whose territorial
limits were altered by the peace conference.
Several cases have arisen in this district during the past year where aliens
entered the American Army during the war, either through the draft or enlistment,
served for a time—in this country or Europe—later received honorable
discharge and subsequently became public charges. These aliens, however, were
believed to be subject to deportation under the existing law. While it did
not appear to the laymen that aliens’ disability (whether insanity or otherwise)
was even remotely due to Army service, especially when such service was
entirely in this country—action by this service in such cases is likely to be
questioned by the public. It appears to the writer that these cases should be
reported to and considered by the Bureau of War Risk Insurance, to determine
the Government’s liability, if any, before or at the time deportation proceedings
are. instituted.
A different situation exists as- regards Americans who enlisted in the Canadian
Army prior or subsequent to the entry of the United States into the World
War. It is understood that Canada holds that these men, irrespective of the
time'they entered the Canadian Army, have not acquired Canadian citizenship
thereby. The United States, on the contrary, holds that those Americans who
entered the Canadian Army prior to April 6, 1917, lost their citizenship here,
and defines procedure by which they may be restored to American citizenship;
occasionally such an American who has served in the Canadian Army returns
to this country and becomes a public charge—possibly due in part to army
service. Deportation of these ex-Canadian soldiers is impossible, yet it does
not seem proper that the burden of their maintenance as public charges should
fall on the American taxpayer'. Doubtless the Canadian authorities might
extend financial relief through pension or otherwise, if these cases were called
to their attention, and it appeared that present disability was due to such army
service.
A recommendation it is desired to urge, and which it is hoped to see incorporated
into the immigration law, pertains to jurisdiction in deportation proceedings.
In all cases where a time limit is placed on the deportation of aliens
it is believed that in computing such time all periods should be excluded during
which an alien is an inmate of a hospital, poorhouse, jail, prison, or other public
institution, and each month during which he has received relief from the poor
fund of any county or municipality. This is the Minnesota law determining the
domicile or settlement of applicants for public aid, and it is believed substantially
the same law is in force in most of the States. Amendment of the immigration
law to the extent and in the manner indicated would allow the Government
to retain jurisdiction, in public charge cases especially, for a longer
period. This would permit the deportation of many aliens who were not called
to the attention of our service during the first three or five years after landing,
as the violation may be; those whose landing could not be verified during the
present statutory limitation because of misleading or incomplete information,
and especially in the cases of the insane, where no reliable information whatever
may be obtainable within a reasonable time after admission to State
institutions.
Another suggestion which the writer thinks might well be adopted and incorporated
into the law also pertains to date of aliens’ entry to the United
States as determining jurisdiction in deportation proceedings. Under the
Chinese-exclusion laws the Government has placed the burden of proof on the
arrested Chinese of establishing his right to be and remain in the United
States. As regards deportation of aliens under the general immigration law,
it is believed the same reasoning should be followed to the extent of placing
the burden on aliens of proving that they had been in the United States beyond
the statutory deportation period and were therefore not subject to deportation
on the ground or grounds alleged. As we are now operating it is generally
necessary to obtain landing data from the alien himself or other interested
party, and then secure an official certificate of arrival from the port authorities.
Usually knowing of its intended use, it frequently happens that the alien or
his friends willfully give misleading information regarding entry for the
purpose of defeating deportation. As stated, the burden of establishing date and
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 665
place of entry now rests with the Government, whereas it is believed it should
rest with the alien.
Owing to the limited time which has elapsed since their passage no cases
have yet been considered and handled under the act of June 5, 1920 (to amend
act of Oct. 16, 1918, regarding alien members of the anarchistic and similar
classes), and the act of May 10, 1920 (“An act to deport certain undesirable
aliens and to deny readmission to those deported ”).
FINANCIAL AFFAIRS.
On August 7, 1918, the estimated cost of operation of this district for the
fiscal year 1920 (just closed) was $1,975. The bureau, however, made original
allotment under the immigration appropriation of $1,000 on July 31, 1919, increasing
it by $500 May 17, 1920, or a total of $1,500. While a few minor
accounts have not yet been submitted and passed, it now appears that the year
closed with a deficit of less than $50. The money expended was divided under
four headings: Contingent and miscellaneous expenses, $252.55; per diem in
lieu of subsistence, $348; traveling expenses, exclusive of transportation,
$482.12; detention and maintenance of aliens, $462.25.
Additional expenses under other appropriations and not chargeable to allotment
were incurred as follows: “ Enforcement of laws against alien anarchists”
since March 7, 1920, $114.95; “ expenses of deporting aliens” since April 22,
1920, $27.73. The foregoing statement of expenses, of course, does not include
salaries and transportation.
As stated under the subhead “ Investigation,” the sum of $192 in head tax
was collected and remitted by this office during the year. (Collected from
aliens whose entry had been legalized.)
As directed by the bureau, monthly statements have been compiled and submitted,
showing the expenses incurred by this office in deportation of aliens
where warrants were issued before and after July 1, 1919. This tabulation
shows grand totals as follows :
Ordered deported prior to July 1, 1919_______________$1, 903. 83
Ordered subsequent to July 1, 1919_________________ 2, 708.00
Cost of deporting 60 aliens by Minneapolis office_ 4, 611. 83
Pursuing this line of inquiry still further, the figures show that it cost an
average of $76.86 to deport each of the 60 aliens deported by this office. This
average, of course, includes all deportation expenses incurred by inspectors,
matrons, and attendants, including their railroad transportation and that of
Kit aliens deported.
I desire to renew the recommendation in my last annual report that the per
diem allowance for the Immigration Service be increased to at least $5. This
would be merelj a 25 per cent increase over the present per diem allowance
of $4. There is no question whatever that the cost of subsistence has increased
considerably over 25 per cent since the $4 per diem was originally authorized
for the service.
Considerable embarrassment has arisen during the past year owing to the
necessity of submission eif expense accounts under three appropriations. This
has been especially true €f split accounts, where part of expenses on the same
trip was chargeable to one appropriation and the balance to one or two others.
This procedure likewise complicated the preparation of monthly liability
reports. It is hoped thaf this will be simplified and standardized for the
coming year.
CHINESE INVESTIGATIONS.
As anticipated in my last annual report, during the year there was a marked
increase in Chinese work, especially applications for return certificates. However,
there were no cases of striking interest or deserving of comment at this
time. Summarized, the cases were classified and disposed of as follows:
666 REPORTS OF DEPARTMENT OF LABOR.
____________________\----------------------------------------------------------------
Applications.
Approved.
Denied. Pending. Died. Action
unknown.
Merchantsand merchants’ sons (departing)
Merchants’ sons (entering)..........................
6 6
2 1 1
Laborers (departing)..................................... 14 12 1 1
Natives and sons ofnatives (departing)...
Natives and sons of natives (entering).......
Students (entering)......................................
12
2
10 1 1
5 2 5
41 34 1 3 1 2
Investigations were also made from time to time relative to Chinese admitted
as of the exempt class. No arrests under the Chinese-exclusion law were made
in this district during the year.
It is sincerely hoped the bureau will renew its recommendation, • carried in
previous annual reports, for registration of all Chinese (laborers and exempts)
now in the United States. It is suggested the law be amended to provide
that thereafter registered laborers be permitted to leave upon depositing
their certificates and readmitted merely upon identification. This registration
of Chinese could easily be done in connection with the registration of all alien
residents if the alien registration bill is passed by Congress.
INVESTIGATIONS.
During the fiscal year just closed, this office investigated the claims of
American citizenship advanced by 32 persons whom the Dominion authorities
sought to deport to^the United States as citizens thereof. This was an increase
by 21 over the preceding year.
Miscellaneous investigations, including those on behalf of arriving aliens,
were made from time to time at request of the bureau and field officers, and,
in addition, a number of bonds for incoming or arrested aliens were investigated
and approved.
Twenty-four aliens who had entered the United States without inspection,
or for temporary stay only, were examined by this office during the year,
their entry legalized, and a total of $192 in head tax collected and remitted.
PERSONNEL.
It is, indeed, gratifying to know that Congress has again recognized the
necessity and justness of a salary bonus to the poorer paid Federal employees
by continuing the $240 per annum bonus for another year. Second only in
importance to that, it is believed, was the recent enactment by Congress of the
Sterling-Lehlbach bill “ for the retirement of employees in the classified civil
service.” This undoubtedly will prove of great mutual advantage to the Government
and its large number of faithful workers.
NUNC PRO TUNC EXAMINATIONS FOR NATURALIZATION PURPOSES.
A feature of district work which only comes to the attention of the bureau
through the submission of these annual reports is the examination of various
aliens who entered the country without inspection by the Immigration Service,
who could not be deported because of expiration of time limit, and who, as
petitioners for naturalization, require a certificate of arrival. Two hundred
and sixty-six such aliens were examined in person or by affidavit during the
last 12 months. Certificates were granted in practically aM cases. One
hundred and sixty-seven such cases are pending at this writing, awaiting appearance
of alien or submission of affidavit.
A special affidavit form prepared by and printed for this station has materially
simplified the examination of these aliens. Favorable comment on this
special form has been received from a number of other offices.
This examination of aliens and preparation of certificates requires a large
part of one man’s time.
PERMIT WORK ON BEHALF OF THE STATE DEPARTMENT.
Officials at this station continued to act as permit agents for the State Department
during the past year. Owing to modification of the regulations govREPORT
OF COMMISSIONER GENERAL OF IMMIGRATION. 667
-erning permits and amended definition of “hostile aliens” there were only 1<3
applications filed, all of which, with a few exceptions, were granted. For
.some months past the work of this office has been restricted to alien enemies
desiring to visit Canada, and aliens of no nationality unable to obtain passports.
MATRONS AND ATTENDANTS IN DEPORTATION CASES.
Matrons and attendants are now allowed a nominal compensation of $1 only
for services. In years past, when attendants and matrons went through to
port of delivery, where they were allowed a 24-hour lay-over, with possibility
•of visiting friends and returning by another route, the nominal compensation
of $1 was generally acceptable. Numerous changes, however, have come about
since that procedure was inaugurated. The trips originating at this station
are shorter, rarely farther than to Chicago or Winnipeg, both over 400 miles
and less than 500, with no authorized lay-over; the compensation for a matron
or attendant is the same regardless of the number or condition of aliens under
their care; most of such assistants employed by this office are entitled only to
actual expenses and $1 compensation; and, as they are usually outsiders designated
by hospital or other authorities at our request, not seeking such assignments
on their own account, they are naturally unfamiliar with our travel
regulations, and in consequence there is a likelihood of disallowances in their
■expense accounts. At best, they barely break even, and in case of disallowance
of $1 or more they lose money and have, in fact, donated their services. I
earnestly recommend that the nominal compensation of attendants and matrons
be increased to $5. .
In closing this report it is again desired to acknowledge the advice and
support of the bureau and department, the hearty cooperation of my associates,
and the active aid of various Federal, State, and municipal officials, as well as
the representatives of relief and charitable organizations.
INSPECTOR IN CHARGE, DISTRICT NO. 13, COMPRISING MISSOURI,
IOWA EASTERN NEBRASKA, EASTERN KANSAS, AND EASTERN
OKLAHOMA, WITH HEADQUARTERS AT ST. LOUIS.
GENERAL COMMENT.
The natural increase in the volume of business in this office might have been
within the capacity of our small force of inspectors had not their time and
attention been almost wholly absorbed during the last six months by the abnormal
pressure occasioned by the so-called campaign against alien anarchists,
Communists, and other radicals, whose cases, under departmental instructions,
were given precedence over all other activities.
As to these special cases, it is pleasant to state that the record of this district
can not be impeached and that the general criticism of the service on the
part of politicians and a prejudiced press can not be applied to our branch of
the service. No arrests were made by the immigration officers in this district,
nor was jurisdiction exercised over aliens apprehended by representatives of
the Department of Justice until warrants of arrest were duly issued by the
Secretary of Labor. It is possible that the inspector in charge rendered himself
liable to criticism for too great leniency in accepting the personal -parole
of the aliens or their friends in a few cases where great hardship would have
resulted from detention in jail, but no such parole was violated. Every possible
effort was made to facilitate the release of arrested aliens under bond,
and the right of representation by counsel was invariably respected; moreover,
all warrant hearings were expedited as promptly as was possible with our
limited force.
MOVEMENTS OF ALIENS.
As has been anticipated, there is apparent a very general disposition on the
part of foreign-born residents in this section to send for their indigent and
dependent relatives in Europe and to aid and assist them in coming to America,
presumably for permanent residence. More than ever is there cause to believe
that the war-ravaged European nations will discourage emigration of their
able-bodied citizens, whose potency for rehabilitation and the “replenishment
668 REPORTS OF DEPARTMENT OF LABOR.
of the land ” is an invaluable asset, but, by the same token, it is a part of the
obvious program to speed the departure of the widow and orphan, the aged
and infirm—the human liability, so to speak. These conditions cause a marked
increase in the demands made upon us for investigation as to the destination
and prospects of aliens detained at the ports of entry and destined to friends
and relatives here. Proportionately, the volume of this especial line of work
is larger than it ever was in prewar times, when the arrivals at the ports’of
entry were vastly greater than now. There is also an increasing demand for
our advice and assistance in behalf of those aliens whose importation is sought
by friends and relatives here in advance of their preparations for leaving their
native lands. The demands upon our time and effort in this connection more
than equalize the previous demand for special work in the permit and passport
line, which now has greatly diminished.
It is strongly urged that such essential legislation or departmental action be
inaugurated as will result in placing in all foreign ports whence there is any
considerable emigration to America capable and experienced immigration offi
cers who can supervise the inspection and investigation of all aliens who are
not obviously fit to meet the requirements of our laws. The unfortunates of
other lands should not be permitted to embark for America, risking the cost
of transportation and the heartbreak of rejection, unless there can be a reasonable
assurance of a welcome.
N ATUR ALIZ ATIO N.
As heretofore, no inconsiderable amount of attention is required by socalled
nunc pro tunc inspections of aliens whose entry was unlawful, but
who now seek naturalization, and so far as possible these matters are given
prompt and courteous treatment. A great majority of the applicants for
such inspection are persons domiciled in rural districts and small communities,
usually, as it happens,- at great distances from this office or its branches at
Omaha and Kansas City. Under bureau instructions we are not authorized
to incur any expense for travel in behalf of these applicants. Invariably,
when we are notified of such a case, the applicant is advised to call upon
the nearest office, for inspection, if that be possible. Usually it is not, hence
whenever an inspector is on detail in any section of the district, applicants
of this character are notified of the various towns or cities where he may
be met at the least expense, and thus we are able to favor a large number
of these potential citizens.
ALIENS UNFIT FOR MILITARY SERVICE.
Once more it is respectfully urged that the attention of the bureau be
given, to a systematic search of the records of the draft boards which, during
America’s participation in the late war, exempted many thousands of alien
residents of America who were found unfit for military service because of
physical disabilities, as well as moral and mental delinquencies. Unquestionably,
great numbers of these aliens have been in the country less than five
years and their aforesaid disabilities, in large part, may have existed before
entry. Such aliens are proper subjects for deportation, and it is wholly
improper that they should be permitted to remain in the United States and
mingle with our citizenship. Especially is this true of those many thousands
who were found to be afflicted with loathsome and dangerous contagious diseases.
The three and five year limitations in these cases are one year nearer
expiration than when attention was called to this matter in the last annual
report. It would appear to be a perfectly feasible and simple matter to detail
a small force of men to search the military records and report to the officers
in charge of each district the names and addresses of the aliens rejected and
exempted, such as are above described.
CRIMINAL ALIENS.
Again it is a pleasure to refer to the beneficent effect of the enactment
providing for the deportation of aliens under conviction for crime and who
have been sentenced to imprisonment therefor, but proof is more than ever
convincing from an intimate knowledge of local conditions, which probably
reflect nation-wide aspects of the case, that the law should be so amended
as to permit deportation of any alien convicted of any offense involving moral
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 669
turpitude, whether sentence is a fine or imprisonment for any period of time.
A loophole is offered by the present limitation, and experience begets the
belief that it need not be especially difficult in many flagrant cases to obtain
from a friendly or lenient court a sentence of a mere fine or a brief period
of imp. '-mment instead of such punishment as would render the alien amenable
to importation on the one-year basis. In this connection the following
paragraph from the last annual report for this district is emphasized:
• r’ he bureau is, of course, aware that there are many crimes involving
;>..j'-al turpitude for which local statutes provide imprisonment or fine (or
both). I have personal knowledge of heinous offenses, such as rape, seduction,
etc., wherein the sentence involved merely a fine, but in which deportation
unquestionally should ensue.”
DEPORTATIONS.
The estimated number of cases of aliens suspected as being subject to deportation
proceedings that received consideration by our officers in the past
year was 3,000. Eight hundred and sixty-nine investigations were conducted,
of which a written record was made, and as a result of these investigations
325 departmental warrants were applied for by this office, 299 warrants of
arrest were issued on these applications, 271 of which were served; 29 are
pending before the department, and at the beginning of the year 203 cases
remained open from 1919.
The department canceled the warrants of arrest in 132 cases and directed
deportation in 146. Of the aliens involved, 137 have now been deported,
and this office holds warrants of deportation for 204 aliens, to be executed
when conditions permit.
Only two warrants for the arrest of Chinese persons under the immigration
law have been issued, cancellation being the outcome in both instances.
There have been no arrests of Japanese this year.
FINANCIAL AFFAIRS.
The allotment to this district from the immigration appropriation was
$10,000, and disbursements were $9,386.42.
FINES ASSESSED IN COURT CASES.
A fine of $300 was assessed by the court against a Chinese person for
attempted bribery (later discharged) ; and $1,000 was collected from the
sureties on a bond for an anarchist, who could not be located.
CHINESE ARRESTED BEFORE UNITED STATES COMMISSIONERS AND COURTS.
In the handling of Chinese matters before the courts our success has not
been at all satisfactory, although strenuous efforts have been made by our law
officer and the various United States attorneys. One order of deportation
was obtained and in three cases the Chinese were discharged by court decree.
In none of the latter cases were the elements such as to permit appeals |o
higher courts. There are no cases pending.
CIVIL SUITS.
No new civil suits have been undertaken during the past year. The two
cases held over from the previous year, United States v. De Vroye and United
States v. Tompras, still are pending with no change in their status, except
that in the De Vroye case the court granted the defendant’s motion for a new
trial. No date has, as yet, been set for the hearing.
WRITS OF HABEAS CORPUS.
Ten habeas corpus cases were pending from the previous fiscal year, and 2
new writs have been sued out. Ten cases still remain pending. The principal
in one of the previously pending cases escaped, the case then being
abandoned.
The Circuit Court of Appeals for the Eighth Circuit finally announced a
decision in the Ranges case after holding the matter in its bosom for over a
670 REPORTS OF DEPARTMENT OF LABOR.
year. As was anticipated this decision follows the first ruling of said court
on this same case, and it has heretofore been urgently recommended that the
matter be carried up to the Supreme Court if at all possible. It is understood
the United States attorney is likewise desirous of having the matter reviewed
by the court of last resort. It appears highly important that no stone be left
unturned in the matter of having a ruling on this matter by the Supreme Court,
as, if the Ranges opinion, as it now stands, is the law with reference to theconduct
of administrative proceedings in deportation matters, the service will
ever after be much harassed and its efforts seriously retarded, as in substance
it holds that an alien in administrative proceedings is entitled to the same
benefits as a defendant in a criminal case, and the officers are seriously
hampered in these summary proceedings in being strictly bound by the rules of
evidence as applied in criminal practice. Able assistance has been received from
time to time from the United States attorneys in the handling of habeas corpus
proceedings, and the law officer, who has been following these cases, has been,
able to render valuable assistance in the premises.
WHITE-SLAVE MATTERS.
No unusual features have developed in the handling of warrant cases in which
white slavery was a point in interest which would be of especial note at thistime.
CONTRACT LABOR.
There have been no important cases within our jurisdiction wherein thesingle
feature of contract-labor law violation was paramount, which called
for action against the importer, other than the numerous cases of Mexicans
imported under special privileges properly extended by departmental action.
As has always been the case since these special exceptions were made the
parties of Mexican laborers imported for various industries in this section of
the country prove to be an exceedingly expensive luxury to the responsible
contractors and they are difficult to handle under the contractual terms.
While the Government may hold the contractor to a strict accountability the
latter has no effective legal hold upon the imported alien and there is nothing
in the individual or collective contracts with the aliens which permits of
actual control over or detention of the alien when he chooses to leave the service
of the original employer, and it would appear from the reports reaching us
that a very large proportion of such imported aliens desert their employers
without compunction and very frequently without any real or alleged cause.
In several instances we have collected large sums from the importers covering
the expense incurred in the detention and deportation of their deserting laborers.
It is the writer’s belief that in addition to such charges there should alsobe
assessed against the importer the necessary expense incurred by our inspectors
and other employees for travel and otherwise in the course of their
investigation and apprehension of the aliens, as well as the subsequent warrant
proceedings. In the long run these expenses comprise a considerable sum,,
which should be recoverable.
V SMUGGLING.
No cases have developed in the thirteenth district during the past year inwhich
credible evidence has been obtained of smuggling operations.
The bureau, of course, is well aware of the fact that throughout this district
as well as the whole country Chinese restaurants and similar enterprises aregrowing
in number, size, and evident prosperity, and that the employees in
these concerns—cooks, waiters, etc.—are well-appearing young Chinese, many
of whom are believed to have obtained admission to the United States as
students, but who, when investigated, almost invariably refuse to show their
student certificates and set up the claim of nativity.
inv est iga tio ns .
The following investigations have been conducted: Cases of applicants for
entry, 102; aliens admitted on bond, 5; warrant cases, 304; naturalization
matters, 155; others (estimated), 2,500; preinvestigations of status, 33; warrant
cases (Chinese persons arrested under immigration act), 2; to determine
lawful residence of Chinese, 24; miscellaneous Chinese matters, 89.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 671
PASSPORT-PERMIT WORK.
No attempt is made to furnish statistical data as to the numbers of applications
and permits issued or any classification thereof for the reason that the
decisions and rulings of the Department of State were so numerous and so
frequently involved changes and alterations in our processes as to render quite
impossible the maintenance of a statistical record had such been required.
The said changes have added to our burden for the reason that we have been
obliged to explain same from time to time to the numerous applicants for
permits, as well as to the steamship agents and others who handled largenumbers
of aliens seeking permission to return to their native lands. We
have found it rather difficult from time to time to properly construe and interpret
the rules, and this has caused a feeling of uncertainty to arise as to
whether we were proceeding correctly in all matters.
Considerable difficulty has been experienced in this branch of the work by
reason of the geographical changes which have recently taken place in Europe,,
it being very hard to determine in some cases of what country an applicant
was a citizen or subject.
The congestion of steamship transportation has been very annoying, as aliens
who were given permits to leave within a 60-day period were unable to procure
accommodations in that limited time, and this office would then be called upon
for suggestions and advice as to how they might eventually get started on their
way to their foreign homes.
ANARCHISTS.
During the first half of the fiscal year 1920 this office dealt with an occasional
anarchist case in the routine business, and these call for no specific comment.
During the latter half of the year, however, a very large portion of the time
and effort of the whole force was devoted to warrant proceedings in so-called
anarchist cases which were primarily investigated by the representatives of
the Department of Justice and reported to this office for action in accordance
with the instructions of the Department of Labor, which were coincidental with
the orders of the United States Attorney General to his special agents. These
special agents in our district were located at St. Louis, Kansas City, and
Omaha, and the reports, transcripts of testimony, and other advices received
from them were in the main carefully prepared, and furnished apparently all
of the primary evidence required or desired by the bureau as a basis for warrant
proceedings.
No arrests were made by our officers, but after the aliens implicated in the
reports were apprehended by the agents of the Department of Justice, immediate
action was taken by our inspectors and hearings conducted under the warrantsalready
in hand.
On the night of the original raid, January 2, nearly all this force worked all
night, conducting the essential hearings as rapidly as possible, as the officers
already had in hand a considerable number of warrants of arrest. As fast as
other aliens were apprehended by the Department of Justice agents, and the
initial information furnished, urgent speed was used in applying for warrants
for such aliens, and statements already made are reiterated that in every case
when custody and jurisdiction were assumed by this office the warrants of
arrest were in hand for service, and such service was had with the least possible
delay.
The larger number of these aliens were represented by attorneys employed
by the National Communist Party, and the argument for the defense was that
membership in said party did not constitute a violation of the laws relating to
alien anarchists; this notwithstanding the decision of the Secretary of Labor
in the case of Englebert Preis, which was relied upon by this office as the basis
for its recommendation of deportation in a large proportion of the cases reported.
In the hearings of many of these cases the inspectors had before them
the record books of the local branches of the Communist Party containing the
names of the aliens involved, and in some cases there was available the testimony
of the secretaries of the organizations. The attitude of many of these
aliens was brazen, if not distinctly blatant, and they showed little hesitation in
admitting all that the Government charged, but, of course, in a majority of
cases the aliens and their attorneys sought to prove that the record membership
in these organizations was either without the knowledge and consent of theindividual
alien or that he was remarkably ignorant of the meaning and intent
672 REPORTS OF DEPARTAIENT OF LABOR.
of the statement of principles and the regulations of the organization to which
he had subscribed.
But one order of deportation has been received. This is the case of a Russian,
whose removal is not now feasible.
For the general welfare of the community, for the ultimate vindication of the
true spirit of America as interpreted by patriotic workers, and in order to
reestablish in the public mind respect for the legal and administrative processes
of the Government it is hoped that action against many of the radical aliens
recently discharged may be undertaken under the act of June 5, 1920, this comment
being based upon the natural assumption that in the opinion of the Department
of Labor that act fully meets all present requirements and cures the
weakness and defects of the original act.
PERSONNEL.
Conditions as to personnel in this district have gradually improved and the
few permanent changes made within the past year have not tended to reduce
the effectiveness of the force. The few inspectors have been capable and
efficient; the clerical force, although greatly overworked, has been competent
and loyal; the law officer is an invaluable asset in the handling of the legal
aspects of diverse activities and as an encyclopedia of essential facts and information
; and, as a final note, there is no hesitation in expressing the firm belief
that no other district of such geographical extent and peculiar conditions
can be found wherein so large a volume of official work is conducted with a
force so small numerically as in the thirteenth district.
1
INSPECTOR IN CHARGE, DISTRICT NO. 15, COMPRISING MONTANA
AND IDAHO, WITH HEADQUARTERS AT HELENA.
It is urgently recommended that a sufficient increase of the force be allowed
so as to properly attend to the business of the district, both inspectors for
field work and clerical and stenographic help.
The writer trusts that a suggestion as to the present rules and regulations
governing applications for departure of Chinese will not be considered out of
place or presumptive.
From observations in this district it is believed that to require Chinese
living long distances from immigration stations to present themselves, with
all their proof to an immigrant inspector for examination as a prerequisite to
a temporary trip abroad, tends to encourage fraud on the part of the applicant
and opens the way to easy graft to Chinese merchants located at or near the
large ports. The bureau is no doubt award that even before we were prohibited
from making preinvestigations at distant interior points, Chinese located at
such places not infrequently proceeded to a port and arranged with some
mercantile firm, no doubt for a substantial consideration to the latter, to make
application and visit China as a member of such firm. The present regulations
instead of discouraging rather encourage this practice in my opinion, and it
is believed a return to the old system the most satisfactory.
DEPORTATIONS—EXPULSIONS.
This office during the fiscal year had before it 285 cases of aliens suspected
of being unlawfully in the United States, in 98 of ■which investigations were
conducted, resulting in application for 26 warrants of arrest. In addition,
there were 29 cases of this character pending from the previous fiscal year.
The deportation of 19 aliens has been accomplished, 12 on the ground of
surreptitious entry, 6 as immoral persons, and 1 as a public charge; 2 aliens
were discharged by the department, and 1 by the courts on habeas corpus;
and 28 cases are pending. One of the above cases relates to a Chinese person
and 2 to Japanese.
FINANCIAL AFFAIRS.
The allotment to this district for the year was $3,000, of which $2,729,61
has been expended. It is recommended that the allotment for the coming
year be increased to $3,200.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 673
WHITE-ST,AVE MATTERS.
Under this head, as reported a year ago, there are no restricted districts
now in this jurisdiction, either in Montana or Idaho, and any prostitution
carried on is done in cheap rooming houses and in a manner which makes it
extremely difficult to obtain sufficient evidence to justify a warrant. There
are few aliens left here in this business that come within the knowledge of
this office, and these are mostly known to have been long in this country.
CONTRACT LABOR.
Under this head there was one deportation of a Mexican at the expense of
the American Sugar Co., which imported him for sugar-beet work in Idaho.
CHINESE PREINVESTIGATION MATTERS.
Return certificates were granted to 7 Chinese, including 2 native citizens,
3 merchants, and 2 laborers. Applications df 2 alleged merchants were
denied.
INVESTIGATIONS.
In addition to the 98 investigations in warrant cases heretofore referred to,
4 such investigations were conducted at the request of other districts, 285
applicants for naturalization were examined for issuance of Form 526-A,
28 investigations in miscellaneous matters were made for other districts, and
13 were required in connection with applications of Chinese for return certificates.
INSPECTOR IN CHARGE, DISTRICT NO. 14, COMPRISING COLORADO,
WYOMING, UTAH, WESTERN NEBRASKA, WESTERN KANSAS, AND
WESTERN OKLAHOMA, WITH HEADQUARTERS AT DENVER.
WARRANT CASES.
There were 117 warrants pending at the close of the fiscal year 1919.
During the fiscal year 1920, 107 warrants were received, making a total of 224,
of. which the following disposition was made: Deportation effected, 51 (covering
53 ^aliens) ; canceled, 29; repatriation to Germany effected, 5; transferred
to other offices, 5; discharged on writ of habeas corpus, 2; pending
June 30, 1920, 132. Of the 132 warrants pending at the close of the fiscal
year 1920, 4 have been forwarded to the bureau for cancellation; 26 cover
persons who have been ordered deported and who are awaiting an opportunity
to be deported, most of these being in prisons rendering deportation impossible
until their terms expire; 2 warrant cases are awaiting hearing; 76
warrants cover persons not found (69 of these cover Mexican agricultural and
railroad laborers admitted under departmental exceptions who deserted their
work, and whose cases are pending from the fiscal years 1918 and 1919) ; 1
warrant covers an alien who jumped his bond, this bond being subsequently
paid; 4 warrants cover persons who have fled their parole; 13 warrants cover
cases in which hearing is now in the hands of the bureau undecided; and
6 warrants cover aliens on parole, 2 of whom are ordered deported, 1 of these 2
being released under rule 17-A.
ANARCHIST MATTERS.
There were 36 cases in which investigations of alleged anarchists, syndicalists,
members of the Communist Labor Party, I. W. W., and kindred organizations
were made, as follows: In 23 instances warrants of arrest were
issued, in 8 applications for warrants were denied, in 4 applications for warrants
were not made, and in 1 evidence was secured against an alien arrested
in another district.
The following disposition was made of the 23 warrants of arrest: Deported,
2; not found, 1; not found (sent to bureau for cancellation), 1; awaiting
hearing on account of State authorities wishing to prosecute first, 1; paroled,
1; not found (returned to district from which warrant received), 1 •’
canceled, 16.
15283—lab 1920---- 43
674 REPORTS OF DEPARTMENT OF LABOR.
/
Of the 23 warrants 13 were for members of the Communist Labor Party,
the following disposition being made of them: Pending hearing, 1; not
found (warrant sent to bureau for cancellation), 1; canceled, 11.
The 13 Communist Labor Party cases were lengthy cases, desperately contested
by attorneys, and took much of the time of the employees of the district
for three months, and while the Department of Justice Office cooperated until
after the arrests were made, the cases from that time on were handled almost
entirely by the force of the district.
ALIENS RELEASED UNDER RULE 17-A.
There is but one alien in this district who has been released under rule
17-A. He has been released under this rule since August 5, 1918, has worked
steadily, made his deposits in the bank regularly, and complied with the
rule in every respect. The working of the rule in his case has been very
satisfactory.
RESIDENCE LEGALIZED.
There were 19 cases in which the residence of persons who were found to
have entered the United States in an irregular manner was legalized, these
persons being examined and head tax collected where not previously paid.
BOND MATTERS.
There were four aliens who were in the United States under bond on account
of tuberculosis who requested examination through the headquarters of this
district by the United States Public Health Service in order to determine if
a cure had been effected in their cases, so that their bonds might be canceled.
These examinations were made. There was one alien admitted under bond on
account of hookworm who was also examined by the United States Public
Health Service in this district to determine whether a cure had been effected,
so that bond might be canceled.
Bond was secured in this district for three aliens at request of ports of entry
and aliens admitted to the United States on same.
FINANCIAL AFFAIRS.
The amount allotted by the bureau for this district for the fiscal year 1920
originally was $1,600. Upon exhaustion of this amount an additional sum of
$800 was allotted on May 20, 1920, making a total allotted of $2,400. The
disbursements were $2,488.61, there being a deficit of $88.61.
This district collected from a sugar-beet company the sum of $198.50 to
reimburse the district for the expense incurred in the arrest, detention, and
deportation of three Mexican aliens who had been imported under departmental
exceptions and who had deserted their employment with the sugar-beet company.
Check for this amount was forwarded by this district to the disbursing
clerk' of the Department of Labor.
CHINESE CASES BEFORE UNITED STATES COURTS OR COMMISSIONERS.
There were no Chinese cases before United States courts or commissioners
in the district during the fiscal year 1920.
WRITS OF HABEAS CORPUS.
There were three writs of habeas corpus applied for in this district. In two
cases the writs were granted and the prisoners discharged from custody. A
new warrant was then secured for one of these aliens and he was rearrested,
and after a hearing was ordered deported. He again applied for a writ of
habeas corpus, which was denied. The court was then asked for an order restraining
this district from deporting him, which was denied. The alien ap-’
pealed to the Circuit Court of Appeals at St. Louis, Mo., which, we are informed,
also denied his appeal. Deportation will be effected.
CONTRACT LABOR.
There was one alien arrested under the contract-labor provision of the law,
who was given a hearing and ordered deported. The alien voluntarily deREPORT
OF COMMISSIONER GENERAL OF IMMIGRATION. 675
parted at no expense to this district. There were two investigations made for
other offices. There is one investigation for another office pending. One investigation
was made on information developed within the district. There
were three formal applications to import skilled labor in this district, two. of
which were granted and one denied. There has been correspondence regarding
an application to import skilled labor now pending, but no application has yet
been filed.
There have been imported into this district hundreds of alien Mexicans for
agricultural purposes by the sugar-beet companies during the present year under
departmental exceptions. Prior to this year some of the railroad companies imported
laborers for track work. Figures of all importations into this district
have never been received. Very few of those imported in past years have
been returned to Mexico. How many of those imported this year will be returned
at the close of the beet season is problematical. Much complaint has
been made by the authorities of the cities and towns in Colorado and Wyoming
regarding these Mexicans, they claiming that most of the petty thieving is done
by these aliens. There are many now confined in prisons and jails in this district.
Of those arrested on department warrants, few are found who will
admit they entered the United States under departmental exceptions and by
changing their names they render identification almost impossible. This prevents
their being deported at the expense of their importers and throws the
expense upon the Immigration Service. While they seem to be necessary, in
the opinion of the officers of this district, they are a menace.
CHINESE PREINVESTIGATION MATTERS.
There were 15 Chinese laborers who applied for return certificates, 14 of
which have been granted, 1 being still pending; 1 merchant applied for return certificate
and same was granted; 3 alleged natives applied for return certificates;
1 certificate was granted and 2 other cases are pending; 2 sons of natives were
investigated for other offices; investigations were made in 10 Chinese student
cases; 1 certificate of residence was sent to the bureau for cancellation; 1
duplicate certificate of residence was issued; 3 investigations were made for
other offices, and 2 investigations were made for this district in which no
further action was taken.
INVESTIGATIONS.
There were 26 major investigations made in this district for other offices
which required considerable labor.
There were 85 examinations made where certificates of arrival for naturali-zation
purposes were issued.
Two hundred and seventy-two investigations were made in cases of arriving
immigrants.
Numerous minor investigations were made where the investigations showed
no action could be taken and of which no record was kept in many cases.
* PASSPORT-PERMIT WORK.
There were 88 applications for permits to depart from the United States filed
in this district, besides many times this number of oral and written queries
regarding passport-permit regulations, which were all properly cared for.
PERSONNEL.
The official force of this district consists of three employees—the inspector
in charge, and one junior clerk and stenographer located at Denver, Colo.,
the headquarters, and one inspector located at the substation at Salt Lake
City, Utah. This has been the entire force for the fiscal year, and is a reduction
of one inspector from the force of previous years. The efficiency of the
personnel is best shown by a comparison of the work done in the fiscal year
1920 with that of previous years, which comparison will show that there has
been as much business successfully handled in the fiscal year 1920 as was handled
in the combined fiscal years 1918 and 1919. and, as before shown, same has
been handled with a reduced force and there has not been a corresponding increase
in the expenses of the district. It is also believed that the work has been
conducted in a conscientious and efficient manner.
676 REPORTS OF DEPARTMENT OF LABOR.
INSPECTOR IN CHARGE DISTRICT NO. 20, COMPRISING ALASKA.
WITH HEADQUARTERS AT KETCHIKAN.
APPLICATIONS.
As shown by the records, 2,362 aliens applied for entry into Alaska, all but
10 of whom were admitted. The admitted aliens are classified as follows:
Immigrant aliens, 140; nonimmigrant aliens, 17; alien transits, 1,473, and
alien tourists, 722.
A total of 5,503 United States citizens were admitted at ports of Alaska
during the year; 375 were returning to resume domicile in this country after
a residence in Canada, and 5,128 were classed as transits and tourists traveling
on foreign steamers. An increase in this class of travel is noted.
A marked decrease occurred in the total number of statistical aliens applying
for admission.
At Nome, Alaska, a Chinese member of the crew of a shipwrecked vessel
arrived from Siberia just before the close of navigation in 1919. and it was
necessary to permit his landing under a bond providing for his departure in
the following spring. No other Chinese business was transacted, except the
usual checking of Chinese members of the crews of vessels.
But 5_of the Japanese race were admitted for permanent residence. All
came from Canada and all held Canadian certificates of naturalization. Two
Japanese were debarred because of the passport provisions.
Fifteen Japanese were granted transit privilege through the United States
to foreign contiguous territory. One Korean was also admitted for this
purpose.
DEPOUTATIONS ( EXPULSIONS ) .
Forty-seven aliens were reported to this service as possible cases for deportation,
and all were investigated, with the result that applications were submitted
and warrants of arrest isssued for 16 persons. Three warrants were
unserved at the beginning of the last fiscal year, making a total of 19 warrants
to execute. Fifteen were served; 2 were transferred to another district; 1
was canceled on alien’s voluntary return to Canada, and 2 remain on hand at
the end of the year. Eight cases in which hearings have been granted are
pending before the department at the close of the year.
Two unexecuted deportation warrants were on hand at the beginning of
the year. New deportation warrants were received for 4 aliens. Five warrants
were executed An order of deportation was issued for a Mexican while on a
six' months’ probation, but shortly before the arrival of the warrant he disappeared
and has not been located.
Causes of deportation are as follows: Japanese without proper passport, 1;
likely to become a public charge, 3; contract laborer, 1.
It has been the experience of this office that the purpose of the law is defeated
to a mere or less extent by permitting certain classes of aliens, particularly
Mexicans, to be at large on parole with a view to canceling warrants if
their conduct justified such action. Two of such aliens who had been the
subject of warrant proceedings disappeared before the six months’ period
haTd heex pdierpedo.rtation of a number of Mexicans last year has had a decidedly salutary
effect on conditions in this locality. Members of our Mexican colony were
continually violating the laws, committing petty thefts, trafficking iit intoxicants
with the Indians, etc., ami this office is satisfied that the knowledge that
deportation would result has deterred many from engaging in criminal pursuits.
Alaska does not maintain a penitentiary or a hospital for the insane; hence,
no deportations from this district are made from such institutions. The Territory’s
insane are removed to a contract hospital at Morningside, near Portland
Oreg., and the cases of aliens eligible for deportation are handled by the
Portland office. Persons sentenced to imprisonment for terms of more than
one year are taken to the Federal penitentiary at McNeil Island, Wash., and
so far as is possible information concerning possible deportation cases is gathered
in this district and transmitted to the commissioner at Seattle for further
action.
SEAMEN.
Fifteen alien seamen were admitted to the country through ports of this
district for permanent residence. There were no desertions reported.
REPORT O± COMMISSIONER GENERAL OF IMMIGRATION. 677
As stated in previous reports,‘the general regulations governing the handling
of seamen can not be applied in their entirety to the conditions prevailing in
this district. There are many hundreds of alien fishermen employed on small
gasoline propelled boats, engaged in the halibut and salmon fishing industry.
The catches are made off the shores of Alaska, and in many instances are
transported to Prince Rupert, British Columbia. During the last fiscal year
761 vessels, practically all engaged in the fishing industry, entered at the
customhouse here. One hundred and fifty-four of these were of foreign registry.
Changes in the crews are frequently made while the vessels are on the
Canadian side, and of course the necessary inspection is given such new crew
members upon arrival here.
After clearing the customs here they proceed to the fishing banks and on
the clearance given them, they may enter at some other Alaskan village where
there may be no immigration officer, or they may proceed to Seattle, or even
to Canada without returning here. For that reason it is impossible to check
the crews immediately prior to departure foreign as is the practice in a large
port. However, every precaution is taken to prevent the landing of alien seamen
without inspection by an immigation officer and to properly register and
collect the head tax in cases of those coming to this side to work out of here
on American boats. To this end, captains of all these small boats have been
carefully instructed as to the provisions of the seamen’s sections of the immigration
law and good results have been obtained. However, occasionally some
captain takes a chance, hoping his infraction of the regulations will not be
discovered.
It is believed that every alien seaman employed in the coastwise trade and
every fisherman should be required to carry some sort of an identification card
upon which is indicated that an investigation has established the right of such
alien to be in the United States.
STOWAWAYS.
No stowaways were found on vessels entering at Alaskan ports during the
past year from foreign countries.
FINANCIAL AFFAIRS.
Head tax amounting to $920 was collected during the year. This is considerably
less than half the amount turned in last year.
Seventy dollars in fines was assessed on account of the failure of the masters
of three different vessels to furnish reports of the arrival and illegal landing
of alien seamen; $10 was assessed for failure to furnish a passenger manifest.
At the port of Nome, $200 was certified against the master of a vessel for bringing
an illiterate alien from Siberia to that port; this fine was later remitted.
One thousand two hundred dollars was allotted to this district, and $1,248.06
was expended.
WHITE-SLAVE MATTERS.
No cases warranting prosecution arose during the year. Warrants of arrest
were received about the middle of June last for 4 prostitutes and 6 orientals
who were found employed as cooks in houses of prostitution in Ketchikan.
These cases are all pending at the close of the year.
CONTRACT LABORERS.
Two aliens were debarred by boards of special inquiry as contract laborers.
Arrest warrants were issued for 2 contract laborers, 1 of whom was permitted
to return to Canada and the warrant was canceled. The other alien
had been imported by a railroad company under particularly aggravating circumstances,
leaving no doubt that it was a flagrant and willful violation of
the contract-labor provisions of the law. Upon request the department recommended
to the Attorney General that the company be proceeded against with
a view to recovering the statutory penalty.
INVESTIGATIONS.
Investigations were made in behalf of 7 aliens prior to arrival, affidavits of
support having been submitted by relatives. The claims of 2 alleged United
678 REPORTS OF DEPARTMENT OF LABOR.
States citizens whose return to this country was sought by the Dominion
officials were investigated. Twenty-two aliens were referred to this office by
the commissioner of naturalization for nunc pro tunc examination. Certificates
of arrival were issued in these cases, also for 7 aliens whose entry was of
record in this office.
an arch ist s and membe rs of radi cal cla sses .
A large proportion of Alaska’s population is foreign boin, the Scandinavian
race predominating, but the Territory has been remarkably free from the
activities of radicals and anarchists. There are a few disgruntled individuals
in our midst, to be sure, but they can not be classed as extremists or radicals.
Several cases of aliens alleged to be radicals were reported to us for investigation,
but nothing upon which to base deportation proceedings could be found.
* PASSPORT-PERMIT WORK.
No applications for permits were received during the year past.
In this connection it may be stated that the requirement that permits be
secured has practically stopped travel between Nome, Alaska, and Siberian
ports. On account of the short season and the great distance between Nome
ond Washington permits to depart can not generally be received until navigation
is abouDto close. This matter has been taken up with the bureau and it
is honed that some solution will be found to overcome the present difficulties
at that oort Legitimate travel of miners, fur traders, merchants, and others
is so seriously interfered with as to cause considerable adverse criticism.
PER DIEM ALLOWANCE.
It is the wish of this office to renew the recommendation made in last year’s
report that the per diem rate in lieu of subsistence be increased from $4 to at
least $6 Even before the wave of high prices came over the country, $4 was
never sufficient to cover the actual necessary traveling expenses in this district
Under present conditions an officer is penalized to the extent of from
$2 to $4 a day when detailed away from his station.
GENERAL.
Because of the fact that travel conditions on the Atlantic have not as yet
reached normal, Alaska continues to draw thousands of tourists during the
summer season. The Canadian Pacific operates a line of fine steamers to
Alaska on a weekly schedule and their vessels are loaded to capacity.
At the end of the year notification was received that the salaries of the
officers in this district had been increased, to take effect July 1. The recipients
are duly appreciative for this advancement.
Throughout the year our relations with all other branches of the Government
service have been most cordial and pleasant.
rvvwATT^STONER OF IMMIGRATION, MONTREAL, CANADA, IN CHARGE C OF Sr ICT NO. 1 COMPRISING CANADIAN ATLANTIC SEAPORTS
?NDTHF CANADIAN BORDER EAST OF THE EASTERLY LINE OF
MONTANA, WITH HEADQUARTERS AT MONTREAL.
With the exception of the special restrictions still in force with respect to
applicants of the hostile alien class it may be said that the inspection of aliens
Eating from Canada to the United States is now being conducted under prewar
methods and with a minimum of annoyance to the general traveling
PUTt1ffi considered notable that with the withdrawal of the many irritating inspection
rules necessarily enforced during the period of the war the movement
of aliens from Canada to the United States for permanent residence purposes
almost immediately exceeded prewar proportions.
For the year ended June 30. 1914, 95,364 aliens were admitted to the United
States from Canada. ffivided bo?dm-arran geDmuernitn, gw thhiec hy epalar nj uwsta sc lnooset di,n t heoffuegcht ionp e19ra1t4i,n gth ue nnduemt btheer
admitted from Canada via district No. 1 was 96,996.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 679
The prewar volume of immigration to the United States via Canadian Atlantic
seaports, however, has by no means been fully restored. The bureau is
quite familiar with the many conditions which have operated to retard immigration
of the last-mentioned class. Steamship war losses suffered by the
Canadian lines were conspicuously heavy, and while this service is gradually
being restored and all westbound ships are booked to capacity, passengers of
the immigrant class have thus far been very largely for settlement in Canada
rather than applicants for admission to the United States.
APPLICATIONS.
As aliens are examined in this district for admission to the United States
both at Canadian seaports and at land border ports, and are classified into
five general groups according to length of residence in Canada, statistics are
presented for each group separately as well as for the entire number examined.
It will be noted that the first four groups consist of aliens from countries other
than Canada. . *
Class A.—Aliens manifested on board steamships and examined at Atlantic
seaports of arrival in Canada under the immigration laws of the United States:
Of this class the total of arrivals during the past year was 8,193, of whom
8,158 have been admitted and 26 debarred. Percentage of debarred, 0.32.
Class B.—Aliens coming originally to Canada and who sought entry, to the
United States within one year from date of arrival in Canada: Of this class
5,776 aliens were examined at border ports of entry, and 267, or 4.62 per cent,
debarred. ~ „
Class C.—Aliens who entered Canada via the United States, and aliens from
the United States, who sought reentry thereto within one year: Examined,
1,595; 99, or 6.21 per cent, debarred.
Class D.—Aliens who applied for admission to the United States after a
residence of more than one year in Canada: Examined, 17,694; 699, or 3.94
per cent, debarred.
Class E.—Citizens of Canada entering the United States for permanent residence
: Examined, 76,588, of whom 3,592, or 4.69 per cent, were debarred.
In addition to the number of debarred aliens above shown there were 5,287
aliens of classes B to E, inclusive, who applied for admission for temporary
purposes only, and who were excluded. The above may be summarized as
foDllouwrisn:g the year 105,154 aliens were admitted through thi. s disxt rictx, an increase
of approximately 61 per cent over the preceding year, and 9,970 (including
5,287 of the nonstatistical class) were debarred, a slight increase over the
number debarred during the fiscal year 1919. Arrivals via Canadian Atlantic
seaports for the year numbered 8,193, and 106,940 applicants of the bolder class
were recorded and .reported in immigration statistics. Of the number of
arrivals via Canadian Atlantic seaports, 26, or one-third of 1 per cent were
debarred, while 9,944, or 94 per cent, of those of the border class were excluded
by boards of special inquiry.
In addition to those referred to in the foregoing, 5,328 were refused examination
on account of failure to provide for payment of head tax; 1,903 referred
to boards of special inquiry from border ports, who failed to appear for examination
; and 539 referred to boards of special inquiry from railway stations
and wharves also failed to appear for examination, making a grand total of
122,907 applications considered during the year, as compared with 82,603
applications handled during the preceding year.
United States citizens to the number of 11,562, former residents of Canada,
returned to the United States during the year to resume permanent residftace
therein, and 36.512 aliens in transit, not included in statistical reports, were
admitted.
CHINESE IMMIGRATION.
During the year 2,226 Chinese aliens were included in immigration statistics
for this district, 2,225 having been admitted and 1 debarred. Of the Chinese
aliens admitted, 2,202 were in transit under bond to depart from the port of
New York; 10 proceeded to Boston under bond; one section 6 student was
admitted at Winnipeg, Manitoba, and 12 were admitted at Montreal; 1 Government
official; 3 students; 3 merchants; 3 travelers; 1 minor son of domiciled
merchant; and 1 miscellaneous.
680 REPORTS OF DEPARTMENT OF LABOR.
9
In addition to those included in the foregoing figures, 51 Chinese who arrived
at Vancouver, British Columbia, en route to eastern United States destinations,
were allowed to proceed under bond to the port of Boston and were there
subsequently admitted as United States citizens.
A noteworthy incident in connection with the inspection of Chinese admitted
to the United States via this district for transit purposes was in connection
with the return to China of 48.715 Chinese laborers who had been doing important
war work in France. These passengers were disembarked at Halifax,
at which port they entrained for Vancouver, British Columbia, travel being over
the Canadian Pacific Railway through the State of Maine. Trains running
in several sections were required to handle each shipload of these arriving
laborers. The entry of each Chinese to the United States at Vanceboro was
carefully accounted for by the bureau's officers, and departure was as carefully
registered by the officers on duty at Jackman, Me.
The transporting of these nearly 50,000 Chinese laborers extended over a
period of several months, during which our officers were frequently required
to do both night and day duty without the slightest extra compensation, and
it is very greatly to their credit to be able to report that the above unusually
large number of Chinese was handled without a single infraction of the
law, and in a manner to prevent anything like annoying delay to the many
trains, the running time of which was carefully and in numerous instances
closely scheduled to connect with outgoing steamships at Vancouver.
Experiences during the year just passed have added most convincing support
to the contention that the present Chinese rules, which render possible the entry
to the United States of Chinese of the exempt class only via certain ocean ports
of this country, are working grave injury and injustice to our commercial and
social interests which it would seem the business of our Government to prevent.
During the year an unusual number of Chinese of the exempt class—in many
instances persons of the highest social and business prominence—have found
it necessary to visit the leading cities of Canada before applying for admission
to the United States. When, after completing their stay in Canada these highly
respectable and desirable citizens of China sought entry to the United States,
bureau officers were, of course, put to the necessity of informing such passengers
that though conceding their desirability and supposed exemption from
regulations governing the entry of Chinese of the laboring class, entry could,
nevertheless, be accomplished only by applying at a seaport of the United
States, which would involve circuitous and time-consuming travel, or by securing
special dispensation from the department to provide for entry through a border
port, such procedure meaning vexations, delay, and inevitable humiliation and
embarrassment.
It should not be difficult to sense the narrowness and unwisdom of the policy
outlined above.
Other great nations of the world welcome Chinese citizehs of the class under
discussion with a cordiality befitting their social, professional, and business
status, and in our own commercial circles it is impossible to understand the
attitude of our Government when it undertakes to deny freedom of travel to
Chinese citizens of the exempt and very desirable class, when, in practically
every instance, these travelers seek entry to the United S'tates only as contributors
to the entente cordiale which we should do our best to establish and
maintain between the peoples of the two nations, and to conserve our own commercial
expansion, a project in which our Government should be deeply
interested.
There is not a nation in the world of any standing, other than China, which
would not, through diplomatic channels, resent the discourtesy which our Govvernment
is constantly manifesting toward citizens of China of the exempt
class, whose freedom of travel is so needlessly circumscribed by the Chinese
rules now in force. These rules should be modified in a manner to accord
passengers of the above class the consideration that is due them, and in this
simple act of justice toward a friendly and in every way desirable people, the
department will by no means be called upon to impair in any way the protection
rightly provided for in the Chinese-exclusion laws as applied to laborers
who are citizens of China.
It is urgently recommended that the rules pertaining to the inspection and
admission of Chinese be so amended as to permit members of the class commented
on kbove to enter the United States via border ports without subjecting
such passengers to the annoyance, humiliation, and delay which are
so regrettably unavoidable at the present time.
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 681
JAPANESE IMMIGRATION.
There were 32 Japanese aliens applying for admission, 31 of whom were
admitted and 1 debarred. Of the 31 Japanese admitted, 30 were in possession
of proper passports, while 1 without passport was found to be a nonlaborer.
DEPORTATIONS (EXPULSIONS—NOT INCLUDING CHINESE).
Proceedings were conducted under warrants of arrest in 4,021 cases. Warrants
to the number of 2,503 were applied for; 2,392 such warrants were issued
by the department; 1,859 were served and hearings conducted thereunder.
Proceedings were canceled as regards 1,121 aliens, and 738 were ordered deported.
Of this number 553 were deported to Canada, 341 being cases arising
in this district and 212 coming from other districts.
There were 166 aliens deported to transoceanic countries, 12 by way of
Canadian ports and 154 from United States ports, the number deported via the
Mexican border being 17.
Owing to the constant shortage of and unusual difficulty found in securing
anything like experienced and competent clerical help, it can safely be said
that warrant work has been conducted during the past year under conditions
never before met with, and our officers would seem entitled to special credit
for the amount of this work performed when conditions were so decidedly
discouraging.
DEPORTATIONS OF UNITED STATES CITIZENS FROM CANADA TO THE UNITED STATES.
During the year 424 citizens of the United States were ordered deported from
Canada to the former country. It was necessary to establish United States
citizenship through investigation in each of these cases before return to the
United States could be permitted, and it seems not out of place to suggest that
the verifying of the citizenship of deportees from Canada involves an amount of
labor that goes without recognition by persons not in intimate touch with such
work.
Of the cases reported by the Canadian authorities, 424 resulted in deportation,
90 cases were abandoned because of inability to establish United States
citizenship, and 110 are still pending.
Of those deported from Canada to the United States, 289 were citizens with
criminal records in Canada, 43 were insane, and 92 were found deportable from
Canada for other causes.
In addition to the foregoing, there were 64 aliens, formerly resident in the
United States, deported thereto from Canada under our so-called reciprocal
arrangement, said aliens having previously within one year been refused
admission to Canada.
CHINESE DEPORTATIONS (EXPULSIONS).
Investigations were conducted and proceedings instituted under departmental
warrants looking to the removal from the country under the immigration laws
of Chinese unlawfully here to the number of 23. Warrants of arrest were
issued and served in all but 1 case, action thereon being as follows: Canceled,
1; executed, 2; transferred to another district, 1; and pending at close of
fiscal year, 17.
In addition to the departmental warrant cases included in the foregoing,
three Chinese were arrested at Detroit on warrants issued by the United States
commissioner. One of them was deported to China and the other two cases
are pending, both Chinese having been released on bond.
There were no Japanese deportations.
CONGRESSIONAL RESOLUTION NO. 44.
The return of permanent dependents from Canada again invites attention to
congressional joint resolution No. 44 (65th Cong., 2d sess.), which authorizes
the return to the United States, without reference to immigration requirements,
of “ aliens lawfully resident in the United States when heretofore or
hereafter enlisted or conscripted for the military or naval service of the
United States, or of any one of the nations cobelligerent of the United States
in the present war,” etc. When returning ex-soldiers are found to be physi682
REPORTS OF DEPARTMENT OF LABOR.
cally and mentally sound, joint resolution No. 44 can be given effect without
difficulty. When dealing with ex-soldiers who because of their mental or
physical condition are to become objects of permanent care and maintenance,
however, the joint resolution mentioned fails of its purpose in many cases, for
the reason that such ex-soldiers when admitted can be taken only to State
institutions, and in most instances State authorities promptly refuse to receive
these unfortunates unless upon submission of positive proof that the patient is
a citizen of the State wherein care is desired. .
To illustrate: A citizen of the United States, born in the State of Maine, and
who later became a settler in Massachusetts, rendered overseas service with
the Canadian Army. This soldier was returned to Canada in a mental condition
which will render him a permanent public care. His widowed mother
pleads that he be permitted to return to the United States and that he be
placed in some institution where she may occasionally visit him. Both States,
Maine and Massachusetts, after the most persistent appeals that the above
ex-soldier be provided for, disclaim any responsibility in the case on the
grounds of loss of the right to State care by reason of absence. Prior to
enlisting in the Canadian Army the ex-soldier in question had spent his entire
life in the United States, Maine and Massachusetts being the States wherein
he had acquired citizenship. The net result of this unfortunate man’s espousal
of the allied cause is shown in the distressing sacrifice which he was called
noon to make, in the heart anguish of his aged mother, in his permanent banishnient
from his native country, and the utter impotency of congressional joint
resolution No. 44 to compel that simple justice be done to a native-born citizen
of Tthhee Uabnoivteed i sS tbayte sn.o means an isolated case, and from our experi.ence in connection
with the' application of the congressional resolution referred to it is
believed that the bureau’s service in this district will have these unfortunate
ex-soldiers’ cases to deal with until the resolution becomes inoperative.
SEAMEN.
During the fiscal year there were 3,861 seamen examined in this district
and 2 592 identification cards issued. There have been no instances in which
seamen have deserted their vessels and applied for admission as regular
applicants, nor were any seamen removed to hospitals for treatment because
of being afflicted with a loathsome contagious disease or otherwise.
The reports received from the various suboffices indicate that the seamen
regulations are operating as satisfactorily as can be hoped for under the
existing conditions, it being a matter of record that we do not have officers
stationed at all ports of call for vessels operating on the Great Lakes, although
most of these ports are covered by customs officers who are paid a nominal
compensation for their services in addition to their regular salary as customs
offAicse rspreviously reported, we have very few oriental seamen to deal with,
and the class of seamen on the Grqat Lakes is undoubtedly superior to that
operating from ports on the seacoast, it being quite a common occurrence to
find a vessel manned entirely by members of the same family, and in many
instances vessels have the same crews from year to year, all recruited from
the home town of the master or the immediate vicinity thereof. The tact
that none of the seamen examined were found to be afflicted with a loathsome
contagious disease or other disabling ailment is in itself an indication o
the class of men employed on these vessels, and the number of desertions is
negligible.
FINANCIAL AFFAIRS.
Head tax.—AX the beginning of the year there was held on special deposit
on account of alien visitors and transits the sum of $1,344. Head tax amounting
to $593,072 has been collected; $88,768 has been refunded on account of visitors
and transients leaving the United States; at the close of the fiscal year $85b
is held on special deposit, while $504,792 has been burned into the Treasury
as permanent collections.
Administrative fines.—The sum of $600 was collected as a result of assessment
of fines covered by this heading.
Allotment.—The allotment to this district from the immigration appropriation
was $35,000 and the disbursements were $47,817.13; the expenses incurred
REPORT OF COMMISSIONER GENERAL OF IMMIGRATION. 683
Enforcement of laws against alien anarchists ”
„”_1_____________“Expenses
were $85.03. Rental of office quarters amounted to
through the allotment for —---------- — -
totaled $18,567.43; while the expenditures under the allotment toi
of deporting aliens weie $oo .Ud . 1——~ — ----- .
^iTi^esthnated that’ an allotment of $40,000 wil be required for the ensuing
year.
X' 1 \ C L1V11 0U1L>3 cuiu X. a — ----------------------- X - - last year) in connection with violations of the immigration law were handled
Convictions were had" in 27 of the criminal cases and the de-
The writs in 6 instances
The remaining 9 cases
But 1 case was disposed of, the
FINES ASSESSED IN COURT CASES.
Fines totaling $3,29o were assessed in criminal prosecutions—$1,195 in penalties
for violations of the immigration laws and $2,100 for Chinese smuggling.
CHINESE ARRESTED BEFORE UNITED STATES COMMISSIONERS AND COURTS.
Five arrests of Chinese occurred during the year and 1 case remained
pending from last year. Three cases were disposed of, 1 alien having been
discharged and the remaining 2 deported. Three cases still remain pending.
CIVIL SUITS AND CRIMINAL PROSECUTIONS (OTHER THAN CHINESE).
Five civil suits, and 53 criminal prosecutions (including cases pending from
during the fiscal year in the seven judicial districts comprising this imnrigration
district. C---- .------- ----------- -
fendants sentenced to fines and terms of imprisonment. _ _ .
Fifteen writs of habeas corpus were sued out. T’
were denied, an appeal having been filed in 1 case,
are still pending. ,
Six habeas corpus cases involving Chinese persons were pending from 1919,
and 2 cases arose during the fiscal year 1920. alien having been discharged, and 7 cases are pending.
During the past several vears, it has been customary to comment upon the
attitude' of the various district attorneys with respect to the prosecution of
males who import alien women for an immoral purpose, many of the officials
in question being disinclined to take any action unless there are commercial
features involved. Without desiring to be placed in the position of criticizing
their views upon the subject, it is difficult to understand upon what grounds
it can be maintained that a commercial feature is necessary to bring the
offenders within the scope of section 4 of our act.
Viewed from an economic standpoint, that person who separates a woman
from her husband and children in a foreign country and brings her into the
United States and thrusts upon the public the illegitimate offspring of their
union is to mv mind guilty of a more grievous offense than the man who brings
in a woman of ill repute and shares in the earnings of her nefarious traffic.
Both of them are to be condemned and both of them should be punished to the
full extent of the law, but our efforts to bring about the latter result in most
cases where a commercial feature does not enter in have been unavailing.
Then too, we must view the subject from its remedial aspects. Surely our
law can have no deterrent effect upon persons of the class under discussion if
the only punishment which they have to fear is deportation in the event of
their being aliens, whereas if they are citizens of the United States they may
feel at liberty to import alien women into certain judicial districts without any
fear whatever of the consequences to themselves, provided they keep themselves
clear of the taint of commercialism.
It is a source of considerable gratification to report that in some few of the
judicial districts our efforts to enforce the law, both as regards prosecution of
offenders and otherwise, meet with unstinted support from the United States
attorneys’ offices and from the presiding judges. In one distiict in paiticular
it has become quite customary for aliens to present fraudulent birth certificates
or other documents, in manv instances the naturalization certificate of another,
in order to evade the law’s requirements. Naturally, it is most difficult for our
officers always to detect frauds of this nature, therefore it is only by resorting
to some measure to stamp out the practice that successful results can be
hoped for. In one district alone we have had over 20 cases in which indictments
have been obtained, and in every case which has come before the court
the presiding judge has visited a penalty upon the offenders which will not
only deter them from again attempting to violate the laws of our country,
but will no doubt have a like beneficial effect upon all persons similarly in684
REPORTS OF DEPARTMENT OF LABOR.
dined who become aware of the penalties which result from the law's infraction.
The presiding judge in the particular district to which reference is
made has gone so far in his efforts to cooperate with our service that he
has recognized our officers as officers of the court in connection with the prosecution
of cases of this nature.
That our officers occupy a position of more or less danger in their attempts
to enforce the law is illustrated by the assault made upon Inspector Alfred C.
Chatfield, of the Detroit office, who, while attempting to question parties who
were thought to be seeking unlawful entry, was struck over the head with a
quart whisky bottle, suffering a fracture at the base of the skull and lacerations
of the nose and wrist, necessitating his confinement in the hospital for an extended
period. Fortunately, his injuries did not prove serious, although he
will perhaps suffer from the effects of the assault in the way of impaired
hearing for the remainder of his days. The court, in sentencing the guilty
party to a ' term of 10 years in the Federal penitentiary, Fort Leavenworth,
Kans., lectured the defendant severely, and also remarked that he desired it
to be a lesson to him and others of his kind that Government officers, who,
for a meager salary, conscientiously try to uphold the laws of the country,
can not be assaulted with impunity. It is only with cooperation of the nature
outlined that we can hope to meet in this district with that degree of success
which most officers strive for, and which is so highly to be desired by those
of us who act in a supervisory capacity.
PROSECUTIONS FOR SMUGGLING CHINESE.
Eleven prosecutions for smuggling Chinese were instituted during the year,,
and 21 were carried over from last year. Convictions were had in 5 cases, leaving
27 still pending.
The only civil prosecutions under the Chinese-exclusion laws were those
involving the arrest of Chinese persons before United States commissionersand
courts, as shown elsewhere in this report.
WHITE-SLAVE MATTERS.
During the year 105 prostitutes or alien women entering the United States
for an immoral purpose and 81 persons who were importing such women for
an immoral purpose or for the purpose of prostitution were debarred by boards
of special inquiry. During the same period 65 prostitutes or immoral women
and 44 importers or procurers were deported under department warrants.
The following cases arising under section 4 of the present act (attempting to
import alien women for the purpose of prostitution or other immoral purpose)
were handled in this district:
Cases reported to United States attorneys_________________ 13
Cases carried through to successful conclusion______________ 7
Cases in which United States attorneys decided against
prosecution ______________________________________ 2
Cases in which indictment was nolle-prossed_______________ 1
Cases pending________________________________________ 3
The most revolting case we have had to deal with in this district for some
years past developed in Buffalo, wherein a youth of 20 brought into the United
States from Canada his 16-year-old wife and put her out on the street to
practice prostitution in order that she might support him. Accompanying thiscouple
was another Canadian girl, 17 years of age, who commenced practicing
prostitution at the same time in order to support her 20-year-old male companion.
These parties were apprehended shortly after their entry, the two
males being sentenced to serve from three to six years, while the females were
deported to Canada.
In another case handled by the Buffalo office an Italian was •arrested for
bringing in two prostitutes from Canada, for which he was sentenced to serve
from two to four years’ imprisonment.
REPORT OF THE CHIEF, CHILDREN’S BUREAU. 741
1. Standards of normal development.
(a) Certificates should be refused to children who do not come up to the
following minimum standards of height and weight for specified
age, which are based on the most reliable experience and presentday
practice.
Age.
Weight
(in clothing).*
1 2 3 4 5 6 7
Height.
14 years
15 years
16 years
Pounds.
80
85
90
Inches.
58
58
59
1 When children are weighed stripped not more than 5 pounds should be allowed for clothing.
Not e .—While the committee recognizes that girls of 16 are lighter in weight than boys of like age, it
presents but one standard. This is for the purpose of giving greater protection to girls who are to be
regarded as more vulnerable at this period.
In exceptional cases a child who falls below the prescribed minimum of
height or weight may, however, be granted a certificate if, after examination
by. two physicians, it is found that this condition is a family or
racial characteristic and that he is free from any other defects which
would justify the refusal of the certificate.
(b) Certificates should be refused to children who do not show unmistakable
signs of adolescence. * * *
2. Standards of health and physical fitness for specific employment.
(a) Certificates should be refused permanently to all children who have
the following defects:
(1) Cardiac disease, with broken compensation.
(2) Pulmonary tuberculosis or other evidence of serious pulmonary
disease.
(3) Active glandular tuberculosis.
(4) Active tuberculous or syphilitic disease of joint bones.
(5) Irremediable defective vision
(6) Total deafness.
(7) Trachoma.
(8) Serious orthopedic defects.
(9) Malnutrition, equivalent to grade 4 in the Dunfermline scale.
(10) Chorea.
(11) Syphilides.
(12) Hyperthyroidism.
All children who are permanently refused employment certificates because
of physical defects as noted under class (a) should be referred to some
appropriate person or agency for whatever medical or other assistance is
needed.
(b) Certificates should be refused to all children pending correction of
all serious remediable defects, such as—
(1) Defective vision subject to correction by glasses;
(2) Contagious eye and skin disease;
(3) Defective teeth: Extraction or treatment and prophylactic care
needed;
(4) Malnutrition equivalent to grade 3 of the Dunfermline scale;
(5) Untreated hernia;
(6) Diseased tonsils ;
(7) Defective nasal breathing requiring correction, causing complete
occlusion of the nostrils.
All children who are temporarily refused employment certificates because
of the existence of physical defects as outlined under class (b) should
be referred to the care of a public medical officer, school physician,
family physician, or school nurse, who will assume jurisdiction of the
case and make every effort to see that the necessary medical treatment
or other care is secured for the child. As soon as such treatment has
been received the employment certificate may be issued.
(c) All children who because of their physical condition or because of
their family or previous history show a tendency to weakness or
disease of any organ should be excluded from occupations which
would tend to aggravate that tendency.
742 REPORTS OF DEPARTMENT OF LABOR.
CHILD-WELFARE IN A COAL-MINING COMMUNITY.
This inquiry was undertaken in order to study the effect of life in
a mining community upon the welfare of children, and particularly
the extent and conditions of child labor in and about the mines. A
representative anthracite coal mining area in Pennsylvania was
chosen as the location of the inquiry. The mining of coal is the principal,
and practically the only important, industry of the community;
the few smaller industries and business enterprises of the district
are there either to supply the mining industry or the mine workers
>r to utilize the labor of the women and girls in the miners’ families.
The area has a relatively stable population; the majority of the families
included in the study had lived in the district 10 years or more,
and most of the fathers in these families who were working in the
mines had been engaged in mining for at least 10 years.
The community is largely urban, comprising one city, two smaller
towns, and the surrounding mining patches. In the city over 25,000
persons are crowded into an area of approximately 1| square miles.
These figures are the more amazing in the light of the fact that only
12 per cent of the houses are as high as three stories. More persons
per square mile are crowded into 2 stories here than in 4, 6, 10 or
more stories in New York City, where the congestion is notorious.
The natural results of such crowded living conditions are reflected
in a high infant mortality rate. In 1918, according to statistics of
the United States Bureau of the Census, the infant mortality rate in
the city was 165 deaths under 1 year of age per 1,000 births, as compared
with only 101 in the birth-registration area as a whole.
Lot congestion is found as well as room congestion, a study of
typical residence districts revealing the fact that from 65 per cent to
85 per cent of the lot space is covered by buildings. Not only is there
no yard space, but there are also no open spaces furnished by the city
for out-of-door recreation.
While the complete report of the investigation is not yet ready for
publication, certain figures of striking significance are available.
Over half the children in the community between the ages of 13
and 16 years, inclusive, had worked; this includes two-thirds of the
boys and one-third of the girls of these ages. Of the children who
were working regularly one-third of the boys and over one-fourth of
the girls started to work before they were 14. “ Family need” was
the reason most frequently given for leaving school and going to
work, and the proportion of children who had left school for work
was greater as the father’s income was less. The number of wage
earners in a family, including the number of child wage earners, decreased
as the father’s earnings increased.
Over one-half of all the fathers, or heads of households, earned
less than $1,250 a year. While the average best day’s pay as reported
was between $4 §md $5, nearly three-fourths of the fathers
who reported had had periods of unemployment during the year.
The number of cases of unemployment due to industrial causes was
found to have been greater than those due to all other causes combined.
Accidents were an important factor in unemployment, almost
one-fifth of all the fathers working in the mines having met with
accidents at their work within the three and one-half years preceding
the inquiry.
REPORT OF THE CHIEF, CHILDREN’S BUREAU. 743
In addition to these findings the completed report will contain an
analysis of other conditions m the community affecting the health,
education, and recreation of children.
A similar study of conditions affecting child welfare in a bituminous
coal district is at present under way.
CHILDREN ENGAGED IN INDUSTRIAL HOME WORK.
Children’s participation in factory work in the home has for some
time attracted the attention both of persons interested in problems of
children in industry and of that section of the public which cares to
make sure that' its purchases have been, produced in accordance with
modern sanitary and industrial standards. In order to discover the
extent and character of children’s home work, the conditions under
which the work is done, and its effect on family life, an investigation
was made of the employment of children in industrial home work in
three Rhode Island cities. This State is a center for the manufacture
of cheap jewelry—an industry which lends itself readily to home
work.
It was found that a surprising number of children between 5 and 15
years of age—in all, nearly 5,000, or 8 per cent, of the children of
this age group—had at some time during the year 1918 done factory
work in their home, either by hand or by machine. Nearly 100 different
kinds of work were done by the children who were employed by
many different factories. They carded snaps and shoe buttons;
assembled various kinds of jewelry; strung beads; clipped, strung,
and scalloped lace; pasted or stitched chenille dots on veils; finished
underwear; and performed many other simple operations incidental
to manufacture. Children—a number of them under 14—used machines
in such work as cutting holes and pressing humps on snaps,
and assembling collar buttons.
In the majority of cases home work had been restored to in families
where the father’s earnings were insufficient for the maintenance of
the family. It had, however, contributed very little to the family
purse, since the average earnings per family from that source in 1918
had been only $48. Moreover, the children’s share in this small addition
to the family resources was negligible, since over half the
children were unable to earn as a maximum 5 cents per hour.
Many of the children worked not only after school hours but also
in the evenings; some worked exclusively at night. A small number
of children who were regularly employed during the day in factories
or stores also worked at home every night. Eyestrain was reported
for many home-working children. The ill effects of home work on
the child’s work in school and its interference with school attendance
were frequently testified to by teachers and other school officials.
Danger to the health of the community has been recognized as an
important reason for prohibiting home work. Among the diseases
reported by families engaged in it were influenza (a large number of
cases), pneumonia, mumps, typhoid fever, measles, whooping cough,
bronchitis, tonsilitis, diphtheria, eczema, “ coughs,” tuberulosis, and
syphilis, all of which had been declared communicable and dangerous
to public health by the Rhode Island State Board of Health.
Employers were interviewed in order to get their opinion as to the
necessity for home work. Their reasons for utilizing it were in gen744
REPORTS OF DEPARTMENT OF LABOR.
eral as follows: Shortage of labor, desire to lower the cost of production,
the seasonal nature of the work, custom, and the desire to
assist needy families. It is significant that three-fifths of the employers
interviewed stated that should it be abolished readjustments
in their business might easily be made.
The system of home work results in making a factory of the home—
a condition which operates against a normal environment for growing
children. The child home worker is subject to hazards from
which he is not safeguarded by law. The health of the community
is endangered by the use of clothing and other articles made in homes
in which infectious diseases are present. Effective administration of
laws providing for the inspection of places where home work is carried
on has been found practically impossible.
RURAL CHILD LABOR.
Almost three-fourths of the working children of the United States
aged 10 to 15 years, inclusive, and more than one-eighth of our total
child population of these ages, are laboring in gainful occupations
entirely unregulated by State or Federal child-labor laws. The great
majority—numbering at the time of the last decennial census approximately
a million and a half—are engaged in some form of farm
labor. That the compulsory education laws—the sole legal protection
afforded these children—are inadequate to insure them against
the loss of education that results from premature and excessive work
is shown by the fact that wherever rural child labor is greatest we
find the highest percentage of illiteracy and the largest proportion
of children not attending high school. No specific information is
available regarding the effect of unregulated farm labor upon the
physical and social development of the child.
Plans for a comprehensive inquiry into the economic, social,
physical, and working conditions affecting the rural child laborer are
at present under way. Two experimental field studies have already
been commenced in representative child-employing agricultural areas,
upon the results of which will be based more extensive inquiries to be
undertaken during the coming year.
CHILDREN ENTERING EMPLOYMENT.
One of the greatest losses of time, energy, and enthusiasm is the
waste on the part of children blindly endeavoring to discover for
themselves suitable places in our complicated industrial system; and
the years spent in blind-alley and overcrowded occupations is responsible
for much of the unrest prevalent to-day.
Our industrial centers have been the first to realize the situation—
Boston, Chicago, Cincinnati, Minneapolis, and other cities have
demonstrated the possibilities of vocational guidance. Some of this
work has been the outgrowth of the school systems; some has developed
through private organization; among the most important
has been the gradual entrance into the field of vocational guidance of
certain of the public employment services. The need of vocational
guidance in rural districts has been for the most part unrecognized,
although a start in this direction has been made in one of the Middle
Western States.
REPORT OF THE CHIEF, CHILDREN’S BUREAU. 745
In the interest of the children of the country it is imperative that a
comprehensive study be made of the conditions under which young
people enter industry—of the requirements made, and the opportunities
offered in the various lines of industry, trade, and other employment.
The effect of occupation upon the health and physical de- •
velopment of the growing child should also be studied, as well as the
employment of children in hazardous occupations, and the industrial
accidents of children.
CHILD-WELFARE STUDIES IN PORTO RICO AND EXTRA-CONTINENTAL
UNITED STATES.
Last year the Seventh Annual Report of the Chief, Children’s Bureau,
called attention to the need of studies of chikl welfare in the
island possessions and referred especially to conditions shown in
official reports from Porto Rico and the Virgin Islands. In this report
attention is again called to the importance of these studies as a
matter of national policy, and it is advised that the general welfare
of children in all the extra-continental portions of the United States
be made the subject of study by this bureau at the earliest practicable
period, and that a special appropriation be allotted for this plan in
its complete form.
As mentioned in the report of last year, from its organization in
1912 the bureau has been repeatedly asked by officials acquainted with
social conditions in the island possessions to make such studies, but
heretofore it has not been practicable to undertake work outside of
continental United States. Among the chief reasons for making such
child-welfare studies are the following:
(1) To carry out the law creating the Children’s Bureau,
which directs it to investigate all matters pertaining to
the welfare of children and child life among all classes
of our people.
(2) To secure information—now nowhere available—which is
essential to a proper understanding by the citizens of
the United States of the progress and the needs of the
outlying possessions for which this Government is responsible.
(3) To stimulate among the native citizens of the islands, by
adaptation of the same methods which have proved
effective in the United States, interest in and responsibility
for the protection of maternity, infancy, and
childhood.
The outlying possessions are remote, few visitors or tourists frequent
them, and the popular acquaintance with them which would
develop interest in their welfare problems is lost because of their
inaccessibility.
In some areas great progress has been made in education and in
the whole field of child welfare since the connection with the United
States was established, and our share in this progress will be noted
by historians as a most creditable chapter in our history. Yet it is
unfortunately true that our actual knowledge of progress already
made in certain of the islands is little greater than our ignorance of
their present needs.
746 REPORTS OF DEPARTMENT OF LABOR.
Recently the matter has been brought sharply to the attention of
the bureau by a letter from the commissioner of education of Porto
Rico, Mr. P. G. Miller, which was sent with the approval of the Governor
of Porto Rico, and of the Bureau of Insular Affairs. The commissioner’s
letter is as follows:
I have the honor to address you for the purpose of placing before you the
necessity for investigating the general condition of children in Porto Rico by
your bureau.
By way of preliminary information, let me say that last year the total estimated
number of children of school age—that is, between 5 and 18 years—was
441,465, and the total number of compulsory school age—that is, between 8 and
14 years—was 222,783. The total enrollment in all public schools was only
160,794. At the close of the fourth school month of the present school year the
total enrollment was 176,689.
Because of limited funds the department of education has not been able to cope
successfully with the problem of providing the elements of an education for all
children of compulsory school age.
Although there have been a few sporadic attempts at medical inspection and
although instruction in hygiene is given in the public schools, the fact remains
that the supplementary agencies of education which have done so much in many
of the States toward improving the conditions of childhood are conspicuous by
their absence from Porto Rico. This statement does not mean that much has
not been accomplished. A great deal has been done during the past 20 years that
Porto Rico has been under the protection of the American flag. In this connection
I respectfully suggest that you secure from the Bureau of Insular Affairs,
War Department, Washington, D. C., a copy of the Annual Report of the Governor
of Porto Rico for the Fiscal Year ending June 30, 1919. Beginning on page
553, you will find a detailed account of the educational progress made during
the past two decades.
The problems of childhood which should be investigated do not relate merely
to education but practically to all other sociological conditions, matters of
hygiene, proper nourishment, proper housing, infant mortality, and the care
of children in large families without sufficient means for subsistence. The
needs of a thorough investigation of this kind is great. I believe that much can
be done toward formulating a constructive program for the improvement of the
conditions of childhood. Legislatures oftentimes do not take action because they
do not know the facts * * *. I believe the Legislature of Porto Rico would
be willing to enact remedial measures within the resources of the people of
Porto Rico, if a properly formulated constructive program were presented.
In conclusion let me say that we have no funds available for paying the
expenses of an investigation of this kind, but I shall be glad to answer any
inquiries that you may desire to make before arriving at a definite decision.
Very truly, yours,
P. G. Mill er ,
Commissioner of Education.
Bure au of Insul ar Affai rs ,
War Depa rtmen t ,
Washington, D. C., February 28, 1920.
Respectfully transmitted to Miss Julia C. Lathrop, Chief, Children’s Bureau,
United States Department of Labor, Washington, D. C. A copy of the Report
of the Governor of Porto Rico for the Year 1919 is inclosed herewith.
Other statements have been heretofore received from Porto Rican
officials especially noting the large number of homeless, vagrant children,
and the difficulties experienced by the juvenile court and other
authorities in dealing with delinquent and dependent children. Reference
was made to these conditions last year.
A condensation of certain portions of the 1919 Report of the Governor
of Porto Rico will provide further data showing child-welfare
problems the solution of which might be hastened by a general surREPORT
OF THE CHIEF, CHILDREN’S BUREAU. 747
vey, and will serve as an illustration of the value of the same procedure
in the other extra-continental possessions.
Porto Rico.—While illiteracy as a teaching problem is outside the
.sphere of the Children’s Bureau, the ignorance which it connotes is a
social condition affecting fundamentally the existence and welfare of
children. Accordingly the following facts as to education are of
the greatest importance: Progress has been made, a modern public
school system has been established, and illiteracy reduced in the
past 20 years since Porto Rico became a part of the United States.
But in 1919 it must still be said that the adult illiteracy has been reduced
only to a figure “ probably less than 60 per cent.”1
It is superfluous to add that in a civilized country illiterate adults
are usually of low earning power; and that parents who can not read
and write can make little progress in learning the present methods
of keeping babies alive and rearing vigorous children and are at
great disadvantage in training the young to live usefully in the
world. Moreover, unless the State furnishes schools and requires
attendance the ignorance of parents too often entails upon the children
the same ignorance and poverty.
Porto Rico has an estimated population of 1,263,474, of whom
441,465 are of legal school age—between 5 and 18 years—and 222,783
are of compulsory school age—between 8 and 14 years.
The total enrollment in public schools was 36.4 per cent of the
total population of school age—between 5 and 18 years; hefice, almost
two-thirds of all the children of school age were out of school. Of
the population of compulsory school age—8 to 14—only 63.3 per cent
were enrolled. Thus about one-third of the compulsory school age
children—some 81,000—are entirely unknown to school authorities.2
The tables show the average attendance to be far less than the enrollment,
so that over 100,000 children between 8 and 14 were always
out of school.
A large school nonattendance where a compulsory-education law
exists is particularly unfortunate. It may be that school funds are
insufficient to provide proper school facilities, including the service
of trained attendance officers. Poverty, ignorance, the lack of care
by mothers who are obliged to work out of the home, children at
work who are entitled to school—all may be causes of absenteeism.
The actual proportions of this social problem can be ascertained
only by painstaking field study.
With 100,000 children between 8 and 14 out of school in Porto Rico
it can not be supposed that all w’ill keep out of mischief. If also
there are several thousand destitute and uncared-for waifs, as was
shown in the report of the Children’s Bureau for last year, it is not
strange that the juvenile-court judges are deeply concerned by the
unprotected children brought before them. In the last year 281
juvenile-court cases were heard. The ages of 28 children were unknown;
it is of interest in connection with school attendance that
out of the 253 whose ages were known 184 were of compulsory school
age—between 8 and 14. Of the 281 cases, 145 had never attended
school, 118 had not gone beyond the fourth grade, 74 children were
illegitimate, the parentage of 19 unknown.3
1 See Report of the Governor of Porto Rico to the Secretary of War, 1919, p. 49.
2 Ibid., pp. 531 and 586. »
8 Ibid., pp. 680-681.
748 REPORTS OF DEPARTMENT OF LABOR.
The attorney general calls attention to the fact that the lack of
adequate facilities to take care of the juvenile delinquents continues
to be the most serious drawback to the effectiveness of the juvenilecourt
law. During the last session of the legislature a bill providing
for the construction of another reform school in the city of Ponce
was introduced into the lower house and passed, but the senate did
not take it into consideration. The reform school at Mayaguez is now
more than ever insufficient and inadequate to take care of the juvenile
delinquents who are sent there every year.
Another bill presented in the house of representatives during the
last session was one creating a special juvenile court with exclusive
jurisdiction over the island. This bill was also passed by the lower
house, but it was not discussed or passed by the senate. The principal
feature of this bill was the placing in the hands of one j udge the work
of all the juvenile cases presented throughout the island, and doing
away with the present system under which each district judge must
act also as judge of the juvenile court of said district. The general
provisions of the present juvenile-court law were embodied in the
new bill.4
The safety of the lives of babies has come to be recognized as a fair
test of social well-being. Hence the report of the commissioner of
health for Porto Rico regarding infant deaths and those of young
children is especially pertinent. In 1918-19, 7,603 died under 1 year
of age, 3,666 between 1 and 2 years, and 4,245 between 2 and 5 years;
or a total under 5 years of age of 15,514, about 39 per cent of all
deaths. In addition the commissioner reports 4,063 stillbirths. He
charges the responsibility for these deaths (a) to lack of applied
knowledge of the hygiene of maternity and infancy, (&) to the
scarcity and dearness of the milk and to the further fact that most
of it is badly contaminated and dangerous, and (c) to the early
weaning and improper feeding of Porto Rican babies of the poorer
classes.5
In regard to uncinariasis (hookworm) the commissioner says that
this problem “ under its triple aspect—biological, economical, and
social—continues to be of incalculable magnitude.” He complains of
the lack of cooperation on the part of patients and employers and
says that if property owners would assist they would soon feel the
benefits of efficient work made possible by the restored energy of the
Porto Rican peasant. To the rural workers latrines and shoes are
luxuries usually unattainable. Even if they know their importance
in safeguarding health they can not afford them.6
The report of the commissioner of agriculture and labor refers to
the renting system of house and lot and to the need of building houses
for artisans and other laborers.
This report also shows by food prices and wage figures the mounting
cost of living and the low economic condition of farm laborers and
industrial workers.
Attention is especially called to the agricultural laborers. The
number of workers in the coffee industry is placed at 150,000. The
plantations are usually jn the interior and quite inaccessible, so that
4 Repor$ of Governor of Porto Rico 6 Ibid., pp. 136, 205. to the Secretary of War, 1919, p. 629.
6Ibjd., pp. 151-152.
REPORT OF THE CHIEF, CHILDREN’S BUREAU. 749
it was impossible for the inspectors to visit all the plantations. The
life of the workers is said to be no different from what it was whe’n
observed by officials of the bureau six years earlier. The number of
illiterates is “ quite great and consequently they live without ambition”;
wages varied for men from 50 to 75 cents a day, for women
and minors a maximum of 35 cents. These sums are not enough to
buy food at prevailing high prices.
In the sugar industry, which employs about 150,000 men in the
season, pay is better during harvest—up to $1.50. After harvest
about 40 per cent are unemployed and pay is 75 cents a day on the
average. “ The social condition of these workers is superior to that
of their fellows in other agricultural industries. They live around
the coast and as a rule very near or within town.”
In the fruit industry the conditions are about like those in cane
harvesting and the tyorkers live under the same conditions, the wages
being, however, about 10 per cent lower. It is stated that 15,000
persons are so employed.
On the tobacco plantations wages have increased and men now
receive 75 cents a day, women 40 cents, and children 30 cents. About
40,000 laborers are employed on the tobacco plantations.
Many women work on the plantations, and obviously among the
355,000 workers in the four agricultural industries mentioned many
mothers are employed.
The commissioner recommends among other constructive measures
that the Federal child-labor law be extended to Porto Rico. He notes
the employment of children of compulsory school age.7
This review of the 1919 Report of the Governor of Porto Rico
and the incorporated reports of the commissioners of education,
health, agriculture, and labor, and of the attorney general—to all of
which reference is made in this summary—indicates that a general
child-welfare survey should be made. It would, first, secure reliable
data and, second, interpret its findings in such popular form as to be
understood by those most concerned. This method of getting facts
and popularizing them has aided materially in improving the welfare
of children and the conditions interwoven therewith in continental
United States, and it can be adapted and applied in any
country.
These items from the Report of the Governor of Porto Rico have
been set forth not only because of the right of Porto Rico to ask the
services of the bureau but also because the report shows the same
conditions which exist in varying degrees in the other tropical islands.
VIRGIN ISLANDS.
Last year’s report also called attention to the need of studying
child welfare in the Virgin Islands. The United States has now been
for three years in possession of these islands. A census taken by the
United States Bureau of the Census immediately after the purchase
showed that the population in 1917 was 26,051, and the report states
there had been a gradual decline since 1835, when the population was
about 43,000.
’ See Report of the Governor of Porto Rico to the Secretary of War, 1919, pp. 703-707.
750 REPORTS OF DEPARTMENT OF LABOR.
The infant mortality rate was reported as high by the census, but no
figures were available. The great poverty and the fact that more
than half the married women (58.7 per cent) work for a living,
mostly as field laborers, is charged by the census report with responsibility
for the infant mortality. The usual characteristics of life and
plantation work in tropical climates and the usual disregard of
child welfare may in general be understood to exist here.
The illiteracy was 24.9 per cent of the population 10 years of age
and over.
Schools have been started and other improvements undertaken by
the Navy Department, under which the islands are administered.
A study that would sum up all the factors now affecting child
life, whether favorable or unfavorable, should be made. This is
due the helpless population of these lately purchased possessions,
which now may claim the same rights for the children as are recognized
in other parts of the United States.
The problems of human life are universal, and these problems of
the extracontinental portions of the United States as suggested by
the instances given are in fact identical with those on this continent
and with those of all the world.
The bureau has plans under way for a general series of childwelfare
surveys in the extracontinental parts of the United States.
The survey of Porto Rico will probably be undertaken first, and
preliminary conferences with Porto Rican authorities and representative
citizens will be held in advance of determining matters of
procedure, as the cooperation of the citizens of any community is
essential to the full value of such studies. It is confidently counted
upon in this case.
VISIT TO CERTAIN COUNTRIES OF CENTRAL EUROPE AND SUGGESTIONS
BASED THEREON.
CZECHOSLOVAKIA.
In March, 1920, at the request of the President of the Czechoslovak
Republic, you directed me to go to Prague representing the
Children’s Bureau. The request was made because Czechoslovakia
has child-welfare problems created or greatly intensified by the war
and requiring for their solution permanent governmental plans. A
ministry of social welfare already exists, and under it a children’s
bureau, and it was thought that a consideration of the experience of
the United States might be of assistance to the new Republic.
In order to indicate the governmental spirit in which the childwelfare
problems of Czechoslovakia are approached, it seems desirable,
at the risk of repeating familiar knowledge, to refer briefly to
the character of the population, to the resources of the country, and
to the legal framework of the new Republic.
Czechoslovakia is composed of former Provinces of the Austro-
Hungarian Empire—Bohemia, Moravia, Silesia, Slovakia, and Sub
Carpathia. The capital of the new Republic is Prague, long the
chief city of Bohemia. The country lies in a centred position, occupying
a stretch of about 600 miles from its western boundary to the
extreme eastern point of Sub Carpathia, which abuts upon Roumania.
Its average north to south diameter is approximately a
quarter of its length from east to west. On the north lies Poland
EEPORT OF THE CHIEF, CHILDREN’S BUREAU. 751
and on the south Austria and Hungary. The people belong to the
Slav race, and the existence of the Czechs and Slovaks in their present
position is traced from the tenth century. They have shown extraordinary
racial persistency under defeat and foreign domination; and
their history as a nation, whether submerged or in power, is of great
interest to students of democratic conscious race development. The
present population is'estimated at 14,000,000.
The agricultural and industrial resources of Czechoslovakia are
rich and are highly developed. It is reported that only 4 per cent
of the land is unproductive, and the high degree of intensive cultivation
in Bohemia is noted by every traveler. In Bohemia, Slovakia,
and Moravia the cooperative associations for credit, for purchases,
for sales, and for stimulating the best methods of cultivation are a
strong element in profitable agricultural development. There now
exist in the Republic 10,000 agricultural cooperative societies, with a
membership of nearly 1,000,000, these societies having increased
rapidly since the independence.
A change in land tenure is provided by the law for expropriation,
with indemnity, of a certain proportion of the lands belonging to
the great proprietors, and the taking over of all lands belonging to
the former Government and to enemy owners. This is the first step
in an agrarian reform which is intended to create the largest practicable
number of small proprietors. The Government has created a
special land, commission, which concerns itself not only with compensation,
division, and sales, but also with methods by which the individual
farmer can succeed as an independent proprietor. The Government
is increasing the number of agricultural schools and has
already added 13. Unquestionably this reform promises \strong
impetus to production.
The excellent harvest of the present year will greatly improve
economic conditions. Beet sugar is the most important single article
of manufacture, and consequently the prospect of a remarkably good
beet harvest this year is of especial importance. The industries are
steadily regaining ground, and as soon as needful raw material from
outside can profitably be secured the return to normal production
appears to be assured.
Czechoslovakia’s independence after the last war was gained with
great hardship on foreign soil, but without bloodshed within its own
borders. The declaration of independence was proclaimed October
28,1918, and the government organized with Prof. Thomas Garrigue
Masaryk as President and a national assembly whose duty it was to
prepare a constitution for a permanent Government, which was
adopted February 29, 1920. It expresses in modern social and political
terms those principles of freedom which the founders of this
country set forth in our fundamental law.
The Czecho-Slovak constitution shows the emergence from an
aristocratic domination by providing that privileges due to sex,
birth, and calling are not recognized. The principle of the protection
of the family as the essential unit of the nation is recognized by the
provision that “ The relation of marriage, the family, and motherhood
are under the special protection of the laws.” “All religions are
equal before the law.” A strong democratic spirit permeates the sections
of the constitution which deal with the election and powers of
752 REPORTS OF DEPARTMENT OF LABOR.
the National Assembly. Suffrage is universal, and the law provides
penalties for those who fail to vote.
The eight-hour day, the prohibition of child labor before the age of
14, compulsory education, the regulation of home work, the protection
of women in industry, and sickness and unemployment insurance
are already established by law.
Thus it would appear that a democratic governmental structure has
been set up which gives promise that the advancement of the common
welfare can not fail to be continuously the concern of government.
With the aid of many persons a general view of the conditions
under which children were living was made possible. A journey
from Prague to the eastern end of Sub Carpathia gave opportunity
for observation of conditions in smaller cities and the remoter parts
of the country.
The greater part of the population of Czechoslovakia lives in the
western Provinces of Bohemia and Moravia, and there the level of
literacy is high; few if any European nations show a better rate.
Slovakia on the contrary had a large illiteracy rate, 27.8 per cent,
before the independence; but in the first year of the Republic the
Government opened 2,700 new primary schools in Slovakia, in order
quickly to reduce this figure.
Naturally language as the primary sign of nationality is profoundly
cherished; and while the official language of the Republic is
the Czecho-Slovak tongue,-by a law which is made part of the constitution
the language rights of the ethnic minorities are carefully
guarded, so as to preserve the profound sentiment for which they
stand while providing at the same time in the Czecho-Slovak language
a common medium for general intercourse and public business.
Perhaps no nation gives greater attention to the support of universities
and technical schools. In the year 1919-20, the attendance
at the universities and technical schools was 21,342; and the number
of medical students, 700 of whom came from the neighboring State of
Jugoslavia, was so great that the teaching was done by shifts and the
laboratories were used the 24 hours around.
Sub Carpathia, at the extreme east of the Republic, has a scattered
population; before the war it consisted largely of migrant agricultural
laborers who formerly went down to the Hungarian plains
directly to the south to work in the growing season and returned for
the winter to the mountains, perhaps finding work in timber industries.
This class, always poor, has inevitably suffered and still suffers serious
privation. Although the Czecho-Slovak Government, the Czechoslovak
Red Cross, the American Red Cross, and the European Children’s
Fund are all aiding in the work of relief, the reports of wandering
homeless children, of sickness, and helpless misery are of a
painful character. It is stated that more than one-half of the population
is illiterate, and adequate schools will be established as rapidly
as possible.
The Czecho-Slovaks will undoubtedly work out with strong practical
wisdom the solution of their social problems, which are on the
whole the problems common to all modern countries. At present
every social problem is intensified by the conditions created by the
war, and none is more urgent and immediate than that of child
welfare.
REPORT OF THE CHIEF, CHILDREN’S BUREAU. 753
Precise statistical information is not necessary as a preliminary to
the immediate and imperative work of relief; but it is well to remember
in any discussion of this subject that the usual statistics of population
are not available. Czechoslovakia, like the other new central
European countries, has new boundaries, and until now no country
has been able to do more than estimate the number of her citizens,
although a census is to be made this year by Czechoslovakia. Populations
have shifted from country to city. It is believed that Prague
has almost or quite doubled its population, and as no building has
been done since the war began, the crowding is so serious that here,
as in other new and crowded central European capitals, notably Warsaw
and Budapest, the Government has found it necessary strictly to
ration all housing space. Obviously, crowding is unfavorable for
children of any age, aiding as it must the spread of contagion, and
lowering health and vigor even if actual illness is escaped. We are
only too familiar in this country with the moral injury to family life
caused by crowded, uncomfortable tenements.
The Czecho-Slovak Government estimates approximately 3,000,000
children under the legal working age of 14, and, although no exact
figures are available, there is reason to believe that, due to lessened
births and increased deaths, the actual number is far below the normal
population under 14.
The Austrian census for 1910 gives a total of 2,962,513 children
under 14 years of age for the two Provinces of Bohemia and Moravia,
and the children under 14 formed 31.5 per cent of the total population
of the two Provinces. Thus, with the present population of
Czechoslovakia estimated at 14,000,000, if the proportion of children
under 14 remained as in 1910, there would be a population of nearly
4,500,000 children under 14 years of age instead of the estimated
3,000,000, making a loss in children alone of 1,500,000 in six years.
While these figures are sheer estimates, there can be no doubt that the
last six years have taken a heavy toll of young lives and have greatly
altered the usual proportions of a normal population by the lessened
birth rate, the war deaths of fathers and young men, and the civilian
deaths of old people, a changed balance which deprives many children
of natural family protection.
Notwithstanding the war injury, many of the estimated 3,000,000
children are approximately normal. They are safely cared for by
good parents; they are in school; they need only such care from the
Government as will stimulate sound physical, mental, and moral
growth and will afford the wise education necessary for useful productive
happy life. If this were not true, the problem would be
insoluble.
Among the 3,000,000 it is estimated that 300,000 are war orphans,
who naturally claim the care of the Government in degrees varying
only with their needs.
But war has changed conditions in many ways. Thousands of
fathers have been killed and many mothers have died of the typhus
or other diseases due to the hardships of civilian life, so that an unknown
number of the families who would be self-supporting in normal
times are broken or destroyed and their children are actually homeless
and helpless. Thrifty families have exhausted small savings and
are unable to meet sickness or accident independently, while this new
15283—lab 1920-----48
754 REPORTS OF DEPARTMENT OF LABOR.
poverty renders parents and children less able to resist any further
adversity.
For six years children have undergone dwarfing of body and retarding
of mental growth; an unknown number suffers from malnutrition
and its consequences; an unknown number is tuberculous. Undoubtedly
the loss of family life and the breakdown of the accustomed
conventions and safeguards have increased the numbers of wayward
or delinquent children and young persons. This condition is brought
out in the Czecho-Slovak Red Cross report made at Geneva. Although
many have escaped injury, the depressing effect of the war
upon growing children and youth is nation wide.
In all countries and at all times certain classes of children require
the special care and protection of the State for their own safety and
for the welfare of society. These are the dependent, other than war
orphans, the delinquent, and the defective. Probably the number of
these children has not lessened but rather increased proportionately.
Reports prepared by the ministry of social welfare in the spring
of the present year stated that the death rate among babies was
rising and that although the Czecho-Slovak Society for the Protection
of Mothers and Infants was helping to care for over 150,000 of
the babies under 2 years of age, there were still 127,000 who needed
help; that of the 2,500,000 children between 2 and 14 nearly 700,000
were in need of relief—of which number 500,000 received food from
the European Children’s Fund, while 174,000 others were not
reached.
Details are given showing the increase in tuberculosis and the
inadequacy of the existing sanatoria and hospitals. An important
organization to combat tuberculosis, called the Masaryk League, has
been started on a nation-wide plan. The members are able and devoted
but need large funds in order to do the prompt work the
emergency requires.
The report of the ministry of social welfare calls attention also to the
needs of the middle class, whose savings are exhausted.
The report emphasizes the need of moral protection for boys and
girls:
Most of all our youth suffered. Deprived of the guidance of the fathers and
the care of the mothers, who had to stand day and night in lines in front of the
shops waiting for their ration of food; in many cases also without a regular
school attendance, the children were left entirely to the influences of the streets.
The increase in the number of youthful criminals and of young girls abandoned
to prostitution is terrifying.
Greater efforts to protect and save delinquent young persons are
urged, and the need for them of adequate schools and organizations
adapted to reform and education is pointed out. The report contains
these words:
The economic consequences of the war are incalculable, but it appears that the
effect the war had on morals is equally disastrous.
The constitution authorizes ministries but leaves functions to be
defined later by law. As it will be seen from the foregoing that
extraordinary duties in regard to children must now devolve upon
the Czecho-Slovak ministry of social welfare and its children’s bureau,
it was desired that suggestions should be submitted as to the
character and scope of the necessary child-welfare legislation. AcREPORT
OF THE CHIEF, CHILDREN’S BUREAU. 755
cordingly the writer prepared a memorandum in which an effort was
made to adapt the best fruits of experience in the United States to
the needs of another country. It was offered with a strong sense that
a more intimate acquaintance should precede the attempt to do more
than offer general principles. The paragraphs especially referring
to the ministry of social welfare follow:
1. The Government through the ministry of social welfare is
responsible for the welfare of the children of the Republic. Through
the children’s bureau of the ministry it shall be empowered to make
investigations and reports upon all matters pertaining to the welfare
of children.
2. It shall maintain, through the children’s bureau, a staff of qualified
inspectors to report upon the conduct of all public and private
institutions and associations having to do with children, including
asylums and all institutions for children whether normal, sick, defective,
delinquent, or dependent, and including especially the care of
children placed out or boarded out in families.
3. It shall license all new philanthropic associations or institutions
for children. It shall first ascertain the need of the proposed activity,
the responsibility, competency, and resources of the association
or institution proposed, with the purpose of preventing unnecessary
or ill-advised undertakings and expenditures. It may refuse a
license for cause. It may withdraw a license for cause at any time.
4. It may allow subventions from the national treasury to associations
and institutions caring for children, but only when the methods
of the association or institution are approved, its usefulness recognized,
and license issued.
5. No subventions for child welfare should be paid from the Government
treasury save with the approval of the ministry of social
welfare.
6. The ministry as a result of its studies and investigations may
from time to time formulate by-laws as to standards of child welfare
to be maintained by all agencies receiving subventions, and when such
by-laws are approved by the President of the Republic they shall
have the effect of law.
7. It is the duty of the ministry of social welfare, through the
children’s bureau, to inspect all institutions for children maintained
by the Republic and to report annually to the President as to their
efficiency and adequacy, with information as to their needs.
8. The inspectors and other authorized representatives of the
ministry of social welfare shall have for the purposes set forth in
this memorandum the right of entry into all institutions and the right
to investigate the management of all associations and institutions
receiving subventions.
9. The names and records of all children cared for outside of their
own houses and maintained by public or private funds in other homes
or working for their keep without apprenticeship shall be reported
to the children’s bureau. This list shall be confidential and shall be
inspected only upon permission of the children’s bureau. It shall
be maintained to establish the identity and relationship of children
so as to safeguard their rights.
10. With the approval of the President of the Republic and on
recommendation of the ministry of social welfare, the children’s
bureau may be directed to take over any needed activity for the social
756 REPORTS OP DEPARTMENT OF LABOR.
welfare of children which is not performed adequately or which is
found to be necessary and is not performed.
11. The welfare of children requires the harmonious cooperation
of various agencies. Experience shows that duplicating, confusion,
and consequent waste of energy and money result from the failure to
secure an orderly plan of cooperation.
It is therefore submitted that a program committee be created, to
consist of designated representatives of the ministries of social welfare,
education, health, industry, and justice. It shall be the duty
of this committee to prepare from time to time, as the needs of various
groups of children may require, plans to meet the requirements so
far as the cooperation of the agencies represented by the respective
ministries may be essential thereto, and the respective ministries
shall upon approval of the plans cooperate in their execution.
12. No children over 2 years of age shall be retained in an almshouse
or in other institutions for adults, but shall be placed in an
institution only if necessary and, if practicable, in a family home.
A by-law to this effect is desirable as soon as it can become practicable.
POLAND AND OTHER COUNTRIES.
Before leaving Washington your authorization for visits to such
other central European countries as might be practicable was given.
Although it was evident that the time at command would permit only
the briefest stays, it was felt that the bureau’s understanding of international
child-welfare problems might be aided by visits, however
limited.
While in Czechoslovakia official invitations were received to visit
Poland and Jugoslavia. A short time was spent in Poland. Unfortunately,
because of transportation difficulties it was possible to
spend only a few days in Jugoslavia, and to go no farther than Belgrade.
Something was seen of the operation of relief organizations
from the United States and other countries and of the management
of the permanent child-welfare activities in Budapest, Berlin, and
Vienna. The greatest courtesy was shown in every country and
full opportunities were given to see all that was possible in the time
at command. The aid most graciously given by both officials and
private citizens is deeply appreciated. In Czechoslovakia and in
Poland the secretaries of the American Y. W. C. A. were exceedingly
helpful.
The United States may well be proud of the work done by its relief
organizations. They have saved innumerable lives and alleviated
great misery. It should be remembered also that this contribution
must not cease in those areas, where great need still exists.
A deep impression was made by the generous activities of the relief
agencies of the neutral and allied nations who have labored
throughout central Europe, and who are providing hospitality in
their own countries for many thousands of children from Vienna and
other parts of Austria and Hungary. But above all, the visitor is
awed by the unmeasured devotion and skill with which citizens in
all the war-harassed nations have themselves labored since 1914 to
protect their children. The appreciation of American help, the ingenuity
and success with which, aided by American food and clothing,
they carry on vast child-welfare activities with great competency,
were both touching and inspiring.
REPORT OF THE CHIEF, CHILDREN’S BUREAU. 757
In the organization of the European Children’s Fund feeding stations,
the American directors could not praise too highly the unsparing
volunteer work of the women of the local committees, upon whom,
especially in the villages, great responsibility rested.
“ I- am here at 4.30 every morning,” cheerfully said the mayor’s
wife, who was chairman of the feeding-station committee in a remote
town, where the supplementary meal was a breakfast.
The emergence of the new democracies of central Europe creates
in the United States a double interest—first, because as a Nation we
can not but feel a profound sympathy with those who have now secured
the political liberty for which our forefathers were obliged to
fight 150 years ago; and second, because millions of our citizens have
helped most generously in men and money to win the new freedom
their old home lands enjoy and are deeply rejoiced by the result. “ I
have come back to see my family,” said a prosperous American on his
way to his father’s farm in Slovakia, “ but I would not want to come
back if my country were still under another country.”
Five new nations of central Europe lie like spans of a bridge from
the Baltic to the Adriatic—Poland on the north, then Czechoslovakia,
with Austria and Hungary to her south, and Jugoslavia still to the
south and reaching to the Adriatic. If the hopes engendered by the
war are realized, this great area will support in peace many nationalities,
chiefly branches of the Slav race, under separate democratic
governments, but with the age-long quarrels ended, the fighting over,
the barricades down, and -with the assurance of a new and greatly
enriched life for the children of the future. Plainly that day is not
yet. New States', made up of Provinces separated more or less violently
from long-established, imperial, and highly centralized control,
have first of all the difficult task of constructing the mechanism
of their new government and their external policy—the more truly
democratic they are, the greater this task.
Constructive government policies need time and thoughtful ripening
and peace in which to grow. Yet these countries have enjoyed
no such favoring circumstances. War and the danger of war, confusion
within and without, have been too much their portion since
the Great War ended.
The world knows the universal poverty and hunger which exist,
even where war is stayed; and for two years already many countries,
according to their resources, have poured into central Europe food
and many kinds of help, though enough to meet the needs can never
be furnished from without.
Under the burden of poverty, economic confusion, and actual war,
the new nations must go on developing governmental and social
institutions; to stand still is to increase the difficulties.
Of all this, Poland is an example. Had her civilian population
been undisturbed by further war, had they enjoyed adequate food
and a good financial basis, the work of organizing a democratic republic
would have been an exacting task.
One hundred and fifty years ago, as our national existence began,
the partition .of Poland took place, and the Kingdom was divided
among Germany, Austria, and Russia. Thenceforward Poland’s children
were obliged to learn the language of their various conquerors.
In the Czar’s country to teach Polish was punishable with exile to
758 REPORTS OF DEPARTMENT OF LABOR.
Siberia, and nowhere was it tolerated as the language of education.
However deep the underlying sense of racial unity, however strong
the common aspiration for a modern democratic national existence,
it was inevitable that deep cleavages should be made by the passage of
150 years under the control of empires with differing types of education,
of government, and of life. The welding of these three parts
can not be done overnight; it needs the new constitution now being
framed, new uniform laws and institutions, general education, and,
above all, peaceful industrial and agricultural development.
Other countries of central Europe have new Provinces added on
by the peace treaty, and they have in some cases far more difficult
tasks of amalgamation. All require time and quiet, and the wonder
is that the internal confusion is no greater.
The new Poland has created a temporary Diet, the duty of which
is to write a constitution. This task has been much interrupted and
delayed; but it is of interest to quote from a communication of one of
the women members of the National Diet the following provision
which was adopted by the drafting committee: Warsa w , May 15, 1920.
* * * I am very glad to inform you that it is exactly at this morning’s
meeting of the constitutional committee of our Diet that I had the pleasure of
having carried through the following motion:
That it be enacted in our constitution that “ Every child deprived of parental
tutorship or either morally or physically neglected shall have the right to the
State’s protection and tutorship. A special law will precisely determine the
obligation of the State in this respect, and it will secure to every mother in
need of help the State’s protection before the birth of her child and during its
infancy.
“No parent can be deprived of his parental authority without a judiciary
sentence.”
Already ministries of health, labor, and education are in action,
and a children’s bureau has been established in the ministry of labor.
Poland feels the national necessity of universal free public elementary
schools and of returning in her schools to the Polish tongue. A moment’s
thought shows how great a matter this is to a country with an
estimated population of 24,000,000, now terribly impoverished, and
burdened with a large percentage of illiteracy. It was estimated that
26,000 new teachers were needed. They must be trained to teach and
to teach in Polish; schoolbooks must be written in Polish and printed;
new school buildings are imperative. Naturally schooling can not be
delayed without increasing still further the ignorance which all the
democratic countries of central Europe agree can not be longer tolerated.
And what is true of the school needs in Poland is more or less
true of all the other new central European countries, where, with the
exception of a few former Provinces, general free schools are unknown.
In Poland the visitor sees examples of excellent child-welfare work
done in a modern spirit but under the greatest physical difficulties;
under favoring circumstances an important development may be
anticipated in that country.
The juvenile court of Warsaw was seven months old and was the
creation of the judge, who had never seen any court but his own. It
was equipped with simplicity and was apparently conducted by the
judge with the wise human kindliness which is recognized as the
REPORT OF THE CHIEF, CHILDREN’S BUREAU. 759
essential of a successful court. The information was given that juvenile
courts were in operation in three other cities of Poland.
In Warsaw is located a home for Jewish children conducted on a
self-government plan which for genuine effectiveness in bringing out
the best qualities of the individual child the writer has never seen
excelled.
On the outskirts of Warsaw were seen two institutions which illustrated
the vast child-welfare tasks which Poland must undertake.
One had in charge hundreds of very young children who had been
rescued from the crowded tenements of Warsaw in the cold of the preceding
winter. A number of tenement houses in the outskirts had
been taken over, made clean and sanitary, and were used to shelter
the children. Near by a great sand dune gave healthful sunny play
spaces. This admirable hospital-home was one of the activities of a
society of Warsaw women.
In another suburb of Warsaw a thousand children, largely refugees
from Vilna and elsewhere, were cared for and were being brought
back to normal existence. With a small school for boys as a nucleus,
houses had been taken in the same neighborhood for a central kitchen,
for schoolhouse, and for dormitories for girls and for boys. Great
hardships had been endured by many, but the physical signs were
slowly being erased, and perhaps less easily the moral injury was
healing. “Some of these boys had become veritable bands of little
brigands,” said the chairman of the national committee in charge
of this refuge and others. The chairman estimated that the children
under the protection of his committee numbered 200,000—•“ and they
are not all.” he added. There seemed to be an excellent free spirit in
the whole administration.
Dr. Thadcleus Kopec, of Warsaw, was the head of the goutte de
lait stations in that city, which weighed and measured the babies systematically,
furnished milk, advised mothers, and showed results of
cheering excellence. The station visited, with devoted young doctors
in attendance, was so clean, the progress of the babies so evident,
that it would have been creditable anywhere, and seemed there little
short of marvelous under the existing limitations.
In 1917, Dr. Kopec, in charge of the out-service of the Charles and
Maria Hospital for Children, noted a sudden breakdown in the
health of the poorer children of Warsaw. He describes the condition
of 1,631 dispensary children under 5 years of age whose weight,
strength, and health were under careful observation during 1917 and
1918.
Dr. Kopec reports that after the babies were 6 months old the
mothers were usually unable to nurse them, and the babies lived on
bread and potato soup, often made only from peelings and without
fat. From this time the weight diverged noticeably from the normal.
The children from 2 to 3 years of age weighed about two-thirds the
normal weight for those ages.
Dentition began early but was delayed after the age of 9 months,
and 13 per cent had no teeth at the age of 17 months.
As to walking and the proportion of normal children among those
observed, he says:
I omit the first year of life, because then even in normal conditions not every
child begins walking, but in the second year, and in its first quarter, normally
the child walks. With us in this period only 16 per cent of the children walked;
in the second quarter of the second year 29 per cent, in the third quarter 45»
760 REPORTS OF DEPARTMENT OF LABOR.
pei* cent, and- in the fourth quarter 55 per cent; thus at the end of the second
year a little over one-half of the children under observation were walking. In
the third year no improvement was apparent. In the fourth year the percentage
of walkers reached 65 per cent. In the fifth year 69 per cent were walking, but
27 per cent stopped walking because of emaciation and general debility, and 4
per cent had never begun to walk.
In regard to structure, the percentage of well-built, well-grown,
physically developed children was 29 per cent in the first year of life;
in the second it ranged from 10 to 13 per cent.
Nearly all the children had at least a trace of rickets.
Consumption occurred in the second year of life in 14 per cent of
the children, in the third year in 17 per cent, in the fourth year in
26 per cent, and in the fifth year in 37 per cent; i. e., every third child
had tuberculosis.
It must be borne in mind that Dr. Kopec’s description is of children
of the poorer classes as seen in a clinic. The condition of many
children is, of course, by no means so appalling.
In Warsaw excellent children’s hospitals were seen. One gave
unusual attention to the training of nurses, and the buildings were
planned with extraordinary skill to avoid cross infection. The writer
was told of a remarkable private school in Warsaw conducted by a
woman of teaching genius, and a beautiful exhibit of the art work
of children selected from schools throughout Poland was visited.
In Budapest were shown many children’s hospitals where devoted
physicians and nurses were at work. The lack of equipment, such
as bed linens, bandages, soap, made the cleanliness and sweetness of
the wards seem almost miraculous. And the representative of the
American Red Cross stated that throughout the country the hospitals
were admirably managed but sadly hampered by lack of supplies. It
is believed that before now the paper and other makeshifts used for
surgical dressings have been replaced by hospital supplies furnished
by the American Red Cross.
In Jugoslavia the Parliament is drafting a new constitution.
Already, however, ministries of education, health, and social welfare
have been established. Under the ministry of social welfare is a children’s
welfare bureau, and a governmental program of nation-wide
application is in preparation. It was of special interest to note the
large amount of volunteer work done by the Serbian women in the
economical administration of the fund raised in this country, which
among other activities supports at home with their mothers 2,400
children whose fathers were Serbian officers killed in the war. Unfortunately
time did not permit observation of the work for children
outside Belgrade.
The lack of precise information as to the actual numbers of children
in need is accentuated here because of the paralysis of means of
transportation, which in the remoter parts have never been modernized
and now must be created afresh or developed for the first time.
In this country the task of uniting different populations heretofore
separate is one of great importance. Universal education will, of
course, aid, and. need of schools is deeply felt, since schools were suspended
in Serbia in 1912, and a generation of children must be rapidly
taught the elements of education in order to avoid an increased
illiteracy.
Here as elsewhere interest was shown in the methods adopted in
the United States for the protection of children and in the developREPORT
OF THE CHIEF, CHILDREN’S BUREAU. 761
ment of public-health nursing, the effectiveness of which has been
proved by American nurses with the various relief organizations.
The desire and purpose was expressed in Jugoslavia and in other
countries by Government officials and others to send young persons to
the United States for special study of child-welfare methods or for
graduate courses in public health and other subjects of practical value
to the new democracies. A few students selected because of special
qualifications are already in this country, in England, and in certain
continental cities.
After observation of the intelligent interest and modern spirit of
those interested in the various phases of child-welfare work in the
countries visited the writer is convinced that one of the greatest
services promising permanent results which can be rendered is to
make possible the sending of educated young persons here for purposes
of study in our schools of applied social science and of public
health. Such students can select and carry back from foreign study
that which best fits their home conditions.
IMPORTANCE OF CORRELATED STUDIES OF CHILD WELFARE IN
CENTRAL EUROPE.
The visitor is impressed not only with the unbounded devotion of
the civilian efforts to protect children in the war areas and their
great effectiveness under the most depressing condition but also with
the fact that much of the underfeeding and social injury has taken
place under the observation of scientific authorities of the highest
standing, who have unsparingly devoted themselves to practical
amelioration, and whose observations would have great weight if
summed up and published. The practical effect of scientific research
pursued under the pressure of war food shortage is illustrated by
the immediate adoption of Pirquet’s new feeding systems in the
kitchens of the Vienna European Children’s Fund. From scientific
studies in all the phases of child life touched by the war we may look
not only for immediate help in solving the various urgent problems
now confronting the countries of central Europe but also for data
invaluable for other purposes.
Moreover, the scientific contribution to child welfare in Europe
is important in its bearing upon the welfare of every country to which
may come immigrants from central Europe, and with the present increasing
immigration from central Europe to the United States, the
welfare of the children of those countries is a matter of immediate
concern to us.
STUDIES OF UNDERFEEDING.
The most obvious war consequence is, of course, the continent-wide
phenomenon of underfeeding. Some of its results are known, others
can not be known to this generation. It is already seen that far more
than physical injury is involved. Occasional reports have been
published by men overwhelmed with practical duties, and mention
is made of the lack of data and the need of wider study.
Dr. Thaddeus Kopec, to whose work reference has previously been
made, says:
It would be very important to have the largest number of children examined
by the same physician, who would limit himself to fundamental types without
going into particulars.
762 REPORTS OF DEPARTMENT OF LABOR.
Dr. R. Hamburger, assistant at the pediatric clinic of the University
of Berlin, in an article entitled: “ The Feeding of German Children
in War Time and at Present,” states that bad conditions of the masses
of the people particularly endanger children and adds:
When we want to consider the effect of the food on the entire mass of the children
of Berlin, no extensive comparative investigations are known to have been
made, because of the censorship.
Reports are not comparable and are sometimes apparently contradictory.
Thus the Deutscher Verein fur Schulsgesundheitspflege in
1917 addressed a memorial to the governments of all the German
federated States calling attention to the fact that, although the health
of infants and children of preschool age seems not to be affected by
war conditions, the health of school children, especially in large cities
and industrial centers, has deteriorated. According to Dr. Kopec,
the Polish children, at least of the poor classes in Warsaw, showed
very serious symptoms from the age of 6 months on.
A year later, in 1918, Dr. Walter Kaupe, children’s physician in
Bonn, in Monatschrift fiir Kinderheit Kunde,8 says:
Every physician dealing with infants or connected with an infant asylum
will agree that at present breast-fed infants do not gain in weight as much
as they did in former years. These unsatisfactory results of both breast and
artificial feeding are not due to the quality of the mother’s milk, as this has
been proved to be the same, not to the quantity, as this was found to be sufficient,
not even to the decrease of carbohydrates in the mother’s milk, as this
has not taken place.
The author comes to the conclusion that the war conditions produced
changes in the mother’s milk the nature of which is still unknown.
The following extract is from a speech by Dr. Leopold Moll, in
charge of, the Reichsanstalt fiir Mutter- unci Sauglingsfiirsorge (National
Institute for Maternity and Child Welfare) in Vienna.9
The physical condition of the infants and little children brought to the center
has been showing a striking deterioration within the last year. The children are
so weak that they perish in spite of breast feeding. A number of diseases are
on the ipcrease, including mental disturbances. The causes are not definitely
ascertained yet, but are probably undernourishment and mental anxiety of
mothers.
Dr. Moll is an authority of international reputation and author of
a number of reports. His statements are based on experience gained
at the above consultation center.
STUDIES OF BEHAVIOR AND DELINQUENCY.
The war effects upon the conduct of children and young persons
have been mentioned in the report of the Ministry of Social Welfare
of Czechoslovakia to the League of Red Cross Societies quoted above.
The precocious delinquency of boys and girls referred to in that report
apparently is a general phenomenon varying in intensity, doubtless,
with the lack of social and family protection and the degree of
hardship experienced.
Repeated reference has been made by Belgian observers to the continuing
subtle moral injury which results when children are reared
8 Vol. 15, No. 1, pp. 83-88.
9 Summary of speech given in Zeitschrift fiir Kinderschutz und Jugendftirsorge, JuneREPORT
OF THE CHIEF, CHILDREN’S BUREAU. 763
under conditions which make truly meritorious the breaking of laws
imposed by invaders and which compel constant deceit.
Dr. Albert Hellwig, juvenile judge in Frankfort-on-Oder, published
in 1916 a study entitled “ The War and Youthful Criminality ”
(Der Krieg und die Kriminalitat der Jungendlichen), and in 1919 a
second, entitled “ The Protection of Youth from Influences Unfavorable
to Moral Development” (Der Schutz der Jugend vor Erziehungswidrigen
Einfliissen). In both volumes he uses a large amount
of material showing the increase of juvenile delinquency as a result
of the war, and in the second he undertakes the important duty of
showing the protection necessary.
Edward Golias published in 1919 a pamphlet showing the increase
of juvenile delinquency in Austria and Hungary. His data, however,
do not go beyond 1916.
A few studies have been made in England of the social conditions
accompanying juvenile delinquency in war time.
How far the lack of food and physical welfare is responsible, how
far the absence of fathers and the breakdown of the family is accountable,
in what degree the lack of schooling, how far the excitement
and abnormal social conditions of war have unsettled nervous
and mental balance and hence led to delinquency, are among
the questions whose answers would be useful in the readjustment to
peace conditions in every country, in the establishment of the new
laws and institutions which are urgently necessary.
The studies thus far made are chiefly from the approach of the
physician, but other scientific observations are also necessary, including
those of the educator and the student of applied social
science.
The approach of the anthropologist to the problem of child development
is important and has immediate practical bearing upon
the care of dependent children and other matters. So far as we are
aware, no studies from that point of view have been undertaken in
the war areas, although attention has lately been called to their
importance by international authorities.
STUDIES OF CHILDREN IN INDUSTRY.
The physical effects of industrial life upon children have been
little studied, although before the war European observers had begun
to write upon it, and at least one study was under way in the
United States.
Dr. Ludwig Teleky, of Vienna, presented a paper on Age Problems
in Industrial Hygiene at the meeting of the International Congress
of Hygiene and Demography held in Washington in 1912, in
which he urged the importance of studying the effects of industrial
occupations upon the physical welfare of children.
Prof. Giovanni Loriga, of the University of Pome, wrote a monograph
upon the Labor of Children and the Growth of the Body,
which was published by the Italian Labor Bureau in 1910.
In this country, under the direction of Dr. Helen T. Woolley, a
series of measurements of school and working children in Cincinnati
has been conducted for some years, and a preliminary report was
published in 1914. In 1916 the scanty material then available on
this subject was reviewed by Helen L. Sumner (Woodbury), of the
Children’s Bureau, in an address before the American Academy of
764 REPORTS OF DEPARTMENT OF LABOR.
Medicine, which later offered a prize to be awarded in 1921 for the
best study of the subject.
The reports of the medical officers who examine children for work
certificates in a few cities in this country have already made plain
the immediate practical value of such studies by the reports of their
own work, showing the need of fuller knowledge of the effect of work
and the need of expert examiners. The most recent discussions of
this subject were those held at the Children’s Bureau conferences on
standards of child welfare in 1919. Dr. Emma MacKay Appel, examining
physician under the Chicago Board of Education, and Dr.
George P. Barth, director, School Hygiene Bureau, Milwaukee,
emphasized the practical necessity of “ safeguarding the physical
condition of the child when he leaves school to go to work.”
Dr. D. L. Eclsall, dean of the Harvard Medical School, at the
same meeting pointed out that children, and those in the earlier
years immediately following childhood, are peculiarly prone to develop
a latent tuberculosis, and they must therefore be protected
from dangers that are likely to excite tuberculosis, “which is the
great danger beyond all other medical dangers.” “ Children are
also peculiarly prone to the effects of general physical strain and to
the effect of postural strains—a fact sometimes overlooked in regulations.”
At the conclusion of the 1919 conferences a committee on standards
of normal development and physical fitness for working children
was appointed.
The committee has -made a preliminary report which includes a
statement as to the need of authoritative scientific investigation of
the effects of industrial employment upon the development and welfare
of children.1
The intelligent protection of the health of working children and
the studies upon which that protection should be based are subjects of
increased urgency wherever marked underfeeding and hardship have
prevailed for a period covering the war and postwar years of the
child’s life. In the scattered reports available on present conditions
in Europe the following is found which bears directly upon the question.
The apparent result of the double strain of growth and of
hard physical labor has been noted among both town and rural boy
workers in an article by Dr. Albert Frome, superintendent of the
surgical clinic of the University of Gottengen, who reports numerous
cases of a new disease of the bones, occurring mainly in the large
cities, but also in rural districts. Its victims seem to be mostly boys
15 to 18 years old who are doing heavy physical work. It's symptoms
resemble those of rickets, and it is therefore called by some
“ late rickets.” Recently the number of cases increased to such an
extent that the disease can be considered endemic, in the opinion of
the author and of a number of his colleagues. The prevalence of
the disease among adolescents is ascribed by the author to their
growth and to the fact that they should receive more energy than
they spend. The fact that the disease is prevalent among boys doing
hard physical work is emphasized.
The extent of this sign of breakdown, or other signs, such as
tuberculosis, which may attack boys and girls beginning hard work
1 See p. 740.
REPORT OF THE CHIEF, CHILDREN’S BUREAU. 765
after years of undernourishment; the best way to cope with them
so as to restore, if possible, the natural vigor of this generation—are
questions for concerted and immediate study and action.
It is significant that Dr. Ludwig Teleky, of Vienna, who was one
of the first to urge the importance of studying the physical effects
of industrial life upon children, is now, as reported, devoting himself
solely to tuberculosis.
Studies of the effect of occupational strains upon these children
should prove of special value in determining the effect of such strains
upon normal children; those occupations which produced no serious
ill effects upon these children with impaired constitutions should be
given a clear bill of health, while those which proved too severe for
weakened constitutions should be given further study to determine
the effect upon children with sound constitutions. Studies should be
continued over a term of years; for children reaching the age of 14
within the next 10 years must be considered as within the class subject
to the hazards entailed by war hardships, in addition to the usual
industrial hazards, whose dangers Dr. Teleky pointed out before the
war and whose study he urged then because both human welfare and
industrial efficiency were, in his opinion, involved.
Such studies are, of course, primarily the concern of scientific
observers; but under the present conditions a working arrangement
should be reached with adequate relief organizations, so that prompt
service, whether public or volunteer, could be insured for the cases of
breakdown or threatened danger. Thus far, since the end of the war,
little opportunity or occasion to study this question has existed, because
of the delays in reestablishing industry. But a slow return to
normal conditions is already perceptible, and the time is near when
the physical effect of industrial labor upon children and youth will
be tested under new conditions.
Conferences between authorities on various aspects of scientific
study involved in child welfare would doubtless suggest other and
perhaps more important considerations.
A picture of the results of the war upon the children of central
Europe, drawn with scientific faithfulness, would be of world-wide
service.
Although political and economic understandings between the various
States have not yet reached completion, the understanding among
men of science is always complete; and a correlated study of the welfare
of children would certainly enlist the aid of those who, in every
country, are interested in this great matter and who for the last six
years have devoted themselves to the service of the young.
Whether an international office, a Government, or a private scientific
foundation should furnish the necessary initiative is perhaps
immaterial. The important consideration is that a way should be
found to organize an international study of the effects of the war
upon children by the cooperation of the best authorities in every
country.
Jul ia C. Lat hr op , Chief.
Hon. W. B. Wil son ,
Secretary of Labor.
REPORT
OF THE
COMMISSIONER OF NATURALIZATION
767
REPORT
OF THE
COMMISSIONER OF NATURALIZATION.
U. S. Depa rtme nt of Lab or ,
Bur ea u of Nat ur al iz at io n ,
Washington, July 1, 1920.
Sir : There is presented herewith a report of the operations of the
Naturalization Service for the fiscal year just ended. So far as it is
practicable to do this, the information, both on the score of brevity
and of economy, is presented in tabulated form, from the various
aspects necessary to give to the student as well as the casual reader
a complete and comprehensive view of the entire situation.
As indicated in the last annual report, there has been, naturally, a
marked effect, numerically at least, upon naturalization by the great
war. A part of this is readily traceable in the issuance of certificates
to those aliens engaged in and honorably discharged from military
service during that war. It is, of course, impossible to trace directly
to the same cause and report in a separate distinct table the hundreds—
perhaps thousands—who, as an indirect result of the same
moving cause, have sought and obtained American citizenship. Any
doubt upon this point will be removed by a comparison of the figures,
given in a table which follows, which show that 166,925 petitions were
filed by aliens in civil life during the year. This represents an increase
of 55 per cent over the number of similar papers filed last year, and an
excess of 34,605 over the corresponding figures for 1917, heretofore
the “banner” year in this respect. These figures are exclusive of the
51,972 military petitions filed and certificates issued during the year
under consideration.
Beyond doubt much of this reported increase results from the citizenship
training branch of the bureau’s work, operating through the
agency of the public schools of the States, and to some extent through
the volunteer work by some of the large employers of foreign labor,
but these activities are in turn largely the result of the war. They
also show the folly and the risk of trusting to a court order alone for
assurance that the elements of loyal citizenship are possessed by
holders of certificates of naturalization. It is a vast stride forward
when it is realized that the raw material of citizenship can no more
effectively be converted into the finished product by judicial process
than by similar means alone the like result can be attained in the conversion
of any other raw material into its final completion for effective
use.
THE WORK OF THE COURTS.
The number of naturalization courts given in the next table varies
slightly from the figures reported last year, showing a reduction of 35,
but, as will be seen further on, the amount of work accomplished
shows a large increase.
15283—la b 1920---- 49 769
770 REPORTS OF DEPARTMENT OF LABOR.
Table 1.—Courts exercising naturalization jurisdiction.
Court. 1908 1909 1910 1911 1912 1913 1914 1915 1916 1917 1918 1919 1920
State....
Federal..
Total.
2,016
228
2,177
217
2,247
227
2,270
229
2,277
250
2,238
201
2,177
203
2,175
202
2,136
209
2,100
222
2,046
219
2,088
218 2,056
215
2,244 2,394 2,474 2,499 2,527 2,439 2,380 2,377 2,345 2,322 2,265 2,306 2,271
The above table shows a gradual reduction since 1912 in the number
of State courts exercising naturalization jurisdiction, due to the fact
that where conditions warranted such jurisdiction was transferred to
the Federal courts. A slight increase is noted in 1919, as certain
State courts assumed naturalization jurisdiction for the purpose of
naturalizing soldiers under the acts of May 9, 1918, and July 19, 1919.
In Table 2 there is given, by States and Territories and the District
of Columbia, the number of judicial orders of admittance and rejection,
as well as certain general reasons for the denials. The total of
petitions disposed of was 141,297, which exceeds those reported last
year by 39,155.
The denials reported were also in excess by 2,467 over those reported
last year. As will be seen from the note appended to Table 2, some of
them were the result of conditions growing out of the war.
REPORT OF THE COMMISSIONER OF NATURALIZATION. 771
Ta b l e 2.—Certificates of naturalization, exclusive of military naturalizations, issued and denied in the various States and Territories, with reasons for
denials, fiscal year ended June 30, 1920.
, S) ^2
M g 3 03
° a
co
Total
petitions
disposed
of.
280
202
209
116
4,243
948
3,741
176
319
218
244
171
363
14,776
1,897
1,935
762
185
432
1,434
913
12,463
6,112
3,890
62
973
1,672
1,875
147
1,379
10,392
Certificates
granted.
242
192
152
92
3,689
830
3,332
150
286
162
128
170
293
12,755
1,484
1,483
545
160
393
1,332
837
11,810
5,287
3,369
52
737
1,294
1,569
90
1,286
9,197
Certificates denied, and reasons therefor.
Total.
38
10
57
24
554
118
409
26
33
56
116
1
70
2,021
413
452
217
25
39
102
76
653
825
521
10
236
378
306
57
93
1,195
Miscellaneous.
4
1
12
1
66
12
11
1
3
4
6
a315
73
6110
C75
1
2
11
1
7
113
21
2
CM • HHf© • CO M*
w ■
«■ ®® .92
CL o o
Ass
CM
2
13
5
17
3
1
3
23
4
16
3
1
3
3
25
4
19
14
46
16
43 24
o.£ ® S I-1 : : : :
3
27
2
11
4
1
2
CM 05 rH r—< COr H0 5 • • • • CO
Declaration
invalid.
05
i
13
54
1
1
13
4
4
265
81
15
4
11
1
30
2
138
14
1
7
17
10
5
252
No
certificate
of
arrival.
12
2
16
5
5 CM ’
I
©
•
CM e
©
Ignorance.
T—1
13
67
1
1
1
5
79
12
9
10
1
216
11
7
17
10
5
?
63
Insufficient
residence.
CM CM CM i© r-< * ’ rH 5
12
5
11
2
22
9
25
19
2
10
5
6
31
Incompetent
witnesses.
CM
109
133
20
28
4
1
3
3
20
306
67
138
68
3
1
17
5
30
137
17
50
86
82
19
11
229
Im -
moral
character.
T—<
6
38
4
33
1
5
1
2
103
25
8
3
4
3
1
24
52
217
8
47
4J
24
Already
a citizen.
’T
1
1
23
4
32
1
5
2
1
4
56
10
28
3
2
4
6
57
45
53
1
5
32
26
8
10
27
State or Territory.
03
<<
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Ta b l e 2 — Certificates of naturalization, exclusive of military naturalizations, issued and denied in the various States and Territories,
denials, fiscal year ended June 30, 1920—Continued.
REPORT OF THE COMMISSIONER OF NATURALIZATION. 773
Another class of petitions, neither granted or denied, were those
continued for further hearing, upon the personal fitness of the petitioner,
or for completion of his petition, and were thus carried over
into the next year for final action.
In Table 3 the number of such continuances, and the causes therefor,
are reported.
Tabl e 3.—Continuances, by naturalization districts.
District.
Ignorance
of government.
Illiteracy.
Nonappearance.
Other
causes. Total.
Boston.............................................................
New York.......................................................
Philadelphia...................................................
Washington, D. C..........................................
Pittsburgh......................................................
Chicago............................................................
St. Louis.........................................................
St. Paul...........................................................
Denver............................................................
San Francisco................ ................................
Seattle.............................................................
1,290
948
445
i 846
1,344
1,505
1,752
1,500
135
1,242
809
437
99
281
(>)
10
49
18
43
2
79
51
3,030
1,667
2,011
421
5,660
3,756
8,415
534
473
979
2,699
5,059
1,880
372
1,352
956
5,534
9,462
4,290
1,319
2,333
4,253
8,496
5,391
971
8,256
1,844
Total.....................................1..1..,.8..1.6........ 1,018 12,840 26,475 52,149
1 Includes illiteracy continuances.
Here again the figures show an increase from those reported last
year, 44,687 to 52,147. Of the last-mentioned number, attention is
called to the fact that 12,840 were continued because of ‘ ‘nonappearance”
by the petitioners at the time set for hearing. In a former report
some wonder was expressed that so many of the petitioners
were dismissed for continued nonappearance. Doubtless the same
fate will be experienced in many of the reported continuances, for
nonappearances. One of the bureau field officers has furnished the
reason, which is not because the petitioners had lost desire to become
citizens, but because of their knowledge that investigation by the
examiner had disclosed facts respecting them which they realized
the courts would consider sufficient reason for denials, and because
some of such petitions were filed by aliens who later became American
soldiers and were naturalized in the various camps.
As suggestive of the results of training for citizenship, it is of
interest to note that but 1,018 hearings were continued on the score
of ignorance, as compared with 846 in the next preceding year,
although the number of petitioners had so largely increased.
The next succeeding table shows no marked variance from the
corresponding figures reported last year, a fact attributable to various
causes, the chief of which is the marked reluctance both of the courts
and of the law officers of the Government to disturb or question an
order of admittance to citizenship. This attitude, which the bureau
believes to be detrimental to good administration, results from an '
erroneous assumption that an order of court upon a petition for
naturalization is virtually identical as to its finality with orders or
decrees in courts at law or equity between contesting parties thereto.
The least of the evils resulting from this view is the retention of
citizenship by persons not entitled thereto, either because of personal
disqualifications or because of neglect to comply with some of the
express statutory requirements upon which the gift of citizenship
774 REPORTS OF DEPARTMENT OF LABOR.
is conditioned.. The chief objection to it, from an administrative
point of view, is that it results in varying methods of applying the
law in different courts. Thus the ‘‘uniformity” of the rule of naturalization
is destroyed and the practice of the numerous courts varies
according to the unreviewed decisions, leaving both the public and
the administrative office in uncertainty as to the correct construction
of-'the law. It is obvious that good administration is comparatively
indifferent as to the result of an order granting citizenship, or the reverse,
so far as it affects the individual case, but it is indispensable
that it should be free from doubt or uncertainty as to the correct construction
of the law which it is its duty to administer and, furthermore,
that this can be attained only by resort to courts of final review
of individual cases which are in conflict with each other or in apparent
disregard of statutory provisions.
Table 4.—Cancellation cases.
District.
Pending
July 1,
1919.
Referred
to United
States
attorneys.
Handled
without
reference
to United
States
attorneys.
Certificates
canceled.
Dismissed.
Discontinued.
Violations
which
under
circular
No. 107
were not
prosecuted.
Pending.
Boston........................
New York..................
Philadelphia..............
Washington, D. C....
Pittsburgh.................
Chicago.......................
St. Louis.....................
St. Paul......................
Denver........................
San Francisco............
Seattle........................
6
10
3
40
8
19
6
29
15
12
2
19
20
25
8
11
16
19
94
6
8
12
21
18
10
5
18
18
9
5
8
5
19
3
32
8
20
6
3
10
13
11
Total................. 130 24 139 7 21 3 130
55
1
2
3
As a means of understanding the importance of the issues raised,
there are given below summaries of three opinions rendered by
United States circuit courts of appeal during the year and two
delivered by the United States district courts. The last named were
upon original hearings and the results attained were satisfactory to
the bureau, but do not control other courts. Whenever a contrary
view is announced it is incumbent upon the Government to institute
suit to cancel, and in the event of refusal by the United States district
court in which instituted to grant the motion, to appeal from
such denial to the appropriate circuit court of appeals for final
judgment. There is, in fact, no other way to settle finally and
authoritatively what the law is, as between disputed views thereon.
The three cases from the circuit court of appeals were taken from
district courts, which, in two cases, denied the Government’s motion
for cancellation and in one case granted it.
REPORT OF THE COMMISSIONER OF NATURALIZATION. 775
IN RE LOEN. 262 FED., 166.
(United States District Court, Western District of Washington, Northern Division,
December 27, 1919—No. 5943.)
Alien who surrendered declaration of intention to evade military service not
entitled to citizenship.
Though applicant, who had declared intention to become citizen, surrendered same
and made affidavit of willingness to return to Norway, his native country, in support
of military exemption claim, was inducted into military service, and before his claim
was disposed of the armistice was signed, and he was discharged, held, that despite
act June 29, 1906, section 4, as amended by act of May 9, 1918, and by act July 19,
1919, providing for admission to citizenship of any person of foreign birth who served
in the military or naval forces in the United States and had been honorably discharged,
applicant can not be admitted to citizenship; his conduct showing desire to avoid
burdens of citizenship instead of loyalty to United States. ->
Naturalization proceeding. In the matter of the application for citizenship of
Knut Sigfred Loen. Application denied with prejudice.
John Speed Smith, chief naturalization examiner, of Seattle, Wash.
Neterer, district judge.
This applicant, while serving at Camp Lewis, declined to become a citizen, although
requested to do so. In declaring his intention to become a citizen, he had under oath
declared his willingness to renounce all allegiance to foreign sovereignty. By that
oath he solemnly swore it to be his bona fide intention to transfer his citizenship and
allegiance. This implied willingness and intention to defend the flag, to support the
Constitution and laws of the United States; and, when invitation was extended, he
declined to do so, thereby repudiating his declared intention and asserted under
oath his preference for his native country. He failed to meet the test. It was not until
all danger was past, when the armistice was signed, that he made up his mind to again
knock at the door of his country and ask to be admitted to citizenship. Nothing
appears to indicate a change of sentiment or feeling of regret for his former refusal
to become a citizen. Any person unwilling to pledge his hands, his heart, his life,
to the service and preservation of the Government of the United States, first and
always, is unworthy to be admitted to citizenship.
The application is denied with prejudice, and before he can be admitted to citizenship
he will have to serve a probationary period which will justify a court to conclude
that he is in truth and in fact attached to the principles of the Constitution and the
laws of this country.
IN RE ELLIOTT. 263 FED., 143.
(District Court, Southern District of Texas.)
Aliens—68. Applicant for naturalization returning to this country in 1913 must
file certificate of arrival.
An alien coming to the United States in 1882, but thereafter living for 17 years in
Mexico, where he registered at the .British consulate as a British subject, and returning
to the United States in 1913, must file a certificate of arrival with his petition for
naturalization, as required by act June 29, 1906, section 4, subdivision 2, in the case
of aliens arriving in the United States after the passage of that act.
The filing of a certificate of arrival by one applying for naturalization under act of
June 29, 1906, is compulsory and jurisdictional.
Act of June 29, 1906, requiring the filing of a certificate of arrival by applicants for
naturalization arriving in this country subsequent to its passage, is not concerned with
arrivals which are merely incidental to passage through the country, but only with
those arrivals made the basis of a claim to citizenship.
Application by Dr. Richard Christopher Elliott for naturalization. On final hearing.
Petition dismissed.
Hutcheson, district judge.
Petitioner emigrated from Ireland in 1882, arriving in United States same year,
where he continued to reside until 1896, without taking any steps to become a citizen.
In 1896 he moved to Mexico, where he maintained a home and engaged in the practice
of medicine. About 1910 he registered at the British consulate, at Monterey, Nuevo
Leon, Mexico, as a British subject.
In 1913 he returned to the United States, filed his declaration of intention and later
his petition for naturalization without a certificate of arrival, claiming that within
the meaning of the act of June 29, 1906, he arrived in the United States in 1882.
776 REPORTS OF DEPARTMENT OF LABOR.
This contention I think both the statute and the reasons which underlie citizenship
proceedings.negative. Broadly speaking, three things are requisite for the conferring
of citizenship: (1) Declaration of intention to become a citizen, made at the proper
time and in the proper way; (2) a requisite period of continuous residence; (3) proper
accrediting. In this case Dr. Elliott satisfies ehch of these requisites by proof dating,
not from the year 1882, the period of his first arrival, but from the year 1913, the date
of his arrival from the Republic of Mexico, and this the logic of the facts compelled
him to do. Had he sought to claim his citizenship from the time of his entry in 1882
his claim of continuous residence would have been defeated by his 17 years’ absence
in Mexico, and his claim of intention to become a citizen of the United States would
have been defeated by his registering with the British consul as a British subject in
1910.
For this court to dispense with the certificate of arrival, it must hold that the petitioner
did not arrive in the United States after 1906. In the face of petitioner’s own
application and proof, this would be not only a difficult but an impossible thing to do.
The act of 1906 is not concerned with arrivals in the United States which are merely
incidental to the passage of persons into and through the country. It is only concerned
with those arrivals which are made the basis of the claim to citizenship. The petition
is dismissed without prejudice.
SCHURMANN V. UNITED STATES. 264 FED., 917.
(Circuit Court of Appeals, Ninth Circuit. May 3, 1920. No. 3422.)
1. Aliens—71|. New, vol. 7 Key-No. Series. Statute authorizes suit to cancel
naturalization cerificate issued under earlier laws.
2. Utterances of alien of German birth during war held to justify cancellation of
certificate.
Appeal from the District Court of the United States for the Territory of Hawaii;
Horace W. Vaughan, judge.
Suit by the United States against Frank H. Schurmann. From a decree canceling
a certificate of naturalization, defendant appeals. Affirmed.
Before Gilbert and Hunt, circuit judges, and Wolverton, district judge.
Hunt, circuit judge.
Complaint alleges that the certificate of citizenship was procured by fraud in that
at the time Schurmann, a native of Germany, made the oath of allegiance he falsely
and fraudulently swore that he absolutely renounced and abjured all allegiance and
fidelity to every foreign prince, potentate, state, or sovereignty whatever, and particularly
to the Imperial German Government and William II, German Emperor,
whereas Schurmann did not, at the time and place stated, absolutely and entirely
abjure and renounce all allegiance and fidelity to every foreign sovereignty, but did
then and there fraudulently reserve and keep in whole or in part his allegiance and
fidelity to the Imperial German Government and to William II, German Emperor.
Evidence was introduced to prove disloyal statements made by Schurmann and
propaganda distributed by him intended to create sentiment and to prevent the
United States from going to war with Germany. The court directed cancellation of
the certificate.
Under the circumstances of the case, the only way of arriving at what the fidelity
and allegiance of Schurmann were in December, 1904, is by trying out his attitude of
mind and heart in the later years of 1916 and 1917, when, under then existing conditions,
men were especially aroused to give uterance to their real sentiments and to
avow loyalty to one or another of the belligerent nations. It was in the crucial times
of 1917 that the respondent failed in the fundamental obligation to his oath of true
faith and allegiance in 1904.
Conclusion is that the district court was justified in canceling the certificate.
UNITED STATES V. VOGEL. 262 FED., 262.)
(Circuit Court of Appeals, Second Circuit, Dec. 10, 1919—No. 29.)
Aliens—68. Power of court to grant amendment of naturalization petition.
Where an alien in his declaration of intention, and later in his petition for naturalization,
erroneously stated the sovereignty to which he owed allegiance, which allegiance,
as required by statute, he “particularly” renounced, the court is without
power on hearing of his petition, by an order nunc pro tunc, to allow amendment of
the declaration and petition, to date back to the time of their filing.
REPORT OF THE COMMISSIONER OF NATURALIZATION. 777
Appeal from the District Court of the United States for the Southern District of
New York.
Petition by Albert'Vogel for naturalization. From an order granting naturalization
and dismissing its petition for cancellation of certificate, the United States appeals.
Reversed.
Francis G. Caffey, United States attorney, of New York City (Julian Hartridge, of
New York City, of counsel), for the United States.
Frank Case Hayden, of New York City, for appellee.
Before Rogers, Hough, and Manton, circuit judges.
Manton, circuit judge.
Appellee was born in Benningen, Germany. His declaration of intention and
petition for naturalization both recited that he was born in Benningen, Germany, and
in them he made the usual oath renouncing allegiance to any foreign sovereign, particularly
the Emperor of Germany. When he appeared in open court to complete
his naturalization, appellee testified that he was a French citizen. An order was
granted nunc pro tunc striking out the words “William II, Emperor of Germany,”
and substituting the words “French Republic,” and a decree was entered admitting
appellee to citizenship. ,
The naturalization act provides that an alien shall renounce “particularly by name
to the prince, potentate, state, or sovereignty of which he was before a citizen or
subject” at the appropriate time in each instrument. It is not within the power of
courts, in our opinion, to vary this rule and permit the applicant at a later time to
recognize his mistake and ask to change it, for to do so would be permitting the applicant
to declare his intention of renunciation at a time other than when making his
application.
It was the intent of Congress to have such renunciation of the particular foreign
sovereignty made contemporaneously with the execution and filing of each of the
necessary instruments, and the court is without power later to permit a change to
date back by granting an order nunc pro tunc. For the court to do so, we think is
reading into the statute a permission which is tantamount to a trespass upon the executive
domain; nor can the court say which steps must be complied with and which may
be omitted in compliance, and which may be corrected if error creeps in. To permit
such power in the court would frustrate the whole act; it would place the power of
the court above the terms of the act. We think the court below was without the
power to grant the order nunc pro tunc, and erred in admitting the appellee to citizenship.
UNITED STATES V. KRAMER. 262 FED., 395.
(Circuit Court of Appeals, Fifth Circuit, Dec. 23, 1919—-No. 3453.)
Aliens—71|. New, vol. 7 Key-No. Series. Sufficiency of evidence of fraudulent
naturalization.
That a naturalization certificate was obtained fraudulently and not in good faith
may be established by subsequent acts and statements of the naturalized citizen,
showing his disloyalty and continued adherence to his foreign sovereign.
Appeal from the District Court of the United States for the Western District of
Texas; Duval West, judge.
Suit by the United States against Herman Kramer for cancellation of naturalization
certificate, because of seditious and disloyal statements subsequently made, evidencing
the fact that the representations he made under oath at the time of his admission to
citizenship were not in good faith; that he declared under oath that he would obey
the Constitution and laws of the United States and bear true faith and allegiance to
same; that he then and there renounced forever all allegiance to any foreign sovereign,
particularly the Emperor of Germany, but falsely declared that he did so for the
purpose of obtaining the rights, privileges, and protection of American citizenship,
without assuming or intending to assume any of the duties. The bill was dismissed,
the court holding that the evidence was wholly insufficient in equity to sustain a
decree because the disloyal statements were made long after defendant’s citizenship
was granted.
Foster, district judge.
The statute, under the provisions of which defendant was admitted to citizenship,
provides that if a naturalized citizen returns to the country of his nativity, or goes
to any other foreign country, and takes permanent residence therein, within five
years after his certificate of citizenship is issued to him, it shall be prima facie
evidence of lack of intention to become a permanent citizen at the time of filing his
application for citizenship, in the absence of countervailing evidence. Congress
thereby clearly indicated that subsequent acts of a naturalized citizen would be
778 REPORTS OF DEPARTMENT OF LABOR.
sufficient.evidence of his fraudulent intention at the time of his admission. If mere
removal is sufficient evidence of fraud, why not subsequent acts of disloyalty, or
statements indicating his want of allegiance? A conspiracy to defraud is usually
proven by showing what the defendants did after the date upon which the conspiracy
is alleged to have been formed, and the jury may consider such evidence in opposition
to the testimony of defendant on the question of intention, and render a verdict of
guilty upon it. The proof makes out a prima facie case of the disloyalty of defendant
and shows his continuing allegiance to the German Emperor.
American citizenship is a priceless possession, and one who seeks it by naturalization
must do so in entire good faith, without any mental reservation whatever, and
with the complete intention of yielding his absolute loyalty and allegiance to the
country of his adoption. If he does not, he is guilty of fraud in obtaining his certificate
of citizenship.
Reversed and remanded.
There is next presented a tabulated statement of the number of
prosecutions under the penal provisions of the law, which speaks for
itself. These provisions have “ teeth” in them, but it is left to individual
opinion to decide whether the “ teeth” are to be resorted to as
often as they should be invoked, or whether the naturalization law is
tolbe conspicuously free from those violations of law, such as perjury,
for example.
Table 5.-—Results of prosecutions for violations of the naturalization laws.
District.
Prosecutions.
Pending
from
last
year.
During
fiscal
year.
Nolprossed.
Acquittals.
Number
of
fines.
Jail
sentences.
Both
fines
and
jail
sentences.
Sentences
suspended.
Amount
of fines
including
costs.
Pending.
Boston...................
New York.............
Philadelphia.........
Washington, D. C.
Pittsburgh............
Chicago..................
St. Louis................
St. Paul.................
Denver..................
San Francisco.......
Seattle...................
Total...........
$300.00
"ii’is
314.15 30
1 United States district court, Pensacola, Fla., $300 and 30 days in jail.
2 United States district court, northern district of Illinois, Chicago, fine $10, costs $4.15.
In addition to the certificates of naturalization granted to petitioners
from civil life and shown in Table 6, following, there were
also granted similar papers to aliens in the United States military
service, in 1918, 63,993; in 1919, 128,335; and during the year just
closed, 51,972, and the total of military certificates ordered was
244,300. These with the number granted to aliens in civil life since
the service was organized total 1,256,860.
REPORT OF THE COMMISSIONER OF NATURALIZATION. 779
Table 6.—Statement showing number of certificates of naturalization granted and denied
fiscal years 1908 to 1920.
1908 1909 1910 1911 1912 1913
Granted..........................................................
Denied............... ............................................
25,963
3,330
38,372
6,341
39,206
7,781
56,257
9,017
69,965
9,635
82,017
10,891
Total..................................................... 29,293 44,713 46,987 65,274 79,600 92,908
1914 1915 1916 1917 1918 1919 1920
Granted........................................
Denied.........................................
Total...................................
105,439
13,133
96,390
13,691
93,911
11,927
94,897
9,544
87,456
12,182
89,023
13,119
125,711
15,586
118,572 110,081 105,838 104,441 99,638 102,142 141,297
WORK OF THE CLERKS OF COURTS.
While Tables 7 and 8 include papers filed by aliens in civil life
only, they represent the actual work of the clerks of naturalization
courts in this respect, for those in the military service were exempted
from the requirement to file declarations of intention, and the petitions
were frequently prepared by volunteer clerks detailed from the
soldiers at the various Army camps, under the supervision of examiners
of the Naturalization Service. In fact this work could have
been done in no other way, as the number of clerks of courts was
insufficient to even discharge promptly the civilian work, and, moreover,
the law exempted the military petitioners from payment of any
fees.
780 REPORTS OF DEPARTMENT OF LABOR.
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784 REPORTS OF DEPARTMENT OF LABOR
REPORT OF THE COMMISSIONER OF NATURALIZATION. 785
It is noticeable that the number of declarations of intention filed
during the year shows a marked decrease from the total filed last
year, or 300,106, compared with the 346,827 filed last year. This is
largely due to the insufficiency of the clerical force in the offices of
clerks of courts to dispose of the business presented, a condition that
was emphasized by the increased number of petitions filed, which was
166,925, or 59,366 more than reported last year. So serious were the
complaints of expensive and fruitless visits to the clerks’ offices by
candidates for naturalization as to induce an investigation of the
cause of the delays in the courts in New York City by a subcommittee
of the House Committee on Immigration and Naturalization. As the
trouble is the result, almost exclusively, of insufficient appropriations,
specific relief might have been anticipated if the inquiry had been
conducted by the committee which alone can furnish funds to defray
the cost of administration.
The third section of Table 7 varies from the corresponding one in
the last annual report. It does not include, but presents in a separate
table, the number of certificates of naturalization issued to aliens
in the military service. The number shown is 125,711, as compared
with a total of 89,023 certificates of naturalization issued to aliens
in civil life during the next preceding year, an increase of 36,688.
Here again is presented evidence that explains the reason for delays
in the offices of the clerks of court to serve applicants promptly.
There is presented in the next table a statement of the number
of aliens in our military service admitted to citizenship during each
one of the three years last past, reaching a total of nearly a quarter
of a million, or, to be exact, 244,300.
Table 8.—Soldiers naturalized, by States and Territories, under the seventh subdivision
act May 9, 1918, fiscal years ended June 30, 1918, 1919, and 1920.
1918
State or Territory. In
Federal
courts.
In
State
courts.
Total.
Alabama................................. 1,581 1,581
Alaska..................................
Arizona...................... . ............. 467
134
940
18
289
1,056
2,711
756
1,190
3,651
18
Arkansas................................
California...................................
Colorado...................................
Connecticut.............................
Delaware.............................. 161 161
954
419
3,117
District of Columbia................ 954
Florida..................................... 326 93
Georgia...................................... 3,117
Hawaii....................................
Idaho...................
Illinois............................... 365
450
90
2,119 2,484
450
1,223
1,877
338
302
Indiana...................
Iowa..................... 1,133
Kansas.............................. 1,877
Kentucky.................................. 338
Louisiana.......................... 143 159
Maine.............. .H.. .
Maryland................................. 1,298
15,085
29
584
173 1,471
‘5,085
3,350
584
362
190
Massachusetts...........................
Michigan............. 3,321
Minnesota.................
Mississippi............................ 362
Missouri?... 190
Montana.........
15283—l ab 1020 '"~50
1919 1920
Grand
In total.
Federal
courts.
In
State
courts.
Total.
In
Federal
courts.
In
State
courts.
Total.
2,011 508 2,519 46 46 4,146
253
161
253 253
161 10 93 103 1,020
14 1,492 1,506 42 166 208 2,904
858 5,894 6,752 1,252 524 1,776 12,179
95 19 114 101 42 143 275
22 191 213 418 1,057 1,475 1,688
45 45 32 32 238
1,458
3,048 3,048 1,371 1,371 5,373
109 1,567 94 3 97 2,083
6,334 2,048 8,382 233 233 11,732
738 738 738
31 48 79 79
4,603 400 5,003 1,113 2,348 3,461 10,948
164 130 294 1 316 317 1,061
39 3,274 3,313 17 56 73 4,609
2,729 2,729 64 64 4,670
1,836
829
1,836 222 3 225 2,399
142 971
106 157
312 1,273 2 314 263 577
3,652 3,652 1 727 728 5,851
9,595 138 9,733 3,089 1,431 4,520 19,338
65 4,209 4,274 206 1,423 1,629 9,253
77 329 406 73 1,630 1,703 2,693
707 707 3 1 1,073
541 6 547 170 4 174 911
49 49 598 598 647
1 Approximate
786 REPORTS OF DEPARTMENT OF LABOR.
Table 8.—Soldiers naturalized, by States and Territories, under the seventh subdivision
act May 9, 1918, fiscal years ended June 30, 1918, 1919, and 1920—Continued.
State or Territory.
1918 1919 1920
Grand
total.
In
Federal
courts.
Tn
State
courts.
Total.
In-
Federal
courts.
In
State
courts.
Total.
In
Federal
courts.
In
State
courts.
Total.
Nebraska................................................
Nevada....................................................
752 .........7...5..2. 34 14
1
48
J 3
60
105
60
108
860
109
New Hampshire...............................
2,688
167 167 17 273 290 457
New Jersey...................................... 2,896 5,584 10,223 6,539 16,762 1,168 3,714 4,882 27,228
New Mexico.........................................
499
1,057 1,057 723 723 2 20 22 1,802
New York............................................. 4,511 5,010 1,238 16,241 17,479 1,726 11,391 13,117 35,606
North Carolina................................... 553 553 185 912 1,097 25 29 54 1,704
North Dakota.....................................
2,106
19 19 379 379 398
Ohio.......................................................... 1 2,107 2,213 129 2,342 869 904 1,773 6,222
Oklahoma.............................................. 1,027 1,027 841 841 10 10 1,878
Oregon..................................................... 229 84 313 475 487 962 189 84 273 1,548
Pennsylvania...................................... 246 271 517 747 124 871 5,372 2,474 7,848 9,236
Porto Rico............................................ 28 28 26 26 54
Rhode Island...................................... 684 684 58 388 446 428 109 537 L667
South Carolina................................... 819 3,471 4,290 3,328 1,146 4,474 29 62 91 8,855
South Dakota..................................... 2 2 2 214 216 218
Tennessee............................................... 25 25 2,082
120
2,082 29 29 2,136
Texas........................................................ 4,449 4,449 6,976 7,096 592 92 684 12,229
Utah.......................................................... 88 88 68 17 85 13 28 41 214
Vermont................................................. 457 457 32 32 85 6 91 580
Virginia................................................... 2,344 1,771 4,115 1,506 7,448 8,954 86 164 250 13,319
Washington.......................................... 2,920 260 3,180 3,655 692 4,347 547 177 724 8,251
West Virginia..................................... 52
169
52 3 2 5 136 150 286 343
Wisconsin.............................................. 169
139
206 206 162 620 782 1,157
Wyoming............................................... 1 1 1 140 55 32 87 228
Total............................................ 32,990 31,003 63,993 62,192 66,143 128,335 18,775 33,197 51,972 244,300
For the purpose of comparison there is shown in the next table
the number of naturalization papers filed in and issued out of the
courts during each fiscal year since the service was established 13
years ago.
Table 9.—Number of declarations of intention and civilian petitions for naturalization
filed and civilian certificates of naturalization issued, fiscal years 1907 to 1920,
with percentages of increase or decrease.
Fiscal
year.
Declarations. Civilian petitions. Civilian certificates.
Papers
filed.
Increase over
previous year.
Papers
filed.
Increase over
previous year.
Papers
issued.
Increase over
previous year.
Number. Per cent. Number. Per cent. Number. Per cent
19071.......... 73,723
137,229
145,794
167,226
186,157
169,142
181,632
214,016
245,815
207,935
438,748
335,069
346,827
300,106
21,094
44,029
43,161
55,038
73,644
95,627
95,186
123,855
106,317
108,009
132,320
110,416
107,559
166,925
7,953
25,963
38,372
39,206
56,257
69,965
82,017
105,439
96,390
93,911
94,897
87,456
89,023
125,711
1908 2..
1909............. 8,565
21,432
18,931
317,015
12,490
32,384
31,799
3 37,880
230,813
3103,679
11,758
3 46,721
6
15
11
39
7
18
16
3 16
111
3 24
4
3 13
3 868
11,877
18,606
21,983
3 441
28,669
17,538
1,692
24,311
321,904
32,857
59,366
32.0
28.0
34.0
30.0
3 .5
30.0
314.0
2.0
22.0
3 17.0
3 3.0
55.0
12,409
834
17,051
13,708
12,052
23,422
39,049
3 2,479
986
’7,441
1,567
36,688
48
2
43
24
17
29
»9
$1
3 82
41
1910.............
1911.............
1912.............
1913.............
1914.............
1915.............
1916.............
1917.............
1918.............
1919.............
1920.............
Total
Increase,
1920 over
1908.....
3,149,419 1,283,180 1,012,560
162,877 119 122,896 279.0 99,748 384
1 Nine months only. 2 First full year of 12 months. • Decrease.
REPORT OF THE COMMISSIONER OF NATURALIZATION. 787
Tabl e 9a.—Statement showing both civilian and military naturalization papers filed
during fiscal years 1918, 1919, and 1920.
Fiscal year.
Petitions. Certificates.
Civilian. Military. Total. Civilian. Military. Total.
1918................................................................. 110 416 63 993 174 409 87 456 63 993 151 449
1919................................................................. 107,559 128'335 235 894 so' 023 128* 335 217 358
1920................................................................. 166’925 51,972 218,897 125’711 51’972 177’683
Total..................................................... 384,900 244,300 629,200 302,190 244,300 546,490
If due weight is given the figures reported, which show unmistakably
that the clerks’ offices are burdened beyond their capacity,
the reduction in the number which are habitually delinquent in rendering
reports of their operations will appear especially encouraging.
In Table 10 but 260 are reported as habitually delinquent during the
year just ended, out of a total of 2,271; while the figures for the
previous year were 320 delinquents out of a total of 2,306 clerks’
offices.
Tabl e 10.—Number of courts, by States and Territories, exercising naturalization jurisdiction
and the number which are habitually delinquent in accounting for naturalization
business transacted.
State or Territory.
Alabama.............................
Alaska.................................
Arizona...............................
Arkansas.............................
California............................
Colorado..............................
Connecticut........................
Delaware............................
District of Columbia.........
Florida................................
Georgia................................
Hawaii.................................
Idaho...................................
Illinois.................................
Indiana...............................
Iowa....................................
Kansas................................
Kentucky................. ..........
Louisiana............................
Maine...................................
Maryland............................
Massachusetts.....................
Michigan.............................
Minnesota...........................
Mississippi..........................
Missouri..............................
Montana........................ .
Exercising
jurisdiction.
9
10
14
39
60
63
12
4
1
23
18
8
46
116
96
107
106
28
28
16
21
18
90
95
20
107
53
Habitually
delinquent.
1
15
2
4
1
76
6
16
5367
9
2
6
2
5
21
1
State or Territory.
Nebraska............................
Nevada.......................... .
New Hampshire................
New Jersey.........................
New Mexico........................
New York...........................
North Carolina...................
North Dakota.....................
Ohio...................... .............
Oklahoma...........................
Oregon.................................
Pennsylvania.....................
Porto Rico..........................
Rhode Island.....................
South Carolina...................
South Dakota.....................
Tennessee............................
Texas...................................
Utah....................................
Vermont..............................
Virginia...............................
Washington........................
West Virginia.....................
Wisconsin............................
Wyoming................ . ..........
Total..........................
Exercising
jurisdiction.
94
18
12
23
27
76
26
56
89
72
37
67
25
10
65
20
114
30
12
29
43
42
73
21
2,271
Habitually
delinquent.
10
2
25923
25
4
12
8
29
7
1
13
1812
260
Such delinquencies are both expensive and embarrassing. It
necessitates the writing of many additional letters by the bureau, and
makes every numerical statement issued by the bureau, including
its annual report, subject to amendment as the delayed reports
trickle in from the procrastinating offices. This, however, is a minor
evil as compared with the actual failure to function in caring for the
wants, often pressing to a degree, of aliens striving to become citizens,
on the part of the clerks’ offices. That it is not the fault of the latter
788 REPORTS OF DEPARTMENT OF LABOR.
in nowise mitigates the evil or satisfies the disappointed applicant
whose chances of comprehending and becoming attached to American
institutions are obviously decreased by the conditions he encounters.
He has his witnesses, he offers their and his testimony and the prescribed
fees, after having waited in dire physical discomfort through
hours which meant much additional and unnecessary expense to him
for a chance to make his request, but is told, unavoidably, that the
office is doing all it can and he must, therefore, come another day.
'Such experiences oft repeated cools the ardor of the aliens, if it does
not arouse their wrath, and makes the once coveted status of American
citizenship a thing to be despised and rejected. They can not understand
that this procedure is not a malicious time-wasting device,
unless it be a covert suggestion to “oil the machine” resorted to by
adminsitrative officers for personal emolument. That those officers
are overtaxing their time and endurance to avoid such delays is
nothing to them; their sense of wrong is everything. To explain
that the delay is due to the economy of Congress in providing funds
to adequately dispose of the work does not right their sense of wrong
or bring them one step nearer to their objective, even if it were possible
for them to comprehend the distinction between the supply and
the executive branches of our Government. With them, in their
simplicity, it seems that no question of economy in public expenditures
can be involved, as they have in hand and actually tender the
fees prescribed by law. They are not so simple, however, that they
can not comprehend their financial loss caused by such delays. They
would gladly pay double the fees charged if they could get the service.
In point of fact, they do often pay such extra fees—to hangers-on
in the clerks’ offices who profess to have the knowledge of ways to
get them a hearing in advance of earlier comers, for a paltry consideration,
say, $25.
This condition is not fanciful, but is actual, as essential and integral
a part of this report, as any table of figures presented herein. It is
not the part of an official report to characterize the causes which
result in such conditions as those set forth herein. Its functions are
limited to reporting facts in connection with its administrative work
and asking for funds to enable it to discharge its duties properly and
efficiently.
It will be sufficient to quote, in this connection, a statement by the
chief examiner of the New York district that, in consequence of the
lack of an adequate clerical force, the conditions had become almost
as deplorable as before the Government assumed the control of
naturalization.'
WORK OF EXAMINERS.
While the failure to discharge fully and promptly the functions
imposed upon them in the field work does not produce such conspicuous
ill effects as have been shown to follow insufficient force in the
offices of the clerks of courts, the results of lack of sufficient personnel
in the force of examiners are no less detrimental to a proper enforcement
of the law. Much of the work has to be done by correspondence,
which increases greatly the office work of each district headquarters,
and letters fail to accomplish in many cases what might
readily be done by personal attendance upon court hearings, and
adjustments of accounts, etc., in the clerks’ offices.
REPORT OF THE COMMISSIONER OF NATURALIZATION. 789
This branch of the service has not only been restricted by insufficient
appropriations to enlarge the personnel adequately, but it has been
subjected to heavy losses by the resignation of a number of its trained
officers who have left the service to accept positions which pay better
salaries and impose less arduous labor.
The restricted compensation, which the bureau has been unable
with the funds supplied for its use to increase measurably with the
present cost of living, is in the case of field officers, who are constantly
traveling, actually decreased by the arbitrary limitation of $4 per
diem on the amount that may be allowed them for board and lodging
when absent from their stations on official business.
It needs no argument to sustain the opinion that the losses to the
service from this cause can not in years be made good, and, when
training at the expense of the Government and good service has
brought the new men up to the standard of efficient officers, business
enterprise stands ready again to take them at higher rates of compensation.
In view of this situation the bureau believes that the present
expenditures are grossly extravagant, because they fail to pay for
indispensable service to accomplish the purpose for which appropriations
are asked. As intimated in the last report, it would be reasonable,
if inadequate appropriations constitute true economy, to reduce
them to a cipher than to grant what is insufficient to pay for what is
needed.
In Table 11 figures are presented to show the work performed by
the examiners in the field during the year just ended.
Table 11.—Recapitulation of naturalization field work, exclusive of Hawaii and Alaska,
during the fiscal year ended June 30, 1920.
Naturalization district.
Examinations. Investigations.
Petitions.
Declarations.
Petitioners. Witnesses.
In person.
By correspondence.
679
1,500
16
3,422
3,740
6,872
1,534
2,144
3,685
Total. In person.
By correspondence.
Total.
Boston......................................
New York................................
Philadelphia...........................
Washington, D. C...................
Pittsburgh...............................
Chicago....................................
St. Louis..................................
St. Paul..............................
Denver.....................................
San Francisco..........................
Seattle......................................
Total..............................
30,258
38,790
13,088
5,583
18,150
i 30,000
10,075
11,653
3,420
7,394
6,021
34,468
37,323
12,029
10,000
13,050
130,000
13,830
12,366
3,614
7,299
4,687
24,827
54,354
23,746
4,383
18,040
28,226
5,292
2 12,808
1,187
5,508
3,555
25,506
54,354
23,746
• 5,883
18,056
31,648
9,032
19,680
2,721
7,652
7,240
11,044
109,215
45,484
7,766
35,900
55,914
9,504
26,873
1,655
11,444
6,636
3,000
32
6,583
8,560
13,764
3,162
4,350
7,327
11,044
109,215
45,484
10,766
35,932
62,497
18,064
40,637
4,817
15,794
13,963
174,432 178,666 181,926 23,592 205,518 321,435 46,778 368,213
1 Estimated. J Includes military petitioners interviewed.
790 REPORTS OF DEPARTMENT OF LABOR.
Tabl e 11.—Recapitulation of naturalization field work, exclusive of Hawaii and Alaska,
during the fiscal year ended June 30, 1920—Continued.
Naturalization district.
Court hearings. Admissions.
Visits
to
offices
of
clerks
of
courts.
Attended.
Unattended.
Total
number
of
hearings.
Without
objection.
Over
objection.
In Total.
person.
By
correspondence.
Total.
Boston............................................. 341 42 383 383 21,425 21,425 1,025 New York........................................ 1,184 3 1,187 1,187 30,299 26 30,325 3,401
Philadelphia.................................... 371 371 371 15,819 33 15,853 983 Washington, D. C.......................... 288 171 459 459 3,505 20 3,525 691
Pittsburgh....................................... 828 10 838 736 11,898 13 11,911 1,550
Chicago............................................. 1,036 176 1,212 10 1,222 20,595 43 20,638 1,876
St. Louis.......................................... 571 438 1,009 5 1,014 5,130 65 5,195 1,986
St. Paul........................................... 696 64 760 1 761 6,694 18 6,712 1,315
Denver............................................. 204 107 311 311 1,915 5 1,920 326
San Francisco................................. 653 35 688 2 690 3,924 7 3,931 952
Seattle.............................................. 336 275 611 5 616 3,878 27 3,905 480
Total...................................... 6,508 1,321 7,829 23 7,750 125,082 257 125,339 14,585
The assumption that hostilities having ceased, the bureau might
withdraw, its activities, and therefore its expenditures, within the
limits of its prewar figures, is shown by the next table, as in many
other ways, to be fallacious.
Table 12.—Statement showing work incident to naturalization of alien soldiers in Army
posts and camps, fiscal year ended June 30, 1920.
Naturalization district.
Army
posts and
camps.
Hearings
in Army
camps.
Number of
cases refusing
or
repudiating
citizenship
(approximate).
Boston........................................................................................................
New York..................................................................................................
Philadelphia..............................................................................................
Washington, D. C.....................................................................................
Pittsburgh.................................................................................................
Chicago.......................................................................................................
St. Louis....................................................................................................
St. Paul.................................................... :...............................................
Denver.......................................................................................................
San Francisco....................................................... ....................................
Seattle............................... .........................................................................
4
156
2
12
6
“4
49
1 264
7
’’’io'
■"’6
204
184 336 204
1 Hearings were all held in courthouses.
The next succeeding table reports the handling of new certificates
of naturalization granted to soldiers which were not delivered to
them at the time of or shortly subsequent to their admission to
citizenship, because it was felt that they might fall into the hands of
the enemy and be readily used to the disadvantage of this country.
REPORT OF THE COMMISSIONER OF NATURALIZATION. 791
Table 13.—Number of requests received, by naturalization districts, for return to owners
of soldier naturalization certificates.
District. Received
directly.
Received
from
bureau.
By reference
from
other
sources.
Total.
Boston................................................................................... 1 2,000
9,397
5,588
4,338
4,700
6,821
10,077
2,125
650
1,943
1,225
New York............................................................................ 1,740
1,623
2,500
1,500
1,720
2,937
950
275
290
300
7,452
3,252
850
2,000
3,043
6,561
800
220
1,555
800
205
713
988
1,200
2,058
579
375
155
98
125
Philadelphia........................................................................
Washington, D. C................................................................
Pittsburgh2..........................................................................
Chicago.................................................................................
St. Louis...............................................................................
St. Paul................................................................................
Denver..................................................................................
San Francisco......................................................................
Seattle..................................................................................
Total.................................................1.3..,.8..3..5.............2..6..,.533 6,496 48,864
Estimated; no report as to sources. 2 Approximate.
A casual examination of the foregoing tables will show that the
chief examiners were compelled to maintain a clerical staff at their
respective headquarters to handle a very considerable mail and the
resultant files.
Tabl e 14.—Statement showing incoming and outgoing mail handled by field officers
during fiscal year 1920, arranged by districts.
District.
Incoming. Outgoing.
Unregistered.
Registered.
Total. Original
letters.
Form
letters.
Card
notices. Total.
Boston..........................................
New York.....................................
Philadelphia................................
Washington, D. C.......................
Pittsburgh...................................
Chicago.........................................
St. Louis......................................
St. Paul........................................
Denver.........................................
San Francisco..............................
Seattle...........................................
Total...................................
12,724
102,561
36,806
34,965
38,053
82,527
71,382
27,160
16,604
17,808
28,673
349
650
845
262
2,389
921
819
950
304
343
405
13,073
103,211
37,651
35,227
40,442
83,448
72,201
28,110
16,908
18,151
29,078
15,665
45,960
34,431
18,157
25,442
32,226
26,520
14,298
9,321
11,148
10,905
11,982
37,168
6,039
6,861
13,604
40,454
74,193
35,259
15,351
11,458
14,146
20,176
22,517
19, 740
9,668
10,564
12,780
6,398
4,000
410
3,614
1,933
47,823
105,645
60,210
34,686
49,610
85,460
107,111
53,557
25,082
26,220
26,984
469,263 8,237 477,500 244,073 266,515 111,800 622,388
How impossible it would be for these examiners to withdraw
within the limits of their antebellum activities will appear from the
subjoined statement of letters received by them, in the aggregate,
and letters sent out during each of the past three fiscal years.
Tabl e 14a.—Recapitulation showing mail handled by the field service for the fiscal years
1918, 1919, and 1920.
1918 1919 1920
Incoming mail........................................................................................... 210,170 316,450 477,500
Outgoing mail........................................................................................... 273,302 519,761 622,388
Total................................................................................................ 483,472 836,211 1,099,888
792 REPORTS OF DEPARTMENT OF LABOR.
Hostilities ceased in November, 1918—in the first half of the fiscal
year 1919—but the volume of mail in that year was 836,211, as compared
with the 1,099,888 of the year just completed.
WORK IN THE BUREAU.
From what has already been stated, the work in the bureau has
been largely increased, not only as a result of the growth of its citizenship
training activities but because of countless new duties connected
with the disposal of the aftermath of the war. There has
been much correspondence with the War Department and others
with reference to claims of soldiers claiming to have been honorably
discharged from the service and therefore entitled to the benefit
of the special exemptions allowed to such alien soldiers by special
naturalization acts, with many other questions connected with the
status of aliens formerly in the military service. As showing the
work with the public and the field service, both outside of the bureau,
the annexed tabulated statement of pieces of mail received by and
going out of the bureau will give the best idea as to mere bulk.
Tabl e 15.—Statement showing volume of mail handled by the Bureau of Naturalization,,
fiscal years 1918, 1919, and 1920.
1918 1919
1920
First
quarter.
Second
quarter.
Third
quarter.
Fourth
quarter. Total.
Incoming mail:
Unregistered pieces......
Registered pieces.................
Total.......................a ...........
Average per working day.
Outgoing mail:
Letters............................
Form letters..........................
Petition notices....................
Total..................................
Average per working day:
Letters............................
Form letters..........................
Petition notices....................
Total..................................
154,310
19,693
309,363
29,344
77,989
8,551
80,999
7,941
108,088
9,270
112,719
7,950
379,795-
33,712
174,003
590
338,707
1,142
86,540
1,202
88,940
1,170
117,358
1,544
120,669
1,567
413,507
1,374
34,868
324,484
11,251
46,876
687,102
13,456
13,144
73,875
1,879
12,702
157,817
2,368
10,654
151,737
2,602
10,369
188,859
1,967
46,869
572,288
8,816
370,603 747,434 88,898 172,887 164,993 201,195 627,973
118
1,099
38
158
2,317
45
183
1,026
26
167
2,077
31
140
1,997
34
135
2,453
26
156
1,901
29
1,255 2,520 1,235 2,275 2,171 2,614 2,086
The decrease in the average daily output is the result of the diminution
in the office force, by the discharges necessitated at the beginning
of the year on account of reduced appropriations.
The nature of a portion of this very considerable correspondence
is indicated by the figures in the next succeeding tables, but notice
must be taken of the fact that they do not include the corrrespondence
resulting from the frequent insufficiency of the data sent with
such requests.
REPORT OF THE COMMISSIONER OF NATURALIZATION. 793
Table 16.—Statement showing number of requests for dates of arrival and names of vessels,
and number of requests for certified copies of naturalization papers under rule 17 of the
Naturalization Regulations, listed by months, for the fiscal year 1920.
Month.
Requests for date of arrival and
name of vessel.
Requests for certified copies of lost
or destroyed papers.
For filing
petition.
For filing
declaration.
Total.
Certificates
of naturalization.
Declarations
of
intention.
Total.
julv............................................ 8,868 525 9,393 527 795 1,322
August....................................... 8,426 231 8' 657 511 643 1,154
September................................. 9,441 234 9^675 454 686 1,140
October...................................... 9i 550 178 9'728 543 740 1,283
November................................. 13,585 218 13,803 678 1,064 1,742
December.................................. 12,889 355 13' 244 450 841 1,291
January...................................... 11,957 475 12' 432 904 731 1,635
February................................... nJ 656 6 11'662 607 1,048 1,655
March......................................... 13,535 30 13', 565 757 '898 1,655
April.......................................... 11'262 64 Hi 326 638 950 1,588
Mav............................................ 9,146 252 9; 398 562 969 1', 531
June........................................... 10', 214 201 10; 415 552 957 1,509
Total.........................1..3..0..,.529 2,769 133,298 7,183 10,322 17,505
1919............................................. 76,401 49 76,450 2,820 8,582 11,402
1920............................................. 130,529 2,769 133,298 7; 183 10,322 17; 505
Increase, 1920........................... 54,128 1 2,720 56,848 4,363 1,740 6,108
i These figures represent requests on Form 106 for names of vessels for the purpose of filing declarations
of intention. Heretofore the majority of such cases have been counted in the first column, which accounts
partly for this great increase.
No feature of the bureau’s work has subjected it to so much complaint
as the delay, sometimes extending over several months, in
securing certificates of arrival, although its invariable practice has
been to forward promptly requests for them when accompanied by
sufficent data for identification, to the commissioners of immigration
at the ports of entry. As the original records are contained in compilation
of hundreds of thousands of names, made up years ago, the
time and care involved in securing verification as claimed, and the
reduced forces at the immigration stations available for this work,
occasioned invariable delays. This, however, would be a matter of
small importance but for the habit of waiting until the eleventh hour
to ask for evidence which might have been requested long before, and
thus save the risk of a declaration of intention becoming void for
lapse of time.
In any event, however, it is a matter over which the bureau has no
control and for which it therefore can not be held accountable. Notwithstanding
this fact, so much in arrears was this class of work at
the New York immigration station that near the close of the year the
bureau detailed some of its clerical force, though its own work was in
arrears, for temporary service in helping to clear up such arrearages
at that station.
It is in connection with this feature of the work that a large correspondence
has grown up with the Members of both Houses of Congress,
where aid has been invoked to expedite particular cases by
taking them out of their regular chronological order.
Besides the work represented in the two foregoing tables, which
refers to communications between the central office and outside
interests, there is a large bulk of work within the bureau itself, in
maintaining its organization, in the settlement of accounts, in the
filing of the vast number of official papers and letters, in requisitions
794 REPORTS OF DEPARTMENT OF LABOR.
for supplies for the office, the field force, and the offices of more than
2,000 clerks of courts, and many other details of operations of a central
administrative office.
The figures in the next table show the number of fee accounts
audited and settled during the year, some of which were of transactions
as long ago as the fiscal year 1917, from which may be inferred
the efforts exerted upon tardy clerks of courts which the bureau finds
it necessary to make, in some cases many times, before it can secure
remittances.
Table 17.—Number of fee accounts handled during the fiscal year 1920, classified by fiscal
years to which they relate.
1917 1918 1919 1920 Total.
Transactions..................................................................... 19
11
188
91
2,588
870
4,795
1,322
7,590
No transactions................................................................ 2,294
Total..............3..0...............2.7..9...........3..,.4..5..8...........6..,.1..1..7. 9,884
Besides these fee accounts, as is shown by the next table there were
3,903 miscellaneous administrative accounts disposed of and charged to
the specific appropriations from which they were respectively payable.
Table 18.—Number of accounts handled during the fiscal year 1920for which the expenditures
were chargeable against the appropriations named.
Item Appropriation to which, chargeable. Number of
accounts.
Office salary pay rolls...............................
Do.........................................................
Field salary pay rolls................................
Suspensions.................................................
Telephone...................................................
Rent.............................................................
Additional assistants to clerks of courts -
Telegraph....................................................
Railroad company vouchers...................
Contingent and miscellaneous items.......
Printing......................................................
Field travel vouchers................................
Salaries, Bureau of Naturalization............................
Miscellaneous expenses, Bureau of Naturalization.
.......do............................................................................
Miscellaneous expenses, Bureau of Naturalization.
.......do............................................................................
.......do............................................................................
.......do............................................................................
.......do........................................................................ .
.......do............................................................................
Naturalization fees for publishing citizenship textbooks.
Miscellaneous expenses, Bureau of Naturalization.
Total
65
90
330
221
184
18
133
25
1,418
173
20
1,226
3,903
A comparative statement of the number of requisitions for supplies
of various kinds for each of the next three years is givenin the next table.
Table 19.—Statement showing requisitions handled in bureau during fiscal years 1918,
1919, and 1920.
1918 1919 1920
Requisitions for stationery supplies and envelopes, purchased from contingent
allotment of bureau:
Bureau...........................................................................................................
Field..............................................................................................................
Requisitions for stationery supplies, purchased from appropriation “Miscellaneous
expenses, Bureau of Naturalization”:
Bureau...........................................................................................................
Field..............................................................................................................
Requisitions chargeable to printing and binding allotment:
Bureau...........................................................................................................
Field..............................................................................................................
Clerks of courts................................................................. ...........................
68
132
16
15
72
28
5,437
125
180
38
36
77
30
6,482
110
70
112
120
34
6,005
REPORT OF THE COMMISSIONER OF NATURALIZATION. 795
Under the pressure of business indicated by the various tables presented
herein, not the least difficulty which confronted the bureau
was that of maintaining its clerical force, limited and insufficient
numerically as it was, upon the same basis of efficiency as it represented
at the beginning of the year. This it was not able to do, nor
does it now feel any reasonable ground to doubt its further disintegration
during the ensuing year. The reason is not far to seek.
Judged by the standards of pay in the business and commercial
world—as well as in newly established branches of the executive
departments—the compensation allowed, particularly on the statutory
roll, is inadequate to enable the bureau to retain its trained employees.
There has been a steady, if small, stream going out during
the year to positions in Government offices or in business enterprises
to receive higher compensation, and the chance of indefinite advancement
upward in the commercial world. So the bureau must fill the
vacancies, as a rule, with less competent clerks at the cost of business
efficiency and to the loss of the Government. During the year the
bureau has lost some of its most experienced and valued clerks, as
the annexed statement shows.
Resigned
At basic salary of— in bureau.
$3,500................................................ 1
2,100................................................ 2
1,800................................................ 1
1,680................................................ 1
1,600................................................ 7
Resigned
At basic salary of— bureau.
$1,400................................................ 6
1,200................................................ 3
1,000................................................ 2
Total.............................................. 23
Besides these, there were others on leave for trial of business openings,
one of them receiving more than double the amount of basic
salary received in the bureau.
Nor has this experience been confined within the limits of the office
in Washington. For in the field forces of the chief examiners, one
of whom has also resigned, there have been losses during the year, as
follows:
Atbasic salary of—
$3,500................................................ 1
2,200................................................ 1
2,100................................................ 1
1.980................................................ 1
1,860................................................ 2
1,740...................................... 5
1,620......................... 4
1,500................................................ 6
At basic salary of—
$1,380................................................ 3
1,260................................................ 1
1,200................................................ 2
1,080................................................ 2
1.000................................................ 1
960.................................................... 2
Total.............................................. 32
The total official and clerical force of the bureau, for both branches
of its work, naturalization and citizenship training, is presented in
letail in the subjoined tabulated statement.
Table 20.—Official force of the Bureau of Naturalization on June 30, 1920.
In Washington:
Commissioner............................................................................................ 1
Deputy commissioner..................................................................................... 1
Director of citizenship.................................................................................... 1
Chief clerk......................................................................................................... 1
Chief examiner................................................................................................. 1
Assistant chief examiners.............................................................................. 2
Examiners.................................................................. 2
Chiefs of divisions............................................................................................ 3
Assistant chief of division........................................................................... 1
796 REPORTS OF DEPARTMENT OF LABOR.
In Washington—-Continued.
Chiefs of sections.............................................................................................. 3
Clerks (assistant in education)...................................................................... 1
Clerks.................................................................................................................. 93
Messengers......................................................................................................... 6
Messenger boys................................................................................................. 4
In the field:
Chief examiners............................................................................................... 11
Examiners......................................................................................................... 115
Clerks (assistants in education).................................................................... 4
Clerks.................................................................................................................. 83
--------- 1 213
Clerks of courts......................................................................................................... 2, 268
Additional assistants to clerks of courts............................................................. 63
-------- 2, 331
Total................................................................................................................ 2, 664
Comparison of the figures in the foregoing table will show a substantial
decrease in the personnel from that of last year.
FINANCIAL.
In considering this feature of the report, it must be borne in mind
that the available assets from which the expenses of the naturalization
service are paid consist solely of appropriations made by Congress.
Beyond the work of collecting the fees prescribed by law and
depositing them in the United States Treasury, it has no control over
or use of these funds. They are reported simply as a part of the
results of the bureau’s activities and serve to show how far the service
is a cost to the Government, or, on the other hand, the extent to
which that service is a source of profit to the public funds.
The receipts, therefore, shown in the next table, are to be balanced
against the expenditures, only for the purpose of disclosing the fact
in respect of the self-supporting character of the service.
Tabl e 21.—Itemized statement of receipts and expenditures during the fiscal year 1920.
Receipts:
First quarter..............................................................................
Second quarter........................................................................ 1
Third quarter............................................................................
Fourth quarter..........................................................................
$133, 921.10
164, 722.50
174, 714.95
191,180. 65
Expenditures: «
Salaries, Bureau of Naturalization...................................... 175, 968. 69
Increase of compensation (bureau)..................................... 15, 726. 66
Salaries, travel and miscellaneous field expenses, field
force.................................................................................... 409,038.75
Increase of compensation (field)......................................... 37, 234.35
Salaries of special assistants to clerks of courts................ 60, 080.33
Expended from contingent appropriation of department—
$664, 539. 20
Stationery supplies...................................... $4,172. 34
Paper and envelopes................................... 2,158. 33
--------------- 6, 330. 67
Expenditures from printing allotment of
department:
For bureau................................................. $3, 015. 85
For field force............................................... 2, 255.17
For clerks of courts...................................... 24, 233.00
--------------- 29, 504.02
1 Does not include those on furlough,
REPORT OF THE COMMISSIONER OF NATURALIZATION. 797
Expenditures—Continued.
Printing citizenship textbooks..................................... $8, 962.51
Expenditures for engraving certificates by the
Treasury Department.................................................... 6, 537. 85
Rent of offices of bureau at Washington, D. C.
(estimated)........................................................................ 4, 000.00
------------------ $753, 383. 83
Excess of expenditures over receipts............................................ 88, 844. 63
From the above, it appears that during the past year there has been
received from fees, $664,539.20, and that the expenditures from all
sources have totaled $753,383.83, leaving a deficit of $88,844.63.
This total expenditure included the cost of the citizenship-training
branch of the bureau’s work, which produces no income. For various
practical reasons, the bureau has been unable to keep an exact account
fc of the cost of this branch of the service, but, taking into consideration
rent of space in the department building, printing, the service of
various naturalization clerks, and miscellaneous items, the total
outlay approximates $127,000, as appears from the next table. If
this cost is deducted from the gross expenditures of the bureau,
it shifts the balance to the other side of the account and shows the
naturalization service to have been more than self-sustaining for the
year.
Tab le 22.—Official force of the Bureau of Naturalization at Washington and in the field
service as of June 30, 1920. with amounts expended for salaries and travel and subsistence
on naturalization and citizenship training work. *
GENERAL ADMINISTRATION.
Commissioner.................................................................................................... 1
Deputy commissioner..................................................................................... 1
Chief clerk................................................................................................... 1
Messengers......................................................... 5
Messenger boy................................................................................................... 1
Total........................................................................................................ 9
Salaries........................................................................................................................ $15, 990. 00
NATURALIZATION.
Assistant chief examiners............................................................................... 2
Examiners............................,............................................................................ 2
Chiefs of division................. •................................ •......................................... 3
Assistant chief of division.............................................................................. 1
Chiefs of section................................................................................................ 2
Clerks,................................................................................................................ 65
Messenger........................................ 1
Messenger boy................................................................................................... 1
Total........................................................................................................
Salaries................................................................................................................
In the field service:
Chief examiners........................................................................................
Examiners..................................................... 1..........................................
Clerks..........................................................................................................
77
.. $119,753.79
11
114
84
Total...........................................................................................................209
90 per cent of salaries 1...................................................................................
90 per cent of travel........................................................................................
Additional assistants to clerks of courts............................................. 63
Salaries................................................................................................................
291,828.86
82,308. 38
60,080. 33
55,524.02
Miscellaneous items, approximate (rent, printing, supplies, telegraph,
telephone, express).....................................................................
Total expenditures for naturalization..................................................... 609,495. 38
i Includes the bonus of $240 per annum.
798 REPORTS OF DEPARTMENT OF LABOR.
CITIZENSHIP TRAINING.
Director of citizenship.................................................................................... 1
Chief examiner.................................................................................................. 1
Chief of section.................................................................................................. 1
Clerk (assistant in education)....................................................................... 1
Clerks..................-.............................................................................................. 28
Messenger boys.................................................................................................. 2
Total........................................................................................................ 34
Salaries1..................................................................................................................... $55,951.56
In the field service:
Examiner............................................................................................ 1
Clerks (assistants in education)............................................. 4
Total..................................,.................................................................... 5
Salaries 1 of above............................................................................................ 10,355,00
Travel of above................................................................................................. 3,610,05.
10 per cent of salaries 1................................................................................... 32,425.43
10 per cent of travel........................................................................................ 9,145.38
Miscellaneous items, approximate (rent, printing, supplies, telegraph,
telephone, express)..................................................................... 16,411.03
Total expenditures for citizenship training......................................... 127,898.45
The sources from which the funds used for the bureau were derived
are herewith set forth.
Department contingent fund.......................................................... $6,330. 67
Department printing allotment...................................................... 29,504. 02
Naturalization fees for pjinting citizenship textbooks............ 8,962. 51
Engraving certificates of naturalization....................................... 6,537. 85
Department rent fund (estimated)................................................ 4,000. 00
. Total fund from miscellaneous sources................................................... $55,335.05
$240 increase of compensation.............................................................................. 52,961.01
Legislative bill.......................................................................................................... 97,010.00
Sundry civil bill....................................................................................................... 450,000.00
Deficiency bill.......................................................................................................... 100,000.00
Total funds............................ ........................................................................ 755,306.06
The total expenditures aggregated $753,383.83, leaving an unexpended
balance at the close of the fiscal year of $1,922.23. This
balance represents the difference between the amount appropriated
for the bureau in the legislative bill, $97,010, and the amount expended,
$95,087.77. This was caused by the fact that for periods of
time vacancies existed in the lower grades pf salaries, it being impossible
for the bureau to secure qualified persons who would accept the
salaries offered.
The three subjoined tables are presented as a summary, financially,
of the operation of the bureau since its organization in the fiscal year
1906.
1 Includes the bonus of $240 per annum.
REPORT OF THE COMMISSIONER OF NATURALIZATION, 799
Tab le 23.—Appropriations “Miscellaneous expenses, Bureau of Naturalization ” for I
various fiscal years, and amounts paid out of these appropriations during the fiscal
years 1908 to 1920.
Year. Total appropriation.
Number of
additional
assistants
allowed to
clerks of
courts.
Amount
expended
for additional
assistants
to clerks
of courts.
Amount
expended
for salaries,
travel, and
miscellaneous
items,
in field and
lump-sum
employees
in bureau.
Total
amount
expended
and
pledged.
1908.................................................................. §193,000
1909.................................................................. 150,000
1910.................................................................. 150,000 19 $8,598.92 §108,606.76 $117,205.68
1911............................................................... 152'861 25 19,348.29 132' 019.86 151^368.15
1912.................................................................. 175,000 32 30'344.30 142j 490.12 172,834.42
1913.................................................................. 200,000 44 39,264.36 160j 495.00 199^ 759.36
1914.................................................................. 225,000 47 52,129.65 172,008.13 224,137.78
1915.................................................................. 250,000 67 64'241.23 185' 758.77 250' 000.00
1916.................................................................. 275'000 64 60,016.94 214^277.53 274'294.47
1917.................. ............................................... 275,000 53 60,741.67 214,258.33 275,000.00
1918................ . ............................................ 305^ 000 56 61,618.46 215'188. 00 276^806.46
1919.................................................................. 675 000 52 58'831.47 594'060.58 652'892.05
1920.................................................................. 550,000 63 60,080.33 489,919.67 550,000.00
The considerable increases in appropriations in the past two years,
especially in 1919, were needed for the naturalization work in military
encampments and the citizenship training, and not for use in
providing for the growth of the naturalization work proper. This
statement does not include the appropriations for the naturalization
service at the Capital, which are included in the legislative bill
Tabl e 24.—Receipts from naturalization fees and disbursements from various appropriations
for the enforcement of the naturalization law and for rents, supplies, and
miscellaneous expenses, fiscal years 1907 to 1920.
Year.
Naturalization
fees
received.
Cost of administration.
Cost of administration,
in excess of
fees received.
Excess of
fees received
over cost of
administration.
1907.......................................................................... §65,129. 00
166,873.90
172,202.13
221,766.38
290,551.52
338,315.33
350,716.60
450,228.55
441,764.49
410,272.55
635,927.52
507,932.50
597,087.97
664,539.20
$29,243.18
1232,728.05
1 194,428.45
176,415.98
222,831.15
257,678.99
290,026.20
331,517.26
363,593.11
389,075.90
393,240.15
416,486.84
812,056.38
753,383.83
$35,885.82
1908.......................................................................... $65,854:15
1909.......................................................................... 22,226.32
1910......................................................................... 45,350.40
67,720.37
80,636.34
60,690.40
118,711.29
78,171.38
21,196.65
242,687.37
91,445.66
1911...........................................................?.............
1912..........................................................................
1913..........................................................................
1914..........................................................................
1915..........................................................................
1916..........................................................................
1917..........................................................................
1918..........................................................................
1919.......................................................................... 214,968.41
1920.......................................................................... 88,844.63
5,313,307.64 4,862,705.47 391,893.51 842,495.68
Less deficits............................................................ 391,893.51
Excess of fees received over cost of administration...........................................
450,602.17
1 Included in these expenditures are appropriations to the Department of Justice of field force prior to
the transfer to the Department of Commerce and Labor, to wit, fiscal year 1908, $193,000; fiscal year 1909,
1150,000.
800 REPORTS OF DEPARTMENT OF LABOR.
The preceding table is presented to show, by fiscal years, the
receipts from fees, and the disbursements from appropriations, from
which it appears that there remains in the Public Treasury at the
close of the fiscal year a net balance of nearly half a million dollars
in excess of all expenditures made for the naturalization service
since its inception, including the new work assumed in consequence
of the great war, to wit, military camp work and citizenship training.
From what has been reported at a former page of this report, that
balance would have been much larger if provision had been made
for a sufficient force in the clerks’ offices to serve promptly all the
applicants for naturalization who presented themselves.
Tabl e 25.—Receipts of naturalization fees,1 arranged by quarters, fiscal years ended June
30, 1907 to 1920.
Fiscal year. First
quarter.
Second
quarter.
Third
quarter.
Fourth
quarter. Total.
19072................................................................ $65,129.00
166,873.90
172,202.13
221,766.38
290,551.52
338,315.33
350,716.60
450,228.55
441,764.49
410,272.55
635,927.52
507,932.50
597,087.97
664,539.20
1908.................................................................. $26,307. 00
42,285.03
38,098.91
55,497. 20
57,188. 95
65,585.10
123,577.00
81,297.15
71,996.05
74,672. 77
134,312.00
130,050.45
133,921.10
$32,753.50
45,945.85
42,710.94
69,645.12
67,580.85
76,879. 50
104,763.35
121,850. 50
94,886. 50
89,802.30
111,887.70
78,755.35
164,722. 50
$49,554.00
40,091.00
60,852. 90
81,481. 95
100,806.60
103,053.00
112,130. 55
125,841.40
117,404.60
197,578.40
126,306.35
183,357. 90
174,714. 95
$58,259.40
43,880. 25
80,103. 63
83,927.25
112,738. 93
105,199.00
109,757.65
113,135.44
125,985. 40
273,874.05
135,426.45
204,944.27
191,180.65
1909..................................................................
1910..................................................................
1911..................................................................
1912..................................................................
1913..................................................................
1914..................................................................
1915..................................................................
1916..................................................................
1917..................................................................
1918 ...............................................
1919..................................................................
1920..................................................................
Total...................................................... 5,313,307.64
1 It should be remembered that the total of these fees does not balance with the number of papers filed
because from an office in which the fees reach a total of $6,000 in any fiscal year the entire subsequent collections
of such office in said year are remitted to the bureau, instead of the' one-half.
2 For 9 months only.
A report of the operations of the Division of Citizenship Training,
by the director, is appended hereto, to which reference is made for
information in detail of the progress of that branch of the bureau’s
work. As will be seen, an attempt has been made in Table 22 to
segregate the expenses of that division from the total outlay by the
bureau. Owing to the constant interchanging of the work, it has not
been possible to attain to anything like arithmetical accuracy in this
attempt. The sum reported, $127,898.45, must therefore be taken
as a partial approximation only, with a leaning toward a minimum
figure, for the expenses of the division.
REPORT OF DIVISION OF CITIZENSHIP TRAINING.
To the Commissioner of Naturalization:
Sir : The year just ended has been the most encouraging of alJ the
past years to those engaged in the citizenship education wobk which
the department is carrying on through this division. As with all
large undertakings, there have been periods when the administrative
machinery has not revolved as expeditiously as those most
enthusiastic in the work had hoped, but the year in review has been
the year of greatest progress.
It should be recognized that the public schools of certain cities
have been endeavoring to teach the adult, native and foreign born,
for many years, in some places, notably in Now York City, for over
a third of a century. That great pioneer in the wider use of the
schoolhouses, Dr. Henry M. Leipziger, in the late seventies undertook
the broadening of the public schools of that city beyond their narrow
and cabined usage, and succeeded, as early as 1878, in securing
authority for the use of certain public schools of that city for the
purpose of conducting lecture courses for adults.
Similar beginnings elsewhere mark the early days of the present
nation-wide citizenship training undertaking, the active Federal
participation in which began on May 10, 1915, at the reception given to
the “four thousand newly made citizens” by the city of Philadelphia
in conjunction with the National Government represented by the
President of the United States, the Secretary of Labor, and officials
of this bureau. Prior to that time such efforts were unknown outside
of the communities in which they flourished, and were unrelated.
Since that date these efforts have become correlated through the
medium of a common national purpose.
Within two weeks after the date referred to the Committee for
Immigrants in America had met and issued an appeal based upon
the words of the President uttered at Philadelphia, for the Nation
to recognize that great need—the induction into fully qualified citizenship
of the foreigners of this country—by a movement which
then was, and still is, known as Americanization. Americanization
has been the keynote of all great meetings of educators, whether
of a local or a national character, since that time. The National
and many State legislatures have passed Americanization laws and
the public has become imbued with the Americanization thought,
not only in its relation to the foreign born but to the native citizenry
as well.
The national movement, which had been under way in this bureau
for over a year prior to the Philadelphia reception referred to, has
been quietly gathering impetus throughout the Nation, and the past
year has witnessed the greatest accomplishments. State legislatures
have made specific laws and appropriations for teaching American
citizenship ideals in the public schools.
The influence of the Federal Government, speaking through this
division, has been to accomplish the organization of classes distinctly
15283—LAB 1920-----51 801
802 REPORTS OF DEPARTMENT OF LABOR.
for adults, although the appeal has been for the organization of classes
for the foreign born and for those who are candidates for citizenship
through the operation of the naturalization law. Since this field
brings the Federal Government into contact with approximately a
million and a quarter seekers after American citizenship annually,
with the number constantly increasing, it is seen that the organization
of classes for this goodly number means to provide facilities and
machinery for the millions of unschooled adults, whether they be
candidates for citizenship, noncandidates, or citizens of the United
States.
As a consequence of this there are 3,04.3 communities whose publicschool
authorities are cooperating with the Federal Government to
the end that adult American men and women may gain the equipment
for life which our institutions and Government intended tnem
to have, but which circumstances in their boyhood and girlhood
denied them.
PRACTICAL PROGRAM.
Educators throughout the country are welcoming the support given
to their profession by the practical plan offered through cooperation
with this division. To the school official wishing to undertake adult
alien instruction the division sends the names and addresses of candidates
for naturalization and their wives, at the same time sending
letters inviting these prospective citizens to attend the classes. These
letters have heretofore been forwarded through the mail, but during
this year the method of effecting direct delivery through the Boy
Scouts of America was initiated with highly' gratifying results.
Announcement posters are available to assist in publicity. Student’s
textbooks and teacher’s manuals, embodying a standard course in
citizenship training, are furnished for those who are candidates for
citizenship. Certificates recognizing the cooperation of the school,
the progress of the student, and the completion of the course are
available from the department to encourage and stimulate both
workers and students. Various aids are prepared to meet specific
difficulties.
It is a practical program, and as such is appealing more and more
to the progressive Americanizing agencies of the country, which are
agreed that the public school is the medium for the education of all
adults, whether of foreign or native birth and not alone for those
who desire to acquire citizenship through due process of law. The
correspondence of the division indicates a nation-wide appreciation
of the assistance offered States and municipalities and of the definiteness
of the plan.
COOPERATION OF THE BOY SCOUTS OF AMERICA.
Efforts have been made to reach the foreign-born resident through
every possible channel. Letters of invitation to attend the citizenship
classes were mailed to declarants and petitioners, but in a large
number of instances the postal authorities found difficulty in accomplishing
delivery, as the aliens had moved from the place of residence
shown in the naturalization papers, and many letters were returned
undelivered. Hence the mail did not thoroughly answer the purpose,
although in most instances it proved to be effective. Public-school
REPORT OF THE COMMISSIONER OF NATURALIZATION. 803
teachers and pupils were enlisted, and racial organizations were
induced to undertake the work of acquainting the foreign-born with
the opportunities that were offered them. This has worked out
admirably in a great many cases, but racial organizations do not
exist in all localities, nor do all nationalities identify themselves
through organizations.
Late in 1919 the National Council of the Boy Scouts of America
was requested to give aid, and it pledged 100 per cent cooperation.
Since the beginning of January of this year the members of that
organization have been enthusiastically assisting the Government
and the public schools in promoting citizenship training. The Scouts
have actively participated in 40 States, Alaska, and the District of
Columbia.
The avenues through which this band of youths can work in
expressing the spirit of America are innumerable, but their activities
up to the present time have been confined to carrying in person the
message of invitation of the Government to the foreign born to
attend the citizenship classes and in assisting at public ceremonies
held for the purpose of expressing publicly the interest in American
ideals.
The cards of invitation are addressed in the division and.sent in
bulk to the respective superintendents of schools, who in turn deliver
them to the local scout officials for distribution. On the reverse of
the invitation, m spaces provided therefor, the Boy Scout fills in
the location of the nearest citizenship class and the hours at which
instruction is given. On a separate card he fills in the name and
address of the candidate visited, the name of the scout making the
delivery, and his troop number. These scout cards are returned,
through the scout official, to the superintendent of schools, for his
information. It is not unusual, particularly in the smaller centers,
to find the superintendent of schools acting also as scout official—a
combination which insures the fullest cooperation.
At public ceremonies held jointly by the school officials, the clerks
of courts, and others for the purpose of presenting the certificates
of naturalization and the certificates of graduation from the publicschool
citizenship classes, the Boy Scouts are acting as ushers,
furnishing instrumental music, and leading in repeating the oath
of allegiance to the flag.
As indicative of the measure of success attained by the Boy Scouts
in their efforts to reach prospective American citizens, the following
excerpts from letters may be quoted:
In answer to your letter of April 27, I would state that the boys delivered over 90
per cent of the invitations we received; there were, however, some who could not be
located, having left the city. I am pleased to be able to report that the boys had
wonderful success in that the majority were induced to attend some school or class.—-
(F. Bryant Gale, Scout Executive, Bayonne, N. J.)
The educational record cards and addressed cards of invitation covering recent
naturalization filings in our locality have been received at the Fresno Night School,
and we have cooperated in each instance, when the cards have been received, with
the local Boy Scout officers. These cards have brought very fine results in that about
75 per cent of the people interviewed are now attending night school classes. We are
convinced that the movement for Boy Scout cooperation in the training for citizenship
is bound to be universally successful.—(F. D. Sutton, principal, Fresno Evening
High School, Fresno, Calif.)
804 REPORTS OF DEPARTMENT OF LABOR.
The above are typical of a great number of letters received in the
Division of Citizenship Training from both school and scout officials.
It is contemplated that eventually the activities of the Boy Scouts
shall extend beyond the methods of cooperation outlined above.
In promoting the American spirit in industry, the Boy Scouts are
admirably fitted to participate in factory noonday meetings which
can be made both interesting and instructive. First-aid or firedrill
demonstrations can be given by them to secure the attention
of the employees, and these can be followed by a short talk by a
member of some other cooperating agency, pointing out the advantages
to be derived from attending the citizenship classes. The
meetings can be dosed by the Boy Scout musical organization,
rendering patriotic selections.
The number of Boy Scout invitations sent for personal delivery
to candidates for citizenship was 44,489, in 338 communities.
When the vouth of America have had their Americanism, their
sense of fair play, appealed to they have never failed to come forward
in any emergency worthy of sons of their country. Into this duty
which their constituted officers have placed upon them the Boy
Scouts have cheerfully, eagerly, and enthusiastically entered. They
have approached the stranger not with the sense of prejudice inspired
by their strangeness of tongue, and with the too ready appellation
“wop,” “guinea,” “kike,” and the like. On the contrary, they
have met these coming Americans as guests, who, though strange,
are nevertheless entitled to the courtesies usual to guests. It has
brought them together under conditions which have precluded
unpleasantness and which have given a setting for future contacts
of a helpful character.
The number of invitations sent for personal delivery bv Bov Scouts
from January 6 to June 30, 1920, bv States and Territories, is as
follows: Alabama. 53; Alaska, 19; Arizona, 66; California, 2,603;
Colorado, 602; Connecticut, 1,224; District of Columbia, 543;
Georgia, 128; Illinois, 1,420: Indiana, 1,081; Iowa, 275; Kansas'
217: Kentucky, 168; Maine, 88; Maryland, 1,061; Massachusetts,
3,694; Michigan, 6, 257; Minnesota, 4,285; Missouri, 6; Montana,
238; Nebraska, 712; New Hampshire, 23; New Jersey, 5,457; New
Mexico. 21; New York, 2,510; North Carolina, 4; North Dakota,
46; Ohio, 2,417; Oklahoma, 23; Oregon, 70; Pennsylvania, 2,452;
Rhode Island, 1,003; South Carolina, 71; South Dakota, 97; Texas,
472; Utah, 15; Vermont, 59; Virginia, 103; Washington, 1,266;
West Virginia, 216; Wisconsin, 3,346; Wyoming, 69. Total, 44,489.
A new chapter in citizenship instruction was added during the
year, consisting of a study in national government through pilgrimages
to the Nation's Capital. The first of these pilgrimages was made
by the Americanization classes of the public schools of Bayonne,
N. J., under Supervisor Edward Berman. These studies will consist
of visiting each House of Congress in session, visits to the public
buildings of Washington City and witnessing the various Government
departments in the discharge of their duties, sight-seeing trips
to Mount Vernon and Arlington, a bird’s eye view of the city from
the Washington Monument, and special entertainments. Arrangements
have been made with the State Department to view the
originals of the Declaration of Independence, the Constitution, the
Articles of Confederation, the Emancipation Proclamation, the
REPORT OF THE COMMISSIONER OF NATURALIZATION. 805
definitive treaty of independence, and other sacred documents of
the Nation. In several cities the citizenship classes are preparing
pilgrimages to Washington during the coming school year.
WITH THE INDUSTRIES.
With the development of Americanization activities it has been
more and more discerned that the place of employment offers the
best opportunity for the foreign born to learn things American.
This is also true as to the number who can be reached by those
influences which are established for public education, since by far
the greater number of them have found employment in the industries.
Therefore, _ by obtaining the cooperation of the employers it is becoming
daily less difficult to reach personally many of foreign birth.
Approximately 800,000 cards were sent to the industries of the
country in compliance with their requests to enable them to ascertain
the mind of their foreign born toward citizenship. About 8,000
concerns were communicated with, and in practically every instance
in accordance with the recommendation of the division, a competent.
employee was designated to assist the foreign-born employees
in their desire to become American citizens and to impress upon
them the duty and advantage of becoming thoroughly conversant
with the naturalization procedure, our language, and the responsibilities
which American citizenship would impose upon them.
The experience of the division indicates that when the proper spirit
of confidence has been established, the employees voluntarily approach
the representative of the company and seek advice and assistance
not only upon the subject of American citizenship but also
upon many questions concerning their personal affairs. In many
instances misunderstandings which naturally arise between the
employer and the employed are amicably disposed of and the loss
of a job to the latter and of an employee to the former is avoided.
It is obvious that the value to the company of the services of such
a representative is greatly enhanced, as his activities lower labor
turnover, one of the greatest problems with which the industrial
world is confronted at the present time.
Thousands of foreigners who for years have desired to apply for
citizenship have been deterred through fears of exploitation aroused
by unfortunate experiences of their friends. The selection of some
person in the place of employment whose services are without cost
and whose advice may be depended upon has encouraged many of
these to take the step.
With the preliminary naturalization forms on hand in the factories,
the saving of the time of the employee has been great. Formerly
candidates were obliged to proceed to the office of the clerk of court
and there fill out the forms. In many instances they could not
recall certain dates or other information which was required to be
shown, and had to consult data at home, which necessitated another
journey to the office of the clerk of court, resulting in a loss of time
and money. Under the present method, when the applicant arrives
at the office of the clerk of court the necessary data are immediately
available and the naturalization papers may be issued without
delay.
806 REPORTS OF DEPARTMENT OF LABOR.
After the primary step, the employees are urged to enroll as
students in one of the citizenship classes maintained by the publicschool
authorities, in cooperation with the Division of Citizenship
Training. The Standard Course in Citizenship Instruction, prepared
by the Federal Government, is used in these classes and the
certificate of graduation which is awarded to each student who successfully
completes the course is accepted by the courts generally
as prima facie evidence of the applicant’s qualifications to be admitted
a citizen of the United States. The results from this effort
to increase the attendance upon the classes and to prepare candidates
for citizenship for the responsibilities they must assume after admission
to the body politic of the country have been most gratifying.
Almost unlimited space would be needed to set forth the thousands
}f reports of the success of industrial employers in their patriotic
cooperation with the division. They show constant increases in
their successes with the foreign-born employees and breathe a faith
in the ultimate and quite speedy equipment of all adult illiterates—
native and foreign born—with information as to social, economic,
and political problems that will take them out of the sphere of
influence unfriendly to the principles of our republican form of
government. As a general proposition it can be said that, with
but few exceptions, industry recognizes the public schools as the
responsible local civic authority over these enterprises and works
in cooperation with them. Teachers are generally obtained from
and paid by the public schools, although in many instances al]
equipment, books, charts, and other paraphernalia are paid for by
the industrial concerns.
The industries reporting to and consulting with the division arc
to be found in every State of the Union and in Alaska, and they
represent the entire industrial field of America.
At the National Conference on Americanization in Industries held
at Boston, Mass., June 22, 23, and 24, 1919, the position of industry
in this field was clearly made known in the following resolutions
adopted by that body:
We, the representatives of the educational forces of industry, recognize that industry
has a definite part with the other forces of the community in initiating and organizing
Americanization work: Therefore be it
Resolved, That instruction in English for non-English-speaking people should be
carried on in cooperation with the public educational forces, provided those forces
are prepared and will assume the responsibility. We pledge our aid in our respective
communities to bring about this cooperation.
Resolved, That non-English-speaking employees attending English classes in
industry should attend such classes voluntarily, on their own time, and without
compensation.
Resolved, That every industry employing non-English-speaking people should
formulate a definite policy regarding Americanization work, and that such work can
best be done when a responsible person is charged with its direction.
Resolved, That we, as a representative group of industries, unanimously disapprove
making naturalization a condition of employment, and recommend that every community
establish at least one school for citizenship.
OBSTACLES EXPERIENCED IN INDUSTRY.
There are a great many obstacles in the path of the better citizenship
movement which are natural to industry. These may probably
all be summed up in the crying necessity for production.
REPORT OF THE COMMISSIONER OF NATURALIZATION. 807
This necessity will undoubtedly result in the creation of more
highly perfected methods to accomplish the necessary volume of
manufacture and at the same time lessen the prorated per capita
expense in proportion to the individual employee, for such has been
the experience in the industrial world in the past. With the simplification
of processes of production will come a readjustment of manufacture
along lines that will reckon with the increased intelligence on
the part of the laborer. Adjustments now impossible of accomplishment
will be made which will be in greater recognition of the direct
relationship of the higher intellectual average among the rank and
file in industry. Out of these readjustments will come a closer and
more intimate understanding and appreciation of what is now termed
Americanization work on the part of both the employer and the
employee.
Disturbances of the citizenship classes now result from the shifting
of the hours of the workers. Those who have adjusted themselves
to the class hours that occur immediately after the close of the day
shift find it difficult to readjust themselves to attend the classes set
for the morning hour. In plants distributed over an extended area,
shifting of employees from one part of the plant to another often
raises the obstacles of distance and prevents their attendance.
Many have overcome this, however, although it has entailed miles of
walking. Few such industrial concerns have a sufficient number of
classes distributed throughout their works to admit of attendance
upon classes in the immediate neighborhood of employment.
Overtime work is another normal and natural obstacle, for however
great may be the desire on the part of the employee to attend the
classes, the opportunity to add to his compensation is one that is
difficult to forego.
In many plants the indisposition of the foreman to give favorable
regard to the educational advancement of the laborer whom he
supervises is probably a greater difficulty than many others. A higher
standard of intelligence exists in the rank and file of labor to-day
than ever before, and such intelligence is amenable more and more to
the sympathetic and intelligent relationship of authority and less
and less to the mandatory. In large concerns where the welfare of
the employees is the immediate concern of the employer, where the
employer is accessible to the employee, this fact has been repeatedly
demonstrated. The foreman of the old school believes in the mandate
form rather than the conciliatory or reasonable and reasoning form of
supervision. He therefore feels that with the increase in the understanding
and intelligence of his subordinates will come the waning
of his authority, hence expressions of disfavor are the order with
probably the average foreman. Reports show that much of the
effort of the leaders in industry toward the increase of American
ideals is often negatived by the unsympathetic attitude of the
foremen. \
The tendency of fellow-employees to ridicule their fellow-workers
for “going to school” is one of the forces against which those who
earnestly and intelligently desire to better themselves must contend.
Much of this ridicule is inspired through fear that the fellow-worker
attending the citizenship classes will outstrip those who do not do so.
Lack of coordination of forces of industry with this educational
movement which the leaders in industry themselves support directly
808 REPORTS OF DEPARTMENT OF LABOR.
and far-sightedly is being perceived and steps taken to bring about
within factories a better working organization.
COOPERATION IN CENSUS.
Heretofore no census of alien-born persons under 21 years has been
taken, but at the instance of this office the Director of the Census
caused the schedules for the Fourteenth Census to be modified so as
to set forth all alien declarants and all citizens of foreign birth, instead
of only those 21 years and over, thereby enumerating the foreign
born as aliens, declarants, and citizens. The result' of this will be
complete statistics for the first time in the history of the country
showing the aliens, both minors and adults; declarants, both minors
and adults, since aliens declare their intention in large numbers after
18 and before 21 years; and citizens, both minors and adults, as well
as those becoming citizens by direct naturalization and those by
derivation. Such information will be of incalculable value toward
learning the exact problem and its solution.
In further cooperation in the census taking, 20,000 letters were sent
to the public-school teachers conducting the citizenship classes, and
300,000 circulars were distributed to the foreign born by which the
taking of the census was made known and steps taken to allay any
suspicions of the nature of the census.
Tabl e A.—Statement by months showing the number of cities, towns, and rural communities
cooperating directly or indirectly with the division in its educational work.
Growth, by months, of places cooperating.
Date.
Directly. | Indirectly.
-________ -_________
I
Total
Total. monthly
additions.
July 31,1919,.
Aug. 31,1919.
Sept. 30,1919.
Oct. 31. 1919..
Nov. 30,1919.
Dec. 31, 1919.
Jan. 31, 1920..
Feb. 29,1920.
Mar. 31,1920.
Apr. 30, 1920.
Mav31, 1920..
June 30, 1920.
8
10
167
500
739
992
1,260
1,371
1,480
1,583
1,629
1,848 .
7
7
137
380
520
765
920
1,039
1,135
1,144
1,149
1,195
304 I 287
886 | 576
1,259 i 379
1,757 498
2,180 423
2,410 230
2,615 j 205
2,727 j 112
2,778 51
3,043 ■ 265
Note .—The foregoing table represents actual cooperation, as heretofore explained, received from 3,043
communities during the fiscal year 1920. The previous year’s report of 2,240 communities included all
those which had before that time joined in this work, as well as those cooperating during the fiscal
Table A indicates the growth by months in the number of cities,
towns, and rural communities cooperating directly or indirectly in
their educational work with the adult foreign-born men and women,
lhe first column includes all communities that cooperated as units
directly with this division in their Americanization activities.
The second column includes those smaller districts which were
unable to work independently but supported Americanization
REPORT OF THE COMMISSIONER OF NATURALIZATION. 809
activities in near-by cities and towns, sending their candidates for
naturalization to the citizenship classes of the latter places.
The third column is a total of the first and second columns, showing
the actual growth, by months, in the number of communities cooperating
directly and indirectly, with a final total on June 30 of 3,043
communities in which Americanization activities were assured during
the fiscal year 1920.
The last column indicates the number of communities added each
month, which totaled 3,043. It is interesting to note that October
is the banner month.
Table B.—Number of cooperating community school organizations, by counties and
States, and cooperating county school organizations associated with the Division of
Citizenship Training fiscal year 1920.
State.
Alabama..................................................................................
Alaska.......................................................................................
Arizona.....................................................................................
Arkansas..................................................................................
California.................................................................................
Colorado........................ .........................................................
Connecticut............................................................................
Delaware.................................................................................
District of Columbia.............................................................
Florida.....................................................................................
Georgia.....................................................................................
Idaho.......................... ..............................................................
Illinois......................................................................................
Indiana......................................... ,.........................................
Iowa..........................................................................................
Kansas.....................................................................................
Kentucky................................................................................
Louisiana.................................................................................
Maine.......................................................................................
Maryland.................................................................................
Massachusetts........................................................................
Michigan..................................................................................
Minnesota............................................................................... 1
Mississippi...............................................................................;
Missouri...................................................................................
Montana...................................................................................
Nebraska..................................................................................
Nevada.....................................................................................
New Hampshire....................................................................
New Jersey..............................................................................
New Mexico............................................................................
New York................................................................................
North Carolina.......................................................................
North Dakota........................................................................
Ohio......................................................................... . ...............
Oklahoma...............................................................................
Oregon.....................................................................................
Pennsylvania.........................................................................
Rhode Island..........................................................................
South Carolina.......... . ..........................................................
South Dakota ......................................................................
Tennessee................................................................................
Texas.......................................................................................
Utah................................ . ......................................................
Vermont.............. . ..................................................................
Virginia...................................................................................
Washington............................................................................
West Virginia........................................................................
Wisconsin...............................................................................
Wyoming................................................................................
Communities cooperating.
New.
47
11
19
4
90
40
61
1
9
29
8
40
27
415
5
51
63
99
5
15
86
46
10
11
53
13
56
2
78
36
12
26
111
20
49
2
20
24
10
5
132
4
66
17
Renewed.
6
1
10
95
51
80
12
5
2
3
51
27
31
11
1
15
13
18
142
111
130
18
17
18
2
26
77
5
127
2
18
52
11
9
108
11
292
13
7
3
7
62
17
71
22
Total.
53
12
29
4
185
91
141
225
2
12
80
35
71
38
5
16
18 ■
23
193
174
229
6 '
23
103 ■
64
12
37
130
18
183
4
96
88
23
35
219
18
22
58
4
33
31
13 I
12
194
21
137
39
Counties
cooperating
(total).
Counties
cooperating
as
units.
3 1
9 2
1
32 10
27 2
81
.................
228
1
30 5
17
45 16
25 14
448 2
13
44 12
74 61
3 1
18 3
32 23
37 27
8 1
7
16 1
9 2
46
3
39 14
28
13 3
22 18
37 3
32
32 17
4
25 6
7
5
29 17
7
43 8
15 3
Total.............................................................................. 1,530 1,513 3,043 855 271
Table B represents the number of cooperating community school
organizations, as well as cooperating county school organizations
associated with the Division of Citizenship Training during the fiscal
war 1920.
810 REPORTS OF DEPARTMENT OF LABOR.
Column three, which represents the total number of new communities
(those enlisting in the work for the first time), and renewed
communities (those which had joined in the work in previous years
and renewed their activities for 1919-20), gives a grand total of
3,043 communities actively cooperating in Americanization work.
Minnesota with a total of 229 communities and Pennsylvania with
only 10 less make an exceptionally good showing. Washington,
Massachusetts, California, and New York, however, have nearly as
many active communities.
Column four shows the number of counties represented by the
total number of new and renewed communities.
The last column includes those counties in which the head of the
county school organization pledged support in the work.
Tabl e C.—Showing in first and second columns partial reports from 1,295 communities
of the number of classes and total enrollment, and in remaining columns names furnished
and blank supplies furnished to the total number of cooperating communities as
enumerated in last column.
State.
Number
of
classes.
Total
enrollment.
Names furnished.
-----------------------
Blank supplies
furnished. Communities
cooperating
(total):
Candidates.
Candidates’
wives.
Cards. Letters.
Alabama................................................. 480 315 Alaska.................................... 20 324 28 3 53 500 12 Arizona.................................................. 26 824 254 87 833 29 Arkansas................................................ 4
California.... . 143 7,675 3,663 1 700 1 197 1 743 1Cx
Colorado.................................................. 49 i’ 507 1,051 ’484 *745 91 Connecticut........................................ 155 3,377 3,592 1,928 955 50 141
Delaware................................................ O
District of Columbia. -.......................... 24 791 391 164 675 2
Florida.................................................... 5 311 82 31 5
Georgia.................................................. 1 7 240 81 2
Idaho........................................ 3 27 37 17 12
Illinois.... ........................... 101 1,925 15,571 7 056 3 090 6 000 80 Indiana.................................................. 22 1,747 2,469 1 ’ 193 *114 35 Iowa... .............................. 18 '338 581 456 194 71 Kansas.................................................... 8 3,221 336 188 275 38 Kentucky............................................... 1 10 166 96 50 5
Louisiana............................................... 2 26 16 Maine...................................................... 2 471 258 109 18
Maryland................................................ 7 254 2,236 952 168 23
Massachusetts........................................ 315 7,737 71681 3 921 2 725 193 Michigan................................................ 152 4', 538 11 458 4 626 * 145 174
Minnesota.............................................. 594 7,621 5’648 2*500 863 229
Mississippi.............................................. 6
Missouri....... .......................................... 25 630 21 9 23
Montana................................................. 28 378 687 311 43 103
Nebraska................................................ 55 2,188 807 364 310 64
Nevada................................................... 10 190 11 3 30 12
New Hampshire......... ........................... 107 2,193 186 94 84 37
New Jersey............................................. 140 4,106 12,907 7,677 512 130
New Mexico........................................... 8 '112 24 ’ id 18
New York.............................................. 1,184 46,752 34,384 16 666 4 199 183
North Carolina...................................... 4
North Dakota........................................ 83 522 135 42 435 96
Ohio........................................................ 213 7,185 4 053 5 222 3 932 60 88
Oklahoma............................. . ............... 8 46 46 ’ 28 23
Oregon.................................................... 18 404 855 468 240 35
Pennsylvania......................................... 312 11 556 9 812 5 754 4 157 1 550 219
Rhode Island......................................... 35 2,367 1 101 *549 ’200 18
South Carolina....................................... 1 27 196 50 27 22
South Dakota........................................ 41 609 197 93 20 58
Tennessee............................................... 4
Texas...................................................... 38 1,156 626 305 33
Utah....................................................... 52 908 348 148 31
Vermont................................................. 2 51 54 23 35 13
Virginia.................................................. 5 112 659 117 850 12
Washington............................................ 113 3,264 5,045 1 884 1,132 194
West Virginia........................................ 1 10 224 120 21
Wisconsin.............. 95 2 083 4 991 4 213 1 076 680 137
Wyoming.......................................... . 19 362 ’183 62 *’133 39
Total............................................. 4,241 1 129,942 । 133,774 70,119 29,244 10,083 3,043
Note .—Only partial reports as to number of classes and total enrollment are due to the fact that
f rom some States no statistics were received in answer to the questionnaires sent out.
REPORT OF THE COMMISSIONER OF NATURALIZATION. 811
H&From Table C it will be noted that during the fiscal year 1920 partial
reports received from 1,293 of the 3,0-13 communities in ail parts of
the United States indicate 4,241 citizenship classes actually established,
with an enrollment of 129,942 students. To hundreds of schools
in communities where there has been active cooperation, a total number
of 133,774 names of candidates for naturalization and 70,119 names
of the candidates’ wives have been sent. Invitations from the division
to go to the public schools were also sent to them.
A total number of 29,244 blank educational cards for enrolling
candidates in the classes and 10,083 letters of invitation have been
sent to many cooperating communities.
The last column of this table shows a total of 3,043 cities, towns,
and rural communities where cooperation with the division in
Americanization activities was assured.
Tabl e D.—The following two statements give a complete list, by States and cities or
towns, of the communities cooperating through their public schools with the Division
of Citizenship Training, during the fiscal year ended June 30, 1920.
Stat ement 1—Cooperating communities where statistics are available showing
the number and enrollment of established classes, number of names of candidates
and candidates’ wives furnished thereto, and number of blank forms supplied.
State and city or town. Number
of classes.
Total
enrollment.
Names furnished. Blank supplies
furnished.
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
Alabama.
Birmingham (including Ensley,
Pratt City, Wylam).... 477
1
313
1
1
Boyles........................................
Cardiff........................................
Fairfield.....................................
Total................................ 480 315
Arizona.
Bisbee "(including Don Luis,
Lowell, Warren)................ 51
26
34
26
19
10
12
10
675
Clifton............. ...................... 2
8
36
344
Douglas (including Boneyville,
C. & A. addition,
Pirtleville, Railroad addition,
Sunnyside Addition)..
Globe..........................................
Humboldt................................. 13
12
7
200
12
24
Jerome (including Hopewell)..
Miami (including Lower
Miami)....................................
28
65 25 3
Peoria.................................
Phoenix..................................... 24 4
Prescott............................. 25
130 Sonora........... 81
200
Stoddard................... 1
Total................................ 26 824 254 87 833
Alaska.
Anchorage................................. 23 3 100
Eska... “......... 112
12
1111
27
22
15
149
2
51
25
21
12
Fairbanks.................................. 2
Juneau..................... 400
Kennecott...
Ketchikan.........................
Latouche....
Nenana..
Petersburg..............
Wrangell.......................... 3
Total........................ 20 324 28 3 500
812 REPORTS OF DEPARTMENT OF LABOR.
Stat eme nt 1—Continued.
_______________________
State and city or town.. Number
of classes..
Total
enrollment
Names furnished.
----------- ___
Blank supplies
furnished.
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
California.
Alameda................... 5 136 36
4
86
22
315
Alhambra...................
Antioch (including Pittsburg)
Arcata.................................... .
Azusa........................
8
2
34
7
230
19
56
96
408
30
Bakersfield......................
Berkeley (including Albany,
Emeryville).............. 63
11
Colma................. 33Colton... 8 3
41
58
131
6
..................
Crockett......... . .............
Daly City.................................
Dunsmuir.................... 6
5
76
1
224
6
3
14
12
Eureka (including Elk River,
Fairhaven, Falk, Freshwater,
Rolph, Ryans Slough
Samoa)................ 12
32
Fillmore... 41
Fresno.......................... 98 225 Glendale................ 1 11 Halfmoon Bay............ 75 Lemoore.................. 5 75
44
782
3
2
24
371
1
Long Beach (including Alamitos,
Seal Beach, Wilmington).................
Los Angeles (including Hollywood,
Huntington Park,
Playa del Ray)... ...............
Monrovia..............
10
6
42
42
2
3
3 >560
7
124
42
1,265
15
144
.................5.6.5
Needles.....................
Newman.................
Oakland (including Piedmont,
San Leandro).....................
Ontario (including Alta Loma,
Cucamonga, Etiwanda,
Guasti, Mountain View,
Upland)..................
1,406
2
71
5
650
1
29
4
............ 328
Pasadena (including Altadena,
La Manda)...............
Pomona (including Claremont,
Lordsburg, San Dimas,
Walnut)................
Redondo Beach (including
Hermosa Beach, Manhattan
Beach, Perry)..... 2 27
..................
Redwood City (including Belmont,
Las Lomitas, Menlo
Park, Woodside)....... 17 9 Richmond (including El Cerrito,
San Pablo, Stege)...... 334
Riverside...................
7
74
3
5
3
35
1
Roseville................. 130 Sacramento (including Broderick,
Oak Park)................
Salinas...........................
1 23
San Diego (including Chula
Vista, East San Diego)..... 14 154
San Francisco................. 850
San Jose (including Berryessa,
Campbell, Cupertino, Edenvale,
Evergreen, Hester,
Los Gatos, Milpitas, Santa
Clara, Saratoga, Sunol).....L 176
22
117
9
84
12
97
52
1 .
32 .
7
375
45
200
San Mateo (including Beresford,
Burlingame, Hillsbor- 1
ough, San Bruno).................
San Pedro (including Lomita,
Harbor City, Terminal Island)....................................
San Rafael (including Ross,
San Anselmo).......................
1 88 ................
Santa Barbara (including Goleta,
Hope District, Montecito)............................
Santa Cruz..................................I 2 34 35 ..... ...........
1
]
]
(
<
I
IIII
I
I
I
I
I
J
1
(
<
I
I
I
I
S
s
s
s
s
REPORT OF THE COMMISSIONER OF NATURALIZATION. 813
Sta te men t 1—Continued.
State and city or town. N umber
of classes.
Total
enrollment
Names furnished. Blank supplies
furnished.
Candidates.
1
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
California—Continued.
Santa Monica (including Inglewood,
Ocean Park, Sawtelle,
Sherman, Soldier’s
Home, The Palms)............ 34
2
23
Santa Paula.............................. 1
South Pasadena........................ 12
12
South San Francisco................ 285 48
230
2
10
15
9
29
17
120
2
4
5
4
Stockton....................................
Sunnyvale................................. 70
Turlock......................................
Vallejo (including Bay Terrace,
Mare Island Navy
Yard, South Vallejo)..........
Visalia.......................................
Watsonville (including school
districts of Aptos, Amesti,
Calabasas, Carlton, Casserly,
Corralitos, Ferndale, Fruitvale,
Green Valley, Hill
School, Larkin Valley, Oakdale,
Pleasant Valley, Railroad,
Roache, San Andreas).
Yreka)............ '........................ 5 162
Total.............................. 143 7,675 3,663 1,700 1,197 1,743
Colorado.
Aguilar.................................... 2 27 4 4
Boulder...................................... 100
Brighton.................................... 2 8 """"""
Brush (including Snvder)....... 13 7
Camp Shumway....................... 2
1
1
10
9
34
11
800
Cokedale (including Bon Carbon)
.................................... 1 1
Crested Butte...........................
Delagua..................................
Denver............................... 10 838
1
365
Florence..................................
Fort Collins.......................... 1
1
25
15
Frederick (including Dacomo,
Firestone)...................... 14
3
14
9
2
10
20
Grand Junction.................
Greeley (including Evans, La
Salle, Lucerne)...................... 4 60
35
18
26
Kersey....................................
Lafav'ette............................ 21
111
1
La Junta..................................
Lamar..................................
Loveland................................... 15
16
21
Montrose............................. 6
' 2
6
7
612
5
Morley........................
Oak Creek (including Pallas)..
Oakview (including Ojo)......
Primero........................... 100
Pueblo........................ 2 43 45 500
8
20
Rocky Ford............... 7
Rugby.......................... 1121
1
5
11
17
17
45
Salida’......................
Segundo...............................
Severance.............................
Sopris..................................
Sterling (including Atwood,
Crook, Graylin, Iliff, Padroni,
Willard)................... 17 10
Sugar City........ '................... 1
1
29
43
8
Telluride (including Liberty
Bell Mine, Smuggler, Smuggler
Mill, Smuggler Mine,
Tomboy Mine)................... 18 3
Timpas..................................
Trinidad (including Berwind). 41 23 25 Walsen............. 12 10
Walsenburg............................... 28 12 8
814 REPORTS OF DEPARTMENT OF LABOR.
Stat eme nt 1—Continued.
Names furnished. Blank supplies
furnished.
State and city or town. Number
of classes.
Total
enrollment
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
Colorado—Continued.
Williamsburg............................ 1 21 1 1
Windsor.................................... 100
Total................................ 49 1,507 1,051 484 745
Connecticut.
Ansonia..................................... 112 56
Berlin (including Beckley,
Blue Hills. East Berlin,
Kensington)....................... 3 2
Branford (including Madison). 4 1 Bridgeport (including Long ...................
Hill, Nichols, Stratsfield,
Trumball).......................... 28 867
Canaan............................... 1 17
..........
Danbury (including Bethel)... 55
Danielson (including Brooklyn,
Killingly).................... 17 8
Derby (including East Glastonbury).............................
11 6
Fairfield (including Greenfield
Hill, Holland Hill,
Nichols Terrace, Plattsville,
Southport)....'................ 86 55
Greenwich (including Banksville,
Cos Cob, Glenville,
Port Chester, N.Y.)...... .. 26 284 16 7
Hartford (including East
Hartford, Wethersfield)... 629 336 135
Jewett City......................... 3 1 60
Lime Rock......................... 1 7
Litchfield............................. 4 44
Meriden............................... 8 292 45 25
Middletown............................... 81 55
Milford..................................... 50
Naugatuck (including Groveside,
Mellville, Pond Hill,
Straitsville, Union City).... 4 153 13 5
New Britain............................. 32 839 198 141
New Canaan............................. 47 21
New Haven (including East
Haven, Hamden, West
Haven, Westville)............ 889 452
New London (including Groton,
Montville, Mystic,
Waterford).......................... 166 77
North Grosvenor Dale............. 3 2
Norwich (including Norwichton,
Taftville, Yantic)....... 2 90 103 71
Plainville (including Burlington,
Canton Street, Collinsville,
Farmington Center,
Wheatogue)........................ 2 20 7 3
Putnam..................................... 11 8
Rockville (including Ellington,
Tolcottville, Tolland,
Vernon, Verdon Center)..... 1 2 14 6
Seymour.......................... .'........ 24 15 55
50
Southington (including Cheshire,
Marion, Milldale,
Plantsville)........................ 11 6
South Norwalk (including
Cranberry, East Norwalk,
Rowayton, West Norwalk,
Wilton)........................... . 51 27
Stafford Springs........................ 10 5
Stamford (including Darien,
Glenbrook, Springdale).... 8 251
Stratford.........7.. . ........ 9 51 76 46
REPORT OF THE COMMISSIONER OF NATURALIZATION. 815
Stat eme nt 1—Continued.
State and city or town. Number
of classes.
Total
enrollment
Names furnished. Blank supplies
furnished.
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
Connecticut—Continued.
Thompsonville (including Enfield,
Hazardville, Scitico,
Somerville)................ ........ 9
9
311 5 3
Torrington (including Burrville,
Newfield, Torringford,
West Torrington)........... .. 600
Wallingford............................... 23
889
13
452
Waterbury (including Buck’s
Hill, East Farms, East
Mountain, Hopeville, Middlebury,
Mill Plain, Oronoque,
Park Road, Prospect
Reidville, Town Plot,
Waterville, Wolcott)..........
Watertown................................ 1
1
3
6
12
1'7
76
44
Westport (including Greens
Farms, Saugatuck)............ 4
22
2
9
Willimantic (Including town
of Windham)......................
Windsor (including Poquonock,
Rainbow, Wilson)....
Winsted (including Norfolk,
Winchester)........................ 19 12
Total................................ 155 3,377 3,592 1,928 955 50
District of Columbia.
Washington (including Langdon
Station)........................ 24 791 391 164 675
Florida.
Tampa (including West Tarpon
Springs)..................... 3
2
187
124
79 29
West Tampa (Tampa P.O.)...
Total................................ 5 311 82 31
Georgia.
Atlanta............................... 129
111
48
Savannah.................................. 1 7 33
Total................................ 1 7 240 81
Idaho.
Pocatello (including Fairview,
North Pocatello)................ 37 17
Potlatch................................. 3 27
Total................................ 3 27 37 17
Illinois.
Alton............................... 2
10
8
51
299
47
14
86
3
54
Aurora (including Montgomery,
North Aurora)......
Blue Island (including Burr
Oak, Morgan Park)............
Bridgeport............................. 3
12
2
7
Canton (including Brereton,
Norris, St. David)..............
Chicago (including Austin,
I Hawthorne, Jefferson, Kensington).....................
13,759
137
90
38
2
6,202
73
40
20
6,000
Chicago Heights (including
South Chicago Heights)... . 3
2
86
38
100
30
10
Cicero (including “ Drexel,
Grant Works, Warren Park).
Decatur...............................
Dixon................
Duquoin............................. 3
East Moline............................... 34
75
11
30
500
East St. Louis....... 18 453 2,350
816 REPORTS OF DEPARTMENT 01- LABOR.
Stat eme nt 1—Continued.
State and city or town. N umber
of classes.
Total
enrollment.
Namps furnished. Blank supplies
furnished.
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
Illino is—Continued.
Eldorado................................ . 1
21
19
Fairmount................................. 39
Geneva (including Batavia)... 12
Granite City.............................. 60
576
61
57
19
248
39
33
Joliet (including Rockdale)....
Kewanee....................................
La Salle (including Utica)....... 3
2
107
Mark........................................... 52
Moline (including Silvis)......... 4 125 100
North Berwin (including District
98, Cook County, Oak
Park P. O.)......................... 4
2
8
37
35
8 5
Oglesby (including La Salle
Township).........................
Peoria......................................... 151 119
9
15
125
95
39
6
44
62
45
14
9
15
4
Plano.........................................
Pocahontas................................
Quincy....................................... 1 12
Rockford....................................
Rock Island............................... 18
2
...................
278 .
Royalton (including Bush,
Hearst)............................... 30 18
Sesser......................................... 19
28
10
11
10
81
12
Streator...................................... 3 . 29 Taylorville................................
Techny......................................
Tovev......................................... 4 25 6
56
6
Waukegan.................................
Woodstock................................
Total................................ 101 . 1,925 15,571 7,056 3,090 6,000
Ind'ana.
Anderson including Alexandria,
Elwood, Frankfort,
Lapel, Middletown, Pendleton)................................
East Chicago (including Indiana
Harbor).......................
Fort Wayne (including Arcola,
Huntertown, New Haven)..
Gary...........................................
Huntington...............................
Kokomo (including Center
Township)..............................
Michigan City...........................
Mishawaka................................
Richmond.................................
South Bend (including River
Park)......................................
Terre Haute..............................
Whiting (including Robertsdale,
Roby, Stieglitz Park)..
2
15
Total 22
Iowa.
Albia........................................ .
Aurelia......................................
Boone........................................
Buffalo Center..........................
Burlington (including West
Burlington)...........................
Cedar Falls...............................
Cedar Rapids ’including Benson,
Bertram. Cedar
Heights, Covington, Edgewood
school district, Janesville,
Kenwood Park, Linn
Junction, New Hartford,
Palo, Parkersburg, Robbins)
Centerville............... ................
Clinton......................................
Council Bluffs...........................
1
2
21
29
56
805
35
800
1,747
13
27
38
1,084
209
443
10
24 ■
89
23
io i
576
2,469
8
22
6
314
120
134
4
56
16
7
338
69
123
1,193
33
1
160 80
12 I 7
156 20
36 1 22
10
18
40
46
114
8'
80 i
REPORT OF THE COMMISSIONER OF NATURALIZATION, 817
Stat emen t 1—Continued.
State and city or town. Number
of classes.
Total
enrollment
Names furnished. Blank supplies
furnished.
Candidates.
Candidates,
wives.
Educational
record
cards.
Letters of
invitation
Iowa—Continued.
Davenport (including Bettendorf,
Rockingham-)........... 100
143
38
66
Des ftfoines (including Valley
Junction)...........................
Fort Dodce............................... 5 38
Iowa City................................... 1
13
42
6
1
13
14
1
Iowa Falls.................................
Lamont......................................
( Mason City................................ 1 51
Oelwein.......................
Ottumwa................................... 121
3
28
35
2
101
Pella............................<.............. 4
1
103
22
Scarville.................................... 2
Sioux City (including Leeds,
Morningside, Riverside,
South Sioux City).............
Spring Hill..............................
54 ...................
Tama........................ 2
Total................................
Kansas.
Capaldo (Pittsburg P. 0.)....
Cuba...........................................
18 338 581 456 194 ...................
13
27
39
2
4
1
1
211
1
...................
Ellsworth..................................
Garden City.............................. 21
40
22
3,079
3
11
Kanopolis..................................
Kansas City (including Argentine,
Bethel, Bonner Springs,
Maywood, Menages Junction,
Piper, Rosedale,
Turner,Vinewood, Welborn,
Wolcott).............................. 318
1
177
1
275
Narka......................................... 1
New Tabor (Cuba P. 0.)
Offerle............................. 1
8
1
Pittsburg......... 4
Total................................
Kentucky.
Bellevue (Newport P. 0.) . .
8 3,221 336 188 275 ...................
1
165
Louisville (including Highland
Park)?.........................
Paris...............................
1 10 96 30
20 ...................
Total.............................
Louisiana.
Kenner........
1 10 166 96 50 ...................
1
1
17
Shreveport......................... 9
Total...................... 2 26
Maine.
Auburn................................. 11
10
22
14 5
Augusta........
Bangor.................................... 32
4
76
25
49
58
11
3
40
4
27
19
Dover............ . .. .
Lewiston.................................... 439
Rockland.................................
Rumford (including Mexico,
Smithville, Virginia).........
Waterville (including Fairfield,
Oakland, Winslow)...
Total........
.................. 1
2 471 | 258 109
15283—la b 1920---- 52
818 REPORTS OF DEPARTMENT OF LABOR.
Stat emen t 1—Continued.
Nanies furnished. B1?”™;SoVE£lles
State and city or town. Number
of classes.
Total
enrollment
Candidates.
1
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
Maryland.
Baltimore (including Arlington,
Brooklyn, Catonsville,
Curtis Bay, Dundalk, Frank
linville, Fullerton, Gardenville,
Govans, Hamilton,
Hillsdale, Mount Winans,
Orangeville, Overlea, Pikesville,
Roland Park, St. Helena,
South Baltimore, Sparrows
Point, Towson, West
Arlington)........................... 61
243
11
2,236 952 150
Perryville..'.............................. 18
Total................................ 7 254 2,236 952 168
Massachusetts.
Adams........................................ 61
1
192
60
75
Amesbury.................................. 125 14 7
Attleboro (including Chattery,
Norton, Rehoboth, Seekonk)
Ayer............... ........... ............... 2
8
1
3
Barre (including Gilbertville,
Hardwick, Petersham,
South Barre, White Valley).
Beverly (including Danvers,
Wenham)............................
4
4
65
65
Beverlv Farms.......................... 43
3,761
39
319
3
187
103
25
6
2
168
1
243
46
207
16
1,703
19
133
Boston (including Allston,
Brighton, Charlestown, Dorchester,
East Boston, Hyde
Park, Jamaica Plain, Mattapan,
Mount Hope, Roslindale,
Roxbury, South Boston,
West Roxbury, Readville).....................................
91
2
2,728
Brockton.................................... 182
Cambridge.................................
Canton.......... ............................. 3
10
10
5
5
48
248
179
94
80
Chelsea....................................... 85
77
14
5
1
107
1
187
22
128
750
Chicopee.................................... 500
Clinton (including Boylston,
Lancaster, Sterling)..........
Easthampton (including
Southampton).......................
Easton (including Mansfield,
North Easton)...................
•
Fall River (including Swansea,
Tiverton, R. L, Westport)...
Falmouth...................................
8 257 150
Fitchburg................................... 100
Framingham (including Ashland,
Hopkinton, Sherborn).
Gardner............................. ........ 14
11
275
89
Gloucester (including Bay
View, East Gloucester, Essex,
Lanesville, Magnolia,
Manchester, West Gloucester)
.......................................
Great Barrington...................... 2
41
40
403
381
3
1
1
18
28
/
269
214
2
Greenfield (including Deerfield)....................................
Haverhill (including Merrimac,
Newton, N. H., Plaistow,
N. H.).........................
Holyoke (including South
Hadley, South Hadley Falls,
Willimansett)............ ........ 3
14
no
609
Lawrence (including North
Andover)................................
Lenox (including Lenox Dale,
New Lenox, North Lenox)..
Leominster (including Lunenberg)....................................
14 188
REPORT OF THE COMMISSIONER OF NATURALIZATION, 819
Stat eme nt I—Continued.
Blank supplies
Names furnished. furnished.
State and city or town. Number
of classes.
Total
enrollment
Candidates.
Candidates’
wives.
1
Educational
record
cards.
Letters of
invitation.
Massachusetts—Continued.
Ludlow......................................
Lynn (including Nahant,
Saugus, Swampscott)........
2 47 36
324
142
29
15
2
26
156
82
22
6
2
45
400
...................
Malden....................................... 23 405
Marlboro (including Northboro)........................-...........
Maynard............... ................... 492
30
59
Melrose...................................... 51
Methuen....................................
New Bedford (including
Acushnet, Dartmouth, Fairhaven,
Freetown)...............
Newburyport............................
871 65
33
41
15 100
...................
Newton (including Auburndale,
Chestnut Hill, Eliot,
Newton Center, Newton
Highlands, Newton Lower
Falls, Newton Upper Falls,
Newtonville, Nonantum,
Riverside, Waban, West
Newton).............................. 1
2
10
43
North Attleboro (including
Plainville)...........................
Norwood (including Balch
District).....................
14
85
12
80
127
11
57
9
50
56
100 ...................
Palmer (including Bondsville,
Thorndike, Three Rivers)...
Plymouth..................................
Quincy.....................
2 31
Shirley.................. 25 2
5
25
Somerville................................. 172
Springfield (including Indian
1 rchard, Long Meadow).......
8
420
7
Taunton................. 213 135 17
2
320 '
34
Vineyard Haven (inchtding
Fisbury Township)........ 45 Walpole (including Foxboro,
Norfolk)..... 3
50
15
1
29
10
M altham...
Warren....
1
101
Wellesley.... 24
West Springfield... . 20
153
16
71
100
Worcester.. 150
Total......... ......................
1
315 7,737 | 7,681 3,921 2,725 ...........
Michigan.
Albion............... :.................... 2
Ann Arbor........................... ’'
Battle Creek.......................................... 2
Ray City (including Banks,
East Side, Essexville, Salsburg,
West Side)................... 1
Benton Harbor (including
Coloma, Millburg)...................
Bessemer..................................... 4'
Birmingham............ ....... 1
Chassel.................................V” .
Crystal Falls (including Tobin
Location, Western Location)................
Dodgeville (including Isle
Royale Mine, Superior Location,
Superior Mine)...............................
Escanaba (including North
^Escanaba, Wells).................. 1
Grand Haven (including Ferrysburg,
Spring Lake)....... 6
Grand Rapids.............................................
Gwinn (including Cyr Mining'
Location, Princeton)............ | 9 I
20
""44'
5
7o'
’2’756'
4
30
53
87
71
7 1
22 9
53 25
65 15
8 1
11 6
8,300 2,884
7
11 5
78 32
99 46
17 8
607 487
6 1
3
820 REPORTS OF DEPARTMENT OF LABOR.
Stat emen t 1—Continued.
State and city or town. Number
of classes.
Total
enrollment.
Names furnished. Blank supplies
furnished.
Candidates.
Candidates’
wives.
Educational
record
cards.
.Letters of
invitation.
Michigan—Continued.
Hamtramck............................... 1 60 761 388
Hancock (inchidmgjT'ranklin
t Mine. Pewabic,S.Quincy
' Mine)...................................... 3 94 13 7
Houghton (including Ionia)...
Hudsonville...............................
3 32 29 17
1 10
Iron River................................. 4 56
Ironwood................................... 90 210 78
Kalamazoo (including Comstock,
Galesburg, Plainwell,
Schoolcraft, Vicksburg).... 38 22
Lake City... ’...............“.......... 1 1
Lansing (including Bath, De
Witt, Dimondale, East Lansing,
Halsett, Holt, Mason,
St. Johns)........................... 178 91
•
Loretto (including Waucedah)
Marquette.......................
40 11 3
2 46 33 8
Mohawk (including Ahmeek,
Allouez).............................. 2 51 4 1
Mount Clemens........................ 15 8
Munising.................. 27 11
Muskegon (including Fruitport,
North Muskegon).... 314 208
Muskegon Heights. .. 3 42 8 7
Negaunee....... ................. 2 67 27 14
Nof wav, Vulcan... . 3 41 5 2
Painesdale (including Atlantic
Mine, Baltic, South Range,
Toivola, Trimountain) 10 241 18 14
Pontiac (including Clarkston,
Farmington, Holly, Orion,
Oxford, Rochester).......... .
Port Huron (including North
Port Huron, Salt Block,
Upton Works)............
1 18 145 46
68 27
Redndge.......... . .......................
Republic..
1 17
2 15
Saginaw (including Birch Run,
Bridgeport, Buena Vista
Townsnip, Burt, Carrolton,
Fosters, Freeland, Merrill,
Oakley, Spalding Township,
Swan Creek, Zilwaukee)....
Saginaw, West Side.
4 185 147 92
4 83 20 12
Sault Ste. Marie (including
Algonquin) 4 25 57 19
Stambaugh (including Caspian,
New Caspian, Palatka)
Traverse City.....
2 35 1 45
6 5 100
Victoria 1 52
Wakefield (including Castile
Mine, Micado Mine, Plymouth
Mine, Waco Location,
Waco Mine).............. 8 102 31 19
Total................................ 152 4,538 11,458 4,626 145
Minnesota.
Albert Lea (including Alden,
Armstrong, Clarks Grove,
Glenville, Hayward, Man-
Chester) 3 17
Alexandria ., 4 2
Arlington .. 1 1
Aurora (including Adriatic,
Mesaba, Miller, Mohawk,
Stevens) 5 90 34 18 50
Austin (including Brownsdale,
Lansing, Oakland,
Ramsey, Rose Creek, Waith
am) 1 4 11 3
Badger....................................... 1 1 •
REPORT OF THE COMMISSIONER OF NATURALIZATION, 821
Sta te men t 1—Continued.
State and city or town. Number
of classes.
Total
enrollment
Names furnished, Blank supplies
furnished.
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
Minnesota—Continued.
Biwabik (including Pineville)
Buhl (including Dean Mine,
Wanless, Woodbridge).........
Chisholm (including Balkan
Township, Billings Location,
Clark Location, Dunwoody
Location, Hartley,
Monroe Location, Myers,
1
17
17
294
19
19
6
8 150 ...................
Shenango)..............................
Coleraine (including Bovey,
Calumet, Marble, Taconite).
Columbia Heights..-.................
Crosby (including Dearwood,
25
2
520
37
73
62
11
37
15
11 .....................
Ironton).................................
Duluth.......................................
East Grand Forks (including
26 676
35
896
11
312 15 ...................
Grank Forks, N. Dak.)........
East Lake..................................
Ely (including Savoy Loca-
2 11
16 5
...................
...................
tion).......................................
Eveleth (including Drake and
Stratton Location, Trov Lo-
8 227 ...................
cation)....................................
Fergus Falls (including Aurdal
Township, Battle Lake,
Buse Township, Pelican
Rapids, Rothsay, Under-
30 449 104 43 400
wood)......................................
Gilbert (including Belgrade
Mine, Elba Location, Genoa,
Genoa Mine Location, Hutter,
McKinley, St. Louis
River R. S., Schley Loca-
31 16
tion, Sparta)..........................
Grand Marais............................
Grayling....................................
International Falls, Ranier....
Keewatin (including Bennet
Mine, Bray Mine, Mississippi,
St. Paul Location).......
Lawler........................................
Little Falls................................
Lyle...........................................
Mahnomen.................................
Mankato (including Eagle
Lake, Lake Crystal, North
Mankato, St. Peter)..............
Menahga....................................
Minneapolis (including Robinsdale,
St. Louis Park).....
Montevideo (including Wat-
19
111
I
1
1
349
322
7
10
35
68
16
8
2,888
27
54
2
12
1
18
2,890
26
11
33
8
9
1,327
19
53
40
15
12
40
...................
son, Wigdahl)........................
Moorehead.................................
Mora (Rural district 6)............
Mountain Iron (including Costin,
Ellis, Hopper, Kinross,
13
10
22
53 ...................
Leonidas Mine, Parkville)...
Nashwauk (including Balsam
Lake School, McLeod School,
Paratella School, Shoemaker
3 ...........•••?’
School)...................................
New Ulm (including Cottonwood,
Lafayette, Milford,
Sigel Township).................
Norwood (including Bongard,
Cologne, Hamburg, Motordale,
Plato, Waconia, Young
1 •21
51 17
>
America)................................
Park Rapids..............................
Red Wing..................................
Rochester...................................
St. Cloud (including Sartell,
W aite Park, W hi te Park)....
St. Paul........ .................... .
1
1
3
47
3
11
15
63
1,020
1
4
1,029
1
1
466
.................
822 REPORTS OF DEPARTMENT OF LABOR.
Sta te men t 1—Continued.
State and city or town. Number
of classes.
Names furnished. Blank supplies
furnished.
Total
enrollment.
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
Minnesota—Con t inued.
Section Thirty........................ 2
South St. Paul........................ 3
Tower....................................... 2
Two Harbors........................... 2
Virginia (including Florenton,
Franklin, Northside)....... 25
Wannaska.................. ........... 1
Winona...................................... 1
Total................................594 |
Missouri.
Crystal City... ...........................
Desloge....................................... 3
Kansas City (including Independence,
North Kansas
City. Rosedale, Kans.)......
Springfield.............................
22
Sugar Creek.............................
Total................................ 25
Montana.
Butte (including Centerville,
Meaderville, McQueen Addition,
South Butte, Walkerville).....................................
Flat Willow............................... 1
Forsyth...................................... 3
Glendive (including Allard,
Colgate. Hovt).........
Graber (including School District
108).............................. 1
Great Falls (including Black
Eagle)................................. 4
Havre....................................... . 6
Heron......................................... 2
Kalispell.................................... 1
Lewiston (including Glengarry,
Hilger, Moore, South
Lewiston) .
Miles City................*...........
Missoula ~.................................... 1
Olanda....................................... 1
Plains......................................... 3
Red Lodge........................ ........ 3
Terry__ .
Vananda.................................... 1
Wason Flats.............................. 1
Total................................ 28
Nebraska.
Bayard.... y.........'...................
Blue Hill....'.............................
Bridgeport.................................
41
Clarkson....................................
Columbus..................................
Crete...........................................
Hardy........................................
Havelock....................................■
Howell.......................................
Lincoln (including Collegeview,
Normal, University |
Place) ............... -•...........
111281
13
Norfolk (including South Norfolk)....’.............................
Omaha (including Benson,
Florence, South Omaha)....
Fierce.........................................
Randolph...................................
Ruskin.......................................
4
15
11
1
20
165
56
34
480
1
14
42
2
97
105
22
2
25
45
7,621 5,648 J 2,500 863
10 4
97
498
11 5 ................... ;
35
630 21 9
428 208
1
24
30 20
4
117
70
4
3
137 64
23
31
37
3
13
18 3
24
120
15 .
10 .
10 .
8 . 29
1
378 687 311 43 .
22
18
12
9
11
15
2
89
12
491
17
1.446
11
20
39 16
118
19
603
48
15
280 275 .
2 1 I- .................. 1..
REPORT OF THE COMMISSIONER OF NATURALIZATION 823
Sta te men t 1—Continued.
Names furnished. Blank supplies
furnished.
State and city or town. Number
ofclasses.
Total
enrollment
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
Nebraska—Continued.
1 34
4 2
35
Wilber........................................... 1 1
York (including Henderson). 9 1
Total ............................ 55 2,188 807 364 310
Nevada.
McGill ...................................... 2 40 11 3 30
Sparks........................................... 8 150
Total .............................. 10 190 11 3 30
New Hampshire.
Berlin (including Gorham,
Milan)..................................... 14 528 148 77
Claremont .................................. 14 208 2
Derry............................................. 2 39
Epping.......................................... 2 26
Franklin (including Hill,
Northfield, Sanbornton) .... 8 78
2 35
Manchester (including Auburn,
Bedford, Bow, Candia,
Chester, Goffstown,
Grasmere, Weare)............... 8 100 15 2
Milford (including East Milford,
Pine Valiev)................ 4 50 3 3 9
Nashua.......................................... 28 641
Newmarket.................................. s 193 8 rr
Newport....................................... 28
Portsmouth................................ 6 160
Rochester...................................... 6 107
Somersworth (including Rollingsford")...............................
6 3
Suncook (including Allenstown,
Hooksett, Pembroke'*. 1
Total ............................ 107 2,193 186 94 84
New Jersey.
Atlantic City.............................. 6 215 266 134
Bayonne........................................ 4 117 1,145 629
Bernardsville (including Basking
Ridge, Far Hills, Liberty
Comer')................................... 54 36
Bloomfield.................................... 2 30 58 34
Bordentown (including Roebling,
White House) ........ 1 48 13 1
Camden (including' Collingswood
Borough,Haddonfield
Borough, Haddon Heights
Borough, Merchantville Borough,
Pensanken Township)
Chrome .
1 27 1,233 668
31 22
Clifton........................................... 4 152 101 79
Dover (including Bowlbyville,
Denville, Kenvil, Mill Brook,
Mine Hill, Randolph Township,
Rockaway, Wharton).
East Newark (Newark P. 0.)..
Elizabeth (including Elizabethport,
Elmora, Linden,
North Elizabeth, Roselle
Park).
I 30 37 17
1 19
4 152 1,068 579
Englewood (including Cress-
2 50
Franklin 2 54 5
Freehold 12 9
Glassboro...................................... 18
824 REPORTS OF DEPARTMENT OF LABOR.
Sta te men t 1—Continued.
State and city or town. Number
of classes.
Total
enrollment
Names furnished. Blank supplies
furnished.
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
New Jersey—Continued.
Glen Ridge (including Gloucester)
.................................. 4
11
- 92
97
694
52
15
60
60
302
31
Grantwood.................................
Hackensack (including Bogota,
Maywood, North Hackensack,
Oradell, River
Edge, Rochelle Park, Teaneck)
.................................... 2 44
Harrison....................................
Hoboken.................................... 12
Irvington................................... 1
1
41
24
Kearney (Arlington P. 0.)
(including Arlington, North
Arlington)...........................
Lodi........................................... 43
2,808
289
35
1,686
175
Newark...................................... 36
1
1
1,253
New Brunswick (including
Franklin Park, Highland
Park, Millstone, Milltown).
Newfield.................................... 12
North Bergen (including East
New Durham, Granton,
New Durham, Woodclifi).. 30
241
758
847
392
28
82
44
43
76
14
30
17
1,9978
82
80
9
15
22
151
573
563
264
13
41
37
26
46
9
17
7
1,2196
46
51
6
12
Orange............... ........................
Passaic....................................... 19
15
570
331
65
Paterson (including Hawthorne,
North Paterson,
Totowa, West Paterson)....
Perth Amboy (including
Fords, Keasbey, Maurer,
Sewaren).............................
Phillipsburg.............................. 160
Plainfield (including North
Plainfield).......................... 127
Prospect Park Borough...........
Red Bank (including Eatontown,
Fairhaven, Little
Silver, Rumson, Sea Bright,
Shrewsbury)....................... 48
Rutherford (including Carlstadt,
East Rutherford, Hasbrouck
Heights, Lyndhurst,
Moonachie, Wallington,
W oodridge)........................ 2
37
3
12
6
3
12
44
223
Somerville' (including Manville)....................................
• 52
South River...............................
Summit (including Chatham,
Millburn, New Providence,
Short Hills, Springfield)....
Trenton...................................... 376
30
107
Westfield................................... 75
West Hoboken (including
Secaucus, Weehawken)..
West New York (including
Guttenburg, Union Hill).. .
W oodbine.. .7.................. '.
Woodbridge (including Avenel,
Iselin, Port Reading). . 100
Total................................ 140 4,106 12,907 7,677 512
New Hfexwo.
Albuquerque (including
Baralas, Martine Town,
Old Albuquerque)................
"7 _
13
2
2
11
50
45
6
24 10
Dawson.................................
Deming.................................
Raton.7...................................
Total................................ 8 112 24 10
REPORT OF THE COMMISSIONER OF NATURALIZATION. 825
Stat eme nt 1—Continued.
State and city or town. Number
of classes.
Total
enrollment.
Names furnished. Blank supplies
furnished.
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
New York.
Albany (including West
Albany)............................... 10
Auburn (including Aurelius,
Fleming, Melrose Park,
0wasco, Port Bryan, Sennett,
Skaneateles, Throop)..
Au Sable Forks........................
15
1
361
12
52 36 ...................
Batavia...................................... 49
107
1,740
34
65
736
Binghampton (including Johnson
City, Union)................ 14
113
122
14
11
330
2,224
24
38
43
33
3
20
Buffalo (including Cheektowaga,
Forks)............................
Cadyville...................................
500 ...................
Canandaigua.............................
Capron.......................................
7 4 135
60 ...................
Carthage....................................
Chazy.........................................
Clyde.......................................... 7
70
13
34
45
117
48
2
6
49
4
13
15
69
17
2
25
Cohoes........................................
Corning...................................... 11 165
Cortland.....................................
Depew (including Bellevue)...
Dunkirk.....................................
4 67 ...................
Elmira (including Horseheads,
Southport, Wellsburg,
West Elmira)...........
Endicott....................................
Fairport.....................................
3
6
61
186 70
5
50
...................
Frankfort................................... 2
3
2
50
60
66
Fredonia....................................
Fulton........................................ 25
37
27
23
18
12
17
20
Geneseo......................................
Geneva......................................
Gloversville...............................
Granville................................... 21
49
Hastings-upon-Hudson............ 24
Haverstraw............................... 9
24
23
14
4
14
10
13
Hempstead................................
Herkimer...................................
Hinckley....................................
Hornell ".................................... 77
10
121
73
38
236
671
Hudson Falls............................
Jamestown (including Celeron,
Falconer, Frewsburg, Lakewood)..................................
85
15
27
50
9
17
Johnstown.................................
Kingston....................................
Lackawanna............................. 6 105
Little Falls................................ 28
1
17
Lowville.................................... 1
Lyon Mountain........................ 212
3
115
10
27
24
100
96
9
20
20
314
Lyons......................................... 10
15
56
4
79
31
2
Massena.....................................
Mechanicsville (including Frog
Island, Stillwater).............
Medina (including Knowlesville,
Middleport)...............
Morrisonville............................
18 ............
Mount Morris............................ 1 1
Mount Vernon (including
Bronxville, Pelham, Tuckahoe)....................................
Newark...................................... 19
328
67
29,125
360
26
32
12
71
ii
187
33
13,971
182
19
13
11
36
Newburgh................................ 4 51
New Rochelle............................
New York.................................
Niagara Falls (including
La Salle)................................
North Tarrytown.....................
605
33
1
28,545
771
26
4
2,135
...................
North Tonawanda (including
Tonawanda) .................... 267
Oakfield.................................... 35
Ogdensburg...............................
3 13 ...................
Olean....... 7................................ 1 41
826 REPORTS OF DEPARTMENT OF LABOR.
Stat emen t 1—Continued.
Number
of classes.
Names furnished. Blank supplies
furnished.
State and city or town. Total
enrollment
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
New York—Continued.
- ..
Oneida (including Durhamville,
Oneida Castle, Wampsville)....................................
7 5
Oneonta..................................... 3 1
Ossining..................................... 10 7 200
Plattsburg................................. 2 28 70
Port Ivory (Staten Island
P. O.).................................. 6 252
Port .Tervis................................. 10 8
Poughkeepsie............................ 8,560
18
99 52
Rensselaer................................. 1
Rochester (including Brighton,
Chili, Clarkson. Gates,
Greece, Hamlin, Henrietta,
Irondequoit, Mendon, Ogden,
Parma, Penfield, Perinton,
Pittsford, Riga, Rush,
Sweden, Webster, Wheatland)....................................
373 180
Rockville Center (including
East Rockaway, Lynbrook,
Malverne, Oceanside)........ 23 10
Rome......................................... 110
6
81
Sag Harbor................................ 1 35 6 100 St. Johnsville............................ 2 2
Saratoga Springs ..................... 8 68 13 7
Schenectady (including Alplaus,
Glenville, Niskayuna,
Scotia, South Schenectady,
Township of Niskayuna)....
Seneca Falls..............................
57 1,055 106 59
Sloan (Buffalo P. 0.)............... 100 2 12 2 2
Solvay........................................ 32 608 82 47
Southampton ........................ 2 21 6 4
Standish..................................... 1 8 .........i........ I
Syracuse (including East Syracuse,
Eastwood, Liverpool,
Onondaga Valley)............. 100 40
Ticonderoga........'............. 1 18
Tupper Lake............................. 2 46 60
Utica (including Deerfield,
New Hartford, New York,
Mills, Whitesboro)............ 38 848 731
11
410 180
Waterloo........ ........ . ................. 1 34 8
Watertown (including Brownville)....................................
3 103
Whitehall.................................. 2 35 16 8 100
Willsboro................................... 4 7
Yonkers..................................... 11 75
Total................................ 1,184 46,752 34,384 | 16,666 j 4,199
North Dakota.
Alkabo....................................... 2
........... 5*
2115
1
14
17
17
9
14
24
11
17
Ambulance Butte (Solen P. O.)
Antelope....................................
Benedict.................................... :::::::::::: :::::::::::: Beulah.......................................
Bismark..................................... 17 7
Burnstad................................... 35
Chimney Butte (Mandan
P. O.)..................................
Cooperstown............................. 4
Crown Butte (Sweet Briar
P. O.).................................. 8
31
12
Dodge......................................... 8
Eckelson.................................... 6
Fargo......................................... 21 7
Fayette...................................... 6 15
Halliday.................................... 13
Harvey'..................................... 6
4
2
2
Hazen” (including Expansion,
Krem, Mannhaven, Stanton)......................................
naMnwwHBPiiii
REPORT OF THE COMMISSIONER OF NATURALIZATION. 827
Stat ement 1—Continued.
State and city or town. Number
of classes.
Total
enrollment
Names furnished. Blank supplies
furnished.
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
North Dakota— Continued.
Heilbron, District No. 18
(Hebron P. O.).................. 33
37
13
Jamestown................................. 2
Judson, District 6.....................
Kulm.......................................... 1
21
5
Lakota (including Aneta,
Dahlen, Kloten, Mapes,
McVille, Michigan, Pekin.
Petersburg, Tolna, Whitman).....................................
12
12
4
12
16
28
8
8
Lidgerwood............................... 4
Lonesome (Flasher P. 0.).......
Mandan...................................... 18
Mercer........................................
Minnewaukan...........................
Minot......................................... 45 7 400 Pleasantview District 10
(Courtnay P. 0.).... 1
14
5
10
9
8
9
Solen..........................................
Tioga..........................................
Turtle Lake...............................
Williston.................................. 11 5 Wilton........................ 17
12
1
15
32
47
27
Wise District...............
W ishek.................................
Zap.............................................
Total........................... 83 522 135 42 435
...
Ohio.
Alliance................................... 3 72 106
1.854
43
793
70
5
34
1
284
Akron (including Cuyahoga
Falls, Doylestown, Hudson,
Peninsula).......................... 6
36
3
22
Bedford...................................... 2 22 ...................
Bellefontaine......... 60
Canton (including East Canton,
Louisville, New Berlin,
North Canton. North Industry,
Osnaburg)................... 82 Cincinnati (including Carthage,
Dayton (Ky_), Elmwood
Place, Hartwell, Lockland,
Madisonville, Norwood.
Reading, St. Bernard,
Shaker Heights)... 4
150
264
4,968
Cleveland (including East
Cleveland, Euclid, Newberg,
Royalton, West Park)......
Columbus 2,972
170
1,583
Conneaut (including Amboy, 70
East Conneaut, Nort Conneaut)
......................... 3 50
40
148
9
39
470
8
Dayton...
Elyria (including Carlisle)....... 10
1
3
24
1
.........1.........
J remont.........
Hamilton (including Coke
Otto, Fairfield Township,
Overpeck, St. Clair Township,
Symmes Corner, Tren-
T ton)......................................... 5 3 Lorain...........
Marion.............. 11
42
9
1
2
2
8
Medina............. . .................... ...................
Neffs...........................................
! ’iqua (including Bradford,
Covington, Fletcher, Len
Conover, Lockington, Pleasant
Hill Troy, West Milton).
St. Clairsville.... ..
30 ...................
11
Sandusky....................................1 21
828 REPORTS OF DEPARTMENT OF LABOR,
Sta te men t 1—Continued.
State and city or town. Number
of classes.
Total
enrollment
Names furnished. Blank supplies
furnished.
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
Ohio—Continued.
Steubenville............................ 8
2
54
19
1,001
138
10
1,914
65
8
761
Tiffin........................................
Toledo...................................... 1,400
Total.............................. 213 7,185 4,053 5,222 3,232 60
Oklahoma.
Hartshorne................................ 8
2
20
2
, 2
12
7
2
12
22
3
•
Lehigh (including Midwav,
Phillips)..............................
Oklahoma.................................. 3 32
Okmulgee...................................
Sapulpa...................................... 4
1
4
10
Tulsa' (including Home Gardens
Addition, Springdale,
West Tulsa).......................
Total................................
Oregon.
Astoria (including Hammond,
Warrenton)........................
Bay City, district 31.................
Clifton, district 33.....................
8 46 46 28
21
336
1
16
4
178
22
61
1
200
Eugene....................................... ..............15.
Marshfield.................................. 25
3
645
North Bend.............................. 1 12
Portland (including St. John). 405
The Dalles.............7.............. 25
Wallowa.................................... 12
7
Wauna, district 38................... 28
Total................................ 18 404 855 468 240
Pennsylvania.
Allentown................................. 7
16
470 109
65
i 64
31
Altoona (including Hollidaysburg,
Juniata, Logan Township,
Llyswen, South Altoona)..................................
Anita.......................................... 25 6
Archbald.................................... 29
2
2
18
Ardmore....................................
Armstrong................................
AspinwalRPittsburgh P. 0.)..
Austin........................................
1
21
2
13
16
20 4
Avoca......................................
Barnesboro (including Cymbria
Mines, E Imora, Emeigh,
Garman, Marsteller, Saxman,
Spangler)................... 7
4
44
Beaverdale.............................
Bell......................................... 1
12 40
22
17
Bellefonte.................................
Bessemer..................................
Blairsville .......... 22
205
11
129
Braddock (including North
Braddock, Rankin) 3 109
Chamber svi lie.......... . ............... 60
Clifton (Clifton Heights P.O.). 70
De Lancey Crossing..............
1 13
25
28
1 1
Dixonville.............7.................. 1 50
Downington............................. 81
18
5
1
12
Dunlo ..........................
Duryea (including Moosic,
Old Forge) .. 1
2 1
44
52
Easton (including Glendon,
Palmer, Redington, West
Easton. Williams Township,
Wilson Township)...
REPORT OF THE COMMISSIONER OF NATURALIZATION. 829
State ment 1—Continued.
State and city or town. Number
of classes.
Total
enrollment.
Names furnished. Blank supplies
furnished.
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
Pennsylvania—Continued.
East Pittsburgh (including
Chalfont Borough. North
Versailies Township, Wilkins
Township).................. 3
12
90
19
25
87 41
Edwardsville (Kingston Stafirm
P O 'i
Eleanor .................................... 4
71
136
732
3
54
88
452
Rllwood Citv (includingHazel
Dell, Park Gate, Wurten-
U Lil ) - - • - -
(Erie (including^ Lawrence 666
51
1,015
Franklin.................................... 54 7
8
3
Franklin Borough (Cone- 5
Fulton' Run (Creekside P. 0.). 3 22
21 13
1
3
6
51
53
25
150
104
33
Harriman (including Bristol,
rjQgeiy, l uiiyiu iiy..............
Harrisburg (including Enola). 51 15 90
75
115
Indiana .......................... 3 80
1
2
9
8
38
4
20
Jeanette (including Arlington,
Grapeville, Hempfield
Township, Penn Manor,
Penn Station, Penn Township)....................................
54
41
216
Johnstown (including Conemaugh,
Dale, Edgewood,
Ferndale, Lorain, Tannersville
Westmont)............... 570
55
318 300
Kittanning (including East
Franklin Township, North
Buffalo Township).............
Kulpmont ............................... 1 9 3 25
Lancaster (including Diller- 65
1
101
1
72 ■Lansford.................................... 63
2
2.53
04
17
250
Lebanon (including East Lebanon,
Lebanon Ind. Borough,
Lehighton, North
Cornwall Township, South
Lebanon, West Lebanon)...
Locust Gap (including Atlas).
M o.D on old
82
50
9
39
120 200
75
300
McKeesport (including
Dravosourg, Elizabeth
Township, Glassport, Port
Vue, Versailles)..................
McKees Rocks (including Pittock,
Presston, Stow Town-
7 131 266
160
150
111
1
4
1
13
60
92
22
32
52
Monessen (including Rostraver
Township)............... 35 22
Mount Carmel (including
Diamondtown, Keiser).....
Nanticoke..................................
68
193
7
107
4
3
9
44
149
5
83
2
33
New Castle .............................. 5 133
158
19
New Kensington (including
Arnold, Parnassus, Springdale,
Valley Camp)............
North East.?.............................
Osceola Mills.............................. 25
830 REPORTS OF DEPARTMENT OF LABOR.
Stat ement 1—Continued.
Blank supplies
Names furnished. furnished.
State and city or town. Number Total
of classes, enrollment.
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
Pennsylvania—Continued.
Peckville (including Blakeley
Borough)................................
Philadelphia (including
Germantown).. .*...................
Phillipsburg..............................
Pittsburgh (including Bellevue,
Crafton, Homestead) ...
Plains (Wilkes-Barre P. O.)...
Punxsutawney..........................
Reading.....................................
Reynoldsville........................ ’ ’
Scottdale....................................
Scranton.................................’ ’
Seminole.................................."
Sharon............................. ’. ’' ”
Sharpsville......................”’’’’
Slatington............................... ’’
South Fork...............................
Sugar Notch............................’ ’
Turtle Creek..............................
West Chester.......................... ’’
Wheatland.............................. ' ’
Wilkes-Barre.......................... "
Winburne........................’' ’ ‘ ’
Woodlawn (including Dickey’
Hollow, McDonald Hollow,
Temple Hollow)....................
Woods Run (Pittsburgh P.
5
3
97
16
5
41
5
5
51
5
4
2
40
3,173
28
2,149
163
1,036
"sis’.
315
26
14
55
154
86
62
Total
Rhode Island.
Anthony....................................
Apponaug...........................
Central Falls.............................’
Cranston (Providence P. d.j”
East Greenwich........................
East Providence.....................”
Greenville (including’Smith-’
field).... ;.............................
Johnston (Providence P. O.j.’
Providence................................
Westerly (including Ashaway,'
Bradford, Charlestown, Hopkinton,
Stonington, Conn.)..
Woonsocket........................
Total
South Carolina.
Angelus,....................................
Blythewood...................... ’" ’
Brancheville.............................
Charleston (including Atianticville,
Mt. Pleasant, Sullivan’s
Islahd)......................
Columbia................................ ” ”
Darlington.......... ...........
Edgefield........................... .....
Florence............................... '. ’'
Greenville................................’ ’
Greer...............................
Marion.............................. ’ ’’ ’ ’ ’
New Brookland............... . ’ ’ ' ’
Paris Island........................ ’' ’ ’
Plantersville................... ’. ’ ’ ’ ’
Summerton............................ ’ ‘
Summerville................... '. ”' ’
312
1
21
3
2
25
1
35
1
11,556
7
515
24
1
100
12
1,013
695
2,367
27
2,479
2,868
44
6
116
3
9
366
37
2
13
22
20
461
20
24
9,812
1
1,366
1,733
26
2
49
36
223
100
50
65
200
1,250
19
3
11
8
280
17
5,754
1
22 11
2 9
9 7
921 458
63 36
83 34
1,101
153
10
1
441
71
549
39
3
3
1
1
1
50
1,500
40
4,157 1,550-
200
200
27
REPORT OF THE COMMISSIONER OF NATURALIZATION. 831
Stat eme nt 1—Continued.
State and city or town. Number
of classes.
Total
enrollment
Names furnished.
| Blank supplies
furnished.
Candidates
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
South Carolina— Continued.
Sumter....................................... 5
Walhalla.............. .'.................... 2
Total................................ 1 27 196 50 . 27
South Dakota.
Aberdeen................................... 14 140
22
16
90
13
11
24
28
11
57 39
Bowdle...................................... •
Bradley...................................... 5
Freeman....................................
Herreid...................................... 1
Hosmer......................................
Huron (including townships
of Cavour, Clyde, Custer,
Theresa, Valley)................. 12 17 4
Java............................................
Kaylor........................................
Lead (including Central, Terraville,
Terry, Trojan)....... 9 1
Menno........................................ 52
28
11
20
Milbank..................................... 5 16
51
11
Mitchell...................................... 4
Parker........................................
Peterson School (Edmunds,
County Rural)................... 9
9
10
25
27
Pierre.........................................
Redfield..................................... 11
9 4
Reliance (Heib School)............
Roscoe........................................
Sioux Falls (including Riverside,
West Sioux Falls)..... 83 30
Strandburg................................ 2 20
Tripp......................................... 63
Total................................
Texas.
Austin........................................
...................
41 609 197 93 20
11 6
Beaumont................................. 22
11
1
59
103
450
31
Dallas.........................................
El Paso...................................... 156 87
Galveston..................................
Houston..................................... 229
198
32
133
61
18
San Antonio.............................. 19
3
487
Waco.......................................... 26
Total................................ 38 1,156 626 305
Utah.
Bingham Canyon (including
Copperfield, Highland Bay,
Lead Mine, United States
Mine). ................................. 25
4
7
Castlegate........................... 3
Kenilworth............................... 2 15
Logan......................................... 43
21
Magna........................................
Midvale...................................... 25 377
Murray....................................... 2
11
293
2
4
126
Provo............
Salt Lake City.......................... 5
20
97
Sandy........................................ 419
Winterquarters......................... 6 3
Total................................ 52 908 348 148
Vermont.
Bellows Falls... 15
7
32
61
16
Brattleboro...............................
Burlington.............. 35
832 REPORTS OF DEPARTMENT OF LABOR.
State and city or town.
Sta te men t 1—Continued.
Names furnished. Blank supplies
furnished.
Number
of classes.
Total
enrollment.
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
Vermont—Continued.
Lyndonville.............................. 1 28
Montpelier................................. 1 23
Total................................ 2 51 54 23 35
Virginia.
Alexandria.................... ........... 15
553
16
69
6
4
62
6
40
5
Norfolk......................................
Portsmouth...............................
3 87 275
Richmond.................................. 16
81
575
Roanoke (including Raleigh
Court, Salem, South Roanoke,
Vinton, Virginia,
Heights).............................. 11
Winchester................................
Total................................
Washington.
5 112 659 117 850
Aberdeen...................................
Axford....................................... 3 11
Bay View. 1 1
Black Diamond (including
Franklin)............................... 1 25
Bothell...... ................................ 1 3
Burlington.. 1 5
Gamas?......................................
Cashmere................................... 1 1
Centralia. - .............................
Cle Elum (including South
Cle Elum)....
Concrete.................................... 3 18
Conway, District 24 (Mount
Vernon P. 0.)........................ 2 6
Cosmopolis................................. 3 32
Ellensburg................................. 1 6
Enumclaw, District 170.......... 3 3
Ephrata..................................... 1 1
Everett (including East Everett,
Lowell, Mukilteo,
Pinehurst).......................... 3 77
Foster (Kapowsin P. 0.).........
Foster (Seattle R. D. 5)............
11
8
Gate (District 9)....................... 1 1
Gig Harbor................................ 1 14
Gra viand (District 54).....__ 1 5
High Point. .............................. 3 10
Hoquiam (including Polson’s
Railroad Camp, Quession,
Royal City)........................ 3 50
Index......................................... 3 7
Issaquah (including Monohan)
Kelso..........................................
1121
Kent (District 3)................. . 1 2
Kirkland (District 57).............. 1 2
Knappton................................. 1 12
La Conner................................. 1 5
Lester........................................ 2 4
Loomis....................................... 1 1
Montesano (including Brady,
Melbourne, Satsop)........... 5
Mount Vernon.......................... 4 51
Newcastle (District 13)............ 1 13
Olympia (including Belmore,
Mud Bay, South Bay, Tumwater)
.................................. 1 3
Omak......................................... 1 3
Oneida (School District 21)....
Pasco.........................................
1
2
5
10
Pearson (including Scandia)..
Pleasant Ridge(Pearson R. D.)
21
27
7
210 68
12 6
2
46 20
13
3
8
5
3
72 34
60
39
11
15
11
50
12
4 2
6 1
.?. 2
REPORT OF THE COMMISSIONER OF NATURALIZATION. 833
Stat emen t 1—Continued.
State and city or town. Number
of classes.
Total
enrollment.
Names furnished. Blank supplies
furnished.
Candidates.
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
Washington—Continued.
Port Angeles............................. 75
1 9
1 1
1 1
Bnymond...................................... 22 187 39 17 800
Renton (including Earlington)
Roslyn (including Beekman
1 36
3 26 10 5
2,823
3
1,029
Snoqualmie.................................. 1 8 2
827 252
Tacoma (including Browns
Point,Dash Point, Fem Hill,
Manitou,Northeast Tacoma,
Regents Park, South Tacoma,
Titlow Beach)......... 12 2,504 900 409 135
Taylor....................................... 1 1
Tolt (School District 165)....... 1 1
Tonasket....................................... 1 1
7 7
Washougal, RD. 1................... 15
Woodinville (District 23)........ 1 1
Yakima...................................... 1 12 23 11
Total................................ 113 3,264 5,045 1,884 1,132
West Virginia.
Huntington.................................. 14 7
Wellsburg (including Beech
Bottom, Follansbee')............ 1 10 16 8
Wheeling (including Benwood,
Bridgeport, Ohio, East
Bridgeport, Elm Grove,
McMechen, Williamson).... 194 95
Total............................ 1 10 224 120
Wisconsin.
ntigo........................................ 1 15
opleton (including Combined
Locks, Little Chute)..
Beloit (including Afton, Clinton,
Rockton, HL, South
Beloit, Hl.)..........................
1 19
3 31 43 18
B lackwell.................................. 1 10
Chippewa Falls (including
Anson, Cornell, Eagle Point,
Hallie, Irving, Lafayette,
Tilden)...............................
•
6 3
Cudahy (including Fern wood,
St. Francis, Stormy Hill)....
De Pere....................................
3 58 515 362
1 1 2 1
Eau Claire (including Seymour,
Union, Washington,
Altooma)............................. 1 18
Fifield (Devine Rapids School)
Fond du Lac.............................
2 13 1 1 20
2 33 68 41
Grand Rapids (including Bison
Village. Port Edwards,
Rudoiph, Saratoga, Seneca,
Siegel).................................. 17 13
Green Bay (including Duck
Creek).................................. 3 68 274 171
Janesville................................... 1 11 42 19
Juneau............ 1 5 3 2
Kaukauna................................. 111 82
Kenosha (including Pleasant
Ferry. Somers) 25 295 132 69
Kohler.............. ........................ 1 53 25 4
15283—lab 1920----- 53
834 REPORTS OF DEPARTMENT OF LABOR,
State ment 1—Continued,
State and city or town. Number
of classes.
Total
enrollment
Names furnished. Blank supplies
furnished.
Candidates
Candidates’
wives.
Educational
record
cards.
Letters of
invitation.
Wisconsin—Continued.
La Crosse (including Barre
Mills, Holmen, La Crescent,
Minn.; Midway, Onalaska,
West Salem)....................... 21
24
1
2
111
52
30
617
29
44
23
14
44
7
129
49
23
3
58
11
Ladysmith.................................
Madison (including Burke,
McFarland, Sun Prairie)....
Manitowoc.................................
Marinette...................................
Marshfield (including Bakerville,
Hewitt, Lincoln, Mc-
Millan)................................ 15
14
34
3,439
8
11
19
2,166
Menasha.....................................
Menomonie................................
Milwaukee (including East
Milwaukee, town of Greenfield,
town of Lake, Wauwatosa)
................................ 570
North Milwaukee..................... 2
41
24
25
2
430
10
Port Washington (including
Belgium, Cedarburg, Fredonia,
Grafton, Miquon,
Sauleville).......................... 21 13
Prentice, R. D. 1...................... "*
Racine (including Ives, Lakeside,
North Racine)........... 99
34
320
43
19
172
Rhinelander.............................. 1
Sheboygan (including Howards
Grove, Mosel)............ 600
Sheldon........ ........... ................. 1
22
5
45
46
South Milwaukee (including
town of Oak Creek)...........
Stoughton..................................
Superior.....................................
.................6..1
35
398
4
36
6
93
a29
37
18
100
3
19
5
54
16
80
Tomahawk................................
Two Rivers............................... 11
1
11
17
29
Washbum.................................
Waukesha..................................
Wausau (including Rothschild,
Schofield)................
Total................................
Wyoming.
Cambria.....................................
95 2,083 4,991 4,213 1,076 680
2 37
Clearmont.................................. 3 3
Evanston................................... 1
3
3
1
. 11
81
64
9
Hanna (including Elmo,
Evansville)......................... 5 1
Kemmerer (including Conroy,
Elkel, Frontier, Glencoe,
Oakley, Quealey)..............
Laramie..................................... 8
13
125
6
23
16
41
1
9
Rawlins......................................
Rock Springs.............................
Sheridan (including Arvada,
Dietz, Model, Ulm)...............
Superior (including South Superior)
.................................
7
2
129
31
133
Total................................ 19 362 183 62 133
REPORT OF THE COMMISSIONER OF NATURALIZATION. 835
State ment 2.—Cooperating communities, no statistics available.
Alabama:
Adamsville.
Adger.
Alton.
Avondale.
Belle Sumter.
Beltona.
Blossburg.
Brighton.
Brookside.
Burbank.
Coalburg.
Copeland.
Covington.
Dolomite.
East Lake.
Flattop.
Henryellen.
Irondale.
Johns.
Kimberly.
Leeds.
Lewisburg.
Littleton.
Loviek.
Maben.
McCalla,
Morris.
Mulga.
Oxmoor.
Palos.
Pinson.
Porter.
Republic.
Sayre.
Sayreton.
Shannon.
Short Creek.
South Highland.
Tallassee.
Thomas.
Trafford.
Trussville.
Vinegar Bend.
Warrior.
Watson.
Woodward.
Arizona:
Clarkdale.
Flagstaff.
Hayden.
Morenci.
Superior.
Tombstone.
Tucson.
Arkansas:
Bonanza.
Booneville.
Huntington.
Ursula.
Alaska:
Nome.
Perseverance.
California:
Bard.
Chino.
Coronado.
Dorris.
El Centro.
Gilroy (including school districts
of Adams, Live Oak,
Rucker, San Martin, San Ysidro,
and Sunny brook).
Gonzales.
Grass Valley.
Hanford.
Hayward.
Lodi.
Los Banos.
McCloud.
Madera.
Martinez.
Montara.
Moss Beach.
National City.
Nevada City.
Oxnard.
California—Continued.
Palo Alto.
Point Richmond.
Ransburg.
Redlands.
San Bernardino.
San Fernando.
San Gabriel.
Santa Ana.
Ukiah.
Van Nuys.
Weed.
Westwood.
Whittier.
Willits.
Colorado:
Akron.
Bowen.
Cameron (Independence P. O.).
Canon City.
Central City (including Black
Hawk, Nevada, Russell
Gulch, Tolland).
Colorado Springs.
Craig.
Eaton.
Eureka.
Farr.
Fort Morgan.
Hillrose.
Ideal.
Jansen.
Merino.
Monte Vista.
Pictou.
Pueblo (Minnequa School).
Rockvale.
Rouse.
Somerset.
Sopris (Plaza School).
South (.anon City.
Starkville.
Superior.
Valdez.
Connecticut:
Bristol (including East Bristol,
Forestville).
East Windsor.
Glastonbury.
New Milford.
Norwalk.
Terryville.
Delaware:
New Castle.
Wilmington.
Florida:
Jacksonville.
Ybor City (Tampa P. O.).
Idaho:
Blackfoot.
Coeur d’Alene.
Gibbs.
Hope.
Kellogg.
Lava Hot Springs.
Roselake.
St. Maries.
Illinois'
Beardstown.
Belleville (including Dewey
Station).
Cherry.
Dundee.
Granville.
Harrisburg (including Carriers
Mills and Ledford).
Hoopeston.
Kincaid.
Lincoln.
New Athens.
Phoenix.
Princeton.
Roanoke.
Rochelle.
St. Charles.
Springfield.
Toluca.
Indiana:
Clay City.
Clinton.
Elkhart.
Fairmount.
Hymera.
Indianapolis.
Madison.
Rushville.
Iowa:
Ames.
Bancroft.
Charles City.
Cooper.
Dallas Center.
Dubuque.
Elma.
Fort Madison.
Gilmore City.
Granger.
Hubbard.
Indianola.
Jerome.
Jewell.
Lake City.
Lake Mills.
Milford.
Moulton.
Muscatine (including Blue
Grass and Fairport).
Orange City.
Pocahontas.
Red Oak.
Rock Rapids.
Rutland.
Waterloo, East Side.
Kansas:
Atchison.
Aurora.
Belvue.
Clayton
Concordia (including Jamestown).
Hamilton.
Horton.
Isabel.
Kirwin.
Maryville.
Munden.
Newton.
Palmer.
St. Peter.
Wichita.
Wilson.
Kentucky:
Henderson.
Louisiana:
Gretna (including Jefferson
Parish).
Independence.
New Orleans(lncluding Algiers,
Amesville, Chef Menteur,
Gentilly, lakeview, 1 ee,
Little Woods, McDonoghville,
Milneburg, Pontchartrain
Grove).
Maine:
Biddeford.
Franklin.
Westbrook.
Winthrop.
Massachusetts:
Amherst (including Cushman,
North Amherst, Pelham,
South Amherst).
Arlington.
Baldwinville.
Bridgewater.
Cohasset.
Dedham.
Everett.
Ipswich (including Hamilton,
Row-ley. and Topsfield).
Lowell (including Billerica,
Dracut, and Tewksbury).
Monson.
836 REPORTS OF DEPARTMENT OF LABOR,
Massachusetts—Continued.
Natick (including Cochituate,
Sherburn; and Wayland).
Needham.
North Adams.
Northampton (including Florence).
Peabody.
Pittsfield (including Dalton, •
Hinsdale, and Lanesboro).
Revere.
Rockport (including North Village,
Pigeon Cove, and South
Village).
Rutland.
Somerset.
Southbridge (including Charlton
and Sturbridge).
Stoughton.
Turner Falls.
Wakefield (including Lynnfield
and Reading).
Wareham.
Watertown.
Westfield.
Westford.
Michigan:
Alpha (including Dunn Mine
Location).
Argyle.
Austin (Holly P. O.).
Bad Axe.
Boon and Henderson, District
7.
Bridgehampton, Districts 4 and
12.
Buel, Districts 1 and 6.
Calumet (including Centennial,
Centennial Heights, Kearsarge,
Osceola, Tamarack,
ana Wolverine).
Constantine.
Custer, District 3.
Delaware, District 8 (Mandan
P. O.).
Dowagiac.
Elmer, District 1 (Sandusky
Flynn (Brown City P. O.).
Greenleaf (Cass City P. O.).
Hancock (Ripley School).
Henderson, District 2.
Holland.
Iron Mountain.
Ishpeming (including North
Lake School, R. D. 1).
Lake Linden.
Lake Odessa.
Laurium.
Lexington.
Ludington.
Manistee (including East Lake,
File City, and Oak Hill).
Marine City.
Marlette, District 10.
Mio.
Onaway.
Palmer.
Ramsey (including Puritan
Mine).
Rockland.
St. Joseph.
Sandusky.
Slagle, District 2.
Sturgis.
Three Rivers.
White Pigeon.
Minnesota:
Aitkin.
Ashby.
Askov.
Barrett.
Bemidji.
Blooming Prairie-
Border.
Bowlus.
Brainerd (including Barrows).
State ment 2—Continued.
Minnesota—Continued.
Caledonia.
Caribou, District 81.
Carlton.
.Cloquet.
Dilworth.
Elba.
Elbow Lake.
Elk River.
Fairmont.
Faribault.
Frazee.
Grand Rapids (including Island
Lake, Leipold, Maki, Schumacker
School, Trout Lake,
and Wawina).
Greenbush.
Hallock, Districts 8 and 11.
Haug.
Herman.
Hibbing (including Alice,
Brooklyn, Dupond, Glenn,
Kittsville, Latoma, Mace,
Mahoning, Maple Hill, Mitchell,
Penobscot Pool, and
Stevenson).
Hines.
Hoffman.
Hopkins.
Houston, R. D. 6.
Jasper.
Karlstad.
Kettle River.
Kettle River (Rural).
Kinney (including Lucknow,
Sharon, and Spina).
Knife River.
Lake Owasso, District 24.
Luverne.
Moose Lake.
Nicollet.
Owatonna (including Bixby,
Havana, Hope, Medford,
Meriden, Morton, and Pratt).
Palisade.
Quiring.
Roseau.
Roosevelt.
Salol.
Strathcona.
Swan River.
Swift.
Thief River Falls.
Triumph.
Warroad.
Wendell.
Willmar.
Winton.
Mississippi:
Biloxi.
Canton.
Collins.
Flora.
Gulfport.
Ridgeland.
Missouri:
Barnard.
Bragg City.
Caruthersville.
Centerville.
Chillicothe.
jziiguee.
Kirksville.
St. Louis (including Maple*
wood).
Sedalia.
Sikeston.
Slater.
Webb City.
Montana:
Acushnet.
Alder.
Alkali, District 5.
Ballantine.
Billings.
Montana—Continued.
Bob Cat, District 77.
Bowdoin.
Bowdoin, District 38.
Bridger.
Caldwell.
Cascade.
Cheadle.
Coalwood.
Columbia Falls.
Content.
Content, District 41.
Cross S Creek School District 77
(Kingsley P. O.).
Cut Bank.
Dagmar.
Dodson, District 2.
Eddy.
Fallon, District 30.
First Creek (Rivulet P. O.).
Geder School (Valleytown
P. O.).
Genevieve.
Greve.
Grimes Creek (Rock Springs
P. O.).
Hanson (Whitewater P. 0.).
Harb.
Harlem.
Hartwick School (Meredith
P. O.).
Hazel, District 6.
Helena.
Hinsdale.
Kila, District 20.
Knobs.
Lehigh.
Libby.
Lloyd, District 24.
Lost Lake.
Lovejoy, District 30.
Malta.
Malta, District 2.
Marsh.
Marsh, District 47.
Mildred, District 47.
Nashua.
Nielsen.
Nielsen, District 22.
Norheim.
Olney, District 58.
Park City (rural).
Plevpio.
Polson.
Poplar.
Regina, District 5.
Roundup.
Roy, R. D.. District 73.
Saco, District 2.
Sana Creek.
Somers.
Spring Creek (Absarokee P.O.).
Turner.
Turner, District 14.
Ural.
Valley town.
Wagner.
Wagner, District 3.
Westmore.
Whitefish.
White Water.
White Water, District 36.
Nebraska:
Belden.
Clay Center.
Coleridge.
Cornlea.
David City.
Duncan.
Fairbury.
Farnum.
Fullerton.
Gandy.
Geneva.
Grand Island.
Gretna.
REPORT OF THE COMMISSIONER OF NATURALIZATION, 837
Nebraska—Continued.
Hartington.
Hooper.
Humphrey, R. D. 2.
Humphrey.
Kimball.
Laurel.
Lawrence.
Leigh.
Lindsay, R. D. 2.
McCook.
Masmet.
Milligan.
Nebraska City.
Neligh.
Obert.
O’Neill.
Papillion.
Prague.
Schuyler.
Westpoint.
Whitman.
Wood Lake.
Wynot.
Nevada:
Dayton
Elko.
Ely.
Fallon.
Lovelocks.
Reno.
Ruth.
Virginia City.
Winnemucca.
Yerington.
New Hampshire:
Concord (including Penacook).
Woodsville.
New Jersey:
Garfield (including East Paterson.)
Jersey City.
Lake (Almonesson P. O.).
Malaga.
Princeton.
Ventnor City.
New Mexico:
Carlsbad (including San Jose).
Gallup.
Gibson (including Heaton and
Navajo).
Hurley. ,
Koehler.
Las Cruces.
Santa Rita.
Tucumcari.
New York:
Albion (including Fancher and
Hulberton).
Amsterdam (including Cranesville,
Fort Johnson, and
Hagaman).
Baldwinsville.
Barneveld.
Clayville.
Fonda.
Fort Edward.
Gleus Falls.
Lockport.
Manlius.
Memphis.
Northport.
Oswego.
Perry.
Shaleton (Buffalo P. O.).
Troy (including Green Island,
Watervliet).
Walton.
North Carolina:
Concord (including Kannapolis).
Raleigh.
Tarboro.
North Dakota:
Belfield.
Bowbells.
Brocket.
Sta te men t 2—Continued.
North Dakota—Continued.
Buffalo Springs.
Casselton.
Center.
Des Lacs.
Devils Lake.
Dogden.
Esmond (Rural District).
Finley.
Forman.
Gackle.
German, District 6 (Pierce
County Rural School).
Gerson School (Hebron P. O.).
Goldenvalley.
Grand Forks.
Heilbron, District 2 (Hebron
P.O.).
Hettinger.
Joliette.
Linton.
Maddock.
Max.
McArthur.
McClusky.
Medina.
Minnewauken (Rural District)'
Mountain
Nelson District (Nelson P. O.).
New England (Pierce County
Rural School).
NewGerman,Districts (Pierce
County Rural School).
Odessa, District 15.
Park School District.
Selz.
Sheyenne (Rural District).
Strasburg, District 21.
Streeter.
Sweet Briar, District 17.
Towner.
Underwood.
Van Hook.
Washburn.
Webster.
Wildrose.
York (Rural School).
Ohio:
Anna.
Carthagena.
Crescent.
Glouster.
Kenmore.
Lima.
Masury.
Montezuma.
Napoleon.
Oberlin.
Painesville.
Ravenna.
Spencerville.
Upper Sandusky.
Warren (including Champion,
Howland Township, Leavittsburg,
Lordstown, and
Newton Falls).
Oklahoma:
Bartlesville (including Dewey
and Smeltertown).
Blackwell.
Broken Arrow.
Gate.
Haileyville.
Kingfisher.
McAlester.
Marietta.
Pawnee.
Stigler.
Oregon:
Baker.
Blaine, District 27.
Burns.
Central Point.
Clatskanie.
Coquille.
Dennis (Vale P. O.).
Oregon—Continued.
Echo.
Enterprise Camp 1, District 86.
Linnton.
Marcola.
MillCity.
Mohler, District 28
Myrtle Point (including Langlois).
Prescott.
Rieth.
Silverton.
Svensen, District 1.
Wendling.
Westlake.
Westport, District 7.
Pennsylvania:
Ambridge.
Aul.tman.
Bakerton (Elmora P. O.).
Berwick (including W. Berwick).
Bethlehem (including Freemansburg,
N. Bethlehem, S.
Bethlehem).
Bolivar.
Cadogan.
Clymer.
Coal Run.
Coral.
Coudersport.
Coy (Homer City P. O.).
De Lancey.
Ernest.
Ford City (including McGrann,
Manor Township, Manorville,
Rosston).
Furnace Run.
Graceton.
Irwin.
Jenners.
Luciusboro (Brush Valley
P. O.).
Luzerne.
Meyersdale.
Midland.
Mount Union.
Munhall.
Nu Mine.
Palmerton.
Pottstown.
Reed.
Rossiter.
Shenandoah.
Snyder (Homer City P. O.).
Stonvcreek Township (Coleman
P. O.).
Sykesville.
Walston.
Waterman.
Williamsport (including Newberry).
Wilmerding.
Wishaw.
Yatesboro.
Rhode Island:
Bristol.
South Carolina:
Abbeville.
South Dakota:
Armour.
Bellefourche.
Belmont Township.
Burr Oak.
Canton.
Cleveland Township.
Delmont.
Eagle Butte.
Greenway (Rural District).
Leola.
McIntosh.
Marion.
Miller.
Monroe.
Oacoma.
Renner.
Salem.
838 REPORTS OF DEPARTMENT OF LABOR.
Stat eme nt 2—Continued.
South Dakota—Continued.
Springfield.
Troy.
Tyndall.
Vermilion.
Wallace.
Watertown.
Webster.
Wessington Springs.
Tennessee:
Chattanooga.
Memphis.
Murfreesboro.
Nashville.
Texas:
Alief.
Athens.
Canadian.
Cedar Bayou.
Crosby.
Crowell.
Elgin.
Fort Worth.
Humble.
Huntsville.
Katy.
La Porte.
McAllen.
Manor, R. D. 2.
Manor, R. D. 5.
Mission.
Palestine.
Pflugerville.
Port Arthur.
Smiley.
Teague.
Thurber.
Uvalde.
Webberville (Manor P. O.).
Wichita Falls.
Utah:
American Fork.
Cameron.
Clear Creek.
Garfield.
Heiner.
Helper.
Hiawatha.
Ogden.
Ophir.
Price.
Rains.
Scofield.
Standardville.
Storrs.
Sunnyside.
Tooele.
Vermont:
Barre.
Bethel.
Ludlow.
Morrisville.
Northfield.
St. Albans.
St. Johnsbury.
Winooski.
Virginia:
Big Stone Gap.
Washington:
Anacortes.
Auburn.
Avon School (R. D. 1, Sedro
Woolley).
Belleville (Burlington P. O.).
Bellevue.
Bellingham.
Biglake.
Blaine.
Bordeaux, District 67.
Bow, R. D. 2.
Bremerton.
W ashington—Continued.
Burnett.
Carbonado.
Casland.
Casland, District 26.
Chehalis.
Chico, District 23.
Chinook School (Chinook P.O.).
Clearlake.
Clipper.
Connell.
Cumberland.
Curlew.
Danville, District 2.
Davenport.
Deep River.
Dockton.
Duvall, District 14 (including
Cherry Gardens and Novelty).
Eagle Gorge.
Easton. District 28.
Elma, R. D.
Fairfax.
Fall City, District 185.
Fidalgo, District 2 (Anacortes
P. O.).
Florence.
Frances School (Frances P. O.).
Harmony.
Harper.
Hobart.
Hoodsport, District 22.
Houghton, District 22.
Humptulips, District 112.
Ilwaco.
Juanita (Kirkland P. O.).
Lacey.
Lake Campbell (Anacortes
P. O.).
Lake Forest Park, R. D. 6.
Lancaster.
Lincoln, District 36.
Lyman.
Lynden (including Everson,
Glendale, Tenmile).
Manchester.
Manhattan (R. D. 3, Seattle).
Maytown, District 18 (Rochester
P. O.).
McMurray.
Meadows, District 3.
Mol son.
Monroe, R. D. 1.
Nahcotta (Ocean Park P. O.).
Nasel, District 36.
Nisqually, District 35.
Oak Harbor.
O’Brien.
Odessa, District 38.
Odessa, R. D. 2.
Point Roberts.
Port Blakely.
Port Gamble.
Prairie, District 88.
Rainier.
Redmond, R. D. 1, District 124.
Redmond, District 194.
Republic.
Ridgeway (Mount Vernon
P. O.).
Ritzville.
Ronald.
Ruff.
Sedro Woolley.
Selleck.
Shelton.
Silverdale, District 24.
Snohomish.
Snoqualmie Falls.
South Bend. I
Washington—Continued.
Sutico.
Three Lakes.
Tokeland.
Utopia (R. D. 1, Sedro Woolley).
Vancouver (including Hazel
Dell, Lake Shore, Mill Plain.
Minnehaha, and Orchards).
Vashon, District 176.
Walla Walla (including College
P lace).
Waterville.
Wilkeson.
Willapa School (Willapa P. 0.).
West Virginia:
Charleston.
Farmington.
Idamay.
Logan.
Man.
Thomas (including Albert, Ben
Bush, Coketon, Pierce).
Wisconsin:
Almena, District 4.
Ashland.
Auburndale.
Brantwood.
Butternut.
Catawba.
Clintonville.
Conrath.
Crystal Lake, District 8 (Elkhart
Lake P. O.).
Dodgeville.
Eau Claire—
District 2.
District 4.
District 5.
Fifield, District 3.
Freeman (Ferryville P. O.)—
District 10.
District 11.
Hawkins.
Hurley.
Laona.
Marion.
Monroe.
Moquah.
Oconto.
Ogema.
Owen.
Phillips—
Deer Creek School.
East Hyland School.
Hillside School.
Lugar Route.
Minnick School.
Plattesville.
Stevens Point.
Sumner (Lehigh P. O.).
West Allis (including West
Milwaukee).
Wyoming:
Acme.
Buffalo.
Carney ville.
Casper.
Diamondville.
Foxpark.
Gebo.
Gramm.
Green River.
Hudson.
Lenore.
Lusk.
Monarch.
Rock River.
Sublet.
Sunrise.
REPORT OF THE COMMISSIONER OF NATURALIZATION. 839
CERTIFICATES AND GRADUATION CEREMONIES.
In addition to the certificate of graduation which was issued and
presented by the division with such success last year, certificates of
recognition and approval of the school organization and certificates of
proficiency have been prepared and used.
Five thousand and fifty certificates of recognition and approval
have been presented during the past year. These are, as their name
implies, an acknowledgment by the Division of Citizenship Training
of the organized efforts put forth by public school authorities to furnish,
in conjunction with this service, adequate means for providing
instruction in English and citizenship to the foreign born. These
certificates are furnished not only for display in every classroom in
city or village schools where this instruction is given but are also sent
to those remote communities where in some cases one foreign-born
person is being prepared for the duties of citizenship by some patriotic
public-school teacher, who, overburdened as she doubtless is, is carrying
on this work without any reward but the satisfaction of doing a
good deed. Letters received by the division show that these certificates
are greatly appreciated by students and teachers.
The certificate of proficiency which was authorized this year has
proved of great value in stimulating interest and enthusiasm on the
part of candidates having first citizenship papers who have done good
work and made satisfactory progress in their study of the language
and of the United States Government but are not yet eligible for
citizenship. By receiving this certificate of proficiency at the time
the certificate of graduation is presented to qualified petitioners they
are inspired to go on, complete the course, and qualify for the certificate
of graduation when they are entitled to petition for naturalization.
The students prize the certificates very highly. Their expressions
range all the way from the most enthusiastic assertion of one man
that he would not sell his diploma for a million dollars to the very
practical one of a student who told a representative of the service
that his boss had promised him a better j ob if he showed him that he
had attended and graduated from night school.
The practice of making the presentation of these certificates an
occasion of public ceremony has grown and is developing into an
integral feature in this national force for raising up a loyal Americanism
and displacing opposing spirits. Much interest has been taken in
this phase of the work by local organizations, and their assistance has
been exceedingly valuable to the public schools in preparing programs,
in giving publicity to the occasion, and in providing entertainment
and social features. The part taken by native Americans in these
exercises and ceremonies brings home to them the value of their own
citizenship, an appreciation of what it means and the responsibility
of it, carrying as it does the necessity of always making the best use
of it.
Many interesting accounts of graduation exercises are received,
showing the thought and attention which is being given these ceremonies
and the variety which can with advantage be introduced.
One tells of the oath of allegiance being administered as at West
Point, with the left hand on the flag and the right hand upraised.
Boy Scout bands have furnished music for such occasions, especial
interest attaching to the fact that in many instances members of the
840 REPORTS OF DEPARTMENT OF LABOR.
bands were sons in families of those becoming naturalized. A few
extracts from letters descriptive of these events follow:
The president of the board of education awarded the certificates of graduation and
the certificates of proficiency. He also read the personal history of each student and
the students were warmly applauded as they stepped forward to receive the official
recognition of their efforts. * * * The meeting was adjourned following the salute
to the flag and the singing of “America. ” (Rutherford, N. J.)
We have had to close down because of the demands of the closing months of day
school, but shall resume the work with a corps of experienced people during the
summer months. Our interest has kept up remarkably well during the night-school
season and not a single Americanization class had to be discontinued during the year.
Nearly 50 people took our closing examination for the departmental certificate and
about 40 will receive it. We shall make the graduation a big affair on April 17. The
district Federal examiner will be present and present the diplomas. (Chisholm
Minn.)
Undergraduates were given seats on the stage. So well had the graduating class
been trained that they sang every verse of “America” without the aid of a book.
Generous place was given on the program to members of the graduating class. One of
the most pleasant numbers on the program was the recitation of “Independence Bell”
by a little foreign girl, the daughter of one of the graduating students. Her rendition
of this beautiful poem was splendid. (Bethlehem, Pa.)
Between the speeches the audience was entertained by vocal and instrumental music
furnished by 50 school girls, a church choir, and a Ukrainian group of men and women.
The Ukrainians sang their folk songs and hymns. (Allentown, Pa.)
This was the first attempt we had made at anything of the kind, and it was a decided
success. The court room was filled with representative people, the program consisting
of addresses and music, vocal and instrumental, and closing with the entire audience
giving the pledge to the flag. * *_ * If I can be of service to the department in
furthering this idea, I shall consider it an honor to serve you. (Decatur, Ill.)
Your representative will probably make a very favorable report to you regarding the
exercises of last Friday evening. I am very sure, however, that he will not make a
report on one real feature of the evening, namely, the splendid address which he gave
to the naturalization class. His address was a gem. (Holyoke, Mass.)
Each new woman citizen was given a bouquet of flowers in red, white, and blue.
Each new citizen was given a small silk American flag, the gift of the Elks lodge. A
naturalization examiner quizzed the graduates as to their knowledge of American
citizenship responsibilities and the answers were so prompt, complete, and correct
that the Government official turned to the big audience and said that he doubted if
many of the citizens in the audience could answer his questions as correctly and
promptly. The program indicated a very strong community spirit. (Alameda,
Calif.)
First annual reception to new American citizens was given by the citizens’ committee
at High School Auditorium, “an event notable in the annals of this community
and one that will long be remembered by those fortunate enough to be present and to
participate.” Addresses were made by the judge of the naturalization court and the
superintendent of schools, who welcomed the new citizens on behalf of the city and
congratulated them. One of the new citizens responded to the welcome for the class.
(Woonsocket, R. I.)
It is a pleasure to report to you that one of the important results of the evening
school term just ended is the awarding of 55 graduation certificates and 175 proficiency
certificates to members of citizenship classes. While this number may not
seem impressive, it is a nucleus about which inspiration to the rest of the alien pupils
has centered. The plan of awarding such certificates is worth while. With thanks to
you for your cooperation in our Americanization campaign. (Newark, N. J.)
We propose something like the following, which is submitted to you early that there
may be suggestion from your office in time to arrange details. The whole thought is to
keep it as informal as possible and as personal as it can be. We propose to follow it up
with a committee who shall personally see that these people exercise in the fall their
franchise by voting.
This last was from. Olympia, Wash., and resulted in setting apart
June 21, 1920, as Naturalization Day for Thurston County. Twelve
REPORT OF THE COMMISSIONER OF NATURALIZATION. 841
different countries were represented on the committee on arrangements,
and various organizations had a part in making the occasion
a complete success. At no expense to the candidates for citizenship
coming from outlying neighborhoods lodgings and supper were furnished
and an entertainment at one of the local theaters. The Naturalization
Day program was exceedingly neat and attractive, bearing
extracts from Lincoln’s Gettysburg speech and Franklin K. Lane’s
flag speech, the names of the newly made citizens and of the committee
on arrangements, and the autograph signatures of the participants
in the program, including the governor of the State, the
supreme court judge, the chief naturalization examiner, the judge of
the superior court, and the past exalted ruler of the local lodge of
Elks. There is very evident intention of making use of the impetus
thus given to good citizenship in Olympia and Thurston County.
THE TRAINING OF TEACHERS FOR ENGLISH AND CITIZENSHIP CLASSES.
A study of the work initiated last year and carried on by many
higher institutions of education at the suggestion of the Division of
Citizenship Training reveals a steadily increasing interest in citizenship
education. Universities, colleges, and normal and industrial
schools in all sections of the country have awakened to the necessity
of providing trained teachers for this work. Not only are resident
Americanization courses offered but special summer courses in
Americanization and citizenship are being given in an increasing
number of institutions. In addition to these types of instruction,
lecture courses, correspondence courses, Americanization conferences,
teachers’ institutes, package libraries, and film service represent the
ways in which the work is handled.
An even more direct contact with the public schools through these
institutions is obtained through classes in operation throughout the
different States under the tutelage of university extension divisions.
The cooperation betw'een the extension divisions of State universities
and the Division of Citizenship Training has made possible the successful
maintenance of many classes, both in rural communities and
in cities and towns.
To comply with the requests of institutions planning to initiate
Americanization work for types of courses best adapted to the varying
needs of Americanization workers, the division has recently selected
from the prospectuses and bulletins submitted by the different institutions
engaged in this work the most popular courses and subjects,
and has compiled this information. It presents a suggested resident
course in Americanization, immigration, and citizenship, a suggested
summer course in Americanization, a suggested extension and correspondence
course in Americanization, and suggested topics for institute
lectures.
THE FEDERAL CITIZENSHIP TEXTBOOK.
That this publication, distributed free to candidates tor citizenship
in the public schools, is continuing to meet a genuine need is evidenced
from many quarters. The following represent some of the expressions
received from public-school officials and others engaged in providing
citizenship instruction in California, New York, Massachusetts,
Montana, Connecticut, New Jersey, and Texas, while from these and
842 REPORTS OF DEPARTMENT OF LABOR.
other States similar expressions have been received which space again
does not permit quoting:
I have nine different schools for adult students at the present time in which such
material can be used to advantage. In many of the classes now under way in this
district the schools are utterly lacking in suitable material and I am pleased'to know
that the Government has material for distribution to schools-
In January you sent us 100 copies of the Federal Citizenship textbook by R. F.
briSt' • ese have Proverl useful in our Americanization classes, but the supply was
not sufficient to meet the demand. We would appreciate it if you will send an additional
supply.
Thank you for all the material sent. As we are organized at present the textbook
seems to be the thing that fits our need and we shall be glad if we can have 15 copies as
soon as possible.
We are making use of this textbook wherever possible, and we are very much pleased
to have this book to hand out to the foreign-speaking men and women who come info
our evening school or Americanization classes. I find that some of them who can not
read the book take it home and get their children who are going to the public day
school, who can read, to read it to them and interpret it at home. I want to thank you
for your continued kindnesses to us.
We have already started a citizenship class and have eight in quite regular attendance.
Our class meets twice a week at 7.15 and works for two hours. The textbook
issued by your department is the main basis of the work.
I am most thankful, indeed, for the receipt of these books, as they are a very valuable
asset to us in our Americanization and citizenship classes.
About one year ago a representative of your department left with us a few copies of
the student s Textbook, which we used with marked success in our ni°ht school for
foreigners. We have a much larger class now and would like to have °100 copies of
this book, if we may.
When in 1916 the textbook was prepared, its imperfections were
realized and the aid of those qualified to work a revision requested.
With the feeling that only the basis for a fundamental general knowledge
of our language could be embodied within the compass of a small
book, the treatment of the problem of special conditions and vocations
was planned for in supplemental parts. These have since been issued
in special loose-sheet form, covering penmanship and vocabularies
relating to agriculture, carpentry, coal mining, logging and lumbering,
safety terms, and a chart of the form of Federal Government.
Many helpful suggestions for the revision of the textbook have been
received from thoughtful, patriotic educators to whom appreciation
is herein expressed.
Many letters might be quoted to indicate the assistance which is
being given through the distribution of these supplementary publications.
A few will have to suffice:
I am in receipt of a copy of the penmanship sheets published under vour direction.
We would be glad to have 600 sets of these sheets. * * * We have 600 in our
English and f, >reigners class and many of them are in preparation for citizenship papers.
Our naturalization officer, Mr. John Speed Smith, has been instrumental in sending
into these classes all aliens who need the training that these classes affoid.
The special vocabularies you have prepared are proving very helpful.
Let me congratulate you upon the chart. I think that it is one of the best things
yet presented to the student.
Table E shows that the other parts of the textbook have been
equally popular and that there has been growth in this as in other
phases of the division’s work. It will be noted that the distribution
of the Federal textbook during the past fiscal year almost reaches the
100,000 mark, an increase of more than 3,000 over the preceding year
REPORT OF THE COMMISSIONER OF NATURALIZATION. 843
The decrease in the number of manuals furnished is accounted for by
the fact that in most cases the work has been in charge of the same
teachers as last year and therefore additional manuals were not needed.
The number denoting the distribution of penmanship sheets, indicates
not only those which accompanied the textbooks sent out this year
but also others furnished to supplement those supplied in the previous
year but still in use in English and citizenship classes.
The Federal Government chart was published rather late in the year
and its distribution, like that of other parts of the textbook, is limited
by law to candidates for citizenship, yet more than 30,000 were requisitioned
and furnished and as many others could have been sent out in
response to requests from instructors in high-school and college civics
classes had this been possible.
The demand for the special vocabularies has been very great. That
the results of their use have been most beneficial is shown by the
requests received for the preparation of others covering specific industries
and by the fact that during the period of the few months since
they have become available over 89,000 copies of those already prepared
have been distributed to the public schools at their request.
Those in agriculture, carpentry, and safety terms were sent out in the
largest number because of their value in almost every community, but
although the use of the others was as a rule dependent upon a certain
degree of localization of industries they have been called for in sufficient
numbers to prove themselves of value.
Tab le E.—Statement showing distribution to public schools of Federal Citizenship Textbook
with its various loose-leaf parts and Teacher's Manual, for the fiscal years 1919 and
1920.
Publication. 1918-19 1919-20
Manual............................................................................................................................ 9,267
Textbook................................................................................................................... 95'303
Penmanship sheets........................................................................................................
Chart....... i....... .................................
Special vocabularies:
Agriculture.............
Carpentry......................
Coal mining...................
Logging and lumbering
Metal lathing................
Plastering......................
Poultry raising..............
Safety terms..................
Wood lathing................
7,609
98,958
159,756
31,358
14,139
13,516
8,512
3,836
7,482
8,714
8,661
15,716
8,939
Total special vocabularies 89,515
STATE CITIZENSHIP TEXTBOOK.
The suggestion has been made to State officials that a publication
be prepared by each State for instruction upon State, county, and
municipal government which shall be the complement of Federal
Government as it appears in the Federal Citizenship Textbook. This
has been received with favor in many States, and State textbooks
have been or are being published, while others are in process of preparation,
to aid in the making of good and intelligent citizens, in
some instances the governors have placed the matter before the State
boards of education, with recommendations. The following is quoted
from a letter from Gov. J. H. Bartlett, of New Hampshire.
844 REPORTS OF DEPARTMENT OF LABOR.
. You may know that New Hampshire has taken advanced ground in the Americanization
movement and that our new educational law which became operative September
1 has very broad provisions for the education of foreign born, both juveniles and
adults. If you have not already done so, it might be advisable for you to send copies
of the Teacher’s Manual prepared by you, and any other publications bearing on the
ubject, to our State board of education.
In a letter relative to the textbook, Gov. F. D. Gardner, of Missouri,
writes:
I have noted your statement that this is intended for those attending public schools
Also your suggestion that a similar textbook covering the government of the State'
counties, and municipalities be prepared for use in the public schools along with vour
textbook. Therefore I have referred the matter to Prof. S. A. Baker, superintendent
of public schools, for consideration. I heartily indorse your suggestions and hope they
may be carried out in Missouri.
Gov. Charles H. Brough, of Arkansas, expresses approval in these
words:
I suggest that you immediately get in touch with Supt. J. L. Bond, State superintendent,
Little Rock, and confer with him as to the advisability of introducing this
valuable publication in the schools of Arkansas.
From Idaho comes a line from Gov. E. W. Davis, as follows:
After only a hasty perusal, I feel prepared to say that I shall be glad to cooperate
with the State department of education in any further work it may inaugurate along
this line. I would suggest that you present the matter to the commissioner of education,
Dr. E. A. Bryan, Boise.
Gov. Simon Bamberger, of Utah, writes:
While the idea of issuing a similar publication by the State appeals to me, I am
inclined to leave matters of this character with the State board of education.
The State of Oregon is in the van in having already in use a State
textbook, and Gov. Ben W. Olcott writes as follows:
I beg leave to advise that in the capacity of secretary of state, I have for several
years been issuing what is known as the Oregon Blue Book, which covers all of the
phases set out in your letter and a number of others. Through the kindly cooperation
of Mr. John Speed Smith, chief naturalization examiner, with offices at Seattle,
Wash., this Blue Book has been consistently used for the instruction of candidates for
citizenship.
A letter from Hon. Henry K. Norton, executive officer, State commission
of immigration and housing, of California, states:
At a meeting of the commission yesterday it was decided to have prepared a pamphlet
on the organization of the State government which will be suitable for use in naturalization
classes. Work will be commenced on this at once.
In the State of Pennsylvania, Hon. Thomas E. Finegan, State
superintendent of public instruction, has the matter in hand, as shown
by the following extract from a letter written in May:
My illness and long absence have prevented me from completing many of the projects
which I have in mind and one of these is the syllabus on citizenship. It is, however,
having attention now, and will be prepared as soon as the committee is able to complete
the work. _ Our whole Americanization program has also been deferred, but I
expect action will be taken in the near future and that we shall have a bureau established
within the next month. When this is done I shall want one of the representatives
of the bureau to visit your division, if agreeable to you, for the purpose of going
over matters with you.
Hon. James F. Coxen, State director for vocational education, of
the Wyoming Department of Education, writes for suggestions as to
courses for teachers in which methods of organizing and conducting
citizenship classes might be taken up, saying that as soon as possible
REPORT OF THE COMMISSIONER OF NATURALIZATION. 845
such a course will be organized in the University of Wyoming. He
continues :
I shall be very glad to do anything possible to assist in the promotion of this work in
Wyoming. We expect to ask the legislature which meets next winter for funds for
promoting Americanization, and I have little doubt that we shall get at least part of
what we are asking for. I want to assure you that we are more than willing to do
anything possible for promoting Americanization work in Wyoming. * * * If we
can in some way get together on this matter I believe that better results can be secured
than we can secure if we continue to work separately.
It would not be practicable to quote from all the letters from State
officials bearing on this subject, but the correspondence shows
profound interest in the subject of citizenship education bn their
part, that earnest efforts are being made to put citizenship instruction
on a firm basis, and that the Federal plan as authorized by
Congress and being carried out by the Division of Citizenship Training
meets the need which is immediate and acute, as felt by the prospective
citizen. In some States, notably California, there is a general
movement to combine forces so that no energy may be wasted in
working at cross-purposes.
, STATE LEGISLATION.
Within the past three years affirmative legislation has been secured
in approximately one-half of the States to further citizenship instruction.
The reports received here have not been completely studied
and only a passing reference is made to this fact.
Two States, North Dakota and Massachusetts, are referred to as
indicative of the common action, although the conditions in these
States are entirely dissimilar.
NORTH DAKOTA.
The report received from Miss Minnie J. Nielson, State superintendent
of public instruction for North Dakota, presents a resumS
of the citizenship instruction work in her State during the school
year 1919-20, which indicates that her State has taken a great step
forward in this important work. The extent of the effort is well
demonstrated by her statement:
In the 53 counties in North Dakota, 21 reported 40 public evening schools, with a
total enrollment of 924 pupils. These persons ranged in age from 12 to 65 years, were
of 14 different nationalities and from 28 different occupations. This movement is
new in North Dakota and it has been difficult to get complete reports. Indeed, we
realize that this report itself is not complete, as we have had information that at least
seven other schools have been conducted with an estimated enrollment of over 200.
This report includes a reference to the public evening schools to
which State aid was also granted during the year ended June 30, 1920:
In addition to the schools herein mentioned we have in the State a number of
schools whose entire expense was carried by the local districts, also other schools in
which all of the work was done without remuneration of any kind.
One-half of the expense of the majority of these schools is borne
by the State, under legislative authority and appropriation. The
State is to be congratulated on the excellent snowing made, particularly
in view of the condition of its foreign-born population as to
residence, the greater proportion of them residing in the country
places rather than in the cities, and therefore correspondingly difficult
to reach with the message of good citizenship.
846 REPORTS OF DEPARTMENT OF LABOR.
Legislation in the State of Massachusetts was recently effected
and is as follows:
(Ch. 295.)
AN ACT TO PROMOTE AMERICANIZATION THROUGH THE EDUCATION OF ADULT PERSONS
UNABLE TO USE THE ENLISH LANGUAGE.
Whereas the deferred operation of this act would tend to defeat its purpose by
making it impossible to put its provisions in force at the beginning of the next school
year; therefore, it is hereby declared to be an emergency law, necessary for the immediate
preservation of the public convenience.
Be it enacted, etc., as follows:
Secti on 1. The board of education, hereinafter called the board, acting through
the department of university extension, established by chapter two hundred and
ninety-four of the General Acts of nineteen hundred and fifteen, is hereby authorized
with the cooperation of the several cities and towns, to promote and provide for the
education of persons over twenty-one years of age who are unable to speak, read, and
write the English language, and to provide teachers and supervisors in Americanization
work.
Sec . 2. Any city or town desiring to obtain the benefits of this act may apply therefor
to the board, shall conduct the educational work herein provided for in conjunction
with the board and shall be entitled to receive from the Commonwealth at the expiration
of each school year and on the approval of the board one-half of the sums expended
by it in carrying out the provisions hereof. Teachers and supervisors who are employed
by cities and towns for the above purpose shall be chosen and their compensation
shall be fixed by the local school committee subject to the approval of the board.
Sec .. 3. In the schools and classes conducted hereunder, such instruction shall be
given in the English language, in the fundamental principles of government, and in
other subjects adapted to fit the scholars for American citizenship, as shall receive
the joint approval of the local school committee and of the board. The said schools
and classes may be held in public school buildings, in industrial establishments or
in such other places as may be approved by the local school committee and by the
board.
Sec . 4. For the purpose of this act the board may expend during the present fiscal
year such sum, not exceeding ten thousand dollars, as may hereafter be appropriated,
and thereafter may expend such sums as may be annually appropriated.
Sec . 5. This act shall take effect upon its passage. (Approved July 10, 1919.)
. As will be noted, the language of the act has the great virtue of
simplicity. It may well be viewed as a basis for similar State acts.
It recognizes, first, the complete State responsibility and provides
for the sharing of the expense of education for foreign-born adults.
This law has been followed by greatly increased activity throughout
the State. This phase of education is also being stimulated by the
division of university extension through the use of motion picture
films. A very comprehensive plan of cooperation has been laid
before. the superintendents of schools and directors of immigrant
education by the State supervisor of Americanization, Mr. John J.
Mahoney.
In his letter to school officials Mr. Mahoney says:
Heretofore, as you know, there has been no official cooperation throughout the
State as a whole between the schools and the Federal agency that is directly charged
with the responsibility for naturalization. And the immigrant has suffered greatly
thereby. The terms of the agreement arrived at should eliminate largely the difficulties
that have attended, hitherto on the naturalization process. A little later I
shall submit for your consideration more detailed suggestions as to how this cooperative
plan may be worked out. Meantime, let me give you assurance that the
chief naturalization examiner for New England and his staff are disposed to work
in hearty accord with the public schools. They can give us no little help. We can
give them no little help. By working together much can be accomplished, and many
of the annoyances of the past set aside.
REPORT OF THE COMMISSIONER OF NATURALIZATION. 847
STATE WORK IN CONNECTICUT.
The State of Connecticut, in furthering its State Americanization
law, has during the past year appointed Robert C. Deming as State
director of Americanization. In his report of the work of the Americanization
department for the first six months he outlines the plan
which will be followed and indicates good progress already made.
As a part of the State board of education, it will avail itself of the
machinery thus provided, working particularly with the evening
school department. The State director is responsible for local
directors in designated towns, paid jointly by the State and local
school board, who make surveys, form local committees representative
of all factors in the community life, assist the local school
authorities in the establishment of classes, interest the foreign born
in attendance thereon, enlist public sentiment, improve living conditions
where necessary, protect the foreign born from imposition
by giving information on all subjects, and create in them a voluntary
desire for citizenship, at all times placing the responsibility upon the
shoulders of the school board. The local directors report monthly
to the State director.
The State director has the assistance of a bureau of foreign language
speakers comprising American citizens of foreign birth. This bureau
furnishes speakers for meetings through the State when local speakers
can not be obtained. The State director also makes much use of
newspapers, posters, slips in pay envelopes, Americanization buttons
for declarants enrolled in classes, a motion picture called “The Making
of an American,” and additional features for maintaining interest.
In addition to part payment of salaries of local directors by the State,
aid is given by conducting institutes for the training of teachers in
Americanization instruction. These are under the supervision of
an instructor who organizes and teaches classes, demonstrating not
only the means and method employed, but the ease and success of
such an undertaking. A summer institute is held at New Haven for
the training of teachers. There is also a State grant of $4 for each
pupil in average attendance of 75 sessions in approved Americanization
schools.
In some instances expenses were shared by employQrs and organizations,
but this was considered merely as a temporary expedient,
it being held that “ all of the teaching and instruction in any community
ought to be under the direction of the public schools, that
the public, the employee, and the employer be certain that the work
is wholly disinterested.” The State director is in touch with 128
towns through full or part-time directors. In closing the report,
Mr. Deming emphasizes the fact that the education of all illiterates
in the fundamentals is a municipal function and that the responsibility
for this rests with the school board, recommends additional
legislation to further the systematic prosecution of the program
undertaken and the employment of two or more trained field agents
who shall be free to spend necessary time in any one town to criticize,
suggest, advise, and instruct wherever advisable.
An agreement between the Americanization department, the
department of evening schools, and the Division of Citizenship Training
with reference to promoting the organization and conduct of
classes in citizenship has been practically effected.
848 REPORTS OF DEPARTMENT OF LABOR.
NEW YORK STATE.
Progressive legislation enacted in the State of New York makes
\ possible the fine system which has been adopted by Hon. John H.
Finley, commissioner of education, through the State department of
immigrant education of the University of the State of New York.
The entire State has been divided into zones and a director appointed
for each zone, under the supervision of Mr. William C. Smith, supervisor
of immigrant education. Much attention is given to the preparation
of teachers for the special work of instructing foreign-born
adults, courses being offered in the colleges, universities, and in
teachers’ institutes throughout the State, and in this connection the
National League for Woman’s Service is cooperating with the department
of immigrant education by giving intensive training to women
who will serve the State as teachers and aids in night schools and
community centers. The following quotation from the first lecture
in the course given by Mr. William C. Smith, states the problem well:
New York has wiped out child illiteracy,, but the greater job now is to educate
adults. The most pitiful side of our social life to-day is the great gulf we permit to
form between the foreign mother and the child whom we teach English. We have
got to carry the mothers and fathers along with the children. Education is the only
answer to all the problems of Americanization.
As a basis for classroom work a citizenship syllabus has been prepared
by experts on the various subjects, covering “ the salient facts
of citizenship, naturalization, the voting system, and our laws as
they affect the everyday life of the citizen,” together with methods
of presenting these subjects. The Federal textbook furnished by this
division is used in these classes.
The following interesting paragraphs, indicating the enthusiastic
and practical methods adopted by the zone directors, are quoted from
a report to the division by Miss Grace M. Easterly:
As director for zone 9, known as the northern district, I am organizing classes in
English and citizenship throughout the counties of Jefferson, Lewis, Oswego, and St.
Lawrence. Because of the fact that the average teacher in the night-school classes
is not trained to handle matters of citizenship m the practical way the men desire,
I am organizing the citizenship classes both in the night schools and factory classes,
securing as teachers lawyers, representatives of the police department, fire department,
board of health, board of education, city officials, etc., thus bringing to the men
that particular phase of American government and having it presented by the official
of that department. We feel that we are gaining not only a more practical knowledge
of the government on the part of the men, but that by bringing together the foreignborn
men and the American officials on a common ground of meeting, we are paving
the way for a better understanding on the part of each of the life and ideas of the other
and thus making for a really more intelligent citizenship.
The Jefferson County Bar Association has volunteered to teach the naturalization
work in the purely governmental end of civics. In Watertown we are maintaining
classes in the public schools, in my office, and in homes, and are now starting
classes in the factories. A class of 76 men was organized last week in the Babcock
factory. All of these men are candidates for naturalization. It is not possible for
them to take such work in the public schools, but the work is being done directly
under my supervision, representing the State board of education. In the night
schools of the city, we have registered over 100 men, all of whom need naturalization
textbooks. (A request for copies of the Federal Citizenship Textbook to be sent
to various individuals follows.)
Extensive preparations are now under way for the coming school
year which should bring the public-school educational advantages
to the attention of the foreign born in every part of the State. In
■■■■■■■■■I
REPORT OF THE COMMISSIONER OF NATURALIZATION. 849
response to a letter calling attention to the plan adopted in Massachusetts,
Commissioner Finley writes as follows:
Thank you for your letter of March 29 and its inclosure. In our immigrant education
work, we will welcome real cooperation of your Bureau of Naturalization along lines
similar to those now in effect in Massachusetts and other States, as proposed by you.
To bring about this end, I shall be glad to have our Mr. W. 0. Smith, who is in charge
of this work, meet you or your representative in New York, in the near future, to confer
on the matter. Tn the meantime, will you not be good enough to send Mr. Smith,
at this department, all the material you issue, including the revised reference book on
citizenship, so that he may familiarize himself with it before the conference, which
we hope ma}'’ be arranged? Appreciating your offer of cooperation. I am, etc.
STATE OF UTAH.
The law in the State of Utah provides for compulsory attendance
upon public evening-school classes of persons between the ages of 10
and 45 years who can not use the English language, for the establishment
of classes to meet the needs of such persons, for the appointment
of a director of Americanization in the State department of
education to supervise and standardize the work throughout the
State, and an appropriation of $20,000 to make this legislation effective.
This act took effect September 1, 1919. Under its provision
Mr. Arch M. Thurman was appointed State director of Americanization.
Attendance upon public-school classes throughout the State
kept up well, and it was not found necessary to invoke the compulsory
feature of the Americanization law in a single community. In March
an intensive campaign in the interests of better schools was conducted,
the special features of which were the distribution of literature and
the holding of mass meetings throughout the State. Some of the
leading educators of the United States gave addresses at these meetings.
Commercial clubs gave very material assistance by making
local arrangements and routing the various speakers. The extension
division of the University of Utah is cooperating in the work by
offering teacher-training courses, and through the efforts of the
director of Americanization and the Naturalization Service an
Americanization course will be given at the University of Utah
Summer School, at which Mr. Thurman will himself give a course of
lectures.
RURAL WORK.
An outstanding feature of the division’s effort to carry the message
of good citizenship to the applicant on the farm or in small towns has
been the cordial reception accorded its proposal. From a reading of
the figures and comments which appear below, it is clear that the
county public-school system has become its ally in unmistakable
terms. In Minnesota 58 county superintendents and their teaching
staffs, as county organizations, are cooperating with the division,
and from these have been received expressions of appreciation and
enthusiasm. Many real difficulties have been encountered in that
State, yet much good has been accomplished and the way cleared for
a big successful push in the fall of 1920. Among the obstacles have
been lack of funds for pay of teachers engaged in this branch of
activity, epidemic sickness, the hindrances incident to travel and
transportation in the country districts in the winter time, and the
late start. County superintendents in California, North Dakota,
South Dakota, Kansas, Nebraska, and Wisconsin, and county commissionersin
Michigan, were approached with the proposal to introduce
15283—LAB 1920----- 54
850 REPORTS OF DEPARTMENT OF LABOR.
rural citizenship instruction in their counties along the lines of the
division’s plan for individual rural citizenship instruction. Their
responses were spontaneous and generous. More than 97 per cent of
the replies received were favorable. The division has received, at
the date this report was prepared, 40 acceptances from county superintendents
in Wisconsin, 26 from those of North Dakota, 21 from California,
24 from South Dakota, 12 from Kansas, 16 from Nebraska, and
33 from the county commissioners in Michigan. Only a limited
number of counties in Kansas and Nebraska were asked to cooperate.
One hundred and forty-three county superintendents and commissioners
desire to start next fall, and 29 indicate they are ready to commence
immediately, proposing to carry on this work during the heated
term through summer classes, by instruction in their own offices from
time to time, or through local patriotic citizens under their supervision.
In expressly waiving the alternative “next fall” suggestion
of the division, many of these county officials added a remark to the
general effect of “I am ready to start now. The schools are closed,
but will endeavor to see that the candidates are instructed through
competent means under my supervision.” The attention of these
superintendents had been called to the fact that the needs of the
candidates for citizenship instruction were continuous, and did not
cease with the closing of the schools. Supt. W. W. Woolworth,
Lafayette County, Wis., stated: “If any [candidates] desire to do
work now, I could accommodate them. I’ll advertise the matter.”
Mr. Peter Anderson, county superintendent for Benson County,
N. Dak., reported: “We, this office, selected tutors for most of candidates
for final papers appearing at the June hearing. We have
offered the same service to those who will appear in September.
Applications for tutors are now coming to my office.” These statements
are representative of the patriotic spirit of the public-school
officials and teachers, a spirit which is general and persistent among
them, despite the failure of their employer, the public, to recognize
the value of this work by paying them adequate salaries. Mr. H. J.
Fitzpatrick, county superintendent for Scott County, Minn., when
requested to state whether he would continue individual instruction
of rural candidates during the summer, replied: “I desire you to
continue forwarding textbooks for instruction. Instruction may be
given by patriotic citizens. * * * Each class usually consists of one
or at the most two members or candidates. * * *” Miss. Edia A.
Headley, county superintendent of schools, Rock County, Minn.,
states: “If you will continue to send the supplies, I will arrange
with some one to undertake the instruction.” Mr. G. A. Olson, county
superintendent of schools, Koochiching County, Minn., reported:
u * * * I shall be glad to do what I can toward sending these
textbooks out to candidates during the summer. You may continue
sending them to me.” Mr. J. C. McGee, county superintendent,
Beltrami County, Minn., states: “1 shall be pleased to cooperate
with you in the vacation and send out any material you may send
me. * * *” These replies from Minnesota county superintendents
were all in response to the division’s request for continuance of rural
citizenship instruction during the summer months.
It is clearly apparent that our rural public-school officials are
awake to the nature of the work to be performed. A number of
them, when approached by the division in regard to the necessity
REPORT OF THE COMMISSIONER OF NATURALIZATION. 851
of providing for the individual cases in the sparsely settled districts*
have stated that there are none in their counties not speaking English,
or none needing citizenship instruction. Upon the revelation
to them by the division of the number of candidates, either declarants
or petitioners, or both, residing within their educational jurisdictions,
they evidence surprise and usually agree to assist on the
basis of this showing. There are very few counties in the United
States in which there are not persons of foreign birth of adult age
needing instruction in citizenship. Some .of the county superintendents
request and receive from the division the names of the
candidates from month to month, so they may get in touch with
them and meet their educational needs. Some apply for instruction
and study material from the division, to place the same at accessible
points and where it will do the most good in reaching the rural candidates.
A number have furnished the division with a list of the
rural teachers in their communities already conducting citizenship
classes or pledged to instruct in citizenship, or those who are interested
in the subject and will teach all those whose needs come to their
attention. Some are cooperating through communication with the
local chief naturalization examiner. Still others, going further in
the effort, supervise the work of anywhere from 1 to 14 or 15
citizenship classes in their educational jurisdictions. This cooperation
is very effective and direct, and prevails in a very considerable
number of counties. It is especially so where the foreign-born
population is dense in the rural communities.
States in which one form or another of the above is in effect,
with the number of counties affected, are: Alabama, 1; Arizona, 2;
California, 10; Colorado, 2; Idaho, 1; Illinois, 5; Iowa, 16; Kansas,
14; Michigan, 12; Minnesota, 61; Mississippi, 1; Missouri, 3; Montana,
23; Nebraska, 27; Nevada, 1; New Jersey, 1; New Mexico, 2; North
Dakota, 14; Oklahoma, 3; Oregon, 18; Pennsylvania, 3; South
Dakota, 17; Texas, 6; Washington, 17; Wisconsin, 8; Wyoming, 3.
In the 26 States named 271 counties are cooperating with the
division, in the special manner referred to. In these communities
144 citizenship classes have been in operation the present school
year, in a kind of joint partnership with the Federal Government,
through this division. This feature must not be lost sight of, that
this particular activity is a rural activity. That is to say, the candidates
live in country districts, or in small towns, this territory
for the most part being within the jurisdiction of the county superintendents.
Further, great strides have been made in having the ‘‘Sims plan,”
so-called because of the name of the county superintendent chiefly
responsible for it, extended to Montana and other northwestern
States included in the district of the chief naturalization examiner
at Seattle. This official recently sent out a call which resulted in
some 20 counties in States in his district agreeing to cooperate along
the lines suggested. The prospect for the expansion and effectiveness
of this particular effort next fall, when the schools are again
under full headway, is extremely bright.
The division was able during the year to send an educational
representative into the coal fields of Pennsylvania. This action
has met with most gratifying success. Reports to the division
had shown the lack of citizenship classes and the great need for them
852 REPORTS OF DEPARTMENT OF LABOR.
in the coal-mining region adjacent to Pittsburgh. A hasty survey
showed that the miners were eager for an opportunity to learn our
language and to secure information about our institutions but that
the public schools were without funds to pay teachers, and in fact there
were none experienced in teaching the adult. Conferences were held
with municipal officers, public and professional people, representatives
of the clergy, coal operators, and representatives of the
United Mine Workers. The last-named organization voluntarily
furnished the funds to start a large number of classes and sent a
representative with the Government representative throughout that
territory, who gave most substantial aid to the work of organizing
the classes and in securing attendance of miners. The following
excerpt from one of the reports indicates something of the activities
and accomplishments at an early date after this field was entered:
The school directors of Indiana County have given me splendid support: to date I
have opened 12 schools in Indiana County. I have worked so fast the last two weeks
that I have not had an opportunity to write up the reports on Coal Run, Aultman,
McIntire, Chambersville, and Reed, Fa. In all these towns the schools have opened
this week; all in the public-school buildings; and all taught by public-school teachers.
. In this connection the brief letter to the Director of Citizenship
given below, from Mr. James F. Chapman, county superintendent
of public schools of Indiana County, Pa., is convincing:
I wish to assure you that the work of your representative, Mrs. Mary A. Brosnahan,
meets with my hearty approval. Already the work has a good start in this county.
I will beglad to render any service possible in such a worthy movement.
The interest of the schools is again manifested by constant and interested
attendance at courts throughout the naturalization hearings
by city and county superintendents and teachers of adult citizenship
classes. Until the public-school authorities appreciate in a
most practical way the defects in their courses of study, whether
in content or method or both, they will be unable to deal comprehensively
with this vital part of their responsibilities.
The superintendent of Jackson County schools, Minnesota, Miss
Nellie R. Rouse, states that she is delighted with the plan for training
in citizenship of the applicants for naturalization. She believes it to
be the most practical plan for reaching the scattered applicants in
rural districts that has come to her notice. She will most willingly
cooperate and finds the clerk of the court and others much interested
in the plan for instruction.
In some counties there are so few who need citizenship instruction
and these are so widely scattered that the only way to provide for
them seems to be to assign each to some public-school teacher in his
immediate vicinity, or to some well-qualified citizen, who will be
responsible for the preparation of the candidate with the aid of the
Textbook and Manual provided by the division, under the direction
and supervision of the county superintendent. This is being done in
a rapidly increasing number of counties, and at the same time classes
are being established where there are even a. few who can meet for
classroom work. The name and address of the declarant is sent to
the county superintendent, together with material for the use of both
teacher and student, and he promptly communicates with’ the candidate
and the local instructor in order that the work of preparation
may begin at once. This method introduces the personal element
with as little additional labor on the part of the county superintendent
REPORT OF THE COMMISSIONER OF NATURALIZATION. 853
as is possible to attain the desired result. The following encouraging
information comes from Mr. Olaf Wasenius, superintendent of Mille
Lacs County schools, Minn.:
Americanization classes for the foreign-born residents of this locality will be maintained
throughout the spring and summer months. Is offered in every school district
in Mille Lacs County. We have not found sufficient number at any one place for a
class, but several teachers are giving individual instruction. This is entirely a farming
community.
In keeping with the policy in prior years the division has continued
to urge the advantages of having citizenship instruction continued
throughout the summer, since summer classes serve those whose petitions
are heard in the fall and have not been able to obtain sufficient
instruction previous to the summer vacation. Increasing numbers of
cities have adopted this plan and county superintendents are also
doing so. Mr. J. F. Saegert, superintendent of Guadalupe County
schools, Texas, writes:
Most of the schools are closed and the others will close within the next three weeks.
The teachers are leaving for home or summer work until next September. I would
rather take this matter up in September, as I do not see where anything can be done
during the summer. Shall, however, be glad to try to get some of the teachers that
remain to do some work if I can get them to do this work during vacation. Any
further information or literature will be carefully filed, and 1 shall be glad to get that
now, as it will enable me to formulate a definite plan to put before the teachers at
our institute in September.
Miss Frances Clark, of Buchanan, Oreg., reports:
All Harney County teachers are willing to help, so I am sending directory to you.
From another part of Oregon Mr. J. E. Myers, superintendent of
Crook County schools, states that the foreign-born population is very
small and the aliens comparatively easy to teach owing to the influence
of the American population. “The textbook is used to great
advantage wherever possible,” he says.
A report of the progress made in Morton County, N. Dak., under
the direction of County Supt. H. K. Jensen, states in part:
Besides the schools I have mentioned above under my supervision there is a night
school in Mandan under the supervision of Supt. C. L. Love. All of the schools I
have under my supervision are in rural districts with the exception of the one located
at Judson. The rural school teachers should be commended for aiding us in this
work, as I find that they are more willing and apt to take hold of the work than a
teacher in the village or city schools. They live with the people who are foreigners
and realize the need of Americanization. It is my opinion that the number of schoolsunder
my supervision as above mentioned have people enrolled from about 20 districts
in the county. We have received from your department all the necessary
books, and I am well pleased with the cooperation that has been given me in carrying
out this work.
Mr. J. E. Knight, superintendent of Hillsborough County public
schools, Fla., reports that the board of public instruction is conducting
English and citizenship classes, and—
As Americans and school officials we are very anxious that every foreign-born
person avail himself or herself of the opportunities which are now offered. We can
assure you that we welcome any help or suggestions which the Bureau of Naturalization
may give. At present we are conducting two evening classes, one in Ybor City
and the'other in West Tampa, with a total enrollment of about 100. * * * Assuring
you of our full cooperation in the Americanization program and thanking you for
any suggestions which you may make from time to time.
The county superintendent of schools at Cut Bank, Mont., states
that the clerk of the court and her office are cooperating in the work
of assisting applicants for naturalization with their studies. She has
854 REPORTS OF DEPARTMENT OF LABOR.
requested a quantity of supplies, stating that Glacier County has a
large foreign population and that she expects to use these supplies in
no small number as soon as the work gets started.
A letter from Mr. August Nikunen and his wife, Mrs. Sauna Nikunen
at Tower, Minn., expressed their desire to join a class in English and
citizenship, but stated that they could not do so since no classes were
organized in their neighborhood and the nearest town was 8 miles
from their farm. They asked the division to arrange to have a class
started in a schoolhouse near them, stating that they and others in
the neighborhood would attend it. First aid was given in this case
by furnishing helpful literature, since the local schools were closing
for the summer vacation. Steps were immediately taken to secure
school facilities for that neighborhood under the county school plan
of the division.
The following interesting information relative to rural citizenship
instruction appears in the division’s records:
Republic County, Kans.—John Jehlik, 70 years old, a naturalized citizen, has been
instrumental in establishing throughout Republic County a number of classes which
are attended almost exclusively by Bohemians. Mr. Jehlik himself teaches the class
at Cuba, Kans. He conducted a canvass of the entire rural district of 12 miles radius
and communicated by telephone or personal call with each alien. Commenced
teaching two nights a week to a class composed almost entirely of farmers, many of
whom could not speak the English language. Some worked on farms 8 miles from
Cuba, but in spite of almost continuous rainy weather the pupils attended the classes
and urged Mr. Jehlik to give instruction also on Sunday afternoon, which he agreed
to do. During the summer when work on the farms was heaviest the class met once
a week, and early in September resumed the semiweekly schedule. Mr. Jehlik
arranges to have six or eight young ladies come in and sing patriotic songs and explains
to the alien students the meaning of the wofds. Wherever a class is established
Mr. Jehlik personally visits the place and instructs the teacher, furnishing the necessary
supplies to start the work properly.
Louisiana.—March, 1919, at a conference between the Americanization committee
of the State Council of Defense and the parent organization, a fund was set aside by
the council to finance an Americanization campaign, the plan including the employment
of a field agent to carry on the work. Mr. Archie Porter was appointed to
this position, and has accomplished a really remarkable work throughout the rural
districts of Louisiana. Classes have been established in Caddo, Jefferson, Plaquemines,
Tangipahoa, and Orleans Parishes, with 23 teachers and 883 adult pupils.
In instances where school officials were unable to secure teachers, the field agent
located and appointed the instructors himself. He assisted in organizing and grouping
the adult classes in the parishes, arranged for meeting places, which were more often
held in vacant farm buildings or the homes of some of the pupils than in school buildings
proper, and outlined to the teachers a general program for conducting the citizenship
work. Where it was impossible to secure funds from municipal authorities for
payment of teachers’ salaries the Americanization committee assumed that expense.
Ludington, Mason County, Mich.—Letter from W. L. Kunkel, supervisor, Ludington,
dated September 29, 1919: “Classes will be organized in the county during the
month of October, which I will personally conduct. Being occupied in the city
curing the week, I shall find it necessary to conduct these classes on Saturday and
Sunday. For those in the remote sections of the county I shall institute home study
courses with periodical meetings at the courthouse in my office. The work here in
Ludington has been a huge success, and the records show the effect of the classes
conducted here. However, I feel that there is a great deal more to be accomplished,
and shall not be satisfied until the entire county is on a 100 per cent basis. * * *
The work in Mason County will be complete." The records will tell the story. A
class of 40 or more will take their final step in January; 38 of these have attended
my classes. About 40 will come up in June, and every man -will have attended the
classes. And so it will continue until all will have completed the circuit. It will
make a bigger and brighter Ludington and a better community.”'
Custer County, Mont.—July 18, 1919, the county superintendent reported the
establishment of a class near Kingsley post office, stating that the grown people attended
the day schools at Cross S Creek. She expected to eatablish another class
that fall near Kimball post office, where a number of Russians are anxious to be given
instruction. She says: “Only yesterday a Russian from the Caucasus came in for a
REPORT OF THE COMMISSIONER OF NATURALIZATION. 855
book, and I helped him for an hour. His only help when he went home would be
his two little girls, who attended school two years, but who have not been able to
attend for three years because there is no school in their community. The great
trouble in these rural districts is that local boards do not realize the importance of
the Americanization work, and they hire girls to teach with practically no education
and no ideas of service. They should pay enough to get capable teachers who would
be of real service to the community. They should also pay a teacher for holding
night school. Some very fine work was done by Miss Mitchell in the Bulgarian community
of Cross S Creek, which 1 mentioned. She visited in the homes, sometimes
for a week, showing the mothers how to cook American dishes, etc. This was done
on her own initiative, because she enjoyed the work. This kind of work could be
done in all of these communities if some kind of inducement could be held out to the
boards to hire the right kind of teachers.
Phillips County and Hill County, Mont.—In the former county 48 textbooks have
been supplied for the use of foreign born receiving instruction from 10 teachers,
while in the latter county the number of students is approximately 50, with 20 teachers.
The pupils are foreigners who are proving up on land under the homestead laws.
They are scattered around on the prairies within a radius of 40 or 50 miles from the
county seat. The work has been so successful in these two counties that efforts are
being made to get other Montana county superintendents to adopt the plan.
Prairie County, Mont.—After having denied naturalization papers to a number of
German-Russians because of ignorance, Judge C. J. Dousman took up vigorously
with the county superintendent the necessity for citizenship classes throughout that
territory. Judge Dousman suggested to the county superintendent the appointment
of a male instructor who might be provided with a means of conveyance—a sort of
itinerant instructor—who would hold school for adults at stated intervals at a number
of localities in the district. A recent letter from the county superintendent states
that she is organizing Americanization classes, and desires that 30 textbooks and
4 manuals be sent to her.
Thayer County, Nebr.—The county superintendent of schools is arranging throughout
all the schools in the county to take up the instruction in citizenship training,
and he will advise you or the department from time to time in regard to supplies
needed. I think this is a very good move, and am sorry we could not get this work
started earlier. We are willing to cooperate on this work and do everything we can
to help fit these parties for good citizens.” * * * (Excerpt from letter from
clerk of district court, Hebron.
Burt County, Nebr.—Lieut. Stauffer, appointed by the county superintendent of
schools to conduct the work, carries on classes for aliens residing within a radius of
10 miles. Examiner reports that these aliens prefer to have the classes held in the
spring and fall, in order that they may drive to school in their cars. This would seem
to present an unusual situation-prosperity first; desire for Americanism follows.
Burt County is in the wheat and oat belt.
Platte County, Nebr.—In April, 1919, a class of 41—men whose ages ranged from
24 to 70—was organized in Platte County. Mr. J. C. Garlow, chairman of the old
State Council of Defense, was largely responsible for the establishment of this class.
Recently the clerk of the court of Platte County furnished to this office a list of all
declarants and petitioners who had appeared before her and who seemed to be in need
of instruction, and these names were referred to the county superintendent of schools,
or in places where schools were already established, to the superintendents in charge
of the classes. One interesting result of this work was the establishment of a class
of about 25 nuns. These sisters are not allowed to attend regularly conducted publicschool
classes, but an instructor is provided in the convent by the mother superior
and instruction is given there. These nuns will appear for their final hearing in
June and July, 1920.
A plan for rural citizenship instruction evolved principally by
Miss Flora Sims, county superintendent of schools, Phillips County,
Mont., is particularly suited to rural areas. By this sytem the citizenship
candidate when he takes his first naturalization step in the
county clerk’s office is sent from there to the office of the county
superintendent of schools for an interview as to his educational
needs. From this official he is sent to the public-school teacher
living most conveniently to the candidate, from whom he receives
the citizenship instruction. The books for instruction are sent to
the public-school teacher by the county superintendent, to whom
they have been supplied in the first instance by the office of the
856 REPORTS OF DEPARTMENT OF LABOR.
chief naturalization examiner at Seattle. A form for noting progress
is given the candidate. This is filled out by the teacher and forwarded
through the county superintendent of schools to the chief
naturalization examiner at Seattle.
RECORD OF PUBLIC-SCHOOL CLASSES REPORTED FOR 1,523 COMMUNITIES
COOPERATING WITH THE DIVISION OF CITIZENSHIP TRAINING
SCHOOL YEAR 1919-20. ’
In the preceding year a questionnaire was sent out to cooperating
public schools with request for information concerning enrollment
and nature of classes, and 166 communities submitted reports
the data received were so valuable and illuminating that this year
another report was asked for, this time quite early in the school year.
The response was most gratifying, as reports either in whole or in
part were received regarding 1,523 communities. These are presented
herewith m tabular form.
table discloses some interesting facts. The term
indirect cooperation” refers to communities which are not themselves
holding classes but where in order that school advantages
may be extended to the widest possible area arrangements have been
made to give their candidates for naturalization an opportunity of
receiving instruction in a near-by town. “Total enrollment” refers
to the whole number enrolled during the entire year; “Highest
enrollment” to the largest number enrolled at any one time. &The
difference in these figures is accounted for by those who registered
but dropped out because of illness, leaving town, discouragement,
or lack of interest. The first two reasons are those over which there
is no control, but the last two will no longer have to be reckoned
with when a sufficient number of sympathetic, resourceful teachers
have been specially trained for this work for, after all, effective
teaching is. the greatest incentive to attendance.
Communities tor which classes available to the adult foreign born
tor instruction in English and citizenship were reported numbered
1,295, with a total enrollment during the year of 129,942, who were
instructed in 4,241 classes. An average struck from these totals
would give 30 students for each of the 4,241 classes. This fact
is intei esting when it is considered that many of the classes were
m rural communities where perhaps only one or two were enrolled,
and a considerable proportion in the cities where proper facilities,
adequate teaching forces, and expert supervision make smaller
classes preferable. The obvious inference which may be drawn is
that in the greater number of communities where this work is being
k carried on the classes are large and unwieldly, due to the lack of
a sufficient number of trained instructors. However, there has
i>eeiK suc^ gratifying interest shown in the training of sufficient
teachers tor this work, the establishment of institutes by cities,
counties, and States, in steadily increasing numbers, where this
instruction is given, and the appropriation of increasing sums of
money for citizenship instruction that in all probability next year’s
report will show a more adequate provision of teachers that will
make smaller classes a possibility, and a consequent improvement
in instruction.
■ exceedingly gratifying disclosure is presented by the reports
m the relative and actual increase in the number of day classes for
REPORT OF THE COMMISSIONER OF NATURALIZATION. 857
adults. From the limited number of communities reporting in the
preceding year only 8 per cent, or 68, showed day classes for adults.
The reports this year revealed an increase of day classes equal to
nearly one-fourth of all classes, or 936. These figures are most
significant since they show from the study and experience gained
by the endeavor to solve this fundamental of education, that those
who lead in this enterprise are providing instruction where and when
most needed and at times when the mental forces are not at their
lowest ebb as in the cases where classes were held only at the close
of the day’s toil. These day classes include not only those meeting
during working hours in industrial plants, but classes in the homes
for mothers who can not leave their children, or who, because of the
Old World customs still in force, are not allowed to leave the houses
unescorted by a male member of the family.
Nearly three times as many men as women were reported in the
total enrollment, and the proportion of women given in the highest
enrollment remained about the same.
It is interesting also to note the number of women enrolled as
shown by the ages indicated. Plainly, the younger women are the
ones who attend in largest numbers, those who are out in the world
of work and more or less free from the conventions of their native
lands. But the fact that nearly 5,000 foreign-born women who have
reached the years of middle life broke through the shackles of home
duties and Old World customs and exercised their rights as prospective
American citizens is one which can not fail to arrest
attention. And their influence must have spread to the old women,
for not only were 326 between 51 and 60 years of age enrolled, but
48 over 60 years of age. How pathetic, yet how inspiring, is the
picture which this brings to mind!
As to the men, it will be noted that there were two-thirds as many
men between 31 and 50 enrolled as those under 31, which is most
encouraging. The argument is often advanced that the older foreignborn
men and women will not enter the public-school classes, either
because they are ashamed to study with their sons and daughters,
or because they have passed the time when acquisition of new knowledge
is easy. The attendance of many white-haired men and women
on postgraduate and special courses in all of our large universities
shows that these objections are becoming less and less real to the native
born, and the facts revealed by this table show the argument to be
fallacious in its application to the foreign-born. The table shows
that nearly 2,000 men and women between 51 and 60 years of age
attended the classes reported, and 327 men and women over 60.
It is a pleasure to call attention to the fact that of this number of
elderly, earnest foreign-born students nearly 400 were women—
women whose whole lives up to this time had been spent without
any realization that they, too, were entitled to the benefits which
their husbands and sons enjoyed. With suffrage for women now
assured throughout the United States, this attendance of women
upon the classes will surely increase. The foregoing comments
relate to the 62,605 classified according to age. There were 67,337
whose ages were not given. It may be a fair inference that the attendance
by ages may, therefore, be more than doubled all along the
line in proportion as the two sexes are reported.
858 REPORTS OF DEPARTMENT OF LABOR.
Summary showing number of cooperating communities, classes, enrollment, etc.
Total number cooperating communities for which reports were submitted.. 1, 523
Communities for which classes were reported................................................ 1 295
Communities for which classes were reported not completely organized.. 228
Total number cooperating communities reporting classes available................ 1, 295
P^ctly-.................................................................................................................. 694
Indirectly................................................................................................................ 601
Total number of classes................................................................................................ 4 241
Day classes.............................................................................................................. 93 g
Evening classes.................................................................... 3 244
Time not designated....................................................................................... ’ g|
Industrial classes included in above total..............................................................
Average length of term (months)................................................
Average number of sessions each week..................................
Average number of hours per session.................................................................. ’ ’ * 2
Total enrollment reported for year............................................................................. 129 942
Men enrolled............................................................................................................. 9g 794
Women enrolled......................................................................................................... 33’ 148
Total below 31 years....................................................................................... 35, 7g2
Men enrolled............................................................................................. 27 683
Women enrolled..................................................................................... g’ 079
Total 31 years to 50 years............................................................................ 24, 658
Men enrolled........................................................................................... 19 312
Women enrolled...................................................................................." 4’ 34g
Total 51 years to 60 years............................................................................ 1 35g
Men enrolled........................................................................................... 1 532
Women enrolled..................................................................................... ’ 326
Total above 60 years...................................................................................... 327
Men enrolled........................................................................................... 279
Women enrolled..................................................................................* ’ 43
Number whose ages were not given............................................................ 67 337
Highest enrollment at any one time during the year............................................. 121, 741
Men enrolled............................................................................................................. 90 399
Women enrolled...........................................................................'' '' 31’ 441
Highest attendance for year.......................................................................................... 47 953
Men attending........................................................................................................... 3g 341
Women attending.......................................................................................................io’ 812
Average number of students enrolled per class...................................................... 30
Table F presents an interesting stucty of nationalities and of their
relative interest in American citizenship classes. As last year, the
Italians lead in point of numbers reported, but whereas last year
the Poles were second, this year Americans take their place while
the Poles drop to third place. This change of rank from fourth to
REPORT OF THE COMMISSIONER OF NATURALIZATION. 859
second on the part of Americans shows that the public schools by
organizing classes where candidates for naturalization are offered
instruction in English, citizenship, and kindred branches of study,
at the same time provide for adult illiterate Americans the means
of overcoming the handicaps caused by lack of opportunities for
education in earlier years, or by failure to take advantage of those
opportunities when available.
Last year the Mexicans were eighteenth, forming 0.85 per cent
of the total number of nationalities reported, but this year they
stand seventh in rank with a percentage of 4.62. It is interesting to
note that after the Poles, Russians are fourth, Slavs fifth, Hungarians
sixth, Mexicans seventh, French eighth, Germans ninth, and Finns
tenth.
Tabl e F.—Showing the number and per cent of the 67,374 pupils whose nationalities
were reported.
Nationalities. Number. Per cent.
Italians............................
Americans.......................
Poles................................
Russians..........................
Slavs................................
Hungarians.....................
Mexicans.........................
French.............................
Germans..........................
Finns...............................
Canadians........................
Swedes.............................
Greeks.............................
Portuguese......................
English............................
German-Russians...........
Lithuanians....................
Spaniards........................
Rumanians.....................
Australians.....................
Total......................
Nationalities unreported
Grand total...........
12,782
10,497
7,771
5,034
4,794
3,181
3,111
2,691
2,640
2,353
2,063
1,955
1,720
1,536
1,231
1,173
1,122
983
644
93
67,374
62,568
18.97
15.58
11.53
7.47
7.12
4.72
4.62
3.99
3.92
3.49
3.06
2.90
2.55
2. 28
1.83
1.74
1.67
1.46
.96
.14
100.00
129,942 ...................
This limited classification is caused by the failure to request a
presentation of all nationalities enrolled, but only of the ones
enumerated. It is hoped that conditions in the schools will improve
so as to admit of complete classification being requested during the
coming school year.
COOPERATION OF ORGANIZATIONS.
The year just completed has witnessed an ever-increasing tendency
on the part of churches, women’s organizations of various kinds,
civic, and philanthropic clubs and societies to help in whatever way
seems most practical in the Americanization work and the weight
of their influence is adding materially to the results. Indeed, where
there is no work under way the first steps are being taken by these
organizations. Community-service workers are doing this in some
localities, encouraging the establishment of educational as well as
recreational facilities, improving living conditions, and organizing
work along other lines as occasion seems to require. Valuable
860 REPORTS OF DEPARTMENT OF LABOR.
cooperation is being given by churches, as indicated by the following
extract from a letter to the chief naturalization examiner at Philaphia,
from Miss Theresa Trimmell, working at the time in Gloucester
County, N. J.:
This work in south Jersey was initiated by the Board of Home Missions of the Methodist
Episcopal Church, and I have been appointed a social worker in this part of Jersey.
As our program is only a few months old, we have not accomplished a great deal, but
our general directions from headquarters are to set in motion any kind of welfare
work most needed with the expectation that these projects will be taken over as soon
as approved by the departments to which they would naturally belong. With this
in mind, as soon as the classes were organized, the matter was presented to the local
board of education where it was promptly indorsed and provision made for teachers
to do the work and equipment that was needed.
Reports from the division’s educational assistant working in the
coal fields of Pennsylvania indicate splendid cooperation on the part
of pastors of the various Catholic churches who have announced the
citizenship classes to the parishioners at the services and otherwise
lent their influence. This work has also appealed to the Knights of
Columbus so strongly as to call forth the following resolution in regard
to it:
Resolved, That Indiana Council No. 1481, Knights of Columbus, Indiana, Pa ,
heartily support the Naturalization Service, United States Department of Labor,
and will render any assistance possible toward the education of the foreigners in order
that they may know the true principles of Americanism and become true and loyal
citizens of America, and know the Stars and Stripes as their flag.
The report, forwarding a copy of this resolution, states:
Mr. 0 ’Hara, the recording secretary, presented me with the copy and assured me
that all the members are anxious to do everything in their power'to make the educational
movement in Indiana County a grand success.
Also the following expression:
. Resolved, That Punxsutawney Council No. 452, Knights of Columbus, hereby
indorses the plan of the Bureau of Naturalization for the extension of knowledge
concerning the princiules of the United States Government by the establishment of
night schools for the teaching of courses on civil government and kindred subjects to
those desiring such knowledge. Further resolved that we hereby signify our willingness
to cooperate, in so far as will not conflict with the proposed educational program of
the Knights of Columbus, with the agencies of said Bureau of Naturalization in their
efforts to establish and maintain such night school in the Borough of Punxsutawney.
The Division of Citizenship Training has not underestimated the
value of this cooperation and has encouraged naturalization examiners
to confer with pastors and officers of religious bodies, advising them
of its citizenship education program and of the various material aids
available to them for use with public-school supervised English and
citizenship classes of foreign-born candidates for naturalization.
Such conferences have almost without exception resulted in assurances
of approval and support.
At Paterson, N. J., Mr. Raleigh Weintrob, principal of Public
School No. 22, writes the division as follows:
I am conducting a class for foreigners at the Young Men’s Hebrew Association and
wish to use your text as part of the course of instruction. I shall greatly appreciate
receiving any other material of this kind that you have for distribution.
At still another New Jersey point, Red Bank, Attorney at Law
Mary Wooster Sutton makes the following inquiry:
I am secretary of the Monmouth Chapter of the Daughters of the American Revolution,
and our regent, Mrs. Henry S. White, of Red Bank, and my near neighbor, is
very enthusiastic over having the D. A. R. enter into Americanization lines. It is
REPORT OF THE COMMISSIONER OF NATURALIZATION. 861
quite possible that if you should suggest to Supt. Paul R. Radcliffe, Red Bank, N. J.,
that he use his influence to permit the D. A. R. to occupy a public-school room at certain
times to instruct foreigners, the plan would be acceptable to all concerned.
Question: Could the D. A. R. work with the Government and give the diplomas
when earned by these foreigners who desire to become Americanized?
In Spokane, Wash., the Constitutional Government League is
cooperating with the public schools in securing the attendance of all
foreign-speaking people in Spokane, citizens as well as noncitizens,
“to the end that the citizens may have a better understanding of
their civic duties and responsibilities and in order that the noncitizens
may qualify themselves for intelligent citizenship.” The
chamber of commerce and the employers’ association are also cooperating
with the schools.
Mrs. Bertha R. Williams, executive secretary, Home Service Section,
Spring Valley (Ill.) Branch, American Red Cross, writes:
Your suggestion regarding the establishment of classes for American citizenship
came just at the crucial time to help us solve a problem. We are anxious to establish
evening classes for our discharged foreign-born soldiers, as well as other residents.
Splendid work is being accomplished by the Chicago (Ill.) Woman’s
Aid, as shown by the following extract from a report of the Americanization
committee:
The Americanization committee (Mrs. Selig Greenebaum, chairman) put all its
efforts into propaganda work trying to get the foreign non-Engl ish-speaking women
into the public schools to understand and to speak simple English. We are working
with the United States Department of Labor in trying to educate the wives of newly
naturalized citizens, who automatically become voters, and who know absolutely
nothing of their responsibility to the community. The committee visited 38 such
women, distributed about 5.000 dodgers, invited the women of the neighborhood to
the Holden School for simple English instruction or anything else they wanted to
learn. Cooperating with us was every available agency in the district from the
priest of the largest Polish church to banks, newspapers, and every sort of store. The
principal, truant officer, and teachers also lent a helping hand and with optimism
we await the results of the strenuous efforts made. Thanks are due to our committee
who have worked so faithfully.
The American Legion, as might be expected, is entirely in sympathy
with the Federal plan of furnishing advantages whereby the foreignborn
may fit themselves for good citizenship, and through its local
posts is giving strong support and assistance to the school officials,
especially by encouraging attendance of prospective citizens upon
the classes and by assisting in the public ceremonies attendant upon
graduation exercises and citizenship rallies. An instance of this is
indicated in the following extract from a letter written by Mr. C. C.
Faries, post adjutant, at Globe, Ariz.:
Your communication with inclosure of copy of annual report of the Commissioner
of Naturalization received this date, and on behalf of the post I will inform you that
we are cooperating with your department through the examiner located in Los Angeles.
The post plans to conduct a public ceremonial on the occasion of the final papers being
awarded the present class of applicants. * * * Thanking you for the honor
conferred on this post and assuring you of our hearty cooperation at all times.
A most interesting letter addressed to the chief naturalization
examiner at St. Louis by Mr. Samuel I. Sievers, chairman citizenship
instruction committee of Missouri Lodge, Independent Order
of B’nai B’rith, shows that much intelligent study is being given
the problem of preparation for citizenship, with the determination
to extend this to all aliens by one means or another:
In a recent issue of the Globe-Democrat you were quoted as criticizing certain
Americanization work among aliens which tended to take them away from the citizen862
REPORTS OF DEPARTMENT OF LABOR.
ship classes conducted by the public schools. I desire to express my approval of
your stand, and I am sure that everyone who has given the matter thought agrees
with you. It may be of interest to you to know that Missouri Lodge, Independent
Order of B’nai B’rith, has undertaken Americanization work among unnaturalized
aliens of Jewish faith in St. Louis, and it has a naturalization committee at work.
. The policy of the committee is to encourage the alien in every way to attend’the
citizenship classes in the public schools. However, where an unnaturalized alien
is found, who from force of circumstances can not, or through ignorance or indifference
will not, attend these classes, a member of the committee will be assigned to such alien
to act as his “big brother American,” and whose duty it will be by personal instruction
to assist the alien in becoming a naturalized American citizen, appreciating its
privileges and assuming its responsibilities. The committee does not intend to do
any class work whatsoever. There will be no competition or duplication of the work
done in the public schools. In fact, we believe that after some preliminary work it
will be possible to persuade many of the aliens to attend these classes. * * *
While I believe that this plan is new in the field of Americanization work, it is not
intended to be final, and we would welcome any suggestion that may enable us to
do our part in helping to solve the great problem before the United‘States to-day
“The Americanization of the alien.”
So many agencies are interesting themselves in Americanization
work that space will not permit the mention of them all, but the
cooperation offered and the assistance rendered to the public schools
is proving of great worth. These organizations are finding a fruitful
field of endeavor all over the country, and an itemized report of the
support given by these bodies of men, women, and children would
make most interesting reading and furnish suggestions for those not
yet engaged in this particular work.
The Y. M. C. A., with its special appeal to men and its ready adaptability
to existing conditions, is in many places giving hearty support
to the Federal plan for Americanization and helping to place citizenship
instruction on a most substantial basis by cooperating with the
public schools in making this phase of education a permanent part
of the school program. This is especially true in Chicago, Ill.;
Milwaukee, Wis.; Butte, Mont.; Rochester, N. Y.; Spokane and
Tacoma, Wash.; and many other cities and communities where the
Y. M. C. A. officials “recognize the public schools as the place where
citizenship training should be conducted, and they propose now to do
only such citizenship training work as the Government and the public
schools are not prepared to do.” The Y. M. C. A. of the Colorado
Fuel & Iron Co., operating at various points in Colorado, also takes
this stand, and is supplementing the public schools most capably
and doing a splendid piece of constructive Americanization work.
In Raymond, Wash., there is fine cooperation between the association,
the Loyal Legion of Loggers and Lumbermen, and the public
schools. A letter from Mr. Fred Brooke, Y. M. C. A. secretary,
reports:
These classes are meeting in one of the city school buildings and four of the local
teachers are handling the major part of the work. There are also three volunteer
assistants.
A systematic canvass being made of all the mills and the city is not yet completed.
We aim to get every foreigner in the place. (Many native Americans‘need the work
also.) This morning I came across a pool hall frequented by Italians. Found 20
who would like to learn the language and become citizens but were shy about going
to the public school, so I arranged to hold two classes a week in the hall, the proprietor
being one anxious to learn. He had tried for his second papers several times but had
failed to pass.
We have decided to have some of the foreign-born leaders serve on the committee.
They are now helping to put the work across. In fact, the success already attained
belongs in a large measure to them.
REPORT OF THE COMMISSIONER OF NATURALIZATION. 863
In Woonsocket, R. I., there is close cooperation between the
Y. M. C. A. and the public schools. There are many foreign-born
being served by the classes and more are expected in the future.
Mr. James Macllwain, industrial secretary of the Y. M. C. A., writes:
In 1917 there were over 2,000 men who took out first papers in this city, and up to
date there has been less than 600 who have taken out second papers. Before laying
out the work of looking up these men I would be glad to have help from your department.
I will take care of the factories. At present the school superintendent speaks
to our classes on some subjects, sanctions our work, and thinks it is done well.
My idea is to catch all these men who are about to become citizens and inject good
Americanism into them as they are going through, and learning the questions and
answers usually asked by the examiner of naturalization isn’t all they get while going
through the citizenship school. I try to make it all the name implies. Interest is
kept up by the methods used. Snappy or dynamic they might be called. Liberty,
law and order, democracy, and responsibility of citizens are explained quite
thoroughly.
That this is successfully carried out is the testimony of the local
naturalization examiner who reports:
The work that has been done by the Y. M. C. A. under the supervision of the public
schools is marvelous. I examined 462 men in Woonsocket and they could answer
any question asked. The Y. M. C. A. is going to send out invitations to 4,000 holders
of first papers in the Woonsocket district to file their second papers.
The wisdom of the congressional provision that citizenship instruction
should be given under the auspices of the public schools is
vouched for, following practical experience, by the executive secretary
of the Americanization department, Y. M. C. A., Chicago, Ill.,
Mr. Abraham Bowers, who stated in a talk with the chief naturalization
examiner at that point that the organization reached a greater
number of people by recommending attendance at the public schools
than by conducting classes of their own and that therefore they were
showing greater results than when the classes were conducted by the
Y. M. C. A. In a letter written in February, Mr. Bowers states the
case as follows:
In the winter and spring of 1918 we began encouraging foreign-speaking men in
industries to attend the English and citizenship classes in the public evening schools.
It was not long until we found that our Chicago association could render more service
and make a contact as effective while securing the attendance at the public evening
schools as in conducting classes in English and citizenship under our own auspices and
with our own teachers. From that time forward throughout the entire city we have
been most cheerfully urging men in the industries to attend the public evening schools,
both for the vocational education and for the English classes. We have found that in
doing this .we can assist in setting up a type of shop committee to promote this attendance
that is more serviceable to the industry as a piece of industrial work, and to the
employees, than almost anything else that we can do in the industry.
A fine spirit of cooperation is indicated by the following paragraph
from a letter written by Mr. H. E. Blackmar, superintendent of schools
of Ottumwa, Iowa:
With the cooperation of Mr. Dalzell of the Y. M. C. A., Mr. Densbrink of the local
Federation of Labor, and representatives of several interested organizations, we are
making an effort to give instruction to candidates for citizenship. The work will be
conducted in a convenient room belonging to the city schools.
The work at Grand Rapids, Mich., has been greatly assisted by the
Y. M. C. A. through Mr. R. M. DeWitt, industrial educational secretary,
conducting welfare work in 42 factories, with Americanization
as a prominent feature.
The position of the National League of Women Voters, into which
the National American Woman Suffrage Association has grown, is
864 REPORTS OF DEPARTMENT OF LABOR.
stated in these words by the chairman of the American citizenship
committee:
We have won our fight, and we are now ready to put our whole force into citizenship
work.
The leaders of the organization have informed themselves of the
educational work being promoted by this division through public
schools throughout the country and are lending their support in a
most efficient manner in many localities. At its convention held in
Chicago, February 12-18, 1920, the American citizenship committee
of the National League of Women Voters heartily indorsed the
policy of the division.
Advice is being received from different points as to the work being
accomplished, both for native-born and foreign-born women, in
preparation for the responsibility of the ballot. One Americanization
chairman states that the public schools and school centers are being
used exclusively because they offer the easiest method of reaching the
non-English-speaking people. A branch of the league has carried on a
model class for the training of teachers to teach civics and history to
men and women preparing for naturalization. The members of the
league financed this work and have paid experts in order to make it a
complete success.
This is a very important and a most fruitful field of endeavor for
such an active organization as the league, and has a most interesting
future.
Women’s clubs have always been active agents for the improvement
of conditions in their immediate localities, and in various places
have been of great assistance in this particular work by creating
for foreign-born women an American atmosphere. Local and State
clubs have indorsed the work of the division in promoting educational
facilities for candidates for citizenship through the public schools.
Practical work by individual women was stimulated during the
past year by one of the State federations offering gold and silver
medals to the women who did the most locally for the cause of Americanization.
This included work done in anv or all of the following
lines:
1. In making a local survey.
2. In establishing English and citizenship classes in cooperation with the
Bureau of Naturalization and the public schools.
3. In placing in these classes all foreign and native born in need of such instruction.
4. In encouraging the establishment of classes in vocational training and
domestic science, and the attendance therein.
5. In cultivating a more friendly relation with the foreign-born woman.
6. In disseminating a better knowledge of civic and political questions among
both foreign and native born women.
7. In lessening the percentage of illiteracy.
In order that the work might be judged equitably, the report was to
be embodied in a paper entitled, “The Problem and How Met.” The
winner of the gold medal had taught a class of Mexicans gratis for a
period of several months. She had given five afternoons a week to
the work and had gained the confidence of the mothers to such an
extent that she was being invited to their homes and to weddings. A
local club had furnished a school room used by the Mexican children
of the town. One member, a physician, did wonders with the foreign
born of her city, but was, as she expressed it, “too busy doing to find
time to report.”
REPORT OF THE COMMISSIONER OF NATURALIZATION. 865
As the result of an earnest desire to standardize and unify the
•serious work of women’s clubs throughout the country, resolutions
and an outline of policy were drawn up and adopted by the General
Federation of Women’s Clubs at the annual session at Des Moines,
Iowa, in June, 1920.
The Philomusian Club and the Civic Club of Philadelphia have been
most helpful to the public schools in providing for impressive and
interesting programs at the time of the graduation and presentation
of certificates. The cooperation of the City Club and of various industrial
firms is also noted.
THE LOYAL LEGION OF LOGGERS AND LUMBERMEN.
During the war great difficulty was experienced in getting out
spruce from the northwest woods for use in aeroplane production. So
much opposition was encountered from those who endeavored to
obstruct the Government in its successful prosecution of the war that
it became necessary to organize patriotic employers and employees
of the logging and lumbering industry to combat this menace. Thus,
with the cooperation of the War Department, the Loyal Legion of
Loggers and Lumbermen came into being. Primarily established to
promote unity of interest and efficiency in the rapidity of output to
help to win the war, the organization was found to be of such great
value to both employer and employee that it was continued as
mutually beneficial after hostilities ceased.
The 4L organization, as it is commonly called, requires all its members
to be American citizens or to have declared their intention to
become such. Its territory includes the States of Washington,
Oregon, Idaho, and Montana, throughout which approximately 500
locals have been organized.
In July, 1919, Mr. P. L. Abbey, the secretary-manager of the 4L’s,
wrote to the division asking for assistance in facilitating the naturalization
of foreign-born 4L members. Mr. Abbey forwarded a list of
secretaries of all 4L locals in order that whatever assistance was given
might be offered directly. As an outgrowth of this request each 4L
local secretary was informed of what the division could offer to aid
candidates in establishing classes for their citizenship education and in
making out their naturalization papers. The establishment of such
classes, in cooperation with the county or city superintendent of
schools, was urged wherever an organized local existed. The response
from the secretaries and public-school officials has been most
encouraging and many locals have provided facilities by which instruction
in English and citizenship for their foreign-born members
has been freely available. The Americanization committees appointed
have been very helpful, the division supplying each member of the
committee with a syllabus of the naturalization law, sample copies
of preliminary naturalization forms, and a set of instructions for filling
them out in order that each member might be able to give practical
assistance.
In the larger cities and towns the members of the locals are encouraged
to attend the public-school classes already established. In
the smaller places and isolated camps where it has scarcely ever been
possible to secure the services of a public-school teacher, qualified
members of the Loyal Legion have themselves conducted classes in
cooperation with school officials. They have been supplied with the
15283—la b 1920---- 55
866 REPORTS OF DEPARTMENT OF LABOR.
textbooks and other material by this division, including certificates
of proficiency and certificates of graduation.
Among the aids which the division prepared especially for foreignborn
loggers and lumbermen, is a vocabulary of logging and lumbering
terms in the form of a loose-leaf addition to the Federal Citizenship
Textbook. While the business of the northwest woods was responsible
for the preparation of this list of pertinent terms, it has also
been put into use by logging and lumbering classes in other sections
of the country.
The Ladies’ Loyal Legion, or the 3L’s, which works hand in hand
with the 4L’s, has for one of its main objects the promotion of educational
advantages of its members. Plans for classes and study
programs have been made, and that organization is accomplishing
much in the way of community service. A contact is being established
by the division with this organization in cooperation with the
public schools and the 4L’s in order that these activities may be extended
to the women that they may have the benefit of citizenship
training.
Special mention may be made of educational activities in Oregon
where the extension division of the University of Oregon, the University
School of Music, and the high schools are providing splendid
material for the 4L’s. They offer both instructors for classes and
entertainers, in cooperation with local talent, for special programs.
This division has kept in touch with the extension departments of the
universities in these activities both from the central office at Washington
and from the naturalization offices at Seattle and Portland.
The public libraries of Washington and Oregon are making a special
effort to reach all sections of their respective States and the lumber
camps are taking advantage of their service. Increasing numbers
of books are available for the foreign born; books of all classes, including
technical publications that deal with the logging and lumbering
business.
There are many instances of the fine spirit of cooperation manifested
by 4L Locals in taking charge of the citizenship education
work for their members and their harmonious relations with the public
schools. Mr. George T. Crockett, county superintendent of schools
of Kitsap County, Wash., called a conference at Port Gamble with
the local secretaries of the 4L’s to discuss plans for putting the naturalization
program to work. At Raymond, Wash., the citizenship
classes received the support not only of the public schools but also
of the leading civic, fraternal, and other organizations of the city.
Some of the classes were held in the barracks of the Willapa Lumber
Co., some in the Ellis School, and some in the Y. M. C. A. building.
Mr. Fred Brooke, general secretary of the Y. M. C. A., reported:
“The success of the work was due to the [Americanization] committee,
Alfred McCampbell, of the Willapa Lumber Co., chairman.
They gave very freely of their time and ability in putting the job
across.”
Other instances of good work are given in the following quotations
from letters:
Mr. Carl G. Lindahl, secretary 4L Local No. 66, Monroe, Wash.:
I wish to inform you that the 4L local at this operation has been discontinued, but
that the classes in citizenship training are being kept regularly every Thursday evening,
under the supervision of the principal of the local school * * *. The students
are progressin nicelv and take verv much interest in their studies * * *. We
REPORT OF THE COMMISSIONER OF NATURALIZATION. 867
are planning to have onr graduation exercises in July, though no definite date as yet
has been set.
Mr. J. G. Benchley, secretary of 4L Local No. 54, Hope, Idaho:
Have procured the principal of our district for instructor. Vv ill you kindly send
15 textbooks and two Teacher’s Manuals, one of which I would like for my own use,
as it is possible that the instructor might be absent occasionally. We have a fine room
furnished by our village trustees.
The fine spirit of patriotism on the part of the teachers and appreciation
of the importance of citizenship training are shown by the
following:
Mr. E. S. Walker, secretary 4L Local No. 62, Woodinville, Wash.:
Attached you will find a requisition for supplies. I wish to say that our local has
a very few that are not citizens, and those that are not have applied for citizenship.
We have in our locality an Italian section crew who desire instruction. _ The writer
has presented your offer to them and our local feels obliged to assist in this work even
if the work is outside of our membership. The writer will agree to instruct or assist
in this work. At any rate some of us will help carry on.
Mr. P. J. Pedersen, secretary of 4L Local No. 75, Walville, Wash.:
Since the teachers are volunteering their service and not receiving any compensation
for it, we recommend that each of them be given a letter of thanks from the Bureau of
Naturalization, to show appreciation for the teachers’ services in helping to American-'
ize the foreigners.
SPECIAL WORK FOR WOMEN.
The responsibility of the citizen to share in the making of the laws,
in the choosing of the legislative, judicial, and administrative officers,
and in making and keeping this country the best in which to
live, hereafter will rest equally upon every woman citizen as it now
rests upon every voter.
The preparation of foreign-born women for the proper exercise of
the franchise in America is a problem. There are shining examples
of ambitious women, mothers of children, who have made it their
business to get the information necessary to make of themselves
good citizens. For the majority, however, it is necessary to adapt
the instruction and the hours of meeting to the convenience of the
students, and much English is being taught incidentally where women
meet for instruction in sewing, nursing, cooking, or child feeding, or
where they are brought together informally for social purposes primarily.
This is a branch of the educational work in which women
of wisdom and tact, whether as members of organizations or as individuals,
can give and are giving to the public schools most valuable
support. Personal contact with native Americans is needed by these
women and the actual use of our language is necessary to its mastery.
Circumstance and local public sentiment have much to do with the
methods used. One town has a regular system of women’s home
classes with volunteer teachers working all the time under the supervision
of the director of Americanization committee in cooperation
with the regular night-school committee which furnishes part of the
supplies. In another place the citizenship instructor finds time in
addition to the regular classwork to enter the homes of the women and
to be of real service to them. She conducts a class in the early morning,
first in one home and then another, and has succeeded in arousing
so much interest that the women go visiting with her on the days
that she has her classes and take part in them.
868 REPORTS OF DEPARTMENT OF LABOR.
The subject matter of the English lessons given women in this way
should include fundamental facts in regard to the Government and
institutions of America in order that the object sought, that of preparing
for intelligent citizenship, may not be lost sight of. Every
help possible should be given to these prospective citizens, and their
interest aroused so that they will be eager to join classes giving
closer attention and more detailed study to the subject of citizenship
duties when they are sufficiently familiar with the language.
This problem is being given careful consideration, and the following
extract from a letter from the director of the University of
Arkansas extension division indicates the steps being taken there:
The general extension division of the University of Arkansas is preparing a textbook
on -citizenship for women. This book will be written by Dr. D. Y. Thomas, of
Our department of history and political science, with the cooperation of the Arkansas
League of Women. The general extension division will also offer a course in citizenship
for women during the summer session of 1920.
This, of course, contemplates the instruction of native-born women
so that they may realize their duty to vote and may be well equipped
to do their duty; but it will serve also to bring to their attention the
fact that newly made women citizens of foreign birth are in need of
the same instruction, and to a greater extent.
The League of Women Voters is doing most excellent work which
promises to influence and encourage to a very extensive degree the
civic education of women of foreign birth. In various places the
Woman’s Suffrage Association, the Women’s Christian Temperance
Union, and clubs originally organized as social clubs are turning their
attention to active civic work. The following extract from a report
from Seattle indicates the naturalness of cooperation on the part of
various bodies and individuals, all seeking the same object and each
contributing its particular gift to the making of intelligent citizens:
On June 13, 1919, I was invited to explain the Americanization work of the Bureau
of Naturalization to the University of Washington Chapter of the D. A. R., of which
Miss Bell Colson, 5529 Kenwood Blace, Seattle, is chapter regent. The invitation
grew out of a formal talk I gave at the Americanization conference called by the
extension division of the University of Washington some weeks ago. About 15
young ladies were present, many of them having had teaching experience. I found
they had already engaged in going to the homes of foreigners and teaching the foreigners’
wives and that they were very anxious to cooperate with and receive the
aid of the bureau. I suggested that if they desired to go into the homes of the foreigners
who are applying for citizenship and teach the women who are unable to
attend public-school classes as unpaid workers under the supervision of the public
schools, this office would do all in its power to assist them so that they might be entitled
to the use of the helps issued by the bureau. They were glad to avail themselves of
the offer.
Yesterday Miss Colson and Miss Seelye called at headquarters and I showed them
how they can make an abstract of information desired by them from records kept by
us in this office in the case of all petitioners filing papers in the Seattle courts on
printed Form C14-18 and a form for a blank to be used by them was drawn which
they will mimeograph. They will furnish this office with a copy of the data secured,
thus giving us an insight into the environment of applicants for citizenship which we
have not heretofore had, which I think will have a certain value. * * * Later
on I shall try to get the ladies in touch with the local public schools.
From Glendale, Ariz., comes the following account of the work of
women for women, which is of a most friendly character and bound
to succeed in promoting genuine Americanization:
Glendale is most fortunate in having a trained leader at work, Miss Elsie Elliott.
Under the auspices of the Women’s Club, which gives the use of its comfortable clubhouse
to the Americanization committee, part-time classes in English are flourishing.
REPORT OF THE COMMISSIONER OF NATURALIZATION. 869
A weekly social evening for the Mexican people is observed and an occasional program
of general interest is carried out. One of these programs was given for the relief of
the sufferers from the recent earthquake in Mexico. Early in February a Latin-
American concert was presented under the auspices of the Americanization committee,
the proceeds to be used for the maintenance of the work, which is privately
financed. English class’ll are held each Monday and Thursday evening. A class,
in home nursing is also conducted for Mexican women.
Miss Elliott expects to have provision made for night school
classes by the public-school authorities by next fall.
An instance of educational work for women as a natural outgrowth,
of the activities of women’s clubs comes from Maine in a letter from
Mrs. Jennie Bodge Johnson, chairman, Maine Federation of Women’s
Clubs. Her work is among the Danish and Swedish women in
Westbrook, and she states that if women are to have the ballot it is
high time to help the women who are outside of literary clubs.
She says: “They are bright, wholesome, normal women—good
mothers, fine housekeepers, and have children.”
One way in which women’s organizations are generously helping
on the good citizenship work is by providing funds for the payment
of public-school teachers where no public funds have as yet been set
aside for the purpose. The retiring woman’s committee of the
Council of National Defense of the State of Arkansas donated $900,
the fund remaining in. the treasury at the end of their administration,
for night-school work under the administration of the finance committee
of the illiteracy commission, and the Federation of Women’s
Clubs has promised $2,500 for the same purpose.
The Federation of Women’s Clubs in Oklahoma is working in cooperation
with this division through their department of Americanization.
Gold and silver medals are being offered for the best work
done by club women in interesting foreign born in citizenship classes
and seeing that these classes are established by school officials.
Dr. S. E. Weber, superintendent of the Scranton, Pa., public
schools, sends this interesting history of a most remarkable foreignborn
mother who, although charged with the care of eight children,
all under 16 years of age, found time to attend the Americanization
classes on four evenings a week for two years, commencing in October,
1918, without missing a single session of school. She was graduated
on March 9, 1920.
Mrs. Marie Guerricci; 41 years of age. John Guerricci, husband of Marie Guerricci
by trade a tailor. Mrs. Guerricci has been in this country 15 years, while her husband
has been here 17 years. Children: lolanda, 16, finished the seventh grade; Flora, 13,
now in 7A grade; Dora, 11, now in 7B grade; Nora, 9, now in 5B grade; Cora, 7, now
in 2B grade; John, jr., 5, now in kindergarten; Mary, 3; Irma, 8 months, born July 12,
1919., Mr. and Mrs. Guerricci were born in Rome, Italy.. Mr. Guerricci received a
good common-school education in Italy, but Mrs. Guerricci had reached only the
fourth grade. Her great ambition is that her daughters shall become school-teachers,
and her primary object in attending night school is that she might, in some measure,
keep up writh her daughters. Iler children are Americans. As she has said herself,
“I want to be American like them. Italy could never do for me and. my children
what America is doing. I would like to write to Washington to have night school all
the year.” Mrs. Guerricci attended the Garfield (No. 11) Evening School all of last
year and this year without missing a night. Miss Margaret Durkin was her teacher.
It will be noted that Mrs. Guerricci gave birth to her youngest
child during the period of her school work and that the second
youngest child was a mere infant during that time. This case would
seem to refute ’the argument that foreign-born mothers, while rearing
children, can not attend night schools.
870 REPORTS OF DEPARTMENT OF LABOR.
WORK WITH MEXICANS.
The educational work with Mexicans is being carried on in many
places,, but to a great extent lacks the encouragement of sincere
appreciation which marks so much of the work^vith other nationalities.
Many come over the border with the idea of remaining only a
short time, and even if the rest of their days are spent in this country
the idea persists and they retain the impression that they will eventually
go back to Mexico or on to some other town; that there is, therefore,
no advantage in exerting themselves to study English; and the
result of this reasoning is that there is no desire whatever to become
American citizens. This is true especially in the places close to the
border line. In El Paso, the principal of the high school reports
that three or four hundred Mexicans, including both women and men,
are learning English in the two night schools. It is found advisable
to emphasize the teaching of English, and the process of Americanization
is natural and gradual. The industries in which they are
employed, sugar-beet raising, for example, are such as to encourage
their inclination to move from one place to another. From Garden
City, Kans., the superintendent of schools writes: “The Mexican
classes.are well sustained despite the fact that there are many changes
for which they are not responsible.”
A group of 65 recently taken to Milwaukee were immediately
invited to the public-school classes and are meeting three times a
week. They are making excellent progress and through this association
are getting proper ideas about our Government and its
institutions.
More local communities than ever before are interesting themselves
to provide educational facilities for the Mexicans and in this way
help those who come to this country and give of their physical strength
to its development to become an asset mentally and morally as well.
APPRECIATION OF CITIZENSHIP INSTRUCTION.
In spite of the many reasons that could be given by the foreign
born for not attending, there, is. a remarkably fine response on their
part to the appeal for them to join the classes where special instruction
is given by people genuinely interested in aiding the foreign born to
develop into, the best type of American citizen.
They are interested in knowing how to become more closely allied
with the community and national life; they are sincere in their
desire to better the conditions under which they and their families
live; and really desire to profit to the fullest extent by the step they
have taken in choosing America as their permanent home. It is not
the easy and natural thing to leave the land of one’s birth and deliberately
start a new life in a strange country. But the ambitions which
prompted their coming are in very many instances of a high type and
impel them to “carry on,” with the result that the citizenship classes
are well attended and the higher standards set by naturalization
courts under the impulse of the administrative policy are being met,
with a consequent improvement in the intelligence of the voting
body.
Attendance up to the capacity of the teacher has been the rule in
many communities. In no instance has it been found necessary to
invoke the compulsion of the law to secure attendance. At the
REPORT OF THE COMMISSIONER OF NATURALIZATION. 871
suggestion of the school boards additional compensation due the
instructors for holding extra sessions has been readily supplied by
the student body. Sopris, Colo., is a particular instance of this
spirit.
The possibilities* for securing enrollments and the maximum
attendance of adults through their children in the public schools have
been pointed out in the correspondence and publications upon this
work during the years this activity has been carried on. Many
citizenship classes have members in them whose attendance was
secured by their children. From Walton, N. Y., the superintendent
of schools reports the organization of a class composed entirely of
parents of Italian children attending the high school.
The following excerpt from a naturalization examiner s report
serves well to illustrate the desire which is felt by prospective citizens:
The hearing to-dav showed that most of the applicants had made an earnest effort
to obtain books and" instruction. Practically all were farmers who had sought the
instruction of the local country-school teacher without very much success. The
candidate stated, in explanation of his failure to understand certain things, that the
teacher did not understand them either. Three candidates had thus been assisted
by a young girl of 17, teaching her first school on a permit and without a certificate,
who had not planned to be a teacher but had been drafted by the county superintendent.
The normal school class of the local high school attended the hearings m a
body.
This carries also another message concerning the scarcity of
teachers and a hint of preparation for the future in order that there
may not be a repetition of this pathetic story of the blind leading the
blind.
A worker in New Jersey, Gloucester County, writes:
The men are anxious for the privileges of citizenship; they have already assumed
many of the responsibilities belonging to it.
A letter to the chief naturalization examiner at San Francisco
written by Miss May F. Boudinot, instructing a class at Arcata,
Calif., includes the following paragraph:
We have had encouragement in our first week of night school and expect a larger
attendance soon. The men who can read are eager for the books in their own hands.
Please send us a dozen more copies of the Student’s Textbook.
A young soldier living in Assumption, Ill., was naturalized on his
honorable discharge from the Army and heard of a citizenship class
being conducted in Taylorville. He requested permission for his
father to attend, saying that he had tried several times to secure
citizenship but had been denied because of his lack of knowledge of
English and other subjects. He was assured that his father would be
gladly welcomed to the class, as would any other men in similar circumstances
who desired assistance in preparing for citizenship, regardless
of where they lived. The young man immediately promised to
bring his father to the class each meeting night.
The following is a copy of a letter received from Mr. Thomas
Jalmenro, of Brooklyn, N. Y.:
I am now attending evening school No. 45,.Brooklyn. It is my intention to continue
at school until I can speak, read, and write in English. I appreciate what this country
is doing for me and I must improve myself so that my adopted country may benefit.
A man whose petition for citizenship had been continued live times
because of insufficient knowledge of our Government, when asked
if he meant to attend school regularly, eagerly promised to do so,
872 REPORTS OF DEPARTMENT OF LABOR.
and regretted that the Government did not have a school long ago,
so that he would not have had to go to the naturalization court fivetimes
unsuccessfully.
The following letter was received by a naturalization examiner
from a prominent Los Angeles attorney, who recently received
citizenship through naturalization:
After having taken the course in the naturalization school under the direction of
Prof. Kelso, I desire to say that every prospective citizen should be compelled to get
a school certificate. In founding these classes in 1914, as you did, you undoubtedly
rendered a service to the country which is of very far-reaching effect.
In Concordia, Kans., actions speak louder than words, and Mr. Ira
Mahaffey, who is clerk of the district court and also director of night
school for aliens, and therefore enjoys a double contact with prospective
citizens, reports as follows:
We have quite a number that are doing studying at home this winter, and there
are two or three that are coming to my office and reciting to me, but not at a regular
s et time; they come when it is convenient for them, and I make it suit my plans * * *
I have one young man just 21 years old who could not read or write three months ago
and now he writes real well and can read some in the daily papers, and he is one of
those that is a home student and comes to my office and recites to me whenever he
can find time.
This same interest by clerks of courts has been manifested in various
parts of the country, as at Pierce, Nebr., where Mr. O. B. Miller,
clerk of the court, volunteered to organize and conduct a class, having
been a teacher for a number of years. With his close relationship
to the naturalization work, his influence is expected to reach a large
number of aliens.
Mr. E. N. Giffin, principal of Java School, Walworth County,
S. Dak., sends the following instances of genuine appreciation of the
work that he is doing for the foreign born:
One of my pupils who is a man over 50 years of age said to me the other evening:
“My, isn’t it too bad they did not start this night school years ago; look at all I have
missed.” Another, a well-to-do farmer, said: “I have been in this country 31 years
without being able to read or write the American language. Now I can read the
letters from my brother’s folks in Colorado, as well as my business letters. No, I would
not have missed the evening school for anything.” A merchant’s wife who could not
read or write now writes a neat plain hand and reads well enough to put up orders
in the store from order slips. She is proud, but not more than I.
An instance of individual interest by school officials is illustrated
by the action of the superintendent of schools at Tonasket, Wash.,
Mr. L. D. Burrus, who writes interestingly of his experience in giving
individual instruction:
. Mr. Schendell, of Tonasket, has been doing citizenship work under me for about
six weeks. We are spending three hours a week in regular class work. I find him very
earnest in his desire for knowledge along this line. I am wondering just when I am
supposed to have him ready for examination. I enjoy this work very much and have
several more that will begin soon.
In Lynn, Mass., where Mrs. Isabelle D. MacLean is city supervisor
of Americanization, there is a large foreign population, and an extract
from a letter received last November indicates the status of classroom
work in the early part of the year:
In the evening high school we have eight classes of men and women studying for
citizenship papers. All are adults—some are over 50 years of age—and all are especially
pleased because “the kids” as they call the illiterate minors, have been placed
in separate classes. At present the enrollment in these adult classes in evening school
is 210. A number of the racial group leaders have come to these classes, and one of
REPORT OF THE COMMISSIONER OF NATURALIZATION. 873
them, an Italian, brought 20 of his race with him. The classes are carefully graded,
and competent teachers, specially trained, are in charge.
At the General Electric Co.’s we have organized 13 classes that meet at the close oi
work two afternoons a week, in the various departments. The company pays the
teachers, who are chosen from the best in our public-school system, and are carefully
trained under my supervision. Other classes are being formed in this plant.
Mothers’ classes meet in the kitchens of their homes and at the two community
schools, where English, cooking, and sewing are taught. The civics committee of the
women’s clubs has been instrumental in having moving-picture machines placed in
three of our large, modern schools.
Mrs. MacLean speaks of citizenship meetings at the Polish and
Lithuanian naturalization clubs which were largely attended and for
which the club presidents requested her to arrange speakers from the
Naturalization Service at Boston. At her suggestion the division
wrote personal letters to the various naturalization clubs, advising
them of the assistance available to them through her office ami
through the public-school classes. In January Mrs. MacLean reported
31 classes of adults and 7 classes of illiterate minors. Examinations
for naturalization were conducted by this service early in March,
and the following extract is from a detailed report by Mrs. MacLean,
to the chief naturalization examiner at Boston, of the results and
indicating the value of the close cooperation in the attainment of
real service to the foreign born:
Deductions: (a) I believe that examinations conducted as these have been, in
accordance with the wishes of the Bureau of Naturalization officials and undei the
supervision of the representatives of the Government and of the school department,
are bound to result in a raising of the standard of citizenship and the consequent
abolition of many of the abuses and attempts at evasion of the naturalization laws. .
(&) A combination written and oral examination, as.given by your examiners, is
practicable and even desirable, since it establishes a high standard and at the same
time allows for the limitations of applicants who are handicapped by lack oi facility
in the use of written English. . . ,,
(c) It seems to me that a much greater degree of efficiency would result if you would
arrange to have the preliminary examination, now. given at the Lynn post office,
given at the same time that the examination in civics is held, right at the place of
holding the class sessions. Thus your examiners would be saved, one trip and your
office saved expense. I hope that you will take up this matter with me m the near
future, for I am desirous of carrying out your wishes to the letter. .
(d) I have made it a point to ascertain the opinions of the men in regard to the
method of examination and the consensus of their opinion is that the present plan
is verj satisfactory. Some of them did suggest combining the preliminary and civics
examination, as mentioned in the foregoing paragraph. A few Italians and Gree s
said that the written examination was “very hard.” Other comments were. A very
fair examination”; “The best way to do it”; “A square deal’ ; Im glad to find
out that I can pass a written examination. 1 left school 20 years ago ; etc..
(e) The men are especially appreciative of the service that we are receiving from
your office in the rulings on cases requiring the personal attention of the chief examiner.
When our office takes up such cases with you it saves the applicant time and money
sometimes expended in unnecessary trips to the court at Boston. .
The executive committee of the Lynn Americanization committee wishes me to
inform vou that plans are already under way to make the reception and presentation
of certificates from the Government on the evening of May 19 one of the most impressive
and dignified that our city has ever known. We hope that you will let nothing interfere
with your being present as the guest of honor on that occasion so that the New
Americans” may receive their certificates from the official representative of the
Government. We want you to give an address on some phase of citizenship. City
officials and members of the various civic organizations will attend. Should anything
arise to prevent your attending this event, please let me know at once so that we may
arrange for another date convenient to you. . . . , , ,
It will be necessary for me to have the certificates here in time to allow ioi the lettering
of the names of the applicants, etc. . , wT
I wish to express to you my sincere appreciation of the many courtesies that 1
have received from your department and the efficient manner m which the examinations
at Lynn were conducted by your representatives.
874 REPORTS OF DEPARTMENT OF LABOR.
In another letter Mrs. MacLean indicates the cooperation which
exists among interested agencies in Lynn:
Probably Mr. Crist has informed you that we are supervising a number of classes
preparing for citizenship. The General Electric Co. is setting a splendid example for
industrial concerns in its cooperation with the public-school department. We have
16 classes of men and women meeting twice weekly at the close of work. Four of
these are “second paper” men preparing for the examination in civics. The company
has transported all those of its employees wishing to file papers to and from the
court at Salem, and we are planning to take another group next Saturday. In all
our work we have received valuable assistance from Mr. Crist and from Chief Examiner
James Farrell and M. Miles Dodge, of Boston. ‘
In thus giving attention and help to the individuals and small
classes, the division is by no means disposed to neglect the large
centers of industry where many foreign born are employed.
Mr. E. F. Randall, director Kenosha (Wis.) Vocational School,
reports in part:
I have more in my evening Americanization classes this year, but not as many in
afternoon classes, due to the factories working so much overtime. I have 210 enrolled
in the evening classes and 44 in the afternoon classes. I have a fine evening class of
32 members in a Greek orthodox church. We have three afternoon classes for women.
Two classes meet in the homes. The members of one of the classes have got to the
point of desiring to learn American cooking, and we opened a class in cooking for
them last Wednesday in a near-by school building.
In this connection a letter from Mr. G. C. Minard, superintendent
of schools of Arlington, Mass., is also interesting:
We have a small town with comparatively few foreigners in it. At the present we
have one evening class for men and women connected with the evening school; also
one class for men in a private house rented for the purpose. We have also five afternoon
classes for women. These classes also meet in private homes, so distributed
as to make for the greatest convenience of the patrons. The day school groups are
very small, four or five being in attendance usually. The evening classes average 12.
You see the work is largely individual, and is confined principally to the teaching
of the English language. .We do, of course, make an endeavor to get over some
messages on good citizenship by little talks at intervals in the native language of the
students. Although our work is on a small scale, as you see, it is proceeding with
considerable enthusiasm on the part of all concerned.
Splendid work is being conducted in Grand Rapids, Mich., under
the direction of Mr. Frank L. Dykema, executive secretary of the
Americanization Society, in connection with a comprehensive plan
for a higher standard of citizenship. This plan is being developed
in close cooperation with the public schools, and includes organized
efforts to encourage the exercises of the franchise by those already
entitled to vote and instructing the school children in a concrete and
impressive appreciation of the civic duties of citizens.
At Detroit, Mich., there was a continued interest in the Americanization
problem on the part of many and various organizations,
including racial groups, all of which were organized under the leadership
of the Detroit Board of Commerce on a working basis under the
name of .“ Detroit Americanization Conference,” which adopted its
constitution and by-laws on June 30, 1919. In this a field assistant
gave generously of time and endeavor in the work of coordination.
When the organization was accomplished, the secretary of the Americanization
committee of the board of commerce, Miss Mary O’Donnell,
wrote to the chief naturalization examiner at Chicago, as follows:
Permit me to take this opportunity to express the thanks of the Americanization
committee of the Detroit Board of Commerce to the Naturalization Service of the
United States Department of Labor for the splendid work accomplished in Detroit
through its special representative, Mr. William J. Vavra. Attached to the constitution
REPORT OF THE COMMISSIONER OF NATURALIZATION. 875
and by-laws you will find a copy of the resolution presented at the last meeting and
unanimously accepted by all present, extending the thanks of the entire conference
to your service. A copy of this resolution has already been sent to the Naturalization
Service at Washington.
The Detroit Americanization Conference has done much practical
work since its organization. A beautifully illustrated manual was
prepared to supplement the Student’s Textbook furnished by this
division for use in citizenship classes. A former examiner of this
service, Mr. C. T. Thompson, has been employed as naturalization
expert, assisting various companies employing the foreign-born.
Classes have been graduated from the Cass Technical High School and
the Eastern High School with presentation of the. certificates of
graduation and certificates of proficiency. Mr. Frederick S. De Galen
is the supervisor of Americanization classes and works in close cooperation
with the Detroit Americanization Conference. At the instance
of the division he is planning to make use of the Boy Scouts for the
delivery of invitations, with the reopening of the citizenship classes in
the fall. One school is continued during the summer months, in a
down-town section of the city. The Detroit Normal School is offering
special courses to fit teachers for this work, courses including racial
study, a history of Americanization, a study of the psychology of the
adult illiterate, and a thorough course in methods of teaching English
to adults. The plan of the superintendent of schools, Mr. Frank
Cody, includes special classes for women which are supervised from
the normal school.
Citizenship classes are very well organized and much good work is
being accomplished at Bethlehem, Pa., where Mr. J. R. Mulligan,
director of Americanization and education for the Bethlehem Steel
Co., and Mr. J. Mark Frey, director of Americanization for Lehigh
University and the public schools of Bethlehem, are in close cooperation.
Under the leadership of Dr. Louis Nusbaum, associate superintendent
of public schools at Philadelphia, the evening classes are offering
valuable assistance and citizenship instruction to the foreign-born of
that city. The chief naturalization examiner reports an interesting
visit to the classes in February, when, he says, ‘ the students appeared
unusually enthusiastic over their work and responded heartily when
the writer invited questions from them as to citizenship privileges and
responsibilities, American history, and civics. The teachers and students
were particularly pleased at the prospect of receiving the graduation
diploma.’’ Philadelphia is one of the cities recognizing the desirability
of continuing the citizenship classes throughout the summer,
as it has done the past two years.
In Kansas City, Kans., Mr. I. B. Morgan, director continuation
schools, has charge of the citizenship training of the community and is
handling it admirably, adapting methods to meet conditions, and getting
good results. This year has seen the inauguration of special work
with women; in January Mr. Morgan reported 12 women doing special
work in the homes of the non-English-speaking mothers.
As early in the year as November, Asst. Supt. John N. Greer, of
Minneapolis Public Schools, reported as follows:
The evening school classes conducted within the schools have a total enrollment at
this date of 4,903. The men’s classes and eight industrial plants enrolled 225. In
labor organizations we have an enrollment of 767; in foreign social centers 124. In
the women’s work we have made 371 visits in the homes. All these classes are increas876
REPORTS OF DEPARTMENT OF LABOR.
ing daily, and we are planning our next term’s work, which will begin December 29
so that all we have at present will be taken care of next term.
The Student’s Textbook urges the formation of class organizations
for the further advancement of the student body. A splendid development
of this has found expression in the organization of the Washington
Club, under the direction of Mr. Charles F. Adams, instructor
in citizenship in San Francisco, Calif. The club is composed of members
of the classes in citizenship of the Evening High School of Commerce,
and its purpose is to afford the members an opportunity to
promote the work of citizenship in a practical manner. Friday evening
of each week is club night.
At the beginning of the last school year, Mr. E. C. Vermillion, now
State director of Americanization for Ohio, was made director of
Americanization in the Akron (Ohio) public schools. In October he
wrote the division that the enrollment in the industrial and night
schools was approximately 1,600 men and that he was particularly
interested to have a definite plan for conducting examinations of thosetaking
special courses for citizenship. This was effected through the
local State office of this service. A letter from Mr. Vermillion written
in March, making plans for the annual recognition day for the English
classes and new citizens, mentions an enrollment of 3,000 men and
women in the classes, besides 350 new citizens who had received
naturalization papers during the year.
SPECIAL OCCASIONS.
The response of the foreign-born people to special efforts in their
behalf is well shown by an incident reported by Prof. John R. Bell, of
the Colorado State Teachers’ College. He writes:
. I had a very remarkable experience at Windsor last Saturday, when I went up to
give my sixth lesson. We had obtained through the aid of the local committee the
free use of the motion-picture theater and the men had been told to bring their wives
and children to hear an illustrated lecture on our capital city. One hundred and fifty
men, women, and children were present and their response to the presentation of
American ideals could leave not the shadow of a doubt that there was growing up in
the hearts of these men an increasing love for America and the ideals for which she
stands.
Those of foreign birth who have become citizens seem very desirous
of making those who have not yet declared their intention acquainted
with the advantages to be derived from attendance upon publicschool
classes and with the assistance available through representatives
of this service. An example of this tendency, ably guided to produce
the best results by Mrs. Isabelle D. MacLean, supervisor of
Americanization, is reported from Lynn, Mass., as follows:
We have had two largely attended citizenship meetings at the Polish and Lithuanian
Naturalization Clubs. In both cases, by special request, Mr. M. Miles Dodge, of the
Boston Naturalization Service, addressed the meetings. Similai- meetings will be
held by the Greeks and Italians.
The Americanization committee of Rochester, N. Y., in its desire to
keep in touch with the newly made citizens, planned a splendid
Washington’s Birthday celebration. Citizens admitted during the
past year and their families were guests of honor, and seats were reserved
for them at the front. New citizens were seated on the platform
and received, their final citizenship papers as part of the program.
The Rochester Historical Society had a part in the program, which
REPORT OF THE COMMISSIONER OF NATURALIZATION. 877
was a happy combination of music, ceremony, and fine addresses, the
latter being given by Justice B. M. Stephens, of the Supreme Court,
Mr. John Spargo, and Dr. Steiner.
A most interesting occasion was greatly enjoyed in Washington,
D. C., when a musical evening was planned by the citizenship classes
for their friends. Specimens of handiwork were requested from
members of the classes, and in response a wonderful display was made
of embroidery, lace, and drawn work, which proved most valuable
as a point of contact. Introductions were unnecessary. The account
continues:
To the fortunate few who were enabled, on that rainy evening a few days ago, to see
Armenian and American, Greek and Roumanian, French and Spanish women wandering
firom display to display, comparing stitches and generously admiring one another’s
work, finding somehow, in what might have been Babel, the words that made communication
possible, it seemed that * * * one of the most potent factors for bringing
people together on a common footing has hitherto been entirely lost sight of.
One splendid feature which is developing as a direct result of citizenship
training is the recognition of the attainment of citizenship on
the part of young Americans. Citizenship is commonly regarded too
lightly, with too little respect to its meaning, too much as a matter
of fact without regard for the responsibility which accompanies it and
the privileges which it conveys. The dignified ceremonies which have
accompanied the admission to citizenship of foreign-born adults have
brought to the attention of the public the desirability of giving formal
welcome also to the native-born who acquire civic rights upon coming
of age. Communities are adopting the plan, or some modification of
it, of having an annual citizenship day when every new voter who has
acquired the right to vote within the past 12 months shall receive in
dignified manner the responsibilities and duties of citizenship, at the
same time being welcomed by the citizen body, which shall unite with
the new citizens in pledging loyalty and allegiance to the country.
Some such method of fostering the love of country taught in the
public schools, and of impressing upon the minds of young citizens
the importance of assuming their part in the conduct of the Government
should go far toward improving the citizenship of the country
through its individual members. It is to be hoped that this plan
will find favor with many, and that the suggestion will be adopted by
an ever-increasing number of communities.
GENERAL HINDRANCES.
As with all forward movements, there are obstacles to overcome in
carrying on this work, and hindrances to its even progress. A plain
statement of some of these may strengthen the attack for another
year.
In a limited number of localities there is well-defined opposition on
the part of a few foreign-born leaders. This is to be expected, but
will gradually disappear, and indeed the enlightenment of these very
leaders is being accomplished. Their attitude and actions are largely
the result of ignorance, which may be dispelled by the earnest prosecution
of this educational work.
Some slight opposition, but to no great extent, has been noted on
the part of church officials, due more to misunderstanding than a real
objection to the parishioners receiving instruction.
878 REPORTS OF DEPARTMENT OF LABOR.
Shortage of teachers has handicapped some superintendents in
their desire to give instruction in English and citizenship to foreignborn
adults. This shortage has been keenly felt in the administration
of day schools and naturally would make more difficult in certain
communities the special instruction for foreign-born adults, which is
not yet everywhere considered a part of the regular school program.
The problem of securing specially trained teachers continues to
persist unsolved. Teaching the use of thQ English language to adults
is entirely a different matter from teaching elementary subjects to
children in day schools, and calls for different methods and a different
background of knowledge and experience. A person would choose
quite a different course of training if he were fitting to prepare foreignborn
adults to assume the duties and responsibilities of citizenship
than if he planned to teach children in the graded schools. The situation
is being met by the introduction of special courses in normal
schools and teacher-training colleges and universities, and by teachers’
institutes and special work of university extension divisions. The
general and special work thus offered is resulting in giving all teachers
a clearer conception of the work of citizenship classes, and those
especially interested in the subject an opportunity to fit themselves
for this particular branch of public-school education.
Lack of funds is still an obstacle in some communities, but public
sentiment favoring the responsibility of public-school officials for
citizenship training is-rapidly increasing and another vear should
witness less difficulty from this cause.
The activities of the division were greatly reduced as a consequence
of the curtailment of the increase in the appropriation by $25,000 over
the $50,000 lump appropriation for personal services in the District
of Columbia which had been allowed for the year ended June 30, 1920.
Notwithstanding the persistent curtailment of new legitimate activities
to carry put its specifically required responsibilities, the public
demands coming to the division are such that it has never been able
to. meet them. It is, as a consequence, not aiding the lawfully constituted
State authorities in promoting the organization of public
schools to prepare candidates for admission to citizenship to the extent
it should to accomplish what Congress evidently intended should
be accomplished. It is earnestly recommended that adequate estimates
be submitted for specific positions to carry on this work.
Respectfully submitted.
♦ Raymo nd F. Cri st ,
Director of Citizenship.
REPORT OF THE COMMISSIONER OF NATURALIZATION. 879
GENERAL REMARKS.
Tn view of the facts presented in the foregoing report, the opinion
of the bureau as to the inadequacy of available means, expressed in
the last annual report, is abundantly confirmed. It is on this account
that the personnel of the clerks’ offices has been unable to provide
for the pressing demands by candidates for citizenship, to the financial
loss in fees of the Government and to the production of a situation
in our four largest cities which nearly approaches a public scandal,
and to the heavy cost, delay, and disillusionment, if not disgust, of
large bodies of our alien population. For the same reason the efficiency
of the service, both in Washington and in the outside field,
has been seriously impaired, resulting in a tl turnover” in the employees
unexampled in any preceding year and large enough to have
wrecked any private enterprise subjected to a like strain.
This poverty of resources, too, has occurred during a year when
the demands upon the service have far surpassed those of any preceding
year, for in addition to more than 50,000 military naturalizations,
which pay nothing in the way of financial compensation for
the clerical and administrative work involved and the material used,
there was, even of those who could be accommodated through methods
involving a sacrifice of due vigilance and care, an increase of 50 per
cent in naturalizations.
This Government can not afford at any time, least of »all at this
time, upon a plea of economy, when an unexpended surplus is shown,
to disappoint those who seek American citizenship in good faith, and
thus furnish material ripe to the misuse and perversion to revolutionary
ideals which have of late been so assiduously, both covertly
and in the open, propagated in the United States. In determining
the amount of an appropriation one should not lose sight of the fact,
for the bureau believes it to be a fact, that insufficient pay tends
directly to lower efficiency of the individual unit and resultant increase'in
numbers, a condition which, whether justified by the actual
facts or not, has been the occasion recently of such clamorous outcry
against the executive departments. The bureau does not imply, for
it is not true, that its higher grade clerks and officers “lie down on
their jobs” if underpaid. It has constant evidence to the contrary.
They resign. Their skill and efficiency, acquired by years of hard,
intelligent service, are thus lost. When such a “gap in the ranks”
occurs, it can not be filled except rarely, and the inevitable result is
either several employees to do the Same service, not so well and at
much greater cost, or the permanent loss of efficiency.
The bureau again urges adequate, not extravagant, appropriations
to dispose of its duties and with confidence assigns the foregoing
report as justification for such increases as the department may
approve.
Respectfully,
Ric hd . K. Campb el l ,
Commissioner of Naturalization.
Hon. W. B. Wil son ,
Secretary of Labor.
REPORT
OF THE
DIRECTOR OF THE WOMEN’S BUREAU
15283—la b 1920---- 56
SECOND ANNUAL REPORT
OF THE
DIRECTOR OF THE WOMEN’S BUREAU
FOR THE FISCAL YEAR ENDED JUNE 30, 1920.
U. S. Depa rt men t of Lab or ,
Wom en ’s Bur ea u ,
~W ashington, August 7J, 1920.
Sir : The second annual report of the Women’s Bureau for the
< fiscal year ended June 30, 1920, is submitted herewith:
The Women’s Bureau was established as the “Woman in Industry
Service ” in July, 1918, during the war emergency to serve as a
policy forming and advisory body whose special duty, in the words
of the Secretary of Labor, was to “ develop in the industries of the
country policies and methods which will result in the most effective
use of women’s services in production for the war, while at the same
time preventing their employment under injurious conditions. Its
large and very necessary aim will be to focus attention on the national
importance of the conditions of women’s work as influencing
industrial standards and as affecting the welfare of the entire
Nation.” As the coming of peace showed no decrease in the need
for a clear policy and definite information about the conditions under
which women should be employed in the industries of the country,
the “Woman in Industry Service” was continued for the fiscal year
1920 through the appropriation by Congress of $40,000 “ to enable
the Secretary of Labor to continue the investigations touching women
in industry.” This means of continuation, however, did not provide
a permanent future for the service, as the granting of the appropriation
was dependent entirely upon Congress, the work of the
service being classed as a special activity, and the service itself not
having been made statutory and therefore permanent.
On June 5, 1920, however, after hearings had been held by a joint
committee of the Senate and House, at which many people testified
to the need and the demand for a permanent bureau in the Department
of Labor to deal with questions relative to the employment of
women, a bill was passed by Congress establishing a Women’s Bureau
in the Department of Labor “ 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. The said bureau shall
have authority to investigate and report to said Department of Labor
upon all matters pertaining to the welfare of women in industry.”
The purpose of the Women’s Bureau now is the same as that for
which it was originally organized, and as it was stated in the first
annual report of the Director of the Woman in Industry Service:
1. To consider all general policies with respect to women in industry and to
advise the Secretary of Labor as to the policies which should be pursued.
2. To keep informed of the work of the several divisions of the department
in so far as they relate to women in industry and to advise with the divisions
on all such work.
883
884 REPORTS OF DEPARTMENT OF LABOR.
3. To secure information on all matters relating to women in industry and to
collate such information into useful form.
4. To establish useful connections with all governmental departments and divisions
on this subject and with voluntary agencies and societies.
With these purposes in view the work of the Women’s Bureau
during the past year has been threefold—first, to secure information,
which was not already available but which was needed to throw
light on special problems which seemed urgently in need of consideration
; second, to search out and arrange such other material as was
already available but which was not in such form as to make its
significance readily appreciated or to permit of its full use; and,
third, with the results of the information thus gained to cooperate
with other agencies in the recommendation and establishment of certain
standards which had been shown to be necessary for the protection
of women in industry and for their advancement. The Bureau
of Labor Statistics has cooperated with the Women’s Bureau in outlining
and preparing the statistical material included in its reports.
WOMEN IN THE GOVERNMENT SERVICE.
The Federal Government itself is the greatest employer of women
in the country, and the standards which are established for Federal
employees can not fail to affect conditions for women employed
throughout the country. Regulated by the strict code of the civilservice
law, employment policies for this large group of men and
women must necessarily be rather slow in changing and making the
adjustments which in the business world are often brought about so
rapidly.
The records of the Civil Service Commission do not show what
proportion of the multitude of Federal employees is women, but a
conservative estimate made by the commission placed the number in
the District of Columbia at about 50,000 early in 1920. For the
benefit of these women, as well as for all others who might plan to
enter the Government service, it seemed important that information
should be made available showing the positions and salaries which
were open to women and their chances of advancement as Federal
employees.
In September, 1919, the Women’s Bureau accordingly made a
study of the civil-service examinations which were open to women
during three months of 1919 and of the salaries at which men and
women were appointed during a similar period. This study, the
findings of which have been published in a report entitled “ Women
in the Government Service,” showed 60 per cent of the examinations
were closed to women, and that the prevailing entrance salary
paid to women was very much lower than for men in the same
grade. It was also found that a very much smaller proportion
of women than of men received appointments for the higher salaried
positions, although the proportion of women passing the
examinations (when they were permitted to take them) for the
higher salaried positions was frequently as large and sometimes
larger than the proportion of men. The fact that women, for no
apparent reason, were barred from such a large number of examinations
was brought to the attention of the Civil Service Commission
before the entire report was completed, with the result that in
REPORT OF THE DIRECTOR OF THE WOMEN’S BUREAU. 885
two weeks’ time that commission issued a ruling that henceforth all
examinations should be open to men and women alike, leaving it to
the discretion of the appointing officer to specify the sex desired.
The matter of salary discrimination could not be so readily settled,
but the opening of all examinations to both men and women, if combined
with the recommendations of the Joint Congressional Commission
on Reclassification of Salaries regarding equal rates of pay
for men and women, will eliminate the present massing of women
in the low-salaried positions in the Government service.
The work of the reclassification commission has had a very important
bearing on the great multitude of women workers in Federal
employ, and the Women’s Bureau, at the request of the commission,
detailed a member of its staff to work on the committee on employment
policies of this commission. The bureau’s report of women in
the Government service, just described, was used by this committee
to illustrate certain conditions and was included in the committee’s
final report to the commission.
In addition to the consideration of these more general policies
regarding the employment of women in the Federal service the
Women’s Bureau, at the request of the War and Navy Departments,
has made studies in certain arsenals and navy yards, giving advice
on such matters as seating and other working conditions, representation
of women on shop committees, and rates of pay for women
where such matters were under dispute.
The women who are employed by the Federal Government as
charwomen in the Government buildings in Washington requested
rhe Women’s Bureau to study the conditions under which they were
working, and a short survey was made of the women they employed
in several different departments in Washington. Lack of organization
of the work and insufficient working equipment was found
to exist in certain departments, although in other departments the
work was well arranged and definitely assigned and the equipment
ample. The existing conditions and recommendations for certain
rearrangements of hours and other improvements were embodied in
a short report which was submitted to the chief clerk of each department
as well as to the group of women who had asked for the
investigation.
WOMAN’S PART IN AMERICAN INDUSTRIES DURING THE WORLD
WAR.
The lack of exact information as to the numbers of women employees
and their distribution in the various occupations of the
Federal Government is duplicated for the women employed during
the war in almost every industry in the country. Everyone acquainted
with the industrial situation during the war knows what a
tremendous change came in the occupations of the women of the
country at that time. The great question which everyone has wanted
answered has been whether this change was a lasting one or whethe-'
it was to be evanescent and would result in the resumption of a prewar
status for women as soon as the crisis was over. In the las*
annual report of the Women’s Bureau it was stated that the. need
for statistics on this subject being a vital one, and the appropriation
886 REPORTS OF DEPARTMENT OF LABOR.
of the Women’s Bureau insufficient to undertake a comprehensive
inquiry, the war work council of the Young Women’s Christian
Association had undertaken such an inquiry into the status of women
employed in the war industries six months after the signing of the
armistice and the probability of continued opportunities for them
in a wider range of occupations following the war. The Director of
the Women’s Bureau was to serve in an advisory capacity in connection
with this work. The study has been completed and is now
being printed as one of the publications of the Women’s Bureau.
This survey of woman’s part in American industries during the
World War was a very extensive one and was based on data covering
for the prewar period nearly 9,000 firms employing over
3,000,000 workers, for the war period nearly 15,000 firms employing
approximately 2,500,000 workers, and for the post-war period over
1,300 firms employing nearly 700,000 workers.
The facts drawn from this large field show a very significant
movement of large numbers of women into fields of occupation
where heretofore the number of women employed has been almost
insignificant. The main findings of this report are brought out in
the summary which states:
First. The popular belief that women in industry rendered real service to
the Nation during the war is sustained by the figures showing the numbers of
women employed both in the war agent and implement industries and in war
food and fabric industries; by the preponderance of evidence from employers
holding important Government contracts; and by the official statement of the
Assistant Secretary of War, acting as Director of Munitions.
Second. The labor shortage and excessive demands on industries essential to
the production of implements and agents of warfare resulted during the
war in—
(a) A sharp increase in the number of women workers in these industries
during the war.
(1>) A marked decrease in the number of women in the traditional womanemploying
industries resulting in the relief of the long-standing congestion of
woman labor in these pursuits and in part contributing to a marked increase
in the wage scales of the women remaining in these industries.
(c) The employment of woman labor in other skilled crafts from which
women had been practically debarred before the war.
Third. When the managers of private, Government, and Government-controlled
plants were confronted with the necessity of employing women in skillexacting
positions there were practically no trained women available, because—
(a) Public and private vocational institutions had. given little encouragement
to the training of women in mechanical occupations.
(b) Organized labor policies in fact, although not always in official regulations,
discouraged apprentice work for women in skilled occupations.
Fourth. The training of women employed in skilled occupations during the
war was provided principally by the employing firms.
Fifth.' The success attending the emergency employment of women in occupations
requiring a high degree of skill, together with the continuous curtailment
of the supply of immigrant labor and the expansion of commercial trade, has
resulted in the retention of women in most of these crafts and industries since
the close of the war, and bids fair to encourage a larger use of woman labor in
the future.
INDUSTRIAL TRAINING FOR WOMEN AND GIRLS.
The enlarged industrial opportunity for women which was indicated
by the report on “Woman’s part in American industries during
the World War,” together with the scarcity of trained women which
was found to have existed at the time when this opportunity was first
available, indicated the need for a careful survey of the industrial
REPORT OF THE DIRECTOR OF THE WOMEN’S BUREAU. 887
training courses which were open to women and girls. Such a survey
was made by the Women’s Bureau in the early part of 1920. It
included a study of the classes open to women in over 100 schools in
20 States, and also an analysis of the chief industries in those States
for which industrial training would most successfully fit women.
Although public vocational training facilities for occupations in those
industries were found to exist in most of the States and cities, very
few of the facilities were used by women either because they were
not admitted or because they were not encouraged to attend these
classes. The greater number of industrial training courses in which
women were enrolled were courses in dressmaking and sewing, although
these trades were not necessarily the ones which employed
the greatest number of women in the communities supplying the
training. . . .
From the facts given in this report it seems essential that a definite
program should be immediately undertaken to open all vocational
classes to girls as well as boys, and to encourage the girls to take those
courses which will fit them for work in the various industries of their
communities.
EFFECT OF LAWS REGULATING THEIR HOURS OF WORK ON THE
EMPLOYMENT OF WOMENThe
employment of women in many new occupations and efforts
to protect them from the ill effects of long hours have resulted in a
certain amount of conflict between those who would have no special
laws for women and those who feel that a certain amount of protection
is absolutely essential if women are not to suffer from industrial
exploitation with accompanying injury to themselves and future
generations. This conflict has resulted in some instances in assertions
from the former group that special legislation was resulting in the
shutting out of women from many occupations where they had a
right to work and where they could be employed at great advantage
both to themselves and to the industry. The attitude of this group
was reinforced by the action of street railway companies in New York
City and Brooklyn who dismissed all of their woman employees because
they said they could not employ them and conform to a law
* which had recently been enacted limiting their hours to 9 consecutive
hours a day and 54 a week, and prohibiting their employment
after 10 p. m. or before 6 a. m.
At the time of this occurrence, May, 1919, the Women’s Bureau
offered its assistance to the industrial commission of New York
State, and while that commission, through its bureau, of women in
industry, was making an investigation of the facts in New York
and Brooklyn, the Women’s Bureau undertook to study the methods
of employing women in transportation in Boston, Chicago, Kansas
City, and Detroit to discover local adjustments which were being
made in order to reconcile the conditions of employment for women
with the requirements of the law or local custom. This study
covered a long period, from June, 1919, to January, 1920, as during
the summer of 1919 laws were passed changing the hours which
were permissible for women employed in transportation in both
Boston and Detroit, and it was necessary to extend the period of the
888 REPORTS OF DEPARTMENT OF LABOR.
investigation to cover some months after these laws went into effect
in order to arrive at a just conclusion as to their results. It was found
that women ticket agents were being employed in Chicago and Boston
under conditions far in advance of the local legal requirements and
of the requirements in New York, which, according to the statements
of the employers, it had been impossible to meet. The eight-hour
day was in force in both of these cities, and in Chicago night work
was eliminated for women ticket agents by voluntary action of the
company, as the law did not prohibit it. A law limiting the hours of
women conductors in Detroit to 10 a day and 54 a week had resulted
in shorter hours for the women but not in their dismissal. The Kansas
City women street-car conductors were working less than the 9 hours
permitted by law and their runs were arranged so that they did not
work at night. From the facts secured in this investigation the conditions
found in these four cities indicate that legislation carefully
drawn, with the different duties of the conductor and ticket agent
taken into account and special consideration given to local requirements,
will not militate against the successful employment of women
in transportation.
The work of women in transportation was of such a very specialized
nature that conditions under which it could be done could
hardly be considered to have a particularly significant bearing on
other occupations. In order to throw more light upon the subject
of the effect of special legislation on women in industry it seemed
important to carry on further investigations. A study wag made,
therefore, beginning in February, 1920, of the women employed in
representative rubber, electrical, and textile plants in Massachusetts
and New Jersey. Figures were secured in both States of the number
and proportion of women employed in April and October, 1919.
Because during the period between April and October, 1919, a law
limiting the employment of women to 48 hours a week went into
force in Massachusetts, while the New Jersey law still permits the
employment of women for 60 hours a week, it was possible to make
a very significant comparison of the demand for women workers in
comparable industries in these two States.
Although additional facts will have to be gathered from a wider
field before adequate material is assembled upon which to base an
accurate interpretation of the effect of the law shortening the hours
of work for women, the findings of this brief survey are important.
A preliminary report of it is now being prepared. The facts obtained
show that even with the restriction of hours the number of
women employed in Massachusetts increased considerably during the
six months from April to October, while in New Jersey there was a
slight decrease in their number.
More significant still was the change in the proportion of women
employed, as a change in actual numbers may only indicate a stimulation
or curtailment of activities in the industry itself. The proportion
of women employed decreased in both States, but in New
Jersey it decreased 3.1 per cent, while in Massachusetts the decrease
in proportion was only nine-tenths of 1 per cent. Although there
had been no legal restriction of hours in New Jersey, some of the
plants had reduced their hours for other reasons, and it was found
that hours had been shortened for nearly half of the women included
REPORT OF THE DIRECTOR OF THE WOMEN’S BUREAU. 889
in the survey in New Jersey. A particularly important aspect of the
reduction of hours for women was emphasized by figures showing
that the hours for men also were shortened in 21 out of the 24 plants
which shortened hours in Massachusetts and in 6 out of the 8 plants
which shortened the hours in New Jersey. A very general increase
in rates took place at the same time as the reduction in hours, and
although an extensive study of production under the different hours
could not be made, what material on this subject was collected
showed that production increased or was maintained when hours
were shortened in 13 out of 16 establishments in New Jersey and in
9 out of 21 in Massachusetts.
THE RESPONSIBILITY OF WAGE-EARNING WOMEN FOR THE
SUPPORT OF OTHERS.
The need for careful consideration of any law or regulation which
might hamper the employment of women or result in a reduced
wage for them becomes particularly important when the many families
or other dependents who have looked to these women for either
entire or partial support are taken into account. Wage-earning
women have long suffered from a discrimination in the rate of
their wages as compared with the rate paid to men in spite of the fact
that many investigations are continually showing that a very large
proportion of women are responsible for the support of dependents,
and that this wage discrimination is a very serious handicap to the
women who are the chief breadwinners in many families. No general
authoritative figures have ever been collected, however, to show to
what extent this condition exists. Realizing the importance of such
information the Women’s Bureau, in the fall of 1919, invited the
State departments of labor to cooperate in making a survey of certain
factories in each State to find out what percentage of the women
employed in those factories were supporting dependents. This plan
was greeted with commendation, but in many cases the States regretted
that insufficient funds and workers prevented participation
in the work. Other States sent in their reports to the Women’s
Bureau for compilation. The State of New Hampshire was unable
to collect the desired information, but offered to cooperate with the
Women’s Bureau in conducting such a study in the State. Manchester
was selected as the most important industrial center in the
State and an investigation was started there by the Women’s Bureau
in April, 1920. The field work in this investigation has been completed
and the report is now being prepared. The information gathered
included the wage received and amount contributed to the support
of others for all the employees, both men and women, in certain
factories. An intensive study of a limited number of families was
also made showing the yearly and weekly wage of each wage earner
and the amount of his or her contribution to the family budget. This
material, when combined with the nation-wide material from the cost
of living schedules which have been made available by the Bureau of
Labor Statistics for this study, will be of great significance in determining
the justice of the woman’s demand for a wage rate based on
the cost of living for dependents and not merely for the individual.
890 REPORTS OF DEPARTMENT OF EABOR.
GENERAL INDUSTRIAL CONDITIONS FOR WOMEN IN THE STATES.
In all investigations made in the States the Women’s Bureau has
worked in conjunction with and many times at the request of the
State departments of labor. The work done by the Women’s Bureau
under these circumstances has been in no way a duplication or
usurpation of the work of a State department. The primary function
of a State department of labor is law enforcement, and this
must be its first and most important task. Charged with the duty
of administering and enforcing the labor law of the State, and frequently
hampered by funds inadequate for the satisfactory accomplishment
of this one function, the average State department of
labor has neither the time nor the equipment for intensive investigations.
The Women’s Bureau can and has furnished the State departments
with a consulting service based on a knowledge of conditions
in more than one locality. In their investigations in the States
the agents of the Women’s Bureau have supplemented the lawenforcement
work of the State inspectors by furnishing special reports
on many plants. At the same time the State inspectors have
frequently joined with the representatives of the Women’s Bureau
by making intensive investigations of the plants they would normally
have inspected only for the infringement of the labor law.
In October, 1919, at the request of the governor of Virginia, the
Women’s Bureau started a survey of the hours and conditions of
work for women in industry in that State. This survey covered the
entire State, including 144 plants, employing 18,000 women, and a
report, with specific recommendations for the improvement of hours
and working conditions, was made to the governor in January, 1920.
The title of this report is “ Hours and Conditions of Work for Women
in Industry in Virginia.”
A similar but more intensive investigation is now being made in
Kansas at the request of the industrial commission of that State.
This investigation, the field work for which is still going on, will
include wages as well as hours and working conditions for women,
and the material gathered will be used by the industrial commission
in making its rulings for the different industries of the State.
In Atlanta, Ga., an investigation was started in May, 1920, at the
request of certain prominent citizens interested in industrial conditions
for women in that city. Thirty-two establishments, employing
nearly 3,000 women, were included in this survey, and information
was gathered as to wages, hours, and working conditions. The
report is now being prepared.
At the request of the Minimum Wage Commission of the District
of Columbia, members of the staff of the Women’s Bureau have
been detailed to assist that body in gathering information on the
cost of living and housing which could be used in determining the
rates of pay which were being established for the various industries
employing women in the District.
DEMAND FOR INFORMATION CONCERNING WOMEN IN INDUSTRY
IN THE UNITED STATES.
An important part of the work of the Women’s Bureau during
the past year has been to arrange and supply information on special
matters for the use of the various national and international conREPORT
OF THE DIRECTOR OF THE WOMEN S BUREAU. 891
ferences which met in Washington. For the International Labor
Conference special bulletins were prepared on the daily hour laws
and prohibition of night work for women in Federal and State legislation
and on the legal regulation of the employment of women in
hazardous occupations in the United States. Summaries of State
laws regulating hours of work and minimum wages for women and
mothers’ pensions were prepared in chart form and were made available
for general use at the conferences and elsewhere. The standards
for the employment of women in industry which were formulated
and published by the Women’s Bureau in October, 1918, have
been in constant demand during the past year, 90,000. copies having
been distributed, on request from individuals only, since their first
circulation.
PARTICIPATION IN NATIONAL AND INTERNATIONAL
INDUSTRIAL CONFERENCES.
The simultaneous meeting in Washington of two international
congresses for the consideration of standards and policies to be
established for industries throughout the world was an epochmaking
event which aroused great enthusiasm in the heart of everyone
interested in the important questions of industry. Although
the Women’s Bureau had no official connection with the International
Labor Conference, much information was supplied in response to inquiries
from participants in that conference, and representatives
from each country were interviewed by members of the staff of the
bureau and a very valuable mailing list was obtained of peisons in
foreign countries who would like to give or get information about
special subjects relating to women. The First International Congress
of Working Women was even more intimately in touch with the
Women’s Bureau. A very definite and constructive program was
undertaken by this congress of women, whose delegates from 19
countries had met partly in protest against their lack of representation
in the International Labor Conference established under the
League of Nations, but mainly that they ipight inaugurate an international
program and join forces for the improvement of all conditions
throughout industry.
For the two industrial conferences called by the President which
were held in Washington the Women’s Bureau furnished material
on standards recommended for the employment of women, and the
director of the bureau was one of those who testified before the
second conference.
RELATION TO STATE DEPARTMENTS OF LABOR.
The information which the Women’s Bureau has compiled regarding
standards and the status of legislation for women in the various
States has been of especial value in the bureau’s relation to the
State departments of labor. Their relationship has been a cordial
and mutually helpful one. In preparation for the annual convention
of the Association of Governmental Labor Officials, held July
12, 1920, the Women’s Bureau worked in cooperation with this association
in outlining the program for questions touching women in
892 REPORTS OF DEPARTMENT OF LABOR.
industry, and for a preliminary conference called by the women
members of this association representatives of the Women’s Bureau
were asked to participate in outlining the program of work.
EDUCATIONAL MATERIAL.
In addition to the reports of investigations and the charts and
pamphlets on labor laws for women which have been printed and
furnished on request to organizations and persons desiring them,
the Women’s Bureau has had a limited amount of educational
material to lend for use at meetings and other gatherings considering
industrial standards. This material consists of a 16-panel exhibit
showing good and bad standards of working conditions for
women, stereopticon slides illustrating the same subject, and colored
maps showing the status of the different States in their legal
regulations of hours and conditions of work for women. The panel
exhibit has received the widest circulation and has been used all over
the country by State departments of labor, women’s clubs, universities,
chambers of commerce, consumers’ leagues, and other such
organizations. The demand for this exhibit has been so constant
as to keep the few existing sets of it almost permanently on the
road, while many requests for its use had to be refused. Such
material, however, quickly becomes out of date, and when in the
spring of 1920 a questionnaire was sent to all those who had used
the exhibit and to others who might wish to- use it, asking what
sort of educational material would be of the greatest assistance,
the reply almost universally was a request for a motion picture
showing standards for the employment of women in industry.
Therefore a two-reel film has been arranged for and will be ready
lor distribution in the fall. A collection of photographs of women
working on different processes has been added to during the past
year and many photographs have been furnished to magazines and
newspapers wishing to illustrate different phases of women’s work.
In addition to the educational material loaned on request, members
of the staff of the Women’s Bureau have participated in many
conferences and meetings at which the standards were discussed
and explained to interested groups.
In the course of several investigations made in different States
there was found to be a very frequent desire for information as
to special types of factory equipment and arrangement. A short
study was made, therefore, of the different articles of factory
equipment, such as lockers, chairs, cafeteria furnishings, and washroom
facilities, and, although the material gathered will not be
issued in the form of a report, it will be available for those who
come to the bureau or its representatives wishing to know the best
type of such equipment.
Respectfully submitted.
Mar y And er son ,
Director Women’s Bureau.
Hon. W. B. Wil son ,
Secretary of Labor.
REPORT
OF THE
CHIEF OF THE DIVISION OF PUBLICATIONS
AND SUPPLIES
893
ANNUAL REPORT
OF THE
CHIEF, DIVISION OF PUBLICATIONS AND SUPPLIES.
101, 000
6,000
19,000
30,000
3,000
25,000
3.500
Depa rtme nt of Lab or ,
Div isi on of Pub li ca ti on s an d Suppli es ,
Washington, September 27, 1920.
Sir : The annual report of the Chief of the Division of Publications
and Supplies for the fiscal year ended June 30, 1920, is presented
herewith.
PRINTING AND BINDING.
The allotment to the Department of Labor for printing and binding
made in the sundry civil act for 1920 amounted to $150,000.
The deficiency act approved March 6, 1920, carried an additional
$50,000, making a total for this fund of $200,000 for the year, which
was apportioned by the Secretary as follows:
Office of the Secretary............................................................................
Bureau of Labor Statistics.......................-............................................
Bureau of Immigration...........................................................................
Immigration Service.......................................................................
Children’s Bureau. . ...............................................................................
Bureau of Naturalization.......................................................................
Naturalization Service and examiners.......................................
Women’s Bureau......................................................................................
Total................................................................................................ 200,000
Requisitions were made on the Public Printer for work covering
the entire appropriation, on which he submitted bills for work done
up to and including June 30, 1920, of $199,999.66, leaving an unexpended
balance of 34 cents. Uncompleted and unbilled work remaining
at the Government Printing Office on July 1, 1920, which will
become a charge against the 1921 appropriation, aggregated
$52,487.80.
Requisitions for printing and binding to the number of 1,405 were
written during the year as against 2,959 for the fiscal year 1919, a
decrease of 1,554, or 53 per cent.
THE MONTHLY LABOR REVIEW.
The demand for the Monthly Labor Review continued to increase
during the year to such an extent that in order to meet it an edition
of 2R000 became necessary. The great expense of printing this
number, coupled with the serious shortage of paper, forced the
department to convert the Review into a subscription proposition.
Arrangements with the Superintendent of Documents were perfected
under which he will furnish the Review to subscribers at the nominal
price of $1.50 a year or 15 cents a copy. The department will maintain
a small free list which will include all labor departments and
895
896 REPORTS OF DEPARTMENT OF LABOR.
bureaus, workmen’s compensation commissions, and organizations
exchanging publications with the Bureau of Labor Statistics.
There was little improvement during the year in the matter of
maintaining the schedule agreed on with the Government Printing
Office. This failure is due in about equal parts to failure of the printing
office to deliver proofs to the bureau at the time stipulated and
failure of the bureau to return corrected proofs.
CHILDREN’S BUREAU PUBLICATIONS.
The child care series of Children’s Bureau publications still maintains
the phenomenal popularity to which attention was called last
year. That bureau also is distributing very large numbers of leaflets
and small pamphlets dealing with various phases of the same subject.
These smaller publications are in very great demand, several millions
of them having been distributed during the year.
WOMEN’S BUREAU PUBLICATIONS.
The Women’s Bureau, created by Congress during the fiscal year,
is, like the Children’s Bureau, a publishing bureau. Its activities as
such up to the close of the fiscal year had been limited, principally
because only a few of its studies were completed and ready for
publication.
PRINTING AND BINDING, BY BUREAUS.
The table herewith shows the cost compared with 1919, the increase
or decrease, and the estimated cost of uncompleted work on requisitions
at the Government Printing Office on June 30, 1920, of the
printing and binding chargeable against the printing allotment, by
bureaus.
Relative cost of printing and binding for 1919 and 1920, by bureaus and offices.
Bureau or office.
Cost of work delivered. Increase (+) or
decrease (—).
Estimated
•cost of
work not
completed
on June
1919 1920 Cost. Per cent. 30, 1920.
Office of the Secretary.................................
Disbursing Office........................................
Bureau of Labor Statistics...............................
Bureau of Immigration.....................................
Immigration Service...................................
Children’s Bureau.......................;....................
Bureau of Naturalization.................................
Naturalization Service and examiners....
Women’s Bureau...............................................
$19,488.60
693.46
38,322.89
4,870.28
19,111.46
13,456.71
4,782.09
11,862.38
$11,279.62
256.52
97,443.07
6,378.36
24,393.45
27,651.49
3,015.85
26,488.17
3,093.13
-$8,208.98
- 436.94
+59,120.18
+ 1,508.08
+ 5,281.99
+14,194.78
- 1,766.24
+14,625.79
- 42.12
- 63.00
+154.27
+ 30.96
+ 27.63
+105.48
- 36.93
+123.29
_______
$2,337.98
25.91
28,575.66
164.02
5,141.92
9,868.63
1,220.20
5,153.48
Total......................................................... 112,587.87 199,999.66 +87,411.79 + 77.64 52,487.80
PRINTING AND BINDING, BY CLASSES.
In the following table will be found a comparative statement of
the printing and binding chargeable to the printing allotment, by
classes. The comparison is with the previous fiscal year.
REPORT OF CHIEF, DIVISION OF PUBLICATIONS AND SUPPLIES. 897
Relative cost of printing and binding for 1919 and 1920, by classes.
Description.
1919 1920
Number. Cost. Number. Cost.
Reports pamphlets, etc......................................................... 1,297,415 857,696.10 1,874,042 8137,882.13
Blank forms ................................................................ 9,454,661 31,784.67
10,971.79
9,047,712 33,406.02
Blank books .................................................................... 22,362 14,503 17,116.31
Miscellaneous books (binding).............................................. 1,178 551.05 1,496 4,743.83
2,000 36.74
I .ette.rh eads ...................................................................... 3,459,500
37,800
5,479-23 2,655,000 4,619.26
Bn vol opes. -................................................................................ 103.08 156,000 181.83
Tndex cards . ...................................................................... 2,130,200 1,235.13 667,450 889.59
Guide cards ............................................................................... 242,175
214,800
1,740.36 34,600 246.11
Vertical folders ........................................................................ 1.792.79
1,186.58
237,500 700.66
Memorandum sheets............................................................... 3,637,200 1,219,700 206.86
Miscellaneous.............................................................................. 10.35 7.06
Total - --------............. 112,587.87 199,999.66
___________
Also there were supplied during the year for the United States
Housing Corporation, United States Employment Service, Bureau
of Naturalization, and the various labor conferences which were
held here during the year, 70,900 publications, 2 volumes miscellaneous
binding, 3,555,500 blank forms, 375,500 letterheads, 52,500
envelopes, 22,000 index cards, 3,000 guide cards, and 50,000 memorandum
sheets, for which bills in the amount of $22,723.93 were
received up to June 30, 1920, which sum was paid from appropriations
other than the printing and binding allotment of the department.
EDITORIAL WORK.
It has been the constant effort of the division to keep the editorial
work of the department at the high standard set by the former
chief of the division, and it is believed 1^hat this effort has been
successful and that in some respects the standard has been somewhat
raised. This has been possible, however, only by the utmost
vigilance and painstaking care coupled with unremittent labor.
The inadequacy of the editorial force in point of numbers has been
repeatedly mentioned in former reports. The former chief of the
division said in his annual report of 1917:
It is not possible to give the publications of the department the close attention
they should receive with the small force available for this class of work and also
endeavor to do all the things required by law and the departmental regulations governing
printing and binding. In order that publications be not unduly delayed,
the copy is often sent to the Public Printer without more than a cursory glance by the
editorial force. This lack of supervision may some time cause embarrassment through
allowing publications to pass that a closer scrutiny would revise or possibly entirely
reject.
In the annual report for 1918, quoted in 1919, appeared the
following paragraph:
The volume of work now being handled is so great that it is impossible that proper
care can be given any of it; lack of proper editorial work is certain, soon or late, to
result in embarrassment to the department by the publication of some absurd or
ridiculous statement which proper examination would have avoided.
Notwithstanding these repeated appeals, no relief has been afforded
except an occasional detail from some bureau or office of a temporary
nature to meet a special emergency.
15283—la b 1920-----57
898 REPORTS OF DEPARTMENT OF LABOR.
Recognizing the difficulty of securing increases in the number of
employees, it is not the purpose to request any additions to the number
appropriated for, but to urge as forcefully as possible such a rearrangement
of forces as will greatly improve the work of the department,
release some employees for other duties, and make possible a
considerable saving in printing bills.
There are employed in the different bureaus of the department not
fewer than 12 employees engaged in editorial work and proofreading
which, under the organic act and the regulations of the department,
should be done in this division. The permanent detail of 8 of these
12 employees to this division, to be transferred when the next appropriation
bill is passed, would afford an ample force to perform all the
editorial work of the department in a manner much nearer perfection
than now obtains. It would enable the division carefully to prepare
all manuscript for the printer before it is put in type, thereby saving
the money and the time now wasted in making extensive alterations
in proofs. It would enable the division to put an experienced indexer
on publications of the department requiring indexes, something
desirable but not feasible under the present arrangement.
The volume of work handled in the division during the year was
slightly less than in the previous year, the number of folios of copy
decreasing from 30,765 to 20,036. Galley proofs increased from 4,870
to 5,071, and page proofs from 11,586 to 13,873. Proofs handled on
miscellaneous jobs decreased from 948 to 253.
PUBLICATIONS.
The following statement shows the number of publications emanating
from the department, including only those publications delivered
during the fiscal year and not those which were ordered but not
delivered in that year. It also includes congressional documents
originating in the departtnent, the printing of which was paid for
from the department allotment for printing and binding in accordance
with the provisions of public resolution 13, approved March 13, 1906:
Publications of the Department of Labor, by bureaus, and distribution thereof, year ended
June 30, 1920.
Title and description. Received. Distributed.
Cost.
OFFICE OF THE SECRETARY.
Annual report of the Secretary of Labor, 1919. 301 pp ..................... 5,000
3,000
2,778 $2,235.26
Same, press proofs; leaves ................................................................ 2,000 82. 57
Annual reports of the department, 1919. Report of the Secretary
and reports of bureaus (consolidated). 1,311 pn........................... 350 157 882. 58
Annual report of the Chief, Division of Publications and Supplies,
1919. 22 pp .................................................................................... 200 182 109. 95
Report of tire Working Conditions Service, year ended June 30,1919.
35 pp ...................................................................................................... 1,500 160 174.19
Report of the Information and Education Service, vear ended June
30. 1919. 47 pp ................................................................................. 500 210 123.74
Labor Conditions in Porto Rico. 67 pp.......... ■..................................... 2,500 1,582 469.17
List of publications of the Department of Labor. 27 pp................... '200 '200 76. 29
Same (revised)........................................................................................... 1,000 970 73. 92
Historical relation of wage-earning labor to the public lands of the
United States. 30 pp.................................................................... 5,000
3,500
237 210.33
Employment and natural resources. 144 pp........................................ 2,136 957.27
REPORT OF CHIEF, DIVISION OF PUBLICATIONS AND SUPPLIES. 899
Publications of the Department of Labor, by bureaus, and distribution thereof, year ended
June 30, 1920—Continued.
Title and description. Received. Distributed.
Cost.
OFFICE OF THE SECRETARY—continued.
Letter transmitting report of the actual expenditures during the
fiscal year 1919 from the appropriations “ Miscellaneous expenses,
Bureau of Naturalization, 1917,” “Miscellaneous expenses, Bureau
of Naturalization, 1918,”'and “Miscellaneous expenses, Bureau of
Naturalization, 1919.” Printed as H. Doc.323,66th Cong., 2d sess.
Letter transmitting report of the number of employees of the Department
of Labor receiving increased compensation at. the rate of $240
per annum, together with list of grades and position of those who
received increased compensation at a rate other than 8210 per
annum. Printed as H. Doe. 392, 66th Cong., 2d sess.....................
Letter transmitting copy of communication from the Secretary of
Labor, submitting a supplemental estimate of appropriation,
required to defray the expenses of the second industrial conference,
called by the President to meet Dec. 1, 1919. Printed as H. Doc.
477, 66th Cong., 2d sess................................................................................
Letter from the Assistant Secretary of Labor transmitting detailed
statement of the number of documents received and the number
distributed by the Depart ment of Labor during the fiscal year 1919.
Printed as II. Doc. 487, 66th Cong., 2d sess...........................................
Letter transmitting copy of communication from the Secretary of
• Labor submitting supplemental estimate of appropriation to
enable the Secretary of Labor to render aid and assistance to the
President in connection with his efforts to combat and cope with
conditions causing the high cost of living. Printed as H. Doc. 185,
66th Cong., 1stsess...................................................................... - -...........
Lecter from the Assistant Secretary of Labor transmitting list of
useless papers m the Bureau of Labor Statistics, and asking for
disposition thereof. Printed as H. Doc. 207, 66th Cong., 1st sess...
Letter transmitting copy of communication from the Secretary of
Labor submitting a supplemental estimate of appropriation required
for “Miscellaneous expenses, Bureau of Naturalization,
1920.” Printed as H. Doc. 208, 66th Cong., 1st sess......................
Letter transmitting copy of communication from the Secretary of
Labor submitting an estimate of appropriation required for expenses
incident to the international conference of labor authorized
by Senate joint resolution No. 80. Printed as H. Doc. 260, 66th
Cong., 1st sess........................................ . .................... -............................
Letter transmitting supplemental estimate of appropriation reo uired
by the Bureau of Naturalization for miscellaneous expenses for the
fiscal year 1920. Printed as H. Doc. 507, 66th Cong., 2d sess.......
Letter transmitting copy of commimication from the Acting Secretary
of Labor submitting estimates of appropriation required by
that department for the fiscal year 1920. Printed as H. Doc. 504,
66th Cong., 2d sess.....................................................................................
Letter transmitting deficiency estimate of appropriation req uired by
the Department of Labor for “war labor conciliation,” fiscal year
1919. Printed as H. Doc. 576, 66th Cong., 2d sess...........................
Letter transmitting copy of a communication from the Assistant
Secretary of Labor, inviting attention to an estimate of appropriation
in the sum of $475,000 for investigating the cost of living.
Printed as S. Doc. 108, 66th Cong., 1st sess............................................
Letter transmitting copy of communication from the Acting Secretary
of Labor, submitting a deficiency estimate of appropriation,
and a proposed clause of legislation, requiree by the Bureau of
Immigration of that department. Printed as H. Doc. 240, 66th
Cong.' 1st sess.............. ...............................................................................
Letter transmitting statement of typewriters, adding machines, and
other labor-saving devices exchanged in part payment for new
machines by the Department of Labor during the fiscal year ended
June 30, 1919. Printed as H. Doc. 297, 66th Cong., 1st sess...........
BUREAU OF LABOR STATISTICS.
Monthly Labor Review:
July, 1919. 302 pp.....................................................................................
Same, reprint..............................................................................................
August, 1919. 305 pp...............................................................................
September, 1919. 379 pp........................................................................
October, 1919. 314 pp.............................................................................
November, 1919. 362 pp.........................................................................
December, 1919. 412 pp..........................................................................
January, 1920. 303 pp.............................................................................
February, 1920. . 290 pp................................... . .....................................
March, 1920. 236 pp.................................................................................
April, 1920. 244 pp...................................................................................
May, 1920. 231 pp.................................................... ...............................
June, 1920. 236 pp....................................................................................
C1) (>)
C) G) $309. 71
W C1)
0) 0)
(’) (D
37.05
0) (D
(l) I1)
(!) (’) 6.10
C1) (D
(!) 0) I 122.22
F) C1)
)
0) (D
15.44
0) (B
C1) (X) 14.76
19,000 19,000 4,215.16
1,000 820 229.15
20,000 18.748 4,694.91
20,000 19,203 6,113.53
21,000 17,915 5,635.47
21,000 19,386 5,312.88
21,000 20,165 6,567.73
21,000 20,027 5,081.39
21,000 19,469 5,159.86
21,000 20,949 5,026.37
19,000 13,358 4,386.16
19,000 16,616 3,937.50
19; 000 16,870 4,474.31
1 None ordered for department.
900 REPORTS OF DEPARTMENT OF LABOR,
Publications of the Department of Labor, by bureaus, and distribution thereof, year ended.
June 30, 1920—Continued.
Title and -description. Received. Distributed.
Cost.
bu rea u of la bor stat ist ics —continued.
Monthly Labor Review—Continued.
May, 1918, reprint. 314 pp.............. -............................................. 500 100 $113.01
July, 1918, reprint. 223 pp.................................................................... 500 172 101.17
Mav, 1919, reprint. 328 pp .............................................................. 500 158.88
Index to Volume" VIII, Monthly Labor Review, 46 pp.............. ......... 5,000 327 194.65
Index to Volume IX. Monthly Labor Review. 47 pp......................... 2,000 322 407.83
Extract from Monthly Labor Review for March, 1919: Comparison
of experience under'workmen’s compensation and employers’ liability
systems, 19 pp.............................................................................. 1,000 815 41.60
Extract from Monthly Review for May, 1919: Retail prices of food
in the United States. 46 pp.................................................................. 1,000 830 88.11
Extracts from Monthly Review for June, 1919:
Wages of women and minors in the mercantile industry in the
District of Columbia. 15 pp...... . .................................................. 1,500 1,200 32.10
List of papers received currently in department library. 20 pp.. 500 500 15.81
Same, reprint.............................................................................................. 2,000 1,100 40.28
Extracts from Monthly Review for July, 1919:
Prices and cost of living. 82 pp.................................................... 6,000 5,112 192.87
What is the American standard of living? 13 pp........................... 1,000 795 21.12
Extracts from Monthly Review for August, 1919:
Prices and cost of living. 33 pp.................................................... 6,000 5,200 94.71
A studv of food costs in various cities. 25 pp.................................. 1,500 1,324 25.87
The road to the eight-hour day. 25 pp.............................................. 1,500 1,320 27.30
British labor exchanges and United States employment offices
and the Employment Service of Canada. 28 pp... ................. 1,500 1,123
1,232
43.06
Labor provisions in the peace treaty. 13 pp.................................... 1,500 26.50
Extracts from Monthly Review for September, 1919:
Prices and cost of living. 52 pp.................................................... 6,000 6,000 143.59
Same, reprint............................................................................. -.............. 500 100 39.09
Industrial hazards. 8 pp........................................................................ 1,000 613 5.42
A studv of rents in various cities. 22 pp........................................... 1,500 1,245 22.63
Labor turnover in Chicago. 15 pp....................................................... 1,000 652 12.00
Reabsorption of labor, and unemployment in the United Kingdom.
26 pp......................................................................................... 1,000 724 25.63
The foreman’s bonus for accident reduction. 8 pp......................... 1,000 742 13.59
Extracts from Monthly Review for October, 1919:
Relations between employer and employee. 10 pp................ 1,000 675 13.54
Prices and cost of living. 50 pp........................................................... 6,000 5,124 142.12
Extracts from Monthly Review for November, 1919:
Disability among wage earners. 20 pp...................................... 500 432 . 14.28
Employment policy and labor stability in a Pacific coast department
store. 40 up..................................................................... 500 392 22.98
Prices and cost of living. 31 pp............................................ •............. 6,000 5,124 85.67
Extracts from Monthly Review for December. 1919:
Employment policies and labor mobility in a California sugar
refinery. 23 pp........................ -............... 500 412 17.45
Hygienic con' rol of the anilin dye industry in Europe. 21 pp .. 1,000 874 20.18
New trade agreements in the cloak, suit, and waist industry,
New York City. 18 pp............................................-...................... 500 402 15.23
Prices an d cost of living. 37 pp........ . ................................... -........... 5,000 4,124 112.56
Extracts from Monthly Review lor .January. l°20:
Comparison of compensation laws in the United States, including
1919 legislation. 22 pp....................................................... 500 423 18.15
Prices and cost of living. 46 pp........................................................... 6,000 5,400 132.56
Extract from Monthly Review for February, 1920: Prices and cost
of living. 44 pp................................... - - - -............................................ - 6,000 5,567 157. 01
Extracts from Monthly Review for March, 1920:
Duration of wage earners’ disabilities. 12 pp........................... 500 412 11.10
Prices and cost of living. 51 pp......................-................................... 6,000 5,343 175.53
Extract from Monthly Review for April, 1920: Prices and cost of
living. 20 pp....................................................................................v,"" 6,000 5, 400 65.04
Extract from Monthly Review for May, 1920: Prices and cost of liv-
7,000 5,234 84.85
Extract from Monthly Review for June, 1920: Prices and cost of liv-
7,000 5,300 98. 89
Extracts from Bulletin 273:
Employees engaged in interstate and foreign commerce. 6 pp.. 200 150 31.77
Minimum requirements in compensation legislation. 14 pp....... 200 162 27.53
Tests of efficiency in workmen’s compensation administration.
200 200 27.39
How can medical service be improved? 6 pp.................................. 200 200 7.39
Defects in workmen’s compensation laws. 11 pp........................... 200 150 23.80
The attitude of the railroad transportation organizations on
Federal compensation. 6pp............................................................. 200 200 13.44
How can medical service for beneficiaries of compensation acts
be improved? 6 pp.......................................................................... 200 160 13.71
Some features of workmen’s compensation law and its admunstration.
9pp...................................................................................... 200 200 20.08
Disabilities as aggravated by preexisting conditions. 8 pp------- 200 200 17.64
The larger idea in workmen’s compensation. 6 pp........................ 200 200 13.67
REPORT OF CHIEF, DIVISION OF PUBLICATIONS AND SUPPLIES. 901
Publications of the Department of Labor, by bureaus, and distribution thereof, year ended
June 30, 1920—Continued.
Title and description. Received. Distributed.
Cost.
bu rea u of lab or st at is ti cs —continued.
Extracts from Bulletin 273—Continued.
Is a uniform compensation act possible or desirable? 6 pp.......... 200 200 $13. 71
Dampen salion law administration. 7 pp.......................................... 200 200 15.80
E ye inj u ries. 6 pp................................................................................... 200 200 14.10
Some comparisons of workmen’s compensation legislation. 8
PP ................................................................................. 200 200 17.14
Bulletins:
209 TTy"ienp of thp printin" trades. 118 pp. "Reprint................. 500 64 79.10
219. Industrial poisons used or produced in the manufacture of
explosives. 141 pp. Reprint ................................................. 500 60 64.99
227. Proceedings of the employment managers’ conference,
Ph i 1 adp.lnhi a 210 pp Reorint.. 500 89. 46
250. Welfare work for employees m industrial establishments in
the United States. 139 pp. Renrint.................................... 2,000 l, 125 2.8.93
251. Preventable deaths in the cotton manufacturing industry.
534 pp........ ............................................................................. 8.500 7,763 7,320.98
252. Wages‘and hours of labor in the slaughtering and meatpacking
industry. 1114 pp...................................................... 10,000 8,978 17,964.78
254. International standardization of protective labor legislation.
135 pp ............................................................................... 10,000 6,846 1,058.50
255. Joint industrial councils in Great Britain. 207 pp............... 10,000 7,082 1,590.58
256. Accidents and accident prevention in machine building.
123 pp............................................................................................... 9,500 7,084 1,562.24
257. Labor legislation of 1918. 169 pp................................................. 10,000 9,511 1, 736. 89
258. T ecisions of courts affecting labor. 1918. 239 pp.................... 10,000 9,181 2,260.41
259. Union scale of wages and hours of labor, 1918. 295 pp........ 12,000 11,479 3,527.17
260. Wages and hours of labor in the boot, and shoe industry.
135 pp............................................................................................... 10,000 8,959 1,965. 34
261. Wages and hours of labor in woolen and worsted goods manufacturin",
1918. 93 pp.............................................................. 10,500 9,483 1,457.48
262. Wages and hours of Labor in cotton manufacturing and f nishing,
1918. 147 pp..................................................................... 10,500 9,822 2,108. 89
264. Proceedings Fifth Xnnval Meeting of the International
Association of Industrial and Accident Boards and Commissions,
held at Madison, Wis., Sept. 2«-29, 1918. 224
pp. ............................................................................................ 8,500 7,893 1,654.63
Infections of the upper extremities. 12 pp............................................... 200 200 30.54
List of persons who attended Sixth Annual Convention of the International
Association of Industrial Accident Boards and Commissions
Toronto Canada Sept. 23-26, 1919. 2 pp........................... 250 250 15. 45
The economies of child welfare. 5 pp......................................................... 19,000 17,200 84.94
Minimum requirements in compensation legislation. 14 pp. Reprint
_ . .................................. . ..........................-......... 500 500 7.89
Tentative quantity and cost budget necessary for a family of five in
Washington—a level of heal th and decency. 75 pp........................... 10,000 1,150 8/3. 18
Wages and hours oflabor in the coal mining industry in 1919. 20pp.. 20,000 17,000 359.62
CHILDREN’S BUREAU.
Annual report of the chief 1919. 32 pp..................................................... 2,500 2,500 135. 52
Minimum standards for child welfare adopted bv the Washington
and regional conferences on child welfare. 15 pp.............................. 25,000 23,868 307. 87
Follow-up Loahp.i-, No 3* Kvery child in school. 15 pp....................... 75,000 21,934 861. 21
Courts in the United States hearing children’s cases. 115 pp............ 15,000 9,302 1,473. 60
C. C. Dodger No. 10: What do growing children need? 4 pp.......... 500,000 430,000 755- 02
Illegitimacy laws in the United States. Analysis and index.
98 pp................................................................................................................. 5,000 95 679.05
15,000 8,677 1,381.76
List of Publications, Children’s Bureau, Dec. 15, 1919. 11 pp.......... 5,000 5,000 58.29
Save the youngest. 15 pp............................................................................. 50,000 40,569 646.16
Infant care 87 pp. Reprint .............-..................................................... 100,000 100,000 3,939.98
Same Reprint .......................................................................................... 100,000 89,370 4,838.20
Children’s Year leaflet No. 9: Scholarships for children. 8 pp.
Reprint. .. ............................................................................................ 25,000 2,486 105.18
Children’s Year leaflet No. 10: Advising children in their choice
of occupation 16 pp Reprint............................................................... 25,000 2,148 177.05
Laws relating to mothers’ pensions in the United States, Canada,
Denmark and New Zealand. 316 pp ................................................. 12,000 9,833 2,834.54
Maternity benefit system i n certain foreign countries. 206 pp.......... 7,500 7,255 1,603.30
Maternity and infant carein two rural counties in Wisconsin. 92 pp. 10,000 10,000 857.16
Maternity and infant care in a rural county in Kansas. 50 pp. Reprint.
. . ................................................................................... 2,000 1,929 76.37
Prenatal carp, 41 pp Rp.print................... .............................................. 100,000 100,000 1,899.35
Samp Rp.print .......................................................................... 50^000 39,370 1,269.58
What of malnutrition 20 pp .................................................................. 100',000 71,753 1,338.67
Results of a field studv at Saginaw, Mich 91 pp.................................. 10,000 7,978 1,662.55
Km pl nym ent-oert. if! na.te system in Maryland. 127 pp.......................... 15i000 14,827 1,944.82
10,000 9,475 3,580.77
The visiting teacher. 8 pp. Reprint........................................................ 5'000 2,360 19.31
902 REPORTS OF DEPARTMENT OF LABOR.
Publications of the Department of Labor, by bureaus, and distribution thereof, year endea
June 30, 1920—Continued.
Title and description. Received. Distributed.
Cost.
ch ild re n ’s bu rea u —continued.
A brief summary of work done and suggestions for follow-up work.
20 DP................................................................................................................. 25,000 22,000 $465.12
The child-welfare special. A suggested method of reaching rural
communities. 18 pp.................................................................................... 50,000 5,000 1,398.74
BUREAU OF IMMIGRATION.
Annual report of the Commissioner General of Immigration, 1919.
412 pp............................................................................................................... 5,000 5,000 4,085.18
Advance copies of the Commissioner General’s annual report. 91 pp. 200 200 33.51
Press proofs of the annual report of the Commissioner General, 1919.
91 PP............................................................................... ...............................
Annual report of the Chief of the Division of Information. 4 pp....
3,000
500
3,000
500
265.31
11.49
Immigration laws and rules. 97 pp. Reprint........................................ 2,000 2,000 97. 91
Same. Reprint................................................................................................ 2,500
5,000
2,500 138.14
Same. Reprint................................................................................................ 2,621 336.34
BUREAU OF NATURALIZATION.
Annual report of the Commissioner, 1919. Ill pp................................. 2,500 2,215 898.74
Naturalization laws and regulations, Oct. 10, 1919. 39 pp................... 5,000 4,750 130.70
Fourth year of the work of the public schools. 80 pp........................... 2,500 2,183 218.38
Syllabus of the naturalization law. 10 pp................................................ 10,000 10,000 91.76
Same. 9 pp. Reprint with changes.......................................... .............. 5,000 5,000 67.84
Same. Reprint................................................................................................ 5,000
125
63.12
Directory of courts (third edition). 83 pp............................................... 400 1,072.10
Teacher’s manual. 31 pp. Reprint........................................................... 2,500 2,500 337.76
Same. Reprint................................................................................... . ........... 2,500 2,500 342.09
Same. Reprint................................................................................................ 5,000
5,933
783.43
Student’s textbook. 131pp. Reprint..................................................... 20,000 4,087. 89
wo men ’s bur eau .
Annual report of the Director of the Woman in Industry Service.
29 pp.. . :........................................................................................................... 2,500 2,500 109.71
The eight-hour day in Federal and State legislation. 19 pp............. 2,000 2,000 68.68
The employment of women in hazardous industries in the United
States. 6 pp.................................................................................................. • 2,000 2,000 22.98
W omen's occupational law charts. 6 sheets............................................ 12,000 12,000 267.27
Wages of candy makers in Philadelphia in 1919. 46 pp....................... 15,000 8,993 580.19
Bulletins:
No. 1. Proposed employment of women during the war in the
industries of Niagara Falls. 16 pp. Reprint.............................. 5,000 5,000 44.00
No. 7. Night-work laws in the United States. 6 pp...................... 1,000 1,000 16.32
Same. Reprint......................................................................................... 1,000 1,000
10,071
15.70
No. 8. Women in the Government service. 37 pp......................... 15,000 495.09
No. 9. Home work in Bridgeport, Conn. 35 pp.............................. 1,000 758 197.47
No. 10. Hours and conditions of work for women in industry
in Virginia. 32 pp................................................................................ 1,000 1,000 125.07
WAR LABOR-BOARD.
Report of War Labor Board for 12 months ending May 31, 1919.
149 pp............................................................................................................... 5,000 505 1,162. 80
UNITED STATES TRAINING SERVICE.
Bulletins:
No. 14. Training in industrial plants. 30 pp.................................... 10,000 2,803 285. 81
No. 15. Training in the paper-box industry. 75 pp....................... 10,009 1,460 567.07
No. 16. Training in men’s suits and overcoat industry. 83 pp.. 10,000 1,906 720.21
No. 17. Training workers in the women’s cloak and skirt industry.
83 pp........................................................................................ 10,000 1,159 755.97
No. 18. Industrial training in the overall industry. 57 pp...... 10,000 1,554 452.66
No. 19. Training for skirt makers. 59 pp.......................................... 10,000 3,557 452. 66
No. 20. Training in the rubber industry. 75 pp............................. 10,000 1,437 1,213.14
No. 21. Training in the shoe industry. 61 pp.................................. 10,000 2,026 712.65
No. 22. Courses of instructions in niano making. 67 pp............... 10,000 1,533 550.00
No. 23. Outline courses for instruction in lithography. 23 pp... 5,000 1,469 146. 80
No. 24. Industrial training for foundry workers. 68 pp............... 10,000 2,016 636.48
No. 25. A course of instructions for workers in cotton mills. 64
PP............................................................................................................... 10,000 1,407 421.65
No. 26. The foreman. 79 pp........................................................... 10,000 6,466 636.30
UNITED STATES EMPLOYMENT SERVICE.
Annual report of the Director. 174 pp....................................................... 2,500 1,987 832.48
DIVISION OF INFORMATION AND EDUCATION.
Economics in the construction industry. 263 pp.................................... 5,000 2,891 2,347. 57
REPORT OF CHIEF, DIVISION OF PUBLICATIONS AND SUPPLIES. 903
As shown by the above table, there were issued 163 separate
books or pamphlets, containing 16,342 printed pages, and there
were issued a grand total of 2,259,600 copies. Two of these books
were reprinted with changes, while 22 were reprinted without changes.
ENVELOPES.
Envelope contractors received from the department during the
year 165 orders, for an aggregate of 3,022,175 envelopes, for the use
of the various bureaus, offices, and services. In 1919, 470 such
orders were placed, calling for 18,552,857 envelopes.
The decrease in the number of envelopes ordered during the fiscal
year was due to the dropping out of several of the services which
had been created during the war, their usefulness having been ended,
and to the use of some 400,000 envelopes of a value of approximately
$1,200 secured from the various Government boards or services
which had printed stock on hand when their activities ceased
with the signing of the armistice. These envelopes were secured for
the most part through the General Supply Committee and were overprinted
either at the Government Printing Office or by the duplicating
section of this division.
The cost of the envelopes for 1920 amounted to $7,600.97, as compared
with $39,770.06 in 1919, a decrease of $32,169.09.
FEINTED STATIONEEY.
Requisitions for printed stationery to the number of 373 were
filled during the fiscal year. Of these, 176 were from offices and
bureaus of the department in Washington, while 197 were received
from services outside Washington. The following table shows their
distribution.
Relative quantity of stationery furnished during 1919 and 1920, by classes.
Class. 1919 1920
Envelopes ..................................................................................... i 18,552,857 2 3,022,175
1 jPtf, erh ea d s ......................................................................... 11,402,500 3,020,500
Memorandum sheets . - ............................................................................. 4,699,600 1,519,400
Embossed letterheads .............................................................................................. 28,500 10,000
Embossed envelopes .................................................................................................. 15,500 15,500
Stenographer's notebooks ........................................................................................ 18,404 7,114
Blank books ................................................................................................................. 9,101 2,871
Blank forms 3 . ..................................................................................... 187,250 88, 778
Index ^a.rds ......................................................................... 1,456,950 751,100
Guide cords . - .............................................................................................. 249,200 62,680
Vertical folders . . ................................................................................................ 165,875 67,375
1 11,185,232 white; 7,367,625 manila. 2 1,889,675 white; 1,132,500 manila. 8 Inside service only.
BOOKS AND BLANKS.
Requisitions for books and blanks filled during the year numbered
8,210—fewer by 4,836 than the year before. These requisitions
included 6,002 from clerks of courts for naturalization blanks and
177 from representatives of the State Department for blanks for use
in issuing passports.
Shipments of books and blanks numbering 89,772 and weighing a
total of 513,264 pounds were made during the year; there were 8,223
shipments of supplies, weighing 408,217 pounds.
904 REPORTS OF DEPARTMENT OF LABOR.
To fill the 8,210 requisitions for books and blanks, 11,484 books;
and 19,379,390 blanks were required.
Twenty-eight thousand live hundred and thirty packages of blanks,
weighing 330,207 pounds, and 6,236 packages of supplies, weighing
437,381 pounds, were received, while shipments reached the number
of 97,995, weighing 921,481 pounds.
Herewith are presented tables showing in detail the distribution of
books and blanks and shipments of supplies.
Report of blank books, forms, and supplies shipped and received by the Division of Publications
and Supplies for the fiscal year ended June 30, 1920.
REQUISITIONS FILLED.
Service. Number.
Inside service............................................................................................................................................
Naturalization Service, clerks................................................................................................................
Naturalization Service, examiners........................................................................................................
General (Immigration, Employment, etc.).........................................................................................
Passport control (State Department)...................................................................................................
785-
6,002
164
1,082-
177
Total 8,210-
SHIPMENTS MADE.
BLANKS.
Immigration trunks.........................................
Boxes, registered mail......................................
Boxes, freight....................................................
Packages, registered mail................................
Packages, regular mail.....................................
Packages, regular mail (other divisions).......
Immigration bulletins, etc..............................
Bags, regular mail.............................................
Letters, invoices, etc........................................
Total........................................................
SUPPLIES.
Freight and express.........................................
Mail....................................................................
Total.........................................................
Total shipments.....................................
Number. Weight.
Pounds.
70 6,755
16 800
24 11,372
5,857 51,320
14,088 121,710
51,244 68,823
6,883 3,030'
3,102 247,940'
8,488 1,514
89,772 513,264
7,409 405,892
814 2,325
8,223 408,217
97,995 921,481
NUMBER OF BOOKS AND BLANKS SENT.
Books. Blanks.
Customs...........................................................................................................................
Immigration Service, general........................................................................................
Immigration Service, New York..................................................................................
Employment Service......................................................................................................
Naturalization Service, clerks.......................................................................................
Naturalization Service, examiners...............................................................................
Passport control (State Department)..........................................................................
Publications and Supplies.................................................... x.....................................
Specialand miscellaneous.............................................................................................
Certificates of naturalization, books.............................................................................
1,135
6,127
609
31
2, 641
919
141 books of 10........................................................................................... 1,410
148 books of 25............................................... . ......................................... 4,825
2,343 books of 50.......................................................................................... 117,150
1,810 books of 50 (special)........................................................................... 90,500
1 4,487
Total.
213,885
6
16
4,487
57,310'
2,513,160
518,000
11,173,850
1,900,750
496,775
596,970
212,075
1,910,500
15,971 19,379,390
1 45 books returned and reissued.
REPORT OF CHIEF, DIVISION OF PUBLICATIONS AND SUPPLIES. 905
Report of blank books, forms, and supplies shipped and received by the Division of Publications
and Supplies for the year ended June 30, 1920—Continued.
PACKAGES RECEIVED.
Blanks and supplies.
Blanks..........................................................................................................................................
Supplies.......................................................................................................................................
Total packages received...............................................................................................
Total packages shipped................................................................................................
Total packages handled...............................................................................................
Number. Weight.
22,294
6,236
Pounds.
330,207
437,381
28,530
97,995
126,525
767,588
921,481
1,689,069
SHIPPING.
A motor cycle with side van was purchased to augment the present
motor equipment of this section and expedite the delivery of mail
and the h andling of the lighter delivery work. The acquisition of
this equipment permitted the release of a Ford motor truck to the
General Supply Committee. This new equipment, together with the
two motor trucks now in use, in all probability will be sufficient to
permit the department to handle expeditiously the incoming and outgoing
mails and its shipment of supplies.
DISTRIBUTION OF PUBLICATIONS.
Publications of the department to the number of 1,989,994 were
distributed on franks and mail lists, 1,171,462 fewer than in the fiscal
year 1919. Individual franks handled reached a total of 131,212, a
slight increase over the year before.
Abolition of the various war services resulted in the discontinuance
of 10 mailing lists, leaving 59 lists now maintained in the duplicating
and mailing section. These lists contain a total of 135,480 names.
A comparative statement of publications issued in 1919 and 1920
follows:
Description. 1919 1920
Per cent of
increase
(+) or
decrease
(-)
Total publications issued................................................................................
On mailing lists..........................................................................................
On franks.....................................................................................................
Franks handled.................................................................................................
3,161,456
1,202,088
1,959,368
130,483
1,989,994
510,100
1,479,89.4
131,212
-37
-58
-24
+i
The following table shows the number of publications distributed,
on mail lists and on franks, and the number of franks handled, by
months:
REPORTS OF DEPARTMENT OF LABOR.
Publications issued during the fiscal year, by months.
906
Month.
Public
On franks.
ations issu
On mail
lists.
ed.
Total.
Franks
handled.
1919.
July....................................................................................................... 46,256
69,638
75,594
118, 935
144, 768
154,052
125,579
111,262
161,815
144,677
179,858
147,460
43,839
52,947
35,271
29i Oil
52,429
65,485
65,149
27,193
39,046
48,349
23,842
27,539
90,095
122,585
110,865
147; 946
197,197
219, 537
190,728
138,455
200,866
193,026
203,700
174,999
9,172
8,356
6,399
11, 725
15,717
10,315
14,341
11,204
15,954
9,663
10,023
8,343
August..................................................................................................
September.................................................................. ........................
October........'.......................................................................................
N ovember...........................................................................................
December............................................................................................
1920.
January................................................................................................
February.............................................................................................
March....................................................................................................
April......................................................................................................
May.......................................................................................................
June......................................................................................................
Total.......................................................................................... 1,479,894 510,100 1,989,994 131,212
dup lica ting work .
The duplicating work and envelope addressing, folding, and sealing
are here shown:
Description. 1919 1920
Per cent
of
decrease.
Requisitions........................................................................................................ 3,468 1,585 51
Impressions......................................................................................................... 6,480,584 2,449,549 62
Photostatic copies............................................................................................. 4,174 1,618 61
Sheets folded...................................................................................................... 1,470,504 752,536 49
Envelopes sealed............................................................................................... '641,340 608,488 5
Envelopes addressed......................................................................................... 1,232,316 387,494 69
Decreases shown above were due to the abolition of various war
services.
The division now has six mimeograph machines, one mimeoscope,
a complete multigraphing equipment, one photostat machine, three
envelope sealers, two folding machines, one graphotype, two wire
stitching machines, and one addressograph.
CONTINGENT, 1921.
In the legislative, executive, and judicial appropriation act approved
May 29, 1920, $50,000 has been provided for the contingent
expenses of the department during the fiscal year 1921. Together
with the allotment of $13,500 made by the same act from the appropriation
“ Expenses of regulating immigration, 1921,” this sum
makes $63,500 available for the contingent expenses of the department.
Due to the constantly increasing cost of supplies, both those
contracted for by the General Supply Committee and those purchased
in the open market, together with the increase in the cost of fuel and
telephone service, it is doubtful whether the needs of the department
can be met with this sum, even though the department’s established
practice of rigid economy be closely adhered to.
REPORT OF CHIEF, DIVISION OF PUBLICATIONS AND SUPPLIES. 907
ALLOTMENT FOR PRINTING AND BINDING.
On page 5 of this report are shown the sub allotments of the
department’s allotment for printing and binding. There are shown
below the amounts requested by the various bureaus and services
of the department for the same purpose for the fiscal year 1922.
Bureau estimates-for printing and binding allotment, 1922.
COMPARATIVE STATEMENT.
Bureau or office.
Office of the Secretary.................................. .
Bureau of Labor Statistics............................
Bureau of Immigration................................ .
Division of Information.......................
Immigration Service.................................
■ Children’s Bureau..........................................
Bureau of Naturalization.............................
Naturalization Service and examiners.
'Women’s Bureau.............................................
Total....................................................... 130,000 200,000
Allotment,
1917.
Allotment,
1918.
$28,978
65,000
5, 500
4,500
18,000
25,000
2, 000
17,000
$37,000
73, 450
5,500
2.050
18,000
25,000
2,000
17,000
165,978 180,000
$42,000 $12,500
31,500,101.000
4,500 6; 000
Allotment,
1919.
15,000 19,000
18,000 30,000
2,000 3,000
17,000 25,000
......... 3,500
Allotment,
1920.
Allotment,
1921.
$12,500
90,000
6,000
19,000
36,000
3,000
25,000
8, 500
Allotment
requested
for 1922.
12,500
120,000
7,000
2,500
25,000
77,000
9,000
25,000
10, COO
200,000 288,000
SUPPLIES.
By act approved March 1, 1919, known as the legislative, executive,
and judicial appropriation act, the sum of $50,000 was appropriated
for the contingent expenses of the department for the fiscal year
ended June 30, 1920. This act further provided that a sum not in
excess of $13,500 be taken from the appropriation “Expenses of
regulating immigration, 1920,” and added to the department’s contingent
appropriation in order to enable the central purchasing agency
of the department (Division of Publications and Supplies) to provide
certain supplies for the immigration field service. This made available
a total of $63,500 to constitute the contingent fund of the
department.
More supplies were purchased in the open market during the fiscal
year than in any similar period since the creation of the department.
This was due partly to the fact that many of the contracts entered
into by the General Supply Committee, beiiig necessarily limited to
specific quantities, expired before the close of the fiscal year and
partly to the fact that in some instances the General Supply Committee
was unable to contract at all for certain supplies, and were
it not for the practice of the most rigid economy the department
would not have been able to supply the needs of its several bureaus
and officials from this appropriation.
During the fiscal year there were filled a total of 1,596 requisitions
for supplies, which necessitated the placing of 2,038 orders, involving
3,292 items, at an aggregate cost of $46,770.90. There remains at
the present time a balance of $3,229.10 available to offset any outstanding
liabilities properly chargeable to this appropriation, an
.amount which is deemed sufficient for that purpose.
908 REPORTS OF DEPARTMENT OF LABOR.
ESTIMATED CONTINGENT ALLOTMENT FOR DIVISION, 1921..
It is estimated that the sum of $6,500 will be required for the
contingent expenses of the division for the fiscal year 1921. Of this
sum it is proposed to reserve $4,000 for the purchase of a distinctive
safety paper upon which to print engraved certificates of naturalization.
Experience previously gained leads to the belief that the balance
can, with careful management, be made to meet the necessary
expenditures of the division.
CENTRALIZED PURCHASING.
During the last session of Congress there were introduced, in both
the Senate and the House, bills looking toward the establishment of
a central purchasing agency to purchase, store, and issue supplies
for all of the departments and independent establishments of the
Federal Government and for the District government. Both bills
contemplated a large clerical force, including specialists in each line
of supplies purchased, together with huge warehouses, Governmentowned
wharves, railroad trestles, and spurs and sidings, the acquisition
of which would, of course, call for the outlay of vast sums of
money. In view of this enormous expense and the fact that, regardless
of what manner of centralized purchasing is employed, there
always must be maintained in each department and independent
establishment a force practically equivalent to the supply force now
being maintained, I am unable to see how any benefit or saving
can accrue to the Government through the adoption of this measure.
Such saving as may be effected through the purchase of large quantities
at one time undoubtedly would be more than offset by the
additional expense incident to this new scheme. Furthermore,
another step would be added to the already slow and cumbersome
procedure now necessary in the purchase of supplies, thus further
retarding the work and placing a greater hardship on all branches of
the service.
RECOMMENDATIONS.
During the year the division lost several trained employees. Im
view of the fact that employees in this division do not become of
real value until after one or more years of training, it can readily
be seen that the loss of. such trained employees is a serious matter.
Indeed, with the present inadequate wage paid by the Government
for practically all manner of services the matter of obtaining a
competent clerical force has become a most serious problem. Ini
fact, unless some means can be.found whereby employees may be
paid a living wage it will be absolutely impossible to attract worthwhile
employees and hold their services in this work.
REPORT OF CHIEF, DIVISION OF PUBLICATIONS AND SUPPLIES. 909
' PERSONNEL.
The following proposed personnel1 is submitted for the fiscal year
1922:
1 chief of division.................................................................................... $2, 500
1 assistant chief of division................................................................... 2, 000
2 clerks of class 4..................................................................................... 3,600
4 clerks of class 3..................................................................................... 6, 400
4 clerks of class 2............................................. ........................................ 5, 600
5 clerks of class 1..................................................................................... 6, 000
2 clerks, at $1,000.................................................................................... 2,000
2 clerks, at $900........................................................................................ 1, 800
1 clerk, at $840......................................................................................... 840
3 assistant messengers, at $720............................................................. 2,160
2 laborers, at $660.................................................................................... 1, 320
1 messenger boy....................................................................................... 480
28 34,700
If the recommendation on page 8, so to reorganize the editorial
forces of the department as to secure the most efficient service be
adopted, the personnel, of course, ,would be augmented to the extent
such reorganization indicated.
The very greatly reduced force with which the division has been
compelled to carry on its work has forced it to request details from
the bureaus in order to function. There are detailed from the
Children’s Bureau one clerk at $1,000 and from the Bureau of Naturalization
one clerk at $1,200 and one clerk at $1,000.
The inadequacy of present salaries has rendered it impossible for
the division to retain the personnel trained to perform the duties
necessary. Based on the expenditures necessary to maintain a
family, or compared with the value of the work performed, neither
the administrative nor the clerical positions are at all adequately
compensated. Taken as a whole, the efficiency of the personnel of
the division is much lower than four years ago, and unless salaries
generally can be raised it is certain further to deteriorate. An increase
of at least 25 per cent of present salaries is the least that
would be considered in any sense fair to employees of the division,
from chief to messenger boy.
OVERTIME.
It has been possible to reduce materially the amount of overtime
required of clerks as compared with the previous year. The records,
however, show that in order to keep the work of the division current
it has been necessary to permit overtime to the extent of 1,069 hours.
This work has been performed cheerfully whenever the needs of the
service indicated its necessity, but it is hoped that the coming year
will show a still further material reduction or a total elimination.
CONCLUSION.
Notwithstanding the conditions under which the employees of this
division have been forced to work, the constant shifting necessary
1 Salaries quoted contemplate a continuation of the bonus of $240 per annum provided in appropriations
for the fiscal year 1921.
9IQ REPORTS OF DEPARTMENT OF LABOR.
to fill the vacancies made by those who have left, and the necessary
doubling up in order to keep the work of furnishing the several
bureaus and offices of the department the supplies and printed
matter necessary to their proper functioning, they have, by their
faithfulness and continuous efforts, made it possible to keep the
work of the division nearly current; and I sincerely hope that the-
Congress may see its way clear either to adopt the recommendations
of the Commission on Reclassification or some other adequate means
of properly compensating these employees for the class of sei vice
they are rendering.
Respectfully submitted.
Hon. W. B. Wil son ,
Secretary of Labor.
H. A. Wor ks ,
Chief of Division
REPORT
OF THE
DIRECTOR GENERAL OF THE UNITED STATES
EMPLOYMENT SERVICE
911
ANNUAL REPORT
OF THE
DIRECTOR GENERAL UNITED STATES EMPLOYMENT
SERVICE.
U. S. Depa rt ment of Lab or ,
U. S. Emplo yme nt Serv ic e ,
Washington, D. C., September 1, 1920.
Sir : There is submitted herewith the Third Annual Report of
the United States Employment Service for the fiscal year ended
June 30, 1920.
GENERAL SURVEY OF THE YEAR.
The record of the service during the year under review presents
the aspect of a constant struggle to meet, with inadequate and
diminishing financial resources, the serious conditions of unemployment
resulting from the rapid demobilization of the military and
naval forces and war workers of the country and the increasing
demands of the reviving peace-time industries. Owing to the
failure of Congress to pass the deficiency bill prior to its adjournment
on March 3, 1919, it had become necessary to curtail seriously the
activities of the service during the four months, March-June, when
unemployment was at its height, and to make an appeal to the
public to aid in carrying on the work during that critical period.
The instant and generous response with which this appeal was met
by State and municipal authorities as well as by numberless private
citizens and welfare agencies, and the aid extended by the War
Department in cooperating in the organization of special employment
bureaus for soldiers, sailors, and marines, made it possible for
the service to tide over the emergency without serious embarrassment.
The work of replacing returning service men in industrial life,
which was mainly supported by chambers of commerce and similar
commercial organizations, with help from- the American Red Cross,
the Knights of Columbus, Y. M. C. A., and other welfare organizations
was continued for several months into the year under consideration,
some of it to the end of the year 1919; but after June
30, upon the passage by Congress of the sundry civil bill, which
carried an appropriation of $400,000 for the United States Employment
Service for the ensuing year (instead of the $4,600,000 which
had been asked for), most of the private contributions were discontinued,
necessitating a further reduction in the activities of the
service and especially a curtailment of its field work. Fortunately
this enforced reduction in the number of employment bureaus maintained
by the service (from 500 to 62) was to a considerable degree
compensated by the fact that the States and municipalities which
had formerly maintained a public employment service now took
over many of the offices which the United States Employment Serv-
15283—la b 1020---- 58 913
914 REPORTS OF DEPARTMENT OF LABOR.
ice was compelled to abandon and operated them in cooperation
with the Federal service. This provided for 242 additional offices,
making a total of 304 coordinated employment bureaus operated
together as a national public employment system. This state of
affairs continued until October 10, 1919, when the congressional
situation necessitated a further and more radical change in the policy
of the service.
Attention is called in the report of the service for 1919 to the bill
introduced in the House of Representatives by Mr. Nolan of California
(H. R. 4305), and in the Senate by Senator Kenyon of Iowa
(S. 1442), providing for the establishment of the service as a permanent
bureau of the Department of Labor operating in conjunction
with the public employment bureaus maintained by the several
States. The hearings on this bill, conducted at joint sessions of
the Senate Committee on Education and Labor and the House
Committee on Labor, continued through the summer of 1919 and
produced a mass of testimony nearly all of which was favorable to
the establishment of a national employment system as proposed in
the bill. The confident hopes that were entertained of the early
passage of this measure, and the persistence of the serious condition
of unemployment throughout the summer of 1919, led the Director
General to maintain the employment service on the scale above
indicated during the first three months of the fiscal year. But
when, owing to the congestion of legislation in Congress, it became
apparent that the bill would not receive early consideration, an
order was issued directing the discontinuance of the field work of
the service and the appropriation of the unexpended balance of
the funds at its command to the development and operation of a
national system of labor clearance. Accordingly, on October 10,
the employment offices up to that time operated by the service were
turned over to the several States and municipalities in which they
had been maintained, or, where this was not possible, they were
abandoned. The system of cooperation with the States and municipalities
which had "been established was, however, maintained and
developed. The official head of the State employment service, or,
where a State service did not exist, the authorized representative of
a local employment bureau became the Federal director of the
United States Employment Service at the nominal salary of a dollar
a year; the employment offices successively turned over to the control
of the State or local authority carried with them the furniture and
equipment, together with the franking privilege and such blanks
and forms as were deemed necessary to facilitate the transmission
to the Washington office of uniform reports; and, finally, a sum. of
money was allotted to each of the States in which a cooperating
employment service was maintained to provide for the additional
clerical service which such cooperation entailed.
During the period from October 11, 1919, to June 30, 1920, 269
public employment offices have been in operation in 41 States and
the District of Columbia. These were in 19 States wholly or for the
most part supported by State appropriations, in five States by.local
(municipal) appropriations, and in two by both State and municipal
funds, while in a few communities the local employment bureau,
though under State or municipal control, was still provided in whole
or in part by chambers of commerce or other private agencies.
REPORT OP DIRECTOR GENERAL, .U. S. EMPLOYMENT SERVICE. 915
Weekly reports of the business transacted in each of these employment
offices were regularly transmitted by the several Federal
directors to the Washington office of the national service thus instituted,
comprehending the number of persons registered for employment,
the number of requisitions for help, the number referred to
positions and the number reported employed, adult males, women,
and juniors being separately listed. These regular reports were
supplemented by special reports of fluctuations in the local labor
market, calling for the assistance of the Washington office in supplying
from other sections of the country an urgent or otherwise important
labor demand. These reports were studied and compiled at
the office and were made the basis (1) of statistical information as
to the condition of the labor market throughout the country and (2)
of the developing clearance activities of the service.
Only a rough approximate estimate can be given of the cost of
operating the service during the year. Many of the employment
offices conducted by the service, especially in the period from July
1 to October 10, 1919, were supported by agencies from whom no
report of disbursements could be obtained. In many cases office
premises were supplied rent free in municipal or private office buildings
and in many others one or more of the employees were contributed
by municipalities, chambers of commerce, or other agencies. The
direct cost to the service amounted to 891,333 per month for the
first period (July 1-October 10) and to 814,000 per month for the
second period (October 11—June 30), making a total expenditure of
8175,612 for the year. It is safe to assume that the outside aid
extended was more than the amount contributed by the Government.
The withdrawal of the Federal Government from all field activities
has given a high degree of importance to the extent to which this
branch of the service has been assumed by States and municipalities,
A list of the States and municipalities maintaining employment
bureaus and the sums appropriated for the current year or made
available for that purpose follows:
Birmingham (Ala.).............. $2, 800. 00
Arizona and Maricopa
County................................ 4,000.00
Arkansas................................. 400. 00
Cal ifornia............................... 86, 442. 00
Colorado................................. 13, 200.00
Connecticut........................... 23, 000.00
Atlanta and Augusta............ 1, 980.00
Illinois.................................... 178,818.00
Indiana................................... 38, 000.00
Iowa......................................... 6, 000.00
Kentucky.................................... 2, 500.00
Kansas.................................... 26,200.00
Massachusetts........................ 54,600.00
Michigan................................. 25, 000. 00
Minnesota and St. Paul.... 25, 000.00
Missouri.................................. 18, 750. 00
New Jersey............................ $30, 000. 00
New York............................... 369^ 000.00
North Dakota........................ 1, 200.00
Ohio......................................... 40,000.00
Oklahoma............................... 16, 260. 00
Portland (Oreg.)................... 14, 000. 00
Pennsylvania........................ 50, 000. 00
Rhode Island.............................. 4,000.00
South Dakota........................ 5, 000. 00
Richmond (Va.)........................ 7,595.00
Seattle (Wash.)..................... • 14,010.00
Spokane (Wash.).................. 6, 246.50
Tacoma (Wash.)................... 2, 750. 00
Wisconsin................................... 80, 000. 00
Total............................ 1,146,751.50
NATIONAL CLEARING HOUSE FOR LABOR.
During the period of the war, when the issues of the struggle and
the effectiveness of America’s contribution to the allied cause depended
on the quickest production of the most essential war material,
the distribution throughout the country of its available labor resources
916 REPORTS OF DEPARTMENT OF LABOR.
was a matter of the first importance—a fact which was recognized in
the establishment of a labor clearance division in the United States
Employment Service. When, in the months succeeding the conclusion
of the war, unemployment became general in nearly all sections
of the country, the distribution of labor became for a time a
local rather than a national problem. In each State, every community
was called upon to make provision for the employment of its own
sons who had been returned from war service. The Clearance
Division was retained in operation, but its functions became subordinate
to the field work of the service in bringing together the man
seeking a job and the nearest available opportunity for employment.
With the final elimination of the field work of the service and the
assumption of that function by the several States and municipalities,
the United States Employment Service has become in effect a national
clearing house for labor.
This purpose was set forth in a letter of instructions (Circular No. 1)
issued by the Director General to the Federal directors and other
representatives of the service in the several States under date of
November 20, 1919. This circular recpiested the continuance of the
weekly statistical reports indicating the employment activities of
the several employment offices in the State, and in addition called for
weekly ’clearance reports of the surplus of labor undisposed of and
of workers wanted, and for reports of interstate shipments of applicants
to supply such demands. It was soon discovered, however,
that the concentration of a national clearance system, with its
ramifications to every industrial community in the Nation, in a single
office at the National Capital involved needless congestion and delay.
It was accordingly decided to decentralize the system and to throw
the responsibility for local clearance on districts or zones composed
of groups of States, constituting in each case as nearly as possible a
closely knit industrial area, leaving to the Washington office the
function of clearing the surplus of labor or of employment opportunities
between these areas. This plan was promulgated in a second
letter of instructions (Circular No. 2) issued under date of March 8,
1920. Copies of both these bulletins follow:
CIRCULAR NO. 1.
U. S. Depa rtme nt of Labo r ,
U. S. Empl oym en t Ser vi ce ,
Washington, November 20, 1919.
In the proposed plan of cooperation between the U. S. Employment Service and
the various States, the U. S. Employment Service desires two classes of reports, viz:
(a) Statistical Reports showing employment activities.—It is desired that these reports
be submitted on standard form Emp. 26 entitled “Weekly summary by local offices,”
a sample of which filled in to indicate its use is attached. Offices should be listed
alphabetically. Male placements should be segregated as “Skilled,” “Unskilled,”
and “Clerical and professional”: female placements as “Domestic,” “Industrial,”
and “Clerical and professional.” The columns appearing on the printed form for
“Attendance,” “Percentage,” and “Transferred” should be disregarded. The
form is designed to require the use of a separate sheet for each sex. Grand totals for
each sex should appear in the space provided at the bottom of the report. It is desired
that these reports be submitted for the week ending with Saturday and be forwarded
to Washington as promptly as possible thereafter.
(6) Clearance reports indicating surpluses or shortages of applicants or positions in
various occupations, and reports of interstate shipments of applicants to fill such opportunities.
It is desired that on Saturday of each week a written report be forwarded
REPORT OF DIRECTOR GENERAL,, U. S. EMPLOYMENT SERVICE. 917
to the administrative offices of the U. S. Employment Service containing information
as to the surplus or shortage in the various trades and occupations, together with a
general statement of employment conditions throughout the State, specifying localities
where men are needed or available, and calling attention to any significant shortages
or surpluses of help. No particular form is required for this report, a letter giving
the necessary information being sufficient. These reports will be digested by the
administrative offices and whenever circumstances warrant the information contained
therein will be communicated to the Federal directors for the various States
where same will prove of interest. Federal directors interested in such information
furnished from the administration offices will then communicate direct with the
Federal directors for the States where the opportunities or surpluses exist with’a
view to arranging for the necessary interstate shipments.
It is further desired that a weekly report be submitted on Saturday of each week[ai
to what, if any, interstate shipments have been made during the week in question
No particular form is required for this repprt. A letter containing detailed informa
tion as to the places from and to which shipment was made, the date, the number o
men of each occupation involved, and the name of the firm with whom the help wa
placed, will be sufficient.
Emp. 26.
State of Ohio.
Sex, Male.
WEEKLY SUMMARY BY LOCAL OFFICES.
U. S. Depar tment op Lab or .
U. S. EMPLOYMENT SERVICE.
Week ending November 1,1919
Offices. Registrations.
Help
wanted. Referred. Reported
placed.
Akron:
Skilled.............................
Unskilled.........................
Clerical and professional.
Total........... . ...............
121
386
32
203
500
26
116
301
19
94
275
18
539 729 436 387
Cleveland:
Skilled.............................
Unskilled...........,............
Clerical and professional.
Total.................... . . . . .
Grand totals
Instructions: List cities alphabetically. On the “Male” report show activities classified as “Skilled,”
“Unskilled,” and “Clerical and professional:” on the “Female” report show them classified as “Domestic,”
“Industrial,” and “Clerical and professional.” Report grand totals for each sex in space provided at
bottom of report.
(Signature)
Federal Director.
CIRCULAR NO. 2
U. S. Depa rtme nt of Labor ,
IT. S. Empl oy men t Serv ice ,
Washington, March 8, 1920.
OUTLINE OF PLAN FOB. A NATIONAL SYSTEM OF LABOR CLEARANCE.
Purpose.
1. With a view to effecting a more speedy and economical adjustment of labor
supply and demand in the United States, a plan for the installation and operation of
a national system of labor clearance among the several States has been adopted, as
set forth in detail hereafter. The scope and purpose of the system are represented
graphically on the attached chart. By means of this national system it is hoped to
918 REPORTS OF DEPARTMENT OF LABOR.
widen the field of opportunities for employment and sources of labor supply presented
to the employee and employer, respectively, from the limitations of the community
to the unlimited opportunities and resources of the entire country. This is to be
accomplished by the orderly progress of an application for employment or an order
for help from the applicant or employer to the local employment office on to the
State clearance office, thence to the zone clearance office, and eventually to the
national clearing house at Washington, until the requirements of the applicant or
employer have been satisfactorily met.
Organization.
2. The country has been divided into 13 labor clearance zones, corresponding
generally with the Federal Reserve Bank Districts. As soon as funds are. made
available for the purpose, it is proposed to establish in each of the labor clearance
zones a zone clearance office under a zone clearance officer. At present there are
available for designation as zone clearance officers three officials, who will be assigned
to zones No. G (Atlanta, Ga.), No. 7 (Chicago, Ill.), and No.. 10 (Kansas City, Kans.).
These assignments have been made with a view to the best adaptation of the available
resources to the industrial and agricultural requirements of the various zones.
Rending the availability of funds and the appointment of Federal zone clearance
officers in the'remaining labor clearance zones, the Federal director of one of the
States within each zone shall act as zone clearance officer, pro tempore.
3. As indicated on the chart, and as contemplated by the agreements under which
the various States are cooperating with this service, all local placement offices within
a State will report direct to the Federal director for that State. The national clearance
system depends upon the existence in each State of a comprehensive and effective
system of clearance within such State, and it is assumed that, so far as possible, each
State will supply its immediate needs from its own resources of workers and of industrial
opportunities. Any balances of either opportunities or applicants remaining
undisposed of within any State should be reported by the Federal director for that
State to the zone clearance officer, and if undisposed of within the zone, eventually
reported by the zone clearance officer to the national clearing house at Washington.
4. It should be understood that the functions of zone clearance officers are merely
executive and not supervisory in any sense. The Federal director is the sole representative
of this service in his State so far as employment activities are concerned. The
duties of zone clearance officers involve merely the coordination of the activities of
the Federal directors for the various States within their zones and do not extend to
soliciting opportunities for employment, recruiting workers, or placement work of
any kind.
Method, of operation.
5. As stated above, it is obvious that the successful operation of a system of interstate
and national clearance such as is herein outlined, depends upon the existence
in each State of a comprehensive and effective clearance within such State. Every
State which is not at present so equipped should at once establish a system of clearance
based on the following information: •
(«.) A daily report of labor surplus and of labor wanted from each of the public and
affiliated employment offices operated in the State.
(6) Weekly or more frequent reports from labor organizations of men seeking
employment. .
(c) Weekly or more frequent reports as to labor wanted from local boards oi trade,
chambers of commerce, and other employers’ organizations.
(d) Information as to men or women wanted derived from the advertising columns
of newspapers, from communications from employers, or from systematic inquiries
pursued from time to time among employers of labor.
6. In lieu of the reports now required by paragraph (6) of Circular No. 1, it is desired
that Federal directors shall submit to the zone clearance officer of the zone in which
their respective States are located, daily reports indicating the number of workeis and
the positions in the State remaining undisposed of, grouping them by the specific trade
and function (as Machinist—toolmaker; Railroad w orker—trackman; Clerical—bookkeeper,
etc.l. Where workers are wanted, the report should specify also the specific
plant needing them, the wages paid, and the living conditions afforded. _ No particular
form is required for this report, a letter giving the necessary information being sufficient,
care being taken to make the statement as to the amount and character of the
local need sufficiently explicit to enable the zone clearance officer to afford immediate
REPORT OF DIRECTOR GENERAL, U. S. EMPLOYMENT SERVICE. 919
Ik
relief, if that be possible. Telegraphic report should be submitted in any case of acute
shortage or surplus of labor indicating need for immediate relief.
7. Each zone clearance officer shall, so far as may be possible, promptly clear all
surplus labor within the limits of his zone by advising Federal directors of States
within the zone of the existence of surpluses of labor or opportunities and informing
them of sources of labor and opportunities from which the requirements of their States
can be supplied. Such zone clearance should be effected daily on the basis of the
detailed reports of ’Tabor surplus” and “labor wanted” submitted by the various
Federal directors, as required by the preceding paragraph.
8. Inter-zone or national clearance will be effected by the national clearing house
at Washington on the basis of weekly or more frequent reports of “labor surplus” or
“labor wanted” remaining undisposed of or deemed undisposable by the system of
zone clearances, such weekly reports to be furnished the national clearing house by
the various zone clearance officers. In every such case the method of operation shall
be for the national clearing house to communicate the facts of the particular labor
situation to the zone clearance officers (or in emergencies, to the Federal directors of
the States) which appear from the reports in hand to be in a position to supply the
lack of labor or of labor opportunities indicated by the reports.
9. Zone clearance officers will be responsible for the prompt dissemination to all
interested officers of the information reported to them by the Federal directors of
the States within their zones and by the national clearing house. They shall report
to the national clearing house weekly or more frequently as circumstances may require
the state of the labor market in all parts of their respective zones, including
“surpluses of labor” and “labor wanted” remaining undisposed of, as contemplated
by'paragraph 8 above. In any case of emergency, or whenever in his judgment it
may seem advisable and practicable, it shall be the duty of the zone clearance officer
of any zone to communicate directly with the zone clearance officer of an adjoining
zone with a view to effecting directly and without loss of time the adjustment of labor
supply and demand as between such two or more zones.
10. Federal directors should submit to the zone clearance officer on Saturday of
each week a report indicating the interstate shipments of labor, if any, that have
been made during such week. No particular form is required for this report. . A
letter containing detailed information as to the places from and to which such shipments
were made, the dates, the number of men of each trade or occupation involved,
and the names of the firms with whom the help was placed will be sufficient.
11. Zone clearance officers shall submit to the national clearing house on Monday
of each week a composite report of interstate shipments of labor made in their respective
zones during the preceding week. This report should be. based on the report
submitted to zone clearance officers by Federal directors, as outlined in paragraph 10.
12. In addition to the information derived from weekly or more frequent reports
from all parts of the field and from the reports of labor or industrial departments of
the National Government and of the several States, the national clearing house in
Washington will from time to time conduct special investigations into employment
conditions in various parts of the country. On the basis of the information so gathered
the national clearing house will endeavor to maintain an efficient national clearance
system by the following means:
' (a) By the prompt transmission by mail or telegraph of information as to “labor
surplus’*’ and “labor wanted” to the zone clearance officers who appear to be in a
position to meet the needs of the situation, or to the Federal directors of the States
who appear to be in such a position.
(b) By the publication of a weekly bulletin of such information considering.the
entire country, with additional pertinent information as to employment conditions
and prospects bearing on the labor market.
(c) By the publication of a monthly summary of labor and employment conditions
throughout the United States, with reports of registrations, placements, and clearances',
and full information as to industrial conditions and prospects in this and in
foreign countries.
General.
13. The requirements of paragraph (a) of Circular No. 1, dated November 20, 1919,
as to the submission to the administrative offices in Washington of a weekly report
of employment activities (form Emp. 26) are continued in force.
14. As heretofore stated, the daily clearance reports required by paragraph 6 of
this circular, should be based on the results of intrastate clearance by which each
State will, so far as possible, supply its immediate needs from its own resources of
workers and of industrial opportunities. For this purpose, as well as for the wider
purpose of furnishing trustworthy information to govern a system of interstate clear920
REPORTS OF DEPARTMENT OF LABOR.
ance, it is obvious that every State, which is not already so equipped, should as soon
as may be possible develop a complete and efficient system of clearance within its
own borders. The Washington office will be glad by every means.in its power to
cooperate with the several States in their efforts to accomplish this aim.
The continental area of the United States, exclusive of Alaska, is
divided into 13 zones, corresponding, with only a few.alterations, to
the Federal Reserve Bank districts. The 13 zones, with their headquarters
and the States included in each, are as follows:
Federal employment service—Labor clearance zones.
Zone. Headquarters. States included.
3456
7
89
10
11
12
13
Boston, Mass........................................
New York, N. Y...................................
Harrisburg, Ba......................................
Columbus, Ohio....................................
Raleigh, N. C........................................
Atlanta, Ga...........................................
Chicago III.......................................... -
St. Louis, Mo........................................
St. Paul. Minn......................................
Kansas City, Kans...............................
San Antonio, Tex.................................
San Francisco, Calif.............................
Portland, Oreg......................................
1 Massachusetts, Maine, Vermont, New Hampshire, Rhode
Island.
New York, Connecticut, New Jersey.
Pennsylvania,. Delaware.
Ohio, West Virginia.
Maryland, Virginia, North Carolina, South Carolina.
Georgia, Alabama, Mississippi, Louisiana, Florida.
Illinois, Indiana, Michigan, Wisconsin, Iowa.
Kentucky, Missouri, Arkansas, Tennessee.
Minnesota, North Dakota, South Dakota, Montana.
Nebraska, Kansas, Oklahoma, Colorado, Wyoming.
Texas, New Mexico.
Arizona, Utah, Nevada, California.
Idaho, Oregon, Washington.
As soon as funds are made available for the purpose it is pro
posed to put a paid zone clearance officer in charge of each of these
districts. At present, however, it has been possible to put paid
officers in only three of the zones, namely, zone No. 6, centering at
Atlanta, Ga.; zone No. 7, with headquarters at Chicago, Ill.; and
zone No. 10, with headquarters at Kansas City, Kans. In the
remaining 10 zones the Federal director or other unpaid representative
of the service in the State where the headquarters of the zone
is located acts as zone clearance officer in addition to his. other
functions of State representative. Respecting the designation of
the three zones with active paid zone clearance officers, Circular
No. 2 states that u these assignments have been made with a view to
the best adaptation of the available resources to the industrial and
agricultural requirements of the various zones.” These zones
represent in a general way the agricultural region of the Southern
States, the harvest region of the Middle West, and the industrial
district centering at Chicago, Ill.
Under the cooperative agreements which the various States have
entered into with the Federal service, the State officials, who are
at the same time the Federal directors in their respective States,
are the sole channels of communication through which the State
and municipal offices report. Thus all local placement offices
within a State report direct to the Federal director for that State.
The local offices report their surplus of regristrations or requisitions
for help to this official and these are matched against each other,
thus providing a basis for a system of clearance between the local
offices. The problem now before the service is to establish a more
effective system of State clearance. The importance of this need is
referred to in Circular No. 2, as follows:
The national clearance system depends upon the existence in each State of a comprehensive
and effective system of clearance within such State, and it is assumed
that, so far as possible, each State will supply its immediate needs from its own resources
of workers and of industrial opportunities.
REPORT OF DIRECTOR GENERAL, IT. S. EMPLOYMENT SERVICE. 921
To attain this end it is suggested that each State shah supplement
the daily report of labor surplus and of labor wanted from each
of its employment offices byisecuring in addition (a) weekly or more
frequent reports from labor organizations of men seeking employment;
(6) weekly or more frequent reports as to labor wanted from
farm agents, local employers’ organizations, etc., and (e) information
as to men and women wanted derived from the advertising columns
of newspapers and from systematic inquiries pursued from time
to time among employers of labor.
It is assumed that the. process of clearing labor within the State
is a continuous one, day by day, if not hour by hour. Any surplus
of either opportunities or applicants remaining undisposed of at
the close of the day is then to be reported to the zone clearance
officer and, so far as it is not promptly disposed of by him within the
zone, is to be reported to the national clearing house at Washington.
The important but limited functions of the zone clearance offices
are thus defined in the circular:
It should be understood that the functions of zone clearance officers are merely
executive and not supervisory in any sense. The Federal director is the sole representative
of this service in his State so far as employment activities are concerned.
The duties of zone clearance officers involve merely the coordination of the activities
of the Federal directors for the various States within their zones and do not extend
to soliciting opportunities for employment, recruiting workers, or placement work
of any kind.
The matching of the “labor surplus” against the “labor wanted”
takes place daily within each zone, while interzone or national clearance
will be effected by the national clearing house at Washington
on the basis of weekly or more frequent reports of “labor surplus” or
“labor wanted.” The zone clearance officers are also required to
report weekly, or more frequently, the state of the labor market in all
parts of their respective zones. While the zone clearance officer
usually communicates only through the national office at Washington,
he is permitted in case of emergency to communicate directly
with the zone clearance officer of an adjoining zone with a view to
effecting directly and without loss of time the adjustment of labor
surplus and demand as between such two or more zones.
The nature of the information transmitted from the local office to
the Federal director, from the Federal director to the zone officer, and
from the latter to the W ashington office is indicated by the following
prepared forms, which are employed for the purpose:
922 REPORTS OF DEPARTMENT OF LABOR.
Emp. 9.
U. S. Depa rtm en t of Lab or ,
IT. S. EMPLOYMENT SERVICE.
REPORT OF APPLICANTS NOT PLACED AND WILLING TO LEAVE THE CITY.
City............................. . .................................................
Date Superintendent
Name of
applicant.
Principal
occupation.
Other
experience.
Single,
married,
or
widowed.
Age. Sex. Color.
Minimum
wage
demanded.
Do you
recommend
applicant?
Limit
applicant
can
pay for
transportation.
Instructions: Fill out this report daily and send in with daily report. When registering applicants, bo
sure to ask if willing to leave the city, and enter answer on the card. Before dismissing applicants, after
failure to place them, ask for those willing to leave locality. Report only those willing to leave.
Emp. 10.
IT. S. Depar tment of Lab or ,
U. S. EMPLOYMENT SERVICE.
REPORT OF ORDERS FOR HELP UNFILLED AND IMPOSSIBLE TO FILL LOCALLY.
City.................................................................................
Date................................... Superintendent............................................ . ........
Kind of work. Number
wanted.
Probable
wages.
Hours. Sex. Color. Age
limit.
Latest
Duration date for
of job. filling
order.
Amount
employer
will provide
for
transportation.
Probable
cost of
board.
Instructions: Fill out this report daily and send in with daily report. Report only those orders which
will allow sufficient time to transfer applicants and obtain all of the information requested. If necessary,
use more than one line in giving details of orders.
It is also further directed that the report should specify, whenever
workers are wanted, the specific plant needing them, the w7ages paid,
and the living conditions afforded. For this latter information no
special form of inquiry is demanded, a letter giving the necessary information
being sufficient. In addition, telegraphic reports should
be submitted in any case of acute shortage or surplus of labor, indicating
the need for immediate relief.
It will be apparent that these distinctive clearance reports have not
superseded the weekly office reports of business done, which are still
transmitted, but without the intervention of the zone clearance
officer, to Washington and which are the basis of the statistical
reports on employment conditions issued by the Department of
Labor. These reports are submitted in the following form:
REPORT OF DIRECTOR GENERAL, U. S. EMPLOYMENT SERVICE. 923
WEEKLY SUMMARY BY LOCAL OFFICES
U. S. Depa rt men t of La bo r ,
U. S. EMPLOYMENT SERVICE.
State of ....................... Week ending.................................................
Sex, .......................
Offices. Registrations. Help wanted. Referred. Reported placed.
............... (name of citv).
Skilled............................... .
Unskilled........................
Clerical and professional
Total.......... . ..................
,............. (name of city).
Skilled................................
Unskilled...........................
Clerical and professional.
Total..........
Grand total.
(Signature) ............................................,
Federal Director.
From the foregoing statement it is not difficult to draw the outlines
of the national employment system which has arisen out of the
■coordinated activities of the State and Federal Governments. The
latter conducts no field work, operates no employment bureaus. All
placement work, all intrastate clearance, all the work of collecting
information relating to employment and industrial conditions is carried
on by the States or by municipalities responsible to and acting
in behalf of the States in which they are situated. The States report
to the Federal office on the employment activities of its several
offices, on the industrial situation from week to week, on the labor
surplus or deficit from day to day, and on their shipments of lalior to
other States. The Federal office receives and analyzes the stream of
information which is thus poured in and directs it into channels of
usefulness for the benefit of the States from which it was derived and
of the Nation as a whole. By surveying the industrial problem of
the Nation as a whole and by coordinating the employment activities
of all the States it is put in a position to equalize employment conditions
throughout the country, and by that means to aid industry
or to relieve and perhaps avert any serious condition of unemployment.
The wisdom and public spirit of the States and municipalities
that have voluntarily entered into these cooperative relations with
the Federal office and thus with one another can not be too highly
commended.
ORGANIZATION OF THE SERVICE.
The form of organization in force at the close of the last fiscal year,
as set forth on page 25 of last year’s report, proved flexible enough to
survive the emergency which attended the opening of the year under
review^ and continued in force, though with a greatly reduced per924
REPORTS OF DEPARTMENT OF LABOR.
sonnel, up to the reorganization of the service necessitated by the
discontinuance of its field work on October 10, 1919. In the Division
of Operations the section on soldiers and sailors’ work, and in the
Division of Organization the section in charge of community labor
boards and State advisory boards were then discontinued, and a
special assistant of the Director General appointed to organize the
system of labor clearance. There was also created a section on
employment statistics in the Division of Operations, and in this
division was also vested the supervision of the Federal directors in
the several States and of the zone officers and field agents appointed
to serve in connection with the clearance system.
ACTIVITIES OF THE SERVICE.
As appears from the foregoing survey, the activities of the United
States Employment Service during the year with which this report
deals fall naturally into two periods—-the one covering the last three
months (July-September, 1919) of serious unemployment, during
which the service, though with diminished resources, maintained and
operated 226 employment bureaus in the several States and the
District of Columbia; and the other coinciding with the revival of
peace-time industry and the practical disappearance of large-scale
unemployment, extending from October 11, 1919, to the end of the
fiscal year, when the service found itself restricted to the functions of
a central clearing house for labor. The reduction in the number of
employment offices consequent on these changes, involving as it did
the dispersion of the trained personnel which had been built up during
the two years of war and demobilization, is reflected in the falling off
in the number of registrations, placements, etc., indicated in the
diagram on the opposite page, while the same diagram shows the
subsequent steady growth in, efficiency of the system of cooperation
with the States which was effected during the last three months of
1919. Much of this fluctuation was undoubtedly due to the change in
industrial conditions in the fall of 1919 which rapidly converted a
large labor surplus into a labor deficit, but the increase in the number
of applications and placements from 453,730 of the former and 344,800
of the latter in the last three months of 1919 to 646,000 of the former
and 547,542 of the latter in the last three months of the fiscal year,
a period during which there was no marked change in the industrial
situation, would indicate that the falling off in the volume of business
done in the six months from October to March was largely due to the
enforced abandonment by the United States Employment Service of
its field work.
The high-water mark of the year was reached in August, 1919, when
there were reported 390,629 applications for work, 444,802 requisitions
for help, 340,403 persons referred to positions and 266,872
employed; the lowest in October, when the number of applications for
employment fell to 136,337 and the number of actual placements reported
to 96,153.
REPORT OF DIRECTOR GENERAL, U. S. EMPLOYMENT SERVICE. 925
The totals for the two periods of three and nine months, respectively,
were as follows:
July-Sep- October-*
tember. June.
Registrations...................................................................................................................
Referred topositions......................................................................................................
Requisitions for help........................ . ...........................................................................
Reported placed.............................................................................................................
996,643
871,815
1,146,370
691,466
1,592,502
1,586,994
2,019,189
1,326,792
The totals for the year, as compared with the preceding year, were
as follows:
1918-19 1919-20
Registrations................................................................................................ . .................
Referred topositions................................................ .....................................................
Requisitions for help......................................................................................................
Reported placed.............................................................................................................
6,174,885
5,646,219
10,717,192
4,253,843
2,589,145
2,458,809
3,165,559
2,018,258
The statistical details of the general employment activities of the
service during the year are shown on chart A.
SPECIAL ACTIVITIES.
The general activities outlined above were supplemented by a
variety of special activities instituted to deal with particular emergencies
or with special phases of the work of the service. Two of these—
the work of replacing our returning soldiers and sailors in industrial
life and the recruitment of labor for harvesting work in the grain belt
■of the Middle West—were practically completed in the first period
(July-September) of the year with which this report deals; two
others—the special work for women and for junior workers, respectively—
continued throughout the year.
SOLDIER AND SAILOR PLACEMENT.
The process of demobilization of the military forces of the Nation
was at its height at the beginning of the year, upward of 30,000 men
being discharged from the service every week. Most of these were in
need of help to find acceptable positions and all the resources of the
community were brought into play to render this help quickly and
effectively. Reference has been made above to the special efforts
put forth by the Secretary of War, who appointed Col. Arthur Woods
as his assistant to stimulate the interest of chambers of commerce and
other local agencies in the larger industrial centers which were congested
with soldiers seeking employment, and to bring the energies
•so released into effective cooperation with the United States Employment
Service. The immediate result of these efforts was the creation
in New York, Boston, Chicago, Baltimore, and a few other large cities
of large and well-manned reemployment bureaus for returning
soldiers, sailors, and marines, which shared with the offices of the
United States Employment Service and of those maintained by the
several States and municipalities in rendering this important service.
926 REPORTS OF DEPARTMENT OF LABOR.
The large number of special bureaus of this character, upwards of'
2,500, which had during the preceding six months been established
by the United States Employment Service in smaller communities
throughout the country, were in general adequate to the task of taking
care of the service men who returned to their homes in those communities.
In all the cities and in many rural communities as well,
the great welfare agencies, such as the American Red Cross, the Y. M.
C. A., the Knights of Columbus, the Salvation Army, the War Camp
Community Service, the Jewish Welfare Board, and others continued
their effective cooperation with the United States Employment
Service in this great undertaking throughout the period of demobilization.
There were, doubtless, many instances of individual hardship, of
men for whom the opportunities they sought could not easily be
found, but these were either cases where the experience of the war
had created new ambitions which could not at once be realized or
representatives of certain professional groups—as lawyers, doctors,
and engineers—who could not at once reestablish themselves in
practice. With these comparatively rare exceptions little difficulty
was found in securing appropriate work for all who applied.
It is impossible to determine how many of our returning soldiers,
sailors, and marines found employment through these varied cooperating
agencies. Few of the soldiers’ bureaus and welfare organizations
made regular reports. But it is a matter of record in the offices
of the United States Employment Service that in the 10 months from
December 1, 1918, to September 27, 1919, 758,474 discharged service
men registered applications for employment and that through the
direct agency of the service employment was secured for 474,085 of
this number.
FARM AND HARVEST WORK.
The conditions which made an increased agricultural production a
matter of vital necessity did not come to an end on the conclusion of
the war. Indeed, new conditions of increased urgency supervened
on the coming of peace—conditions of famine in central and eastern
Europe and of an increasing rise in the cost of foodstuffs in our own
country and in western Europe. For these reasons the efforts which
were made in the year 1918—19 to stimulate farm production and tosecure
the harvesting of farm produce were renewed and intensified
during the past year. The patriotic urge which had created the
Boys’ Working Reserve and which in the second year of the war had
led countless private citizens to devote themselves to farm and garden
production was spent and the task of filling the void devolved upon
the United States Employment Service, working in cooperation with
the Department of Agriculture. The work had been undertaken
early in the spring by establishing contact with farm bureaus, farm
agents, agricultural schools, and rural postmasters, and by working
out plans of cooperation with these agencies. In some of the larger
cities special farm labor bureaus were established in the offices of the
service for the purpose of supplying farm hands during the season of
plowing and planting; and finally a nation-wide campaign, ‘which
extended to the colleges and universities of the East and the Far West,
was carried on tb provide the army of workers needed for the harvest,
REPORT OF DIRECTOR GENERAL, U. S. EMPLOYMENT SERVICE. 927
in the wheat belt of the Middle West. For the purpose of recruiting
and distributing harvest hands, many of the permanent field offices
were strengthened by the addition of experienced farm agents, and
the activities of these offices were supplemented by the establishment
at strategic points of 12 temporary offices. The result of these
efforts, combined with an extensive campaign of publicity, was that
a sufficient supply of labor was secured to harvest the entire wheat
crop of 1919. The number of harvest hands actually registered and
directed to jobs in the wheat fields during the season in the 30 offices
maintained for the purpose was 53,072, wdiile many thousands more
passed through the offices and received general instructions regarding
the fields.
While up to the end of June of this year only the Texas and Oklahoma
fields had been harvested, similar efforts have been made to
provide the labor required for the entire wheat belt for the season of
1920, and thus far with the same gratifying result. Indeed, the
cumulative effect of the publicity which the harvesting of the Nation’s
wheat crop has received during the past two years had made the task
an easier one this year than ever before. There has been noticeable
a spontaneous drift of labor suited to this kind of work to the area
from which the Nation’s bread supply is mainly drawn, with the
result that the function of the farm labor offices has been the distribution
rather than the recruitment of harvest hands. It is already
clear from reports gathered by the Washington office of the service
that the entire crop of 1920 will be promptly harvested and thrashed.
The entire operation was directed from the zone clearance office
established in Kansas City, Kans.,, early in the spring of 1920.
The report of the zone clearance officer on the operations of the
year 1919-20 follows: s #
HARVEST LABOR REPORT, 1919-20.
Dep art ment of Labo r ,
U. S. .Empl oym en t Serv ice ,
Kansas City, Kans., August 10, 1920.
The following is a summary of the activities of the Kansas City field office from
July 1, 1919, until its discontinuance in September of that year, and of the office
of the zone clearance officer with headquarters at Kansas City, Kans., from March
15 to June 30, 1920, particularly with respect to the matter of recruiting and distribution
of harvest labor throughout the “Big Wheat Belt” which extends from Texas
to North Dakota, through the States of Oklahoma, Kansas, Nebraska, and the Dakotas.
Following the harvest of 1919 in the States of Oklahoma and Nebraska, which was
virtually finished by June 30, 1919, so far as the placement of harvest labor was concerned,
the officers attached to the field office proceeded northward into the Dakotas
for the purpose of assisting the local agencies. As most of the harvest labor used in
South Dakota comes from the Kansas and Nebraska fields the problem becomes one
of distribution rather than of recruiting and for that purpose temporary offices were
opened at Aberdeen, Redfield, and Watertown, and assistance rendered the regularly
established offices at Sioux Falls and Mitchell. A surplus of labor developed in this
State due to the unusually heavy drift from the southern fields, where an immense
acreage had been harvested, and also to the fact that unscrupulous private agencies
in Chicago deliberately misrepresented conditions in the South Dakota fields.
Sioux City, Iowa, is the principal gateway to the South Dakota fields and two
additional officers were placed in the office in that city to assist in handling the heavy
movement of labor.
928 REPORTS OF DEPARTMENT OF LABOR.
In North Dakota offices were opened at Oakes, Jamestown, and Grand Forks, a
permanent office having already been established at Fargo. The offices in this State
were continued until the harvest was well over, and reports show that 1,818 men were
directed to employment.
Early in the spring of 1920 the Employment Service found it possible to establish
the zone clearance office at Kansas City, Kans., having particularly in mind the harvest
labor needs of the principal grain growing States of the Central West. The zone
office took early steps to ascertain the acreage sown to wheat and the probable number
of men that would be needed during the cutting season, and in this connection the
writer personally visited points in all the States mentioned. In Texas it was found
that the “Panhandle” counties had prospects of a very good wheat crop and at the
urgent request of the chamber of commerce at Amarillo a temporary office was established
in that city. Another office was opened at Fort Worth, Tex., and the necessity
can readily be shown when it is found that during the period from June 14 to
July 10, 2,816 men were placed through the Fort Worth office.
As the States of Oklahoma and Kansas now maintain a system of State employment
offices conducted in cooperation with the United States Employment Service, the
activity of the zone office in these States was limited to the issuance of bulletins giving
acreage, probable cutting dates, wages, etc., the distribution of labor being
through the regular State offices. The following taken from a report by the Federal
director of Oklahoma is of general interest:
“We did less advertising and used less publicity in out of State newspapers and
spent less money per capita in the State in handling the harvest labor problem than
in any previous year. The field organization for distribution purposes was superior
this year to that of the past; besides there was complete cooperation with outside
States with which the department was in touch at all times. Labor was moved into
the State in groups from surrounding States by telegraph. There was a surplus of
men to be had from several States which we did not have to disturb because there
was no demand for them. The department has yet to hear of any complaint concerning
the manner in which the harvest labor problem was handled this year. * * *
The total cost per capita for making harvest labor placements this year was approximately
11 cents.”
The wage paid harvest hands this year for the ordinary lands of work, such as shocking,
pitching, etc., has ranged from 40 cents an hour, with board, as paid in northern
Texas and southern Oklahoma to 70 cents, with board, the scale officially set by the
farmers of the principal wheat growing counties in Kansas. The wage as announced
this year was from 10 to 20 cents an hour higher than last year, but it is the writer’s
opinion that it did not cost the farmers as a whole any more to harvest their grain this
season than last. This was due to the fact that last year the advertised wage failed
to bring in sufficient labor, which caused farmers to bid against each other for men,
and thousands of harvest hands were transported from Kansas City, to western Kansas
with fare paid and a promised wage of 60 to 70 cents an hour, and it is an established
fact that in certain districts men were paid as high as 815 per day for short periods.
This year the farmers decided to avoid the wild scramble for harvest labor and the
stealing of hands from one another by offering an attractive wage at the outset. That
the wage as fixed (70 cents, with board) had the desired result has been evident, for
not only has there been an abundant supply of labor, but men of an unusually high
class were attracted to the wheat belt. A few complaints have been heard to the
effect that all counties did not adhere to the advertised scale and to a certain extent
this appears to be true, but only with respect to a district lying on the edge of the
“Big Belt.” The principal wheat growing counties maintained the published
wage.
Year by year there is a noticeable improvement in the class of men who take up
harvest work. As recently as five years ago the majority of harvest hands were reported
to be of the hobo and casual labor class. This has all been changed and this
season has seen thousands of men who follow farm work as their regular vocation
taking part in the work. Thousands of college men from virtually all parts of the
country have engaged in harvest work this year. Could the farmer choose his own
labor he would, no doubt, pick the experienced farm hand, but it must be said that
the college man is rapidly coming into the preferred class. These young men, as a
rule, are “soft” at the outset, but those who stick through the first few days make
good hands. They are universally liked because of their gentlemanly conduct and
willingness to work; very few shirkers are found among them. The following list
of occupations taken from sheets picked at random shows the wide range of employment
usually followed by men who come to the harvest fields: Lumberman, cook,
REPORT OF DIRECTOR GENERAL, U. S. EMPLOYMENT SERVICE. 929
prize fighter, trainer, conductor, motorman, farmer, laborer, student, bartender,
mechanic, carpenter, clerk, stenographer, dockworker, section hand. The I. W. W.,
who in the past have been a great source of worry to the farmer, have been conspiciously
absent, and agitators have caused but little trouble in the fields this season. There
are, of course, always a few disgruntled individuals and a certain element who try to
hold out for exorbitant wages, but the real disturber and the individual who has
vented his spite by setting fire to standing fields or by placing spikes and pieces of
iron in shocks of grain for the purpose of injuring thrashing machines has not been
in evidence.
There has been no shortage of harvest help in the Middle West this season and the
same is true with respect to the regular monthly farm hand, and it is the writer’s
opinion that this condition can be maintained through the medium of a system of wellorganized
employment offices. That there is an unplaced supply of farm labor can
be illustrated by the experience of a well-known Nebraska farmer, who requested the
Kansas City (Mo.) employment office to assist him in getting a married farm hand.
He offered a wage of $75 a month the year round, a house to live in, a cow, use of a
horse, garden spot, and fuel. To make doubly sure that he would have an applicant
for the job he also inserted a want ad. in a Kansas City paper requesting interested
persons to call upon him in his hotel room. Seventy-five men applied for the plgce
between the hours of 8 a. m. and 12 m. Right here we have 74 farm hands unplaced
and looking for farm work; most of these men were, no doubt, experienced hands who
had left the country to try city life, but were now ready to return, and what is true in
Kansas City will prevail to a greater or lesser degree throughout the country, and if
the employment offices in the larger cities, and in some of the smaller, could have as
a feature of their work a special farm-service section, with one or more men giving
their whole time and undivided attention to recruiting and placing farm labor, the
situation is sure to be materially relieved. The farmer needs a special service, which
can not be given by an office where but one or two men are employed who find it
necessary to wait upon hundreds of applicants for all kinds of positions, and who, because
of the very conditions under which they are compelled to work, find it impossible
to give an applicant for a farm job any more attention than one applying for a place
as dishwasher or for an hour’s work putting in a ton of coal. The establishment of
farm-service sections will go far toward permanently relieving the acute labor conditions
now facing the farmers of the country at large.
The general practice in recruiting and distributing harvest labor has been to encourage
men to report to the larger offices, such as Oklahoma City and Enid, Okla.;
Kansas City, Mo.; Wichita and Hutchinson, Kans.; Omaha and Lincoln, Nebr.;
Sioux City, Iowa; and Fargo, N. Dak., whence they have been directed to one of the
smaller offices or to a community or a county agent for redistribution locally. The
zone office has kept in close touch with the harvest situation throughout the season,
and frequent bulletins giving cutting dates, wages, demand for labor, location, of
offices, and other pertinent facts were issued. As a further aid to the recruiting
campaign approximately 15,000 posters announcing probable cutting dates and location
of offices were hung up in as many post offices in territory from which most of the
harvest labor was expected to come. Employment offices and zone clearanace officers
outside the wheat belt rendered assistance of great value and showed every desire
to cooperate to the end that the “Big Wheat Belt” should not lack of sufficient labor
to harvest the millions of acres sown to wheat. The Chamber of Commerce of Kansas
City cooperated as usual and furnished several clerks to the temporary office opened
in the Union Depot in that city. The Kansas State Agricultural College and county
agents’ organization were exceedingly active participants. The office at Kansas
City, Mo., handled thousands of men, but because of the lateness of the season and
the consequent impatience of the men to get into closer proximity to the fields comparatively
few were directed to actual employment from this city. This year, unfortunately,
a great many men were induced to enter the fields two weeks too early
by independent and wildcat advertising on the part of persons who were more concerned
in securing a surplus of labor than in an equitable distribution and a square
deal to the men. Independent advertising is hard to control, and men who are induced
to go to the wheat fields by inspired news stories, paid advertising, etc., unless
such advertising bears the indorsement of the Employment Service, always take a
chance of being the victims of selfish communities or individuals.
15283—la b 1920---- 59
930 REPORTS OF DEPARTMENT OF LABOR.
The following table shows the direction of harvest hands by offices:
Fort Worth.................................................................................................. 2, 816
Amarillo....................................................................................................... 115
---------- 2,931
Oklahoma:
Alva...................................................................................................... 1,115
Carmen......................................................................................................... 1, 775
Enid.................................. •.......................................................................... 2, 630
Guymon....................................................................................................... 470
Kingfisher.................................................................................................... 225
Oklahoma City.................................................................... 1,350
Woodward........................................................................... .......... 1,200
---------- 8,765
Kansas:
Wichita................................................................................................ 4,000
Hutchinson................................................................................................. 11,000
Kansas City................................................................................................ 1, 700
Salina................................................................................................... 9,500
Topeka......................................................................................................... 500
Parsons........................................................................................................ 200
---------- 26,900
Nebraska:
Omaha................................................................................................. 1,383
Lincoln........................................................................................................ 3, 585
Fairbury....................................................................................................... 142
---------- 5,110
Missouri:
Kansas City........................................................................................ 11, 550
Kansas City depot branch...................................................................... 1 2, 338
---------- 3,888
Iowa:
Sioux City........................................................................................... 764
---------- 764
South Dakota:
Aberdeen............................................................................................. 652
Huron........................................................................................................... 289
Watertown................................................................................................... 160
Mitchell....................................................................................................... 1, 650
Sioux Falls.................................................................................................. 145
---------- 2,896
North Dakota:
Grand Forks............................................................................................ 318
Jamestown................................................................................................... 89
Oakes................................................................................................................ 546
Fargo........................................................................................................... 865
---------- 1,818
Grand total.............................................................................................................. 53,072
A. L. Barkman ,
Zone Clearance Officer.
JUNIOR WORK.
With the curtailment of the service at the end of the fiscal year of
1919, among other divisions discontinued was the Boys’ Working
Reserve. The elimination of this service would have left uncared for
and without means of assistance in finding positions the thousands
of boys then in agriculture for whom the division had been established.
Other thousands in industry for whom no provision as respects
placement and entry into industry had ever been made were
also to be considered.
i It is estimated that at least 12,000 additional hands passed through these offices and received general
information about the fields.
REPORT OF DIRECTOR GENERAL, U. S. EMPLOYMENT SERVICE. 931
The purpose of the Junior Division, which took the place of the
Boys’ Working Reserve, was the “guidance and placement of boys
and girls under 21 years of age.” The junior work is done in close
cooperation with the public schools and with other agencies interested
in juvenile problems.
The enterprise is still in its initial stages, although begun actively
in March, 1919. Cooperation has been established with the educational
authorities in New York City, Boston, Mass., Providence, R. I
Cleveland, Ohio, South Bend, Ind., Milwaukee, Wis., St. Paul, Minn.^
and Benton Harbor, Mich. The United States Employment Service
generally pays half the expenses and the local school system half.
Local school officials are in charge of the active work of placement.
The Federal office sets standards and furnishes guidance and counsel
in the work.
In order to build up a staff of trained vocational guidance workers
the United States Employment Service has undertaken to establish
or pay for study scholarships in the universities. Thus far only four
scholarships (at the University of Chicago) have been created. The
main significance of this branch of the service lies not in the scope of
its achievement but in the fact that it has made a substantial
beginning in vocational guidance and placement on a national scale.
The report of the Director of the Junior Division follows:
REPORT OF JUNIOR DIVISION.
The Junior Division of the United States Employment Service purposes
to select the right kind of employment for boys and girls entering'
occupational life and to offer employers the best possible facilities for
the selection of their junior employees. It was brought into being by
the realization of the fact that (1) schools have a very vital part toplay
in selecting and training young people for their proper place in
the economic world. (2) Industry has serious need of a plan by which
proper guidance industrially and particularly intelligent placement
and follow-up of all young people may be effected. (3) Schools must
have a channel through which a tide of information is constantly
flowing back to them regarding the organization requirements and
changes in industry.
In cooperation with the public-school systems, the Junior Division
extends Federal aid to all young wage earners in a study of ambitions,
aptitudes, and abilities resulting in more scientific adjustment to industrial
or commercial life. This division operates in very intimate
contact with school systems offering to them a scientific means of
effectively distributing the school product. It goes further, believing
as it does, that modern education does not end with school-room exit.
Boys and girls placed in positions through its efforts come under its
supervision by systematic follow-up or supervision, and the knowledge
of their success or failure in industry is reported back to the schools,
thus affording to schools a channel through which the results of the
process of education can be known and measured accurately. Defects
in academic curricula can be remedied, changes in industry
noted, and its demands more scientifically met.
The Junior Division establishes such contacts with employers as
seem advisable for the guidance and placement of junior applicants
m order that their needs for help may be properly met and the employment
opportunities for junior workers may be anticipated and
932 REPORTS OF DEPARTMENT OF LABOR.
pooled. It studies and surveys the various industries in communities
m order that proper information regarding trades, positions, or other
employment may be instantly available for the guidance of both the
applicant and the school system. Contact with the school systems
make available the supply of junior wage earners. Their needs are
anticipated and adequately and effectively met by such contacts
between education and industry. Furthermore, it constantly promotes
the progressive improvement of the educational institutions
and the youth-employing industries of the Nation. The joint effort
of the Federal Government and the public-school systems should
eventually have great effect on the ultimate solution of the all-important
employment problem.
Cities desiring to cooperate with the Federal Government in establishing
junior offices in cooperation with their public-school systems
are organized into two divisions under the school system, coordinated
usually by the associate superintendent of schools, who is both a
school officer and a Federal representative on a nominal salary basis.
It is the duty of the Division of Education to educate the youth and
to offer such educational advice as may be necessary through the
utilization of industrial information. Educational guidances, occupational
information courses, analysis and the development of character
are functions under this division.
The Division of Employment coordinated with the Division of
Education offers vocational guidance, placement, and supervision of
the school product. It, therefore, becomes the great distributive arm
of the school system. By means of its industrial department, through
a scientific follow-up, reports, and surveys, industrial research, information,
and job analyses, it constantly “serves” the Division of
Education with a very valuable fund of information. It operates in
close contact with the school permit office in the case of boys and
girls who require working permits, thus affording the only means of
pooling the junior labor supply at its source, effectively distributing
this supply, and constantly supervising the result of its efforts.
During the year offices were established in 16 cities throughout the
United States. It was impossible to comply with all the requests for
organization assistance received due to lack of funds and trained
personnel. It is expected that 24 such offices will be established
throughout the country this year. A very comprehensive book on
this subject has recently been written by the Director of the Division
and is now in the press of the Macmillan Co., New York City.
An analysis of the work already accomplished by the Junior
Division indicates that this division offers employers the following
service:
1. Access to available workers coming from our public high
schools and elementary schools; such workers clearing
through local central bureaus.
2. Definite knowledge of the applicant’s school and employment
experience.
3. Cooperation of both schools and employment bureaus in
developing talent required for school and promotion.
4. Reducing turnover and lessening of the social and economic
losses involved as well as checking the social unrest due to
unemployment and constant changing of positions.
REPORT OF DIRECTOR GENERAL, U. S. EMPLOYMENT SERVICE. 933
The service rendered by the Junior Division will reach its highest
state of efficiency by thorough cooperation from employers, public
school officials, and the public. Although still in its organization
stage, the Junior Division bids fair to supply a much-needed want.
WOMAN’S WORK.
The woman’s work in the United States Employment Service, like
the entire service, has had a constant struggle, owing to diminishing
financial resources, to meet serious conditions resulting from the
rapid demobilization of war workers, both industrial and clerical.
Attention is called to the report of the Director General for the
year 1919, page 41, which shows the development of the woman’s
work; also, to pages 21 and 22, which shows a copy of the bill introduced
by Mr. Nolan of California (H. R. 4305), and by Mr. Kenyon
of Iowa (S. 1442), providing for the establishment of the service as
a permanent bureau of the Department of Labor and the appointment
of a woman as Assistant Director General.
During the period from July 1, 1919, to October 10, 1919, in which
the United States Employment Service was able by cooperation with
the State, municipal, and private organizations, to coordinate the
activities of the community and continue many of its 400 woman’s
divisions (48 of which were in the main offices and 352 in the branch
offices). After October 10, 1919, when the Employment Service,
owing to lack of funds, was obliged to close all independent placement
offices, the aid and cooperation of many women’s organizations,
namely, the National Council of Women, Young Women’s Christian
Association, Red Cross, National Catholic War Council, the Association
of Collegiate Alumnae, the National League for Women’s
Service, made it possible to continue many women’s divisions not
only up to October 10 but to June 30, 1920.
The wonderful cooperation and aid given by organizations and the
extent to which municipalities and organizations have aided the
State and Federal service to continue the work indicates the interest
and the need of its continuance.
After October 10, 1919, the Employment Service, owing to lack of
funds was obliged to close all independent placement offices. Aid
which was given by civic and welfare organizations was given for the
purpose of keeping intact the employment organization pending the
passage of the Kenyon-Nolan bill in which women’s organizations all
over the country have taken a keen and active interest. While
assistance of this character was helpful during the emergency in
finding positions for the returning soldier and released war worker
it is not practical as a permanent policy, as the employment work of
these organizations is merely incidental to their primary purpose,
and on June 30, 1920, this cooperation was finally discontinued on the
part of all these women’s organizations which had not withdrawn
from the work prior to this date.
Each of the 33 States cooperating with the United States Employment
Service has established women’s departments besides the
general offices in small cities handling both men and women. In
October, 1919, the assistant to the Federal director of Michigan was
appointed Federal director for that State. This appointment was
the first where a woman had been appointed as Federal director of a
■934 REPORTS OF DEPARTMENT OF LABOR.
State. Women have been appointed as superintendents of a number
of the local offices handling both men and women’s work.
In April, 1920, when information was received at the Administrative
Office of the release of emergency workers drawn to Washington
from all parts of the country for war service, the Director General
sent the following letter on the replacement of demobilized war
workers to all Federal directors:
April 29, 1920.
This office has been advised that a large number of clerks and other emergency
workers drawn to Washington from all parts of the country for war service will be
released before June 30.
Special effort will be required to reinstate them in private employment without
serious loss of time. The American Red Cross is to assist through its local agencies
in the replacement of these workers in their home towns. In view of the importance
of prompt action in this matter you are urged to cooperate with the divisional director
of civilian relief of the Red Cross, and to communicate the information herein contained
to your representatives and to all cooperating agencies throughout your State.
Application cards of the workers will be secured in advance of their release, and
will be referred to the Federal directors of the States to which the applicants belong,
or in which they propose to seek employment. These application cards will be
forwarded to you either by the divisional director of the Red Cross or by the national
clearing house in Washington, and upon the receipt thereof it is requested that everv
effort be made to place the applicants in the kind of employment they are seeking.
. This office will keep you informed of any and all further developments in tho
situation, and requests that you report the progress of the work in your State.
Through this cooperation with the Federal directors and the Fed
■Cross a large number of the released war workers were found employment
in their home States.
The records of our statistical section show that of the 33 States and
municipalities cooperating with the service, comprehending in all
266 offices throughout the country, the development of woman’s
work has been a feature. In the majority of offices, special departments
for the placement of women have been established, while in
others plans for the work have been initiated.
Further investigation shows that of the registrations 21 per cent
are women; of the calls for help 21 per cent are women; of placements
22 per cent are women.
Through the decentralization of the clearance system it has been
possible to furnish information through zones composed of groups of
States comprising a closely knit industrial area which leads to the
administrative offices in Washington the function of clearing the
surplus of labor or employment opportunities. Special attention is
being given to professional clearance.
Every effort is being made by conference with the Federal director
to stimulate the woman’s work within the State; to establish a
uniform standard of placement; to develop new opportunities for
women; and to change the drift of women into industry to an effective
direction of women into industry.
REPORT OF EMPLOYMENT ACTIVITIES.
The following tables set forth the statistics of the employment
activities of the United States Employment Service as reported by
the several States. The first table gives the figures by States for the
period of Federal operation from July 1 to October 1, 1919; the second
similarly for the period of State operation, from October 1, 1919, to
June 30, 1920, and the third gives the totals of the two preceding
for the year. The fourth table exhibits the reported activities of
the several States month by month during the year, and in the fifth
are given the figures for the entire service by months from the institution
of the service in January, 1918, to the end of the fiscal year
1920, a period of two years and six months. A sixth table is added,
giving a report of interstate shipments by months.
Reference was made in the body of tliis report to the falling off
in the reported activities of the service during the period of transition
from Federal control to the incorporation of 41 of the States in a
coordinated national employment system. During this period of
from three to five months as many as 21 States failed to report, and
of these 10—Delaware, Idaho, Nevada, New Hampshire, New Mexico,
South Carolina, Tennessee, Utah, Vermont, and Wyoming—were
compelled from lack of funds to discontinue the work altogether.
The other 11 resumed their relations to the service, but the hiatus
in the reports continues to be a source of error. This fact explains
the meagerness of the reported activities of such States as California,
Illinois, Iowa, Michigan, and Pennsylvania, which must fall short
by 20 to 40 per cent of the amount of work actually done by them.
Tabl e 1.—Report of activities, July 1 to Oct. 1, 1919, under Federal operation.
State. Registrations.
Help
wanted. Referred. Placements.
Alabama............................................................................... 2,395 2,105 2,341 2,210
Arizona................................................................................ 3^ 286 3' 745 2335 2,417
Arkansas............................................................................... 15,045 19,335 13,977 12,021
California............................................................................. 25,346 28', 166 22; 390 17,872
Colorado............................................................................... 18; 293 17,891 18,475 16,844
Connecticut.......................................................................... 3; 438 2; 956 3357 2,018
Delaware.............................................................................. 3,383 2' 964 3,260 2,449
District of Columbia........................................................... 7,618 9,870 7,697 5,' 966
Florida................................................................................. 4,788 5,314 3,842 3353
Georgia................................................................................. 6; 002 4,261 4; 652 4,682
Idaho.................................................................................... 4; 474 5,150 3,993 3392
Illinois.................................................................................. 89,384 108,559 86,838 68', 066
Indiana................:............................................................... 16,799 13,080 13; 848 10,327
Iowa...................................................................................... 36,721 16', 551 15,274 11,640
Kansas.................................................................................. 8; 701 10,341 8,426 6', 869
Kentucky............................................................................. 4322 3,542 3,615 3,002
Louisiana............................................................................. 5,289 5', 322 5,427 4,758
Maine.................................................................................... 4354 4,251 4' 136 3,731
Maryland............................................................................. 13; 414 21,066 12,347 10.009
Massachusetts...................................................................... 21,327 24,350 21325 10,390
Michigan............................................................................... 27,875 35,306 22,789 17,899
Minnesota............................................................................. 32; 232 39,688 31,532 24', 304
Mississippi........................................................................... 3332 3; 696 2 370 2312
Missouri.*............................................................................. 48,722 62,463 43,637 39,756
Montana............................................................................... 23.678 26;540 18,749 17386
Nebraska............................................. . .............................. 14,452 2i; 231 13; 546 10,587
Nevada................................................................................. 3,257 4356 3310 2,810
New Hampshire.................................................................. 768 '693 664 602
New Jersey.......................................................................... 74,058 93,142 79,193 67,134
New Mexico......................................................................... 3327 3382 3,2AA 2,846
New York............................................................................ 8L 893 120;846 75,201 49398
935
936 REPORTS OF DEPARTMENT OF LABOR.
Tabl e 1.—Report of activities, July 1 to Oct. 1, 1919, under Federal operation—Con,
State. Registrations.
Help
wanted. Referred. Placements.
North Carolina..................................................................... 3,771
7,661
144,268
18,486
46,022
23,135
8,228
5,239
12,175
12,288
20,578
2,956
381
9,398
33,941
6,038
31,007
3,398
1,741
9,179
135,423
21,931
48,977
35,509
8,530
5,456
11,265
7,539
31,790
2,779
471
15 013
37,775
6,772
39,684
6,274
2 581
7,601
107,576
17,808
32,998
21,554
8,462
4.953
10'363
7,281
18.955
2,315
284
8,779
29,188
5,109
30,421
3,329
2,152
4.769
90'703
15,657
27,741
12,153
4,833
3,697
7,566
5,030
15,811
2,028
228
7 883
24,566
4,337
22,709
3,153
North Dakota.........................................
Ohio.............................................................................
Oklahoma......................................................
Oregon..........................................................................
Pennsylvania....................................................
Rhode' Island................................................................
South Carolina.....................................................................
South Dakota.....................................................................
Tennessee.............................................................................
Texas...................................................................................
Utah......................................................................
Vermont.............................................................................
Virginia...............................................................................
Washington........................................................................
West Virginia................................................................
Wisconsin.......................................................
Wyoming............................................................................
Total......................................................................... 996,643 1,146,370 871,817 691,4S6
Table 2.—Report of activities under State operation in cooperation with United States
Employment Service, Oct. 1, 1919, to June 30, 1920.
State. Registrations.
Help
wanted. Referred. Placements.
Alabama............................................................................... 1,072
7,292
4,924
89,456
22,050
8,154
190
16,997
4,857
4,219
252
128,996
31,088
46,704
8,979
855
2,958
2,962
5,023
16,980
87,720
82,265
209
54,616
4,397
10,470
83
106,559
328
280,910
4,351
4,975
279,553
37,387
33,482
52,411
7,993
3,750
15,960
31
7,495
32,927
5,484
74,662
476
1,160
7,714
17,208
192,683
15,072
8,315
140
15,977
12,951
2,655
280
165,419
37,307
34,783
7,155
6,685
3,481
6,552
12,065
34,840
109,724
102,662
501
56,397
10,662
11,164
74
139,825
350
303,708
3,919
4,913
287,826
42,980
34,056
130,618
9,382
3,996
27,098
40
9,228
31,469
18,284
97,555
316
1,046
6,054
3,913
180,907
12,455
7,279
183
15,690
4,258
2,960
215
122,163
27,750
31,893
6,743
882
2,658
2,905
6,268
38,586
81,036
79,152
229
44,416
3,475
10,437
73
114,840
335
286,487
3,857
4,172
222,538
35,680
38,091
47,665
9,906
3,564
13,420
24
6,432
27,013
4,980
73,886
476
962
4,788
3,034
151,431
11,576
6,731
140
8,895
2,863
2,175
206
104,479
22,665
23,734
5,263
751
2,454
2,564
3,628
20,703
79,196
67,676
118
43,404
3,073
9,158
65
96,911
326
231,140
3,732
3,46C
190,986
31,357
33,737
43,917
6,209
2,892
11,490
24
4,141
24,338
4,864
57,091
439
Arizona.................................................................................
Arkansas...............................................................................
California..............................................................................
Colorado................................................................................
Connecticut..........................................................................
Delaware..............................................................................
District of Columbia...........................................................
Florida..................................................................................
Georgia..................................................................................
Idaho.....................................................................................
Illinois...................................................................................
Indiana.................................................................................
Iowa.......................................................................................
Kansas..................................................................................
Kentucky.............................................................................
Louisiana..............................................................................
Maine....................................................................................
Maryland..............................................................................
Massachusetts......................................................................
Michigan...............................................................................
Minnesota.............................................................................
Mississippi............................................................................
Missouri?...............................................................................
Montana................................................................................
Nebraska..............................................................................
New Hampshire..................................................................
New Jersey...........................................................................
New Mexico.........................................................................
New York.............................................................................
North Carolina.....................................................................
North Dakota......................................................................
Ohio......................................................................................
Oklahoma.............................................................................
Oregon...................................................................................
Pennsylvania.......................................................................
Rhode Island.......................................................................
South Dakota.......................................................................
Texas.....................................................................................
Vermont................................................................................
Virginia.................................................................................
Washington..........................................................................
West Virginia......................................................................
Wisconsin.............................................................................
Wyoming..............................................................................
Total........................................................................... 1,592,502 2,019,189 1,579,250 1,328,786
REPORT OF DIRECTOR GENERAL, U. S. EMPLOYMENT SERVICE. 937
Table 3.—Report of activities, July 1, 1919, to June 30, 1920.
State. Registrations.
Help
wanted. Referred. Placements.
Alabama................. 3,467
10,578
19,969
114,802
40,343
11,592
3,573
24,615
9,645
10,221
4,726
218,380
47,887
83,425
17,680
4,977
8,247
7,416
18,437
38,307
115,595
114,497
3,441
103,338
28,075
24,922
3,257
851
180,617
3,555
362,803
8,122
12,636
423,821
55,873
79,504
75,546
16,221
5,239
15,925
12,288
36,538
2,956
412
16,893
66,868
11,522
105,669
3,874
3,265
11,459
36,543
220,849
32,963
11,271
3,104
25,847
18,265
6,916
5,430
273,978
50,387
51,334
17,496
10,227
8,803
10,803
33,131
59,190
145,030
142,497
4,197
118,860
37,202
32,395
’ 4,456
767
232,967
3,732
424,554
5,660
14,092
423,249
64,911
83,033
166,127
17,912
5,456
15,261
7,539
58,888
2,779
511
24,241
69,244
25,056
137,239
6,590
3,387
8,989
17,890
203,297
30,930
10,436
3,443
23,387
8,100
7,612
4,208
209,001
41,598
47,167
15,169
4,497
8,085
7,041
18,615
60,311
103,825
110,684
2,599
88,053
22,224
23,983
3,010
737
194,033
3,549
361,688
6,438
11,773
330,114
53,488
71,089
69,219
18,368
4,953
13,927
7,281
32,375
2,315
308
15,211
56,201
10,089
104,307
3,805
3,172
7,205
15,055
169,303
28,420
8,749
2,589
14,861
6,016
6,857
3,498
172,545
32,992
35,374
12,132
3,753
7,212
6,295
13,637
31,093
97,095
91,980
2,130
83,160
20,459
19,745
2,810
667
164,045
3,172
280,538
5,884
8,229
281,689
47,014
61,478
56,070
11,042
3,697
10,458
5,030
27,301
2,028
252
12,024
48,904
9,201
79,800
3,592
Arizona...................
Arkansas.................
California................
Colorado..............
Connecticut..............
Delaware.............
District of Columbia.......................................
Florida.........................
Georgia..........................
Idaho.................
Illinois...................
Indiana.......................
Iowa............
Kansas......................
Kentucky....................
Louisiana.................
Maine...................
Maryland.. ...............
Massachusetts............
Michigan........................
Minnesota..........
Mississippi.....................
Missouri....................
Montana..............
Nebraska..................
Nevada.......................
New Hampshire...........
New Jersey..................
New Mexico......................
New York...........................
North Carolina......................
North Dakota.................
Ohio.................................
Oklahoma.............
Oregon.........................
Pennsylvania........................
Rhode Island.......................
South Carolina........................
South Dakota...................
Tennessee....................
Texas.......................
Utah..............................
Vermont........................
Virginia................................
Washington..................
West Virginia...................
Wisconsin..................
Wyoming.......................
Total........................................................................... 2,589,145 3,165,559 2,458,809 2,020,252
938 REPORTS OF DEPARTMENT OF LABOR.
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940 REPORTS OF DEPARTMENT OF LABOR.
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REPORT OF DIRECTOR GENERAL, U. S. EMPLOYMENT SERVICE. 941
166,127
Ta b l e 4.— Recapitulation of report of activities July 1, 1919, to June 30, 1920—Continued.
942
- 8
REPORTS OF DEPARTMENT OF LABOR.
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REPORT OF DIRECTOR GENERAL, U. S. EMPLOYMENT SERVICE. 943
944 REPORTS OF DEPARTMENT OF LABOR.
Ta b l e 4.—Recapitulation of report of activities, July 1, 1919, to June 30, 1920—Continued.
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§i^000g-§ ^og§-c§o-cgo'o s°§g§oig§-t§-- 0g°§00gs- °o§' §^i§ o -
Balkans, territorial changes in........................... 320
Baltimore, Md., headquarters immigration
district No. 5............................. 602
labor convention at, in 1866...................... 14
new immigration station at...................... 309
Bargaining, collective....................................... 30
Bargains, collective, in the nature of “gentlemen’s
agreements”................ 31
legal enforcement of................................... 31
Barkman, A. L., Employment Service zone
clearance officer, report of........ 930
Barnes, Rt. Hon. George Nicoll, vice president
International Labor Conference. 208
Barnum, Gertrude, representative of the
public in National Industrial Conference
.......................................... 214
Barred zone, Asiatic......................................... 169
Barrett, C. S., member National Industrial
Conference............................... 214
Baruch, Bernard M., chairman public group
in National Industrial Conference... 218
representative of the public in National
Industrial Conference.................... 214
Beggars, excluded and deported............... 295
Berkman, Alexander, deportation of.......... 171,312
Berkshire, F. W., supervising inspector, in
charge of deported aliens...... 312
Books, on economic subjects, needed for
library..................................... 59
INDEX, 955
Page.
Border, Mexican, opportunities for unlawful
entry on...................................... 304
Boston, Mass., headquarters immigration
district No. 2............................. 589
new immigration building at...................... 308
Boy Scouts of America......................................... 193
cooperation of, with Division of Citizenship
Training.................................................... 802
Bradfute, O. E., representative of the public
in National Industrial Conference.... 214
Brazil, Ind., increased cost of living in............ 108
Brewster, Thomas T., president Coal Operators’
Association...................................... 104
Brookings, Robert S., representative of the
public in National Industrial Conference
......................................... 214
Brown, Hon. Lathrop, permanent secretary
National Industrial Conference.......... 214
Brownsville, Tex., smuggling at....................... 707
immigration station at, recommended.. 716
“Buford,” Army transport, 242 aliens deported
on......................... 171,312,313
Bulletins issued by Training Service............... 38
Bureau of Immigration........................................ 19
administrative fines imposed by................... 168
appropriations for.............................................. 172
discussion of............................................ 333
authority of, to render decisions in warrant
cases................................ 75
Division of Information of.............................. 329
excess of receipts over expenditures in Immigration
Service.................................... 176
functions of, in warrant cases strictly ministerial........................................................
76
head tax, revenue from.................................... 331
Immigration Service not a financial burden.......................................................
175-176
new sources of revenue for............................... 332
officers and employees of, in World War. 337-341
officers, training of, for Immigration Service 336
originally organized in Treasury Department
(footnote)..................................... 19
origin and functions of...................................... 163
passport-vise system........................................ 341
pending legislation............................................ 342
personnel of..................................................... 172,333
See also Immigration Service, personnel of.
See Immigration Sendee,
sources of revenue of............................................ 331
stations of................................................................ 177
summary of general immigration..................... 164
war-emergency work of.................................. 42
Women’s Division of............... .................... 330
Women’s Immigration Section of.................... 176
work of, in connection with anarchist, communist,
and kindred classes................ 171
Bureau of Industrial Housing and Transportation,
creation of.............................38-40
location of........................................................ 58
Bureau of Labor, creation of....................... 14
in connection with the Department of Agriculture,
proposed............................. 14
title altered to Bureau of Labor Statistics.. 19
Bureau of Labor Statistics, bulletins issued
by........... ................................ - - - ■ • 256
Page.
Bureau of Labor Statistics, changes in title
of (footnote)............................................ 19
cooperation of, with State labor bodies........ 275
efforts of, toward standardizing State labor
legislation........................................... 275
establishment of.................................................... 161
advocated by the Industrial Congress,
1873-4.................................................. 15
in the Interior Department, act creating... 14
National, favored by first convention of
A. F. of L................................................. 15
nation-wide cost-of-living study by.............. 275
publication of Monthly Labor Review by.. 161
publications of.................................................... 162
report of................................................................... 273
reports transmitted but not published... 163,281
studies in process............................... 281-282
study by, of actual wages, hours of labor,
and industrial conditions in important
industries......................................... 275
war activities of.................................................. 41
Bureau of Labor with a Commissioner of
Labor, bill to create............................... 14
Bureau of Naturalization, creation of.......................... 19
difficulty of maintaining clerical forces..................... 795
excess of receipts over expenditures in.... 191-192
financial report of.......................................... 796-800
general remarks.................................................. 879
See Naturalization,
war services of..................................................... 43
work of.............................................................. 189-197
work of naturalization courts......................... 189
Bureaus, permanent, war activities of......................... 41
reports of the................................ ..................... 161
soldiers’, cooperation of, with Employment
Service....................................................... 152
Burgess, Ward M., representative of the public
in National Industrial Conference. 214
Butler, Harold B., secretary general International
Labor Conference............ 208
Cabinet departmental, composition of ....... 45
Calexico and Tia Juana, Calif., immigration
station at, recommended.......... 716
Calloway, Fuller R., representative of the
public in National Industrial conference.............................................
214
Caminetti, A., Commissioner General of Immigration
................................... 343
Campbell, Richd. K., Commissioner of Naturalization....................................
879
Canada, immigration from.............................. 303,328
and emigration from United States to,
statement showing ....................... 303
Carlier, Jules, of Belgium, vice president International
Labor Conference............. 208
Census Bureau, cooperation of, with Division
of Citizenship Training.......... 808
Centralized purchasing, discussion of.............. 908
Clark, Hon. John, decision of, in deportation
cases (footnote)............................. 79
Cleveland, Ohio, headquarters immigration
district No. 10........................... 653
Industrial Congress held at, in 1873........ 15
Crew lists, enforcement of provisions concerning
................................................ 566
956 INDEX,
Page.
Crist, Raymond F., Director of Citizenship.. 878
Criticism, constructive, of present immigration
law................................................. 691
Czechoslovakia, conditions in.......................... 187
visit to, by chief of Children’s Bureau..... 750
Czecho-Slovak ministry of social welfare, suggestions
as to child-legislation submitted
to.............................. 188-189
Chadbourne, Thomas L., representative of
the public in National Industrial
Conference.............................. 214
Charleston, S. C., immigration station building
at, rented for commercial purposes 310
Chicago, Ill., headquarters immigration district
No. 11.............................. 658
Chief Clerk, Department of Labor, duties of... 23
functions of.................................................. 57
Child hygiene divisions in various States,
promoted by Children’s Bureau........ 731
Child labor, rural, inquiry into, by Children’s
Bureau.................................... 185
studies of, by Children’s Bureau................ 744
Children born out of wedlock, conferences
regarding............... 736
recommendations of conferences on.............. 736
studies of, by Children’s Bureau.................. 180
Children engaged in home work, study of, by
Children’s Bureau............. 183
Children entering employment, need for vocational
guidance.................. 185
Children’s Bureau..............................................19,725
aid-to-mothers work of............................. 734
child-hygiene divisions in States............. 731
children born out of wedlock, study of......... 735
children engaged in home work, study of, by 743
child welfare in a coal-mining community,
study of, by...................................... 182,742
child-welfare legislation, studies of............... 737
Child-Welfare Special of............................. 179,732
child-welfare studies by, in extra-continental
United States....................... 185
child-welfare studies in Porto Rico, etc., by,
need for................................... 185,745
conferences on children born out of wedlock,
recommendations of................ 736
courts hearing children’s cases, studies of.. 735
diagram showing infant mortality in various
countries..................................... 730
diagram showing maternal mortality rates
in various countries................... 729
inquiry by, into rural child labor................ 185
Kentucky nutritional survey of.................... 733
letter to, from commissioner of education
of Porto Rico............................. 746
mandatory duties of...................................... 177
promotion of child-hygiene divisions of
States by............................................... 179
protection of maternity and infancy, need
for................................................ 728
report of chief of............................................. 725
review of child-welfare legislation by............ 181
rural child labor, studies of, by...................... 744
standards for working children adopted
by........................................................ 181-182
studies by, of children born out of wedlock.. 18
Page.
Children’s Bureau, studies by, of courts hearing
children’s cases................. 180
of children engaged in home work............. 183
of children entering industry, proposed... 744
special reports secured by................................42-43
the child and the courts, studies relating to. 735
visit by chief of, to certain countries of
Europe............................................... 187,750
war activities of............................................. 42
work of, for protection of maternity and
infancy.................................................. 178
year’s work of.. .............................................. 725
Children’s Year, conspicuous war-activity of
Children’s Bureau............................... 42
Children, working, standards adopted for....... 181
Child welfare in a coal-mining community,
study of, by Children’s Bureau......... 182
Child-Welfare Special, work of...................... 179,732
Child-welfare studies, in Porto Rico and extracontinental
United States, by Children’s
Bureau................... 185
Chinese, admission of.................................. 297
arrested and deported, by judicial districts,
table showing....................... 553
debarment and deportation of.. .................. 297
exclusion act, exempt classes under........ 297
immigration and emigration, tables showing...........................
548-554
inspector in charge, immigration district
No. 3, report of............................... 587
practice, report of special representative on 573
transactions, miscellaneous, by ports, table
showing........................................... 554
Citizenship Training Division.................... 191
Citizenship training, results accomplished.. 192-197
See Division of Citizenship Training.
Citizens, native-born, departed, by countries
of intended residence and races or
peoples, table showing........... 396
by occupations and races and peoples,
table showing................................... 422
by States of last permanent residence
and races or peoples, table showing. 406
sex, age, and length of residence of, departed,
by races or peoples................. 383
naturalized, departed, by countries of intended
residence and races or peoples,
table showing....................................... 392
by occupations and races or peoples,
table showing....................................... 417
by States of last permanent residence
and races or peoples, table showing.. 403
sex, age, etc., of, departed, by races or
peoples.................................................. 383
United States, arrived and departed, fiscal
years ended June 30, 1919 and 1920,
table showing................... 365
Collective bargaining.................................30-31
Collins, John, representative of anthracite
mine workers................. 113
Commerce and Labor, Department of, act
creating, approved Feb. 14, 1903.... 18
creation of............................... ................... 15
Commerce, Department of, formerly De
partment of Commerce and Labor... B
INDEX, 957
Page.
Commissioner General of Immigration, authority
of............................................... 73-74
report of....................................................... 285-721
conclusion of................................................ 343
Commissioner of Labor Statistics, cooperation
of, with International Association
of Industrial Accident Boards.. 275
report of....................................................... 273
Commissioner of Naturalization, report of... 769
Commission on Living Conditions, organization
and dissolution of........... 40
Commission, President’s, to settle anthracite
wage scale................................ 113
Commissioners of conciliation:
Barker, Thomas.................................... 122,137
Barrett, J. J................................................ 116-140
Bendheim, Charles..................................... 116-141
Bridwell, J. W............................................ 115-140
Brown, H. J................................................ 117-139
Buchanan, J. R......... ................................ 115-140
Coleman, R. S................................................ 134
Colpoys, J. B............................................... 125-139
Connell, Charles T................................. 85,116-140
Davidge, W. D........................................... 116-137
Davies, Hywel........................... 119-136
Davis, F. G................................................. 115-140
Fairley, W. R........................ ;...................... 131
Faulkner, A. L...................................... 89,116-136
Feick, Fred L.......................... .’..............87,116-141
Fury, Charles J...................................... 82,117-139
Gill, Patrick F...................................... 82,116-140
Greenawalt, E. E....................................... 120-133
Halsey, Richard L......... .............................. 138
Harry, G. Y................................................ 116-138
Hawley, F. T.............................................. 116-139
Howard, C. P................................................. 121
Hughes, James L........................................... 127
Hylan, John F............................................... 127
Kerwin, Hugh L................................. 112,122-137
Kirk, Thos. V................................................ 141
Lennon, J. B............................................... 116-141
Liller, W. C................................................ 115-139
Lord, Joseph............................ 119-129
McWade, R. M........................................... 115-136
Mahany, Rowland B.......................... 112,120-141
Marsh, E. P............................................. 85,121-140
Moffitt, John A.............................................. 141
Myers, J. S.................................................. 116-140
Nelson, O. F............................................... 116-141
Purcell, James...................................... 112,116-141
Reed, Verner Z.............................................. 90
Rodgers, J. J. S........................................... 118-138
Rodgers, W. H........................................... 117-138
Rohde, F. J................................................. 116-129
Skeffington, H. J................................... 82,116-139
Smyth, James A.................................... 86,118-137
Spangler, J. L............................................. 122-137
Squires, Benjamin M..............................82,117-141
Stewart, Ethelbert........................................ 135
Sullivan, J. A................................................. 82
Thomas, L. R.......................................... 82,116-141
Urmy, W. H............................................... 121-139
Vacarelli, Paul L........................................... 127
Walsh, John J..........................................89,117-140
Williams, T. J............................................. 115-140
Woodman, C. W.-..................................... 116-117
Page.
Committee, Advisory, on appeals and warrants............................................
57
Communist Labor Party.................................. 312
membership in, not ground for deportation. 79
membership in, not violation of act of Oct.
18, 1918.................................................. 171
Communist Party............................................. 312
membership in, mandatory ground for deportation.....................................
79
of America, membership in, violation of
act of Oct. 16,1918............................... 171
Communists........................... 312-314
expulsion of...................................................... 76-79
Conboy, Mrs. Sara, representative of labor in
National Industrial Conference......... 214
Concilation and mediation............................... 26
Conciliation. See Division of Conciliation.
Congress, First International, of Working
Women.................................... 200
Conference, Industrial, called by the President,
report of..................... 236-271
International Labor....................................... 201
National Industrial........................................ 211
President’s Industrial................................... 219
Conferences, official labor................................. 201
Connell, William L., member President’s anthracite
wage-scale commission......... 113
Contract labor....... 592,606,613,618,624,628,634,640,
651,655,659,670,673,674,685,706
Controversies (labor), statement showing
number of, handled by Division of
Conciliation......................... 115-142
Cooperation of Bureau of Labor Statistics
with State labor bodies...... 275
of Commissioner of Labor Statistics with
International Association of Industrial
Accident Boards......... 275
of United States Employment Service with
States.............................................. 147
Coordination, interdepartmental..................,. 25
report on, of certain departmental functions..............................................
228-235
Cost-of-living study by Bureau of Labor
Statistics........................... 275
Countries, new European........................... 319
Courts exercising jurisdiction in naturalization
cases................................. 770
Courts hearing children’s cases, studies of, by
Children’s Bureau.................. 180
Manville, Ill., increase in cost of living in.... 106
coal-mining district, rate for mine-run
pick mining in...................................... 106
Davies, Hywel, labor adjuster, cases handled
by............................................. 91
report of, on condition in copper
industry............................................... 87-89
Defective aliens. See Aliens, defective.
Delinquency, juvenile, in Austria and
Hungary............................................... 763
in Germany,............................................... 763
Del Rio, Tex., immigration station at, recommended....................................
716
Dennison, Henry S., representative of the
public in National Industrial Conference......................................
214
958 INDEX,
Page.
Densmore, J. B., Director General, United
States Employment Service. 951
Denver, Colo., headquarters immigration
district No. 14......................... 673
Department of Commerce and Labor, procedure
in warrant cases inherited
from, by Department of Labor.......... 75
Department of Industry, bill creating........... 14
Department of Justice, proof supplied by, in
certain cases............................ 78
Department of Labor, agitation for the establishment
of.......................... 13
creation of....................................................... 18
difficulties in finding quarters for................ 20
financial embarrassments of......................... 19
inferior, created in 1888................... 17
inferior, made a bureau in Department of
Commerce and Labor.......................... 18
legislation previous to creation of................ 18
organic act of the........................................ 225-227
organization of................................................ 19
present quarters of.........................................22,57
prior to 1920......................... 1®
publications of, cost of, statement showing............................................
898-902
reorganization of editorial forces in, recommended
..................................... 898
Department of State, modification of travel
control by............................................. 286
Deportation and transportation, report of
officer in charge of.................. 576
Deportation and Transportation Section,
deportation of aliens.............. 577
organization of............................................ 291,579
organization of parties................................... 576
passports, difficulties regarding................... 578
Deportation cases, decisions of Judge Anderson,
of Boston, in (footnote). 79
decision of Judge Clark, of New York, in
(footnote)................................... 79
warrants in, canceled.......................................78-79
Deportation, work of bureau systematized... 291
Deportations, total, of aliens by Bureau of
Immigration......................................... 167
Diagram showing maternal mortality rates in
various countries................... 729
Differences, adjustment of, between employers
and employees.............. 29
Dillard, James H., report of, on Negro
migration................................ 41
Director of the Women’s Bureau, report of... 883
Disbursing clerk, appropriations........................ 62
Department of Labor, duties of....................... 23
expenditures....................................................... 62
functions of......................................................... 62
miscellaneous receipts....................................... 64
unexpended balances........................................ 65
Districts, immigration. See Immigration
commissioners, etc., reports of.
Division of Citizenship training, certificates
and graduation ceremonies............. 839-841
complete list, by States and cities, of communities
cooperating through public
schools, statement showing............ 811-838
cooperation of Boy Scouts with................. 802
Page.
Division of Citizenship training, cooperation
of cities, towns, and rural communities
with...................................... 808
cooperation of Loyal Legion of Loggers and
Lumb ermen......................................... 865
cooperation of organizations..................... 859-865
cooperating school organizations, table
showing........................................... 809
cooperation of, with Census Bureau............ 808
cooperation of, with industries............... 805
Federal Citizenship Textbook issued by... 841
obstacles encountered in industries....................... 806
program of...................................................... 802
record of public-school classes................... 856-859
report of.......................................................... 801
reports from 1,295 communities, table showing.........................................................
810
rural work........ .. ........................................... 849
special work for women............................. 867-870
State legislation to further citizenship instruction.....................................
845
training of teachers........................................ 841
work in Connecticut...................................... 847
work in New York........................................ 848
work in North Dakota.................................. 845
work in Utah.................................................. 849
work with Mexicans...................................... 870
Division of Conciliation, activities of, during
the war.................................... 44-45
statement of, showing number of labor disputes
handled by the department
from July 1, 1919, to June 30,1920.. 116-142
showing labor disputes pending at end of
fiscal 1919.............................................. 115
review of activities of..................................... 80-81
typical cases handled by............................. 82-115
Division of Information................................... 26-27
“a plan” by, to impart information to admitted
aliens.............................. 559
Bureau of Immigration................................. 329
duty of............................................................. 555
first aid to the alien by................................. 561
memorandum of chief of, to Secretary of
Labor.................................................... 556
needs of........................................................... 562
preparation of bulletins by........................... 561
report of chief of............................................. 555
Division of Negro Economics, continued as a
necessary but temporary postwar
service..................................... 41
cooperation of, with Employment Service. 70
establishment of............................................. 40-41
field organization of....................................... 72
importance of.................................................. 70
investigation of race friction and labor by.. 71
need for............................................................. 40-41
Negro migration in 1918-19, information
concerning.................................. 72
recommendation to Congress for continuation
of.......................................... 73
report on “The Negro at Work during the
World War and during Reconstruction”...........................................
72
Division of Publications and Supplies, blank
books, forms, and supplies received
by............................................ 905
INDEX, 959
Page.
Division of Publications and Supplies, books
and blanks, requisitions for, filled
during year....................................... .. 903
shipments made......................................... 904
centralized purchasing considered by chief
of................................. 69
centralized purchasing, discussion of......... 908
contingent allotment for department, 1921. 906
decrease in number of envelopes ordered by. 903
distribution of publications by...................... 905
duplicating work of..................................... 68,906
editorial work of........................................... 67,897
reorganization of forces recommended.898-909
envelopes ordered by.................................... 903
estimated contingent allotment for....................... 69
I oss of trained personnel in, owing to inadequate
wages................ 908-909
Monthly Labor Review, changes in....... 66, 895
open-market purchases of supplies by....... 907
orders for envelopes placed........................... 67
overtime in..................................................... 909
personnel of.................................................... 909
popularity of Children’s Bureau publications
...................................................... 896
printed stationery, requisitions for........................ 903
printing and binding.................................... 65
allotment for........................................... 895,907
by bureaus............................................ 896
by classes............................................... 896
relative cost of......................................... 896-897
publications of Children’s Bureau............... 66
publications of Women’s Bureau.......... 896
recommendations by chief of..................... 69,908
report of chief of....................................... 895
conclusion of......................................... 909
requisitions for books and blanks filled by. 67
shipping facilities of.. .................................... 905
shipping section of................................... 69
statement showing number of publications
delivered during year...................... 898-902
Donlin, John H., representative of labor in
National Industrial Conference... 214
Douglas, Ariz., immigration station at, recommended
................................... 716
smuggling at......................................... 708
Duify, Frank, representative of labor in
National Industrial Conference... 214
Draft of proposed new immigration law.... 352-360
Eagle Pass, Tex., immigration station at,
recommended................... 716
East Indian, or Hindu, race, admission of... 299
Economics, Negro. See Division of Negro
Economics.'
Editorial work in Department of Labor, reorganization
of forces recommended. 898
Eliot, Dr. Charles W„ representative of the
public in National Industrial Conference.....................................
214
Ellis Island, hospitals at.................................. 308
immigration station at............................... 308,330
El Paso, Tex., headquarters immigration district
No. 23 .............................. 693
immigration station at, recommended ... 716
Employees, inability to secure competent.. 58
Employment, public lands and, explanation
and suggestions in regard to... 48-49
Page.
Employment Service............................. 26
Emigrants. See Aliens, emigrant.
Emigration and immigration, general, tables
showing................................ 365-539
Emigration Commission, International.................... 209
Emigration, excess of, over immigration... 318-319
of Chinese, tables showing..................... 548-554
of Japanese, tables showing................. 540-547
Endicott, H. B., representative of the public
in National Industrial Conference.... 214
Envelopes, decrease in number of................... 903
Europe, central, importance of child-welfare
studies in................................. 761
chief source of immigration.......................... 317
immigration from western............ . .............. 324
new countries in............................................. 319
Exclusion and expulsion of aliens, jurisdiction
of Secretary of Labor over.......... 73-76
Exclusion cases.................................................. 73
Expulsion eases................................................. 73
Expulsion of aliens............................................ 167
jurisdiction of Secretary of Labor over......... 73-76
Ear East, immigration from, involving the
Philippines and Hawaii........ 299
Faulkner, A. L., special committeeman investigating
admission of Mexican
laborers.................................... 288
Federation of Organized Trades and Labor
Unions..................................... 15
Feiss, Paul L., representative of the public in
National Industrial Conference......... 214
Fenton, Howard W., member of National
Industrial Conference............ 214
Ferry, Neal J., member of President’s anthracite
wage-scale commission............ . 113
Fines............................. 599,604,610,61.3,617,648,682
administrative, imposed by Bureau of Immigration...........................
•............ 168
assessed against transportation lines... 306-307
Fischer, Jacob, representative of labor in
National Industrial Conference. 214
Fishermen, deep-sea, included in term “seamen”
in immigration bill pending... 570
seamen’s identity cards for alien.............. 569
Fish, Frederick P., member National Industrial
Conference....................... 2I4
Florida, natives of Bahama Islands employed
in.............................................. 288
Forrester, J. J., president Order of Railway
Clerks....................................... 214
Galveston, Tex., headquarters immigration
district No. 9.......................... 621
Garfield, Dr., Federal Fuel Administrator.. 105-107
Gary, Elbert H., representative of the public
in National Industrial Conference.... 214
GeneralSupply Committee, contracts by... 906-907
Genoa, Italy, second International Labor
Conference at........................................ 211
Gentlemen’s agreement with Japan, passports
under.............................. 298
‘‘German Empire,” name changed to “Germany”.....................................
319
Gloucester City, N. J., Philadelphia Immigration
Station at................... 309
960 INDEX.
Page.
Glynn, Martin H., member President’s Industrial
Conference................ 271
Golden, C. J., representative of anthracite
mine workers....................... j. 113
Goldman, Emma, deportation of...................171,312
Golias, Edward, on juvenile delinquency in
Austria and Hungary.......................... 763
Gompers, Samuel............................................... 203
letter of the President to............................ 213
representative of labor in National Industrial
Conference.................................... 214
requested to name labor delegates to
National Industrial Conference......... 212
Government, organized, organizations opposed
to...................................... 76
persons opposed to........................................ 76
Gray, Carl B., member National Industrial
Conference.............................. 214
Great Britain, immigration from.................... 325
Greene, Edwin F., member National Industrial
Conference...................... 214
Greenwood, Ernest, deputy secretary general
International Labor Conference . 208
executive officer of International Labor
Conference............................................ 203
Gregory, Thomas W., member President’slndustrial
Conference................ 271
Guest, P. J., of Amalgamated Meat Cutters
and Butcher Workmen of North
America................................................. 97
Habeas corpus, writs of, in immigration
cases......................................... 591,
599, 610,629, 634,640,646,651,659,669, 704
Hamburger, Dr. B., of University of Berlin,
on feeding of German children........... 762
Hamilton, Grant, special committeeman
investigating admission of Mexican
laborers............................. 288
Harvest, grain-belt, activities of Employment
Service in..................... 153
■workers, special railway fares for................. 47
Hawaii, immigration from.................................. 302
Head ta x, rev enue from...................................... 331
Helena, Mont., headquarters immigration
district No. 15......................... 672
Hellwig, Dr. Albert, of Frankfort-on-Oder,
onjuvenile delinquency........ 763
Hindu, or East Indian, race, admission of.... 299
immigration of............................... 169
Historical review of the Department.............. 11-56
Hoar, Congressman George F., bill to create
a Commission of Labor introduced
by................ 14
Hocking Valley coal field, price o f run-of-mine
pick min ing in........................ 106
Home-building campaign................................... 36-37
Homework........................................................ 743
children engaged in, study of, by Children’s
Bureau..... 183
Hon olulu,Hawaii,headquarters immigra ti on
district No. 22......................... 647
immigra tionstationat............................... 311
Hooker, Richard, member President’s Industrial
Conference................ 271
Page.
Hoover, Herbert, vice chairman Industrial
Conference called by the President.. 271
Hotchkiss, Willard E., member President’s
Industrial Conference.......................... 271
Housing. See Bureau of Industrial Housing
and Transportation; see also United
States Housing Corporation.
Hudson, Dr. Manley O., legal adviser to
International Labor Conference......... 208
Hungary, changes caused by World War, in. 319
Hurley, Jeremiah J., special representative on
seamen’s work............................... 572
Hutchison, S. Pemberton, member National
Industrial Conference. 214
Hylan, Hon. John F., mayor of New York
City.......................................... 127
Identification cards, seamen’s....................... 566
Illiteracy of immigrant aliens......................... 322
Illiterates admitted under exceptions........... 322
Illiterate aliens. See Aliens, illiterate.
Immigrants, alien, financial ability of............ 166
illiteracy of................................................... 322
countries of, origin of..................................... 317
destination of, in United States................... 323
financial condition of..................................... 323
See Aliens, immigrant.
Immigration and emigration, general, tables
showing............................... 365-539
in 1920 .......................................................... 315-323
of Chinese.................................................... 548-554
of Japanese, tables showing....................... 540-547
total, 1910 to 1920 ........................................... 315
Immigration, applications for admission.. 580,587,
589, 597, 602, 608, 612, 615, 621, 625, 631,
638, 644, 647, 650, 653, 658, 676, 679, 693
Asiatic situation............................................. 328
assisted, liable to become public charges... 296
chief source of................................................. 317
Chinese........................................................ 169,297
debarments................................................. 297
increase of.................................................... 297
commissioners, supervising inspector, and
inspectors in charge, reports of....... 580-721
destination of................................................. 317
district No. 1, Canadian Atlantic seaports
and Canadian border east of Montana. 678
district No. 2, New England States............. 589
district No. 3, New York, New Jersey, and
Ellis Island Station............................. 580
district No. 4, Eastern Pennsylvania and
Delaware............................................... 597
district No. 5, Maryland and District of
Columbia.............................................. 602
district No. 6, Virginia and North Carolina. 608
district No. 7, South Carolina, Georgia,
Florida, and Alabama........................ 612
district No. 8, Louisiana, Mississippi,
Arkansas, and Tennessee......... 615
district No. 9, part of Texas contiguous to
Galveston....... ..................................... 621
district N 0. 10, Ohio and Kentucky........... 563
district No. 11, Illinois, Indiana, Michigan,
and Wisconsin..................................... 658
district No. 12, Minnesota and North and
South Dakota...................................... 662
INDEX. 961
Page.
Immigration, district No. 13, Missouri, Iowa,
eastern Nebraska, eastern Kansas,
and eastern Oklahoma......... 667
district No. 14, Colorado, Wyoming, Utah,
western Nebraska, western Kansas,
and western Oklahoma............ 673
district N o. 15, Montana and Idaho............ 672
district No. 16, State of Washington and
western border ports and stations.. 638
district No. 17, State of Oregon................... 644
district No. 18, northern California, Nevada,
and Angel Island Station......... 631
district N o. 19, western Pennsylvania and
West Virginia...................................... 650
district No. 20, Alaska................................. 676
district No. 21, Porto Rico........................... 625
district No. 22, Territory of Hawaii........... 647
district No. 23,Texas (except district No. 9),
New Mexico, Arizona, and southern
California.............................................. 693
district N o. 3, Chinese inspector in charge,
report of................................................ 587
draft of proposed new law......................... 352-360
effects of war conditions on.......................... 285
excess of emigration over............................ 318-319
from British N orth America........................ 328
from Canada................................................... 303
from Great Britain........................................ 325
from insular United States....................... 167,302
from Mexico, increase of......................... 304
from Mexico in 1920....................................... 329
head tax......................... 595,599,610,617,623,627,
633,640,645,648,648,659,665,682
revenue from............................................... 331
increase of....................................................... 285
induced and assisted..................................... 167
from war-stricken countries...................... 296
law governing............................................. 296
Japanese...................... 169-298
complete statistics of....................... 298,540-547
increase of.................................................... 298
law, appeals from decisions under, by causes,
table showing....................................... 482
law, criticism of present................................ 691
offices at Montreal......................................... 311
oriental......................................................... 169,297
smuggling over borders.............................. 169
pending legislation relating to..................... 342
proposed new law, memorandum explaining.........................................................
345
passengers departed from the United States,
table showing................................... 486-505
races or peoples............................................... 320
Service, expansion of work of....................... 285
officersand employees of, in World War 337-341
personnel of................................................. 589,
594, 602,608,611, 614, 620,625. 630, 638,
644,647,649,656,661,666,672,675,688,719
See Bureau of Immigration.
station, at Ellis Island................................. 308
at Gloucester City, N. J. (Philadelphia).. 309
at Baltimore............................................... 309
at Charleston, S. C..................................... 310
at New Orleans........................................... 310
at Galveston................................................ 310
15283—la b 1920-----61
Page.
Immigration, station, at Angel Island (San
Francisco).............................. 310
at Honolulu................................................. 311
stations........................................................... 308
establishment of, recommended............... 716
land border.................................................. 311
statistics of.................................................. 361-554
summary of arrivals and exclusions.......... 164
total, each year, 1820 to 1920, table showing. 468
world, review of............................................. 324
Indiana bituminous coal field, rate for minerun
pick mining in................ 106
Industrial Brotherhood, successor to the Industrial
Congress.................... 15
Industrial conference called by the President,
members of.............................. 271
Industrial Congress, demand for the creation
of State and National bureaus of
labor statistics by................... 15
Industrial Conference, National, call for, issued
by the President........... 212
communication of public group of, to the
President..’............................................ 217
letter of President Wilson to..................... 215
members of.................................................. 214
request of the President that the public
group proceed with work of......... 216
withdrawal of labor group from................ 216
President’s...................................................... 219
report of, called by the President............ 236-271
Industrial Workers of the World, constitution
of, not within the inhibitions of
immigration law......................... 79
Infant mortality, diagram showing.................. 730
Inferior Department of Labor, creation of....... 17
Information and Education Service, establishment
of..................................... 36
home-building campaign of.............................. 36
Information, Division of. See Division of
Information.
Insular United States, immigration from.... 167
International Association of Industrial Accident
Boards and Commissions, cooperation
of Commissioner of Labor
Statistics with........................ 275
International Emigration Commission, countries
appointing members of. 209
created by International Labor Office........ 209
International Labor Conference. See Labor
Conference, International,
second, at Genoa, Italy.............................. 211
third, to meet at Geneva, Switzerland,
April 4, 1921............................... 211
Interstate commerce law, amendment to, advocated
.................................... 47
Investigation and Inspection Service, discontinuance
of.............................. 38
functions of......................................................... 38
Ireland, fewer immigrants from......................... 325
Italy, chief source of immigration in 1920.... 328
territorial changes in..................................... 320
Jacksonville, Fla., headquarters immigration
district No. 7..... 612
James, George R., representative of the Public
in National Industrial Conference 214
962 INDEX.
Page.
Japanese Government, limited-passport
understanding with......298,544-547
Japanese, immigration of, complete sta-
Johnson, President, informed of desire of
organized labor for a Department of
Labor.................................................... 14
Johnston, William H., representative of
labor in National Industrial Conference.....................................
214
Joint Commission on Reclassification of salaries,
information furnished to, by
Bureau of Labor Statistics.. 275
Jones, Thomas D., representative of the
public in National Industrial Conference.............................
214
Jouhaux, Leon, of France, vice president
International Labor Conference.... 208
Jugoslavia, child-welfare program of Government
of.................................... 189
conditions in................................................... 189
Jurisdiction of Secretary of Lpbor over exclusion
and expulsion of allies.............73-76
Kansas, investigation in, by Women’s Bureau,
of industrial conditions for
women..................................... 200
Kaupe, Dr. Walter, of Bonn, on feeding of
infants...................................... 762
Kennedy, Thomas, representative of anthracite
mine workers................... 113
Kentucky, nutritional survey in, by Children’s
Bureau......................... 733
Ketchikan, Alaska, headquarters immigration
district No. 20 ................ 676
Kingdom of the Serbs, Croats, and Slovenes. 319
King, Stanley, member President’s Industrial
Conference....................... 271
Knights of Labor, first general assembly of,
January, 1878.......................... 15
general assembly of, at Minneapolis, in 1887,
renewed demand for an executive department
of labor....................... 17
Kopec, Dr. Thaddeus, of Warsaw, report by,
on Polish children.................. 759
Labor Conference, International................... 201
address of Director General of Pan American
Union welcoming....................... 206
address of Secretary of Labor opening.... 205
membership of............................................ 201
permanent officers of.................................. 208
Labor conferences, official................................ 201
Labor, contract, aliens excluded under provisions
of law..................... 297
Laborers, agricultural, admission of, under
departmental exceptions.168,287
admitted from Canada......................... 288
Chinese, transit of war workers from France 297
contract, excluded and expelled............ 295
Japanese, seeking entry to United States
through Mexico................... 298
Mexican, admission of, under departmental
exceptions................................... 287
Labor legislation, State, efforts toward stand--
ardizing and harmonizing...... 275
Page.
Labor Office, International, of League of
Nations.................................... 201
Labor Organization, International, of League
of Nations................................ 201
Labor outings, suggested, to supply demand
for harvesters......................... 47
Labor policy, departmental............................. 27
in regard to organized workers................27-28
Labor Review, monthly.............................. - - - 277
Labor Statistics, report of Commissioner of.. 273
Landon, A. A., representative of the public
in National Industrial Conference... 214
Lane, Hon. Franklin K., permanent chairman
National Industrial Conference. 214
Laredo, Tex., immigration station at, recommended
................................... 716
smuggling at................................................ 709
Lathrop, Julia C., chief of Children’s Bureau. 765
League of Nations, International Labor
Office of................................... 201
International Labor Organization of........... 201
Lee, W. G., representative of railroad brotherhood
in National Industrial Conference..........................................
214
Legislation, child-welfare, review of, by
Children’s Bureau.................. 181
needed to prevent smuggling and surreptitious
entry of aliens.............. 305
pending, relating to immigration................ 342
Lewis, John L., president United Mine Workers
of America..................... 104,113
representative of labor in National Industrial
Conference............................. 214
telegram from Secretary of Labor to....... 113
Library, department........................................ 59
assistants needed for.................................. 59
books and periodicals needed for.............. 59
Living Conditions, Commission on................ 40
Lockouts, statement showing labor disputes
handled by Division of Conciliation.......................................
H5-142
Loree, L. F., member National Industrial
Conference............................... 214
Loriga, Prof. Giovanni, of the University of
Rome, on labor of children.. 763
Los Angeles, Calif., smuggling at.................... 710
Louisville, Ky., conference wageworkers at,
in 1865...................................... 13
McCall, Samuel W., member President’s
Industrial Conference............ 271
McKinley, Representative, bill creating a
Bureau of Labor Statistics introduced
by................................. 16
McNab, Gavin, representative of the public
in National Industrial Conference... 214
McNamara, P. J., representative of railroad
brotherhoods in National Industrial
Conference.............................. 214
Mahany, Rowland B., temporary secretary
National Industrial Conference......... 214
Mahon, W. D., representative of labor in National
Industrial Conference. 214
Maine, transit of Chinese laborers across....... 297
Manifests, new forms covering Chinese passengers
approved................... 573
INDEX, 963
Page.
Marriage laws of Spain and Portugal............ 299
Marston, Edgar L., member National Industrial
Conference.................................... 214
Mayor des Planches, Baron, address of, in
International Labor Conference........ 207
Mediation and conciliation.............................. 26
Mediation Commission, President’s................ 32
Medical Officer, Chief, at New York Immigration
Station, report of...................... 583
Meeker, Dr. Royal, director Scientific Division
of the International Labor Office. 202
Memorandum of the chief of the Division of
Information to Secretary of Labor... 556
Memorandum explaining proposed new immigration
law............................. 345-352
Meredith, E. T., representative of the public
in National Industrial Conference... 214
Mexico, immigration from............................ 304,329
Miller, P. G., commissioner of education of
Porto Rico........... ................................ 136
letter from, to Children’s Bureau........ 746
Miller, Maj. Oscar F., formerly inspector on
Mexican border, killed in action,
awarded medal of honor..................... 337
Mills Building, occupied by Department of
Labor.................................................... 22
Minneapolis, Minn., headquarters immigration
district No. 12................. 662
Molders, National Organization of, president
of, advocating a department of labor. 14
Moll, Dr. Leopold, of Vienna, on feeding of
children.................................. - 762
Monthly Labor Review.................................... 277
establishment of............................................. 161
placed on subscription basis......................... 277
purposes of..................................................... 161
subjects treated in........................ -.......... 278-281
Montreal, immigration offices at..................... 311
headquarters immigration district No. 1... 678
Morrison, Frank, representative of labor in
National Industrial Conference......... 214
Mortality, infant, diagram showing................ 730
rates, maternal, diagram showing................ 729
Mothers, aid to, work of Children’s Bureau.. 179
Murray, Phillip, representative of anthracite
mine workers.......................... 113
Naco, Ariz., immigration station at, recommended
................................... 716
National Industrial Conference. See Industrial
Conference, National; see also
President’s Industrial Conference.
National Labor Union, declaration of, in favor
of a Department of Labor..... 14
organized in 1866............................................ 14
National War Labor Board, creation of......... 34
Naturalization, accounts and appropriations. 794
Bureau of. See Bureau of Naturalization.
cancellation cases........................................... 774
causes of delay in work of............................. 793
certificates of, granted and denied, 1908 to
1920....................................................... 779
issued and denied, table showing------- 771-772
issued, table showing............................. 783-784
civilian and military papers filed, fiscal
years 1918, 1919, and 1920................... 787
Commissioner of, report of.. ......................... 769
Page.
Naturalization, courts delinquent in accounting
for business transacted.................. 787
courts exercising jurisdiction....................... 770
by States and Territories.......................... 787
declarations and civilian petitions filed and
issued, 1907 to 1920.............................. 786
780
795
794
declarations of intention filed, table showing...............................................
difficulty of maintaining clerical force in
bureau........................................
fee accounts handled.............................. •
field work, recapitulation of...................... 789-790
mail handled by field officers, by districts.. 791
mail handled by field service, fiscal years
1918,1919, and 1920.............................- 791
mail handled by the bureau, fiscal years
1918,1919, and 1920.............................. 792
of alien soldiers in Army posts and camps. 790
opinions rendered by United States
courts................................................ 775-778
petitions, continuances............................... 773
petitions for, filed, table showing............ 781-782
requests for dates of arrival and names of
vessels...................................................
requests for return of certificates of soldiers,
requisitions handled in bureau, fiscal years
1918, 1919, and 1920.....................
results of prosecutions, table showing,
soldiers naturalized, table showing...
work in the bureau.....................-........
work of clerks of courts........................
work of courts......................... - -..........
work of examiners................................
793
791
794
778
785-786
.. 792
.. 779
189,769
788-789
Negro Economics. See Division of Negro
Economics.
New Hampshire, study of wage-earning
women in...... -........................ 389
New Orleans, La., headquarters immigration
district No. 8.......................... 615
News-Release Office, functions of................... 24
New York, N. Y., headquarters immigration
district No. 3.......................... 580
Nogales, Ariz., immigration station at, recommended
.............................. 716
smuggling at............................................... 709
Norfolk, Va., headquarters immigration district
No. 6............................... 608
North America, British, immigration from,
into United States.......................328
Nutritional survey, Kentucky, by Children’s
Bureau.................................... 733
Office of the Secretary...................................... 57
composition of...................................... 22
duties of officers and divisions included in. 23-24
Officer, Chief Medical, at port of New York,
report of........................-...................... 583
Officers and employees of Immigration
Service in World War..................... 337-341
Officers, training of, for Immigration Service. 336
O’Leary, J. W., member National Industrial
Conference............................................ 214
Opinions, important, in naturalization
cases..................................... 775-778
Organic act, creating the Department of
Labor................................... 225-227
964 INDEX.
Page.
Orth, Hon. Gottlieb, till creating a Department
of Industry, introduced by.... 16
Outings, labor, to assist in harvesting_____ 47
Pana, Ill., increase in cost of living in............ 106
Pardo, Dr. Guido, of Italy, deputy secretary
general International Labor Confer-
"ence............................................ 208
Part I, Department of Labor prior to 1920... 13
conclusion of......................................... , 55
Part II, report for 1920..................................... 57
Passport-permit work.. 582, 600, 625, 629, 642, 647,
652,656,662,675,678,692,720
Passport-vise system........................................ 341
Paupers, excluded and deported................... 295
Peale, Rembrandt, member U. S. Bituminous
Coal Commission........... 107
Perkins, Herbert F., member National Industrial
Conference................ 214
Personnel, difficulty in securing competent.. 58
Philadelphia, headquaretrs immigration district
No. 4....... ;.................................... 597
Philadelphia Immigration Station at Gloucester
City, N.J.......................... 309
Philippines, immigration from....................... 302
Pittsburgh, Pa., headquarters immigration
district No. 19........................ 650
coal field, price of run-of-mine pick mining
in .......................................... 106
Poland, child care in......................................... 759
visit to, by chief of Children’s Bureau....... 756
Population, net increase of, by arrival and
departure of aliens, 1908 to 1920, table
showing................................... 409
net increase or decrease in, by arrival and
departure of aliens, fiscal years 1919
and 1920, table showing........... 366
Porto Rico, child-welfare study in, need for.. 745
immigration from.......................................... 302
request for investigation of the condition of
children in................................. 180
Portland, Oreg., headquarters immigration
district No. 17........................ 644
Portugal and Spain, marriage laws of............ 299
Powderly, T. V., chief Division of Information
................................................ 559
extract from address by................................ 17
general master workman Knights of
Labor, favored an executive department
of labor in 1887.......................... 17
President’s Industrial Conference................... 219
members of..................................................... 271
report of......................................................... 236-271
President’s ^Mediation Commission................. 32
“ Proxy brides,” legislation needed in relation
to.............................................. 299
Publications and Supplies, Division of, functions
of.................................... 24
See Division of Publications and Supplies.
Publications of the Department of Labor, by
bureaus............ 898-902
Public lands and employment, Department’s
suggestion regarding.............. 48
Public Health Service, in charge of immigration
hospital at Baltimore.... 309
in charge of hospitals at Ellis Island............. 308
Purchasing, centralized, merits of, considered. 908
Page.
Kailway fares, special, suggested for harvest
workers........... 47
Raskob, John J., member National Industrial
Conference....................... 214
Reciprocity between the Bureau of Immigration
and the various States.. 533
Recommendations, by Secretary of Labor, to
present and future Congresses........... 221
departmental, prior to 1920........................ 49
as to alien voting........................................ 51
as to delegation of administrative authority..................................................
51
as to employment and the public lands .. 51
as to Employment Service........................ 54
as to explosions at Ellis Island................. 50
as to per diem allowances.......................... 55
as to receipts and expenditures.............. . 50
as to retirement pensions.......................... 51
as to Training Service................................ 55
Regulations, enforcement of travel control,
by Immigration Service........ 286
travel control, modified by Department of
State...................................................... 286
Report on coordination of certain departmental
functions.................. 228-235
Republic, new, of Czechoslovakia..................... 319
of Finland..................................... 319
of Poland................................................... 319
Residents, permanent, of contiguous territory
applying for temporary sojourn
refused, by causes, table showing .... 477
Review, historical, of the Department of
Labor.................................................... 11-56
Revolutionaries, alien, expulsion of................ 76-79
Rhode Island, children engaged in home
work in.................................... 183
Rickert, T. A., representative of labor in
National Industrial Conference......... 214
Robinson, Henry M., member President’s
Industrial Conference............ 271
member United States Bituminous Coal
Commission.......................................... 107
Rochester, N. Y., Industrial Congress held at,
in 1874...................................... 15
Rockefeller, John D., jr., representative of
the public in National Industrial
Conference............................... 214
Roosevelt, President, approved act creating
the Department of Commerce and
Labor..................... is
Rosenwald, Julius, member President’s Industrial
Conference................ 271
Rule 17-a......... 609,
607,635,641,656,662,674,699
Russell, Charles Edward, representative of
thepublic in National Industrial Conference
..................................... 214
Russell, Leo B., chief of Deportation and
Transportation Section........ 291
immigrant inspector in charge, D eportation
and Transportation Section. 579
Russia............................................................... 319,327
Great, future immigration from................... 327
“Russian Empire and Finland,” name
changed to “Russia”....... 319
Russia, Soviet, deportations to....................... 171
See Soviet Russia.
INDEX, 965
Page.
San Diego, Calif., smuggling operations of
fishing boats operating out of............ 570
San Francisco, headquarters immigration
district No. 18.................... 631
San Juan, P. R., headquarters immigration
district No. 21......................... 625
San Pedro, Calif., smuggling operations of
fishing boats operating out of............ 570
Scharrenberg, Paul, representative of labor
National Industrial Conference......... 214
Seager, Henry R., member President’s Industrial
Conference................. 271
Seamen, afflicted, bill placing responsibility
on ship owners for bringing in........... 302
alien................................................................... 580,
588,598,603,608,612,616,622,626,632,
639,645,647,651,653,662,676, 682, 701
administrative fines assessed against
transportation lines violating act relating
to......................................... 572
Chinese............................................................ 588
control of alien, by Immigration Service... 170
increased work of Immigration Service... 170
deserting alien, by ports............................... 484
diseased, removal of...................................... 568
distressed, returned to 'United States by
American consuls................................. 570
Great Lakes, examination of............. .......... 569
identification cards for................................... 566
importance of hospital service for................ 300
inadmissible classes traveling as.................. 300
increased volume of work in enforcement of
regulations concerning........................ 300
necessity for a follow-up system in enforcing
regulations................................. 301
number afflicted with disease....................... 300
number deserting................................. 301
number examined, etc., at various seaports,
table showing....................................... 571
transfer of supervision of shipping commissioners
to Department of Labor
recommended....................................... 301
Seamen’s work, report on................................ 565
Seattle, Wash., headquarters immigration
district No. 16........................ 638
immigration quarters at............................ 311
Second International Labor Conference, at
Genoa, Italy......................................... 211
Secretary of Labor, address of, opening International
Labor Conference.... 205
appellate authority of, in exclusion cases.. 73
directed to deport aliens teaching an archy. 77
duties of.............................................................. 23
exclusive authority of, to issue warrants in
expulsion cases........................................ 73
exclusive jurisdiction of.................................... 73
jurisdiction of, over exclusion and expulsion
of aliens................................... 73-76
no criminal jurisdiction possessed by......... 78
quasi-judicial authority of...................... 74
report of, conclusion of.......................... 221
on coordination of certain departmental
functions.................................... 228-235
Serbs, Croats, and Slovenes, Kingdom of the. 319
Page.
Sheppard, L. E., representative of railroad
brotherhoods in National Industrial
Conference............................................ 214
Ship owners, bill placing responsibility on,
for bringing in diseased seamen......... 302
Sisson, H. R., special representative on Chinese-
exclusion work............... 575
Slade, George T., member President’s Industrial
Conference................ 271
Smuggling...................................................... 593,600,
606,613,618,624,635,646,670,684,685
and surreptitious entry of aliens.................. 304
and unlawful entry, legislation needed to
prevent.................................................. 305
Smyth, Nathan A., Assistant to the Secretary
of Labor in International Labor Conference.....................................
203
Soldiers and sailors, placement of, through
Employment Service............ 152
Solicitor, as Acting Secretary............................ 77-78
duties of........................................................... 23
Soviet Russia.................................... 285,312-313,327
deportation of aliens to................................. 171
Spain and Portugal, marriage laws of............ 299
Spargo, John, representative of the public in
National Industrial Conference......... 214
Standards for working children....................... 181
Standards of development for working children.........................................
738
State labor bodies, cooperation of Bureau of
Labor Statistics with............ 275
State labor legislation, efforts toward standardizing,
by Bureau of Labor Statistics...........................................
275
Statistics, complete, of Japanese immigration................................
298,540-547
Stewart, Ethelbert, Commissioner of Labor
Statistics................................. 282
Stewart, Judge T. L., injunction granted by,
against Mine, Mill, and Smelter
Workers’Union..................... 92
St. Louis, Mo., headquarters immigration
district No. 13........................ 667
Stowaways.............................................. 581,590,598,
604,610,613,616,623,627,632,639,648,677,701
alien, on vessels arriving, by ports.............. 484
extension of administrative-fine law to include............................................
295
number arriving............................................. 295
debarred and deported.................................. 295
Straus, Oscar S., member President’s Industrial
Conference................................. 271
Strikes, statement showing number handled
by Division of Conciliation.............115-142
threatened, statement showing number
handled by Division of Conciliation....................................................
115-142
Stuart, Henry C., member President’s Industrial
Conference.................................... 271
Supply Committee, General......................... 906-907
Supreme Court, decision of, in case of United
States v. Ching Fong........................... 574
Survey, Kentucky nutritional, by Children’s
Bureau....... . ......................................... 733
■MM ■■■■■■■■■■■■■■■■■■■
966 INDEX,
Page.
Sweet, L. D., representative of the public in
National Industrial Conference......... 214
Swindell, G. M., secretary Los Angeles Chamber
of Mines and Oil.. ............ 89
Syrians and Armenians, immigration of, into
United States............ 328
Tarbell, Ida M., representative of the public
in National Industrial Conference.... 214
Taussig, Frank W., member President’s Industrial
Conference................ 271
Teleky, Dr. Ludwig, of Vienna, studies by,
on effects of industrial life on children......................................
763,765
Third International Labor Conference, to
meet at Geneva, April 4,1921............ 211
Thompson, Dr. William O., member President’s
anthracite wage-scale commission...,.......................................
113
member President’s Industrial Conference...........
271
Tia Juana and Calexico, Calif., immigration
station at, recommended...... 716
Tighe, M. F., representative of labor in National
Industrial Conference. 214
Tittemore, J. N., member of National Industrial
Conference....................... 214
Titus, Louis, representative of the public in
National Industrial Conference......... 214
Tobin, Daniel J., representative of labor in
National Industrial Conference......... 214
Training and Dilution service. See United
States Training Service.
Training, industrial, for women and girls.... 198
Trans-Atlantic Passenger Conferences, negotiations
with.......................... 291
Trigg, Ernest T., member National Industrial
Conference............................... 214
Tucson, Ariz., smuggling at............................. 707
Uncapher, C. B., representative of Amalgamated
Association of Meat Cutters
and Butcher Workmen....................... 91
Underfeeding, studies of, in central Europe.. 761
Union of Russian Workers, members of, deported......................................
312
ordered deported.........................................79,171
United Mine Workers of America, contempt
proceeding against, canceled. 107
leaders of, charged with contempt of court.. 107
United States Bituminous Coal Commission,
award of.................................. 108
created by President Wilson........................ 107
United States Employment Service, activities
of................................... 146,924
in grain-belt harvest................................... 153
bills providing for establishment of, as permanent
bureau........................... 914
cooperation of, with States............................ 147
with welfare agencies.............................. 152,913
farm and harvest work................................... 926
general survey of the year.............................. 913
harvest labor report, 1919-20.......................... 927
Junior Division of.......................................... 154
report of............................. 931
junior work of................................................. 930
Page.
United States Employment Service, labor
clearance zones...................... 920
national clearing house for labor........148-151,915
organization of................................................ 923
placement of soldiers and sailors by............. 152
plan for a system oflabor clearance............... 917
professional classes placed by.................. 154-155
professional work of....................................... 947
reduction of appropriations for..................... 913
report of Director General of.......................... 913
report of employment activities................ 935-946
soldier and sailor placements by................... 925
special activities of......................................... 925
struggle of, owing to inadequate financial
resources..................................... 913
States and municipalities maintaining employment
bureaus..................... 915
status of future of............................... 142-145,948
sums appropriated by States for employment
bureaus............................. 915
war services of................................................ 43-44
woman’s work of............................................ 933
women’s employment work of... . ............... 155
work of, supported by commercial organizations............................................
913
United States Housing Corporation, character
of sales by.......... 159
organization of................................................ 39-40
sales methods of............................................. 158
sales realization.............................................. 157
summary of work of...................................... 159
work of............................................................ 156
United States, insular, immigration from....... 302
United States Training Service, bulletins
issued by................................. 38
creation of....................................................... 37-38
discontinuance of................... 38
Valentine, Joseph F., representative oflabor
in National Industrial Conference.... 214
Virginia, industrial conditions for women in.. 200
Virgin Islands, child welfare study in, need
for...................................... 745
immigration from.................................... 302
need for studying child welfare in........... 187
Visd system, passport............... ........................ 341
Vocational guidance for children entering employment..........................
185
Wage rate, discrimination in, against worn en. 199
Wages, hours oflabor, and industrial conditions
in important industries, study
by Bureau of Labor Statistics. 275
of women bread winners........................ 199
Wald, Lillian D., representative of the public
in National Industrial Conference.... 214
Walkouts, statement showing....................... 115-142
War Labor B oard, N ational............ ............... 34
War Labor Policies Board, composition of. . 35
organization of............................................... 34-35
Waters, Henry J., member President’s Industrial
Conference................ 271
Weaver, Gen., bill introduced by, to create
a Department of Labor...... .. 18
Welfare agencies, cooperation of, with United
States Employment Service. 152
Wheeler, Harry A., member National Industrial
Conference...................... 214
INDEX. 967
Page.
White, John P., member United States
Bituminous Coal Commission. 108
White-slave matters........................... 592,605,
613, 618, 624, 634, 640, 646, 651,
655, 659, 670, 673, 677, 684, 705.
Wickersham, George W., member President’s
Industrial Conference............. 271
Willard Building, space in, occupied by
Department of Labor.............. 20-21
Wills, H. E., representative of railroad
brotherhoods in National Industrial
Conference.............................. 214
Wilson, Hon. W. B., chairman Industrial
Conference called by the President.. 271
president International Labor Conference 208
Wilson, President............................................. 112
letter from Secretary of Labor to.............. Ill
letter of, to National Industrial Conference............................................
215
letter of, to representatives of anthracite
miners..... ....................................... 114
statement of, to anthracite wage-scale
committee...................................... 112
Wolfe, S. Herbert, report by, on “Care of
of Dependents of enlisted men in
Canada”.................................... 43
Well, Matthew, representative of labor in
N ational Industrial Conference.......... 214
Woman in Industry Service, continued as
the Women’s Bureau............. 35
organization of................................................ 35
See Women’s Bureau.
Women, discrimination in wage rate against. 199
effect of laws regulating their hours of work. 887
in American industry, new position of....... 198
in Government service.................................. 884
industrial conditions for, in States.............. 199
Women’s Bureau, cooperation of, with industrial
commission of New York... 887
with reclassification commission.............. 885
with State departments of labor.............. 889
with war work council of Y. W. C. A.... 886
educational material furnished by.............. 892
efforts of, to supply information concerning
women in industry................... 890
established as the “Woman in Industry
Service”................................................ 883
establishment of....................................... 197
formerly the Woman in Industry Service.. 35
investigation by, of general industrial conditions
for women..................... 890
of industrial conditions for women in
Kansas.................................................. 200
Page.
Women’s Bureau, investigation by, of responsibility
of wage-earning women for
support of others.......... 889
participation of, in First International
Congress of Working Women............ 200
in national and international conferences. 891
relation of, to State departments of labor.. 891
report of, on women in the Government
service......................................... 198
study by, of civil-service examinations.... 884
of industrial conditions for women in
Atlanta, Ga.......................................... 200
of training classes open to women............ 887
of women in rubber, electrical, and textile
plants............................................. 888
of women in the Government service.... 884
survey by, of industrial conditions for
women in Virginia............................... 200
on industrial training for women and
girls....................................................... 886
showing new position of women in
American industry......... . .................. 198
woman’s part in American industries
during the World War........................ 886
Women’s Division of Bureau of Immigration,
creation of, recommended.... 330
Women’s Immigration Section of Bureau
of Immigration, origin and functions
of.............................................. 176
Women, wage-earning, responsibility of, for
support of others.................... 199
Working Conditions Service, organization
and dissolution of................... 40
Working Women, First International Congress
of, participation in, of Women’s
Bureau.............................. 200
Works, H. A., Chief of Division of Publications
and Supplies.................. 910
World immigration, review of......................... 324
World War, officers and employees of Immigration
Service in........... 337-341
woman’s part in American industries during..........................................................
885
Young, Owen D., member President’s Industrial
Conference................ 271
Young Women’s Christian Association,
work of war council of........... 886
Zone, Asiatic barred.......................................... 169
Zones, continental United States divided
into, by Employment Service........... 149
labor clearance, of Employment Service... 149
o