to appear before Boards of Special Inquiry, appointed by the Commissioner-General. They consist of three inspectors, the decisions of two being final. An appeal may be taken from these boards to the Commissioner of the port, from him to the CommissionerGeneral, and from the Commissioner-General to the Secretary of Labor. The President may, of course, if he wishes to do so, review any case. The proceedings before the Board of Special Inquiry are private, but a complete copy is made of the record. In case of appeal, the record goes to the Commissioner of the port, and the detained immigrant appears before him in person. After the Commissioner renders his decision, the papers in the case are sent to Washington and placed on file.

Immigrants detained because of special inquiries or appeals, are maintained by the Government at the expense of the steamship companies. Those who are to be deported are held until the vessel on which they came is ready for its return voyage. Diseased aliens are treated in the immigrant hospital on Ellis Island until the time for their return to their native countries. In the case of contagious diseases which are not dangerous, or other curable diseases, when the alien intends joining a husband or wife in this country, he or she is allowed to stay in the hospital until a cure is effected.

INSPECTION ON LAND BORDERS

On the borders of Canada and Mexico, inspectors are placed on all trains entering the United States, at ferries, and near the principal roads, so that proper inspection may be made to exclude disqualified persons. The procedure followed, including the work of

physicians and of Boards of Inquiry in doubtful cases, is substantially the same as that followed at sea ports, and similar appeals lie to the authorities in Washington.

The law requiring the steamship companies to return debarred immigrants free of charge to the country of embarkation, has led to a careful medical inspection by the companies at the port of embarkation. This examination is usually made by physicians of the home country employed by the steamship companies, or by the ship's doctor. In the most important ports of Italy-Naples, Palermo, and Messina-by an arrangement between the two countries, special examiners of the United States Public Health and Marine Hospital Service have been detailed for the work. Tho their reports are unofficial, the companies, of course, always accept them. In other countries and ports the American consul sometimes recommends an examiner, who is paid by the steamship company. In some instances the company has a preliminary examination made at the place of purchase of the ticket before the would-be emigrant leaves his home. These measures are very helpful in preventing needless expense and often great suffering on the part of the emigrant, and they ought to be everywhere adopted.

DIFFICULTIES OF ADMINISTRATION

The enormous difficulties of a just, humane, and still strict enforcement of the law appear when one considers that at the port of New York sometimes 5,000 immigrants are admitted in one day; that it is impossible, in consequence, to give much time to each. doubtful case; and that the cases themselves are often of extreme complexity, involving judgment of health,

of character, of purpose, of future promise. Often on account of the defects of a single member, the law commands the separation of a family, or the turning back of all its members from what has been to them a land of promise. At times the rigid enforcement of the law means the public disgrace of one who to his family and the world at large has borne hitherto a good reputation, and whose exposure would seem to work only injury to all. Sometimes even the decision to reject what the law requires, seems little else than the death warrant of the applicant.

For officials vested with such responsibilities, the immigration service should demand and pay for men of ability, training, and the highest character.

XVII

REMEDIES

Few New Laws Needed

From the discussion in the preceding chapters it appears that in many directions our immigration laws are satisfactory, and are administered with a satisfactory degree of efficiency. On some few, but extremely important matters, however, further legislation or some changes in the administrative methods seem desirable.

It appears from the investigations of the Immigration Commission, as has been stated in preceding chapters, that the health of our country is fairly well protected along all lines affected by immigration, with the exception of the diseased alien seamen, who, owing to the laxity of our laws regarding the inspection of seamen, frequently bring contagious or loathsome diseases into this country.

There seems little need of further legislation to exclude paupers or those likely to become a public charge. The present rather rigid enforcement of the laws as shown by the customs regarding certain classes of immigrants, such as the Hindus, who are held likely to become public charges, not so much because they are physically or mentally weak, but because of the race prejudice against them-is likely to prevent any serious danger from this source.

On the other hand, it seems desirable that more effective measures be taken to prevent the further

admission of immoral persons and of criminals, both those coming as immigrants and as passengers on our steamers, and especially, perhaps, those coming as alien seamen, with the intention of entering the country by desertion.

The chapter on congestion in our great cities, and still worse in some of our mining and manufacturing centers, makes clear the need of making better provision for the distribution into the smaller towns, and especially into the agricultural districts, of a much larger proportion of the immigrants.

INDUSTRIAL CONDITIONS DEMAND RESTRICTION

Of far greater importance, however, than any legislation along these lines is the necessity of further restriction on account of our present industrial conditions.

As has clearly appeared from the preceding chapters, the great increase of immigration of late years has been such that there has been beyond doubt a strong tendency toward the lowering of the standard of living of our industrial laborers. As, according to the so-called Gresham's law in the distribution of the monetary circulating medium, a poorer currency tends to drive out a better one, so among the wage-earning classes in any community, as Mr. Mackenzie King has pointed out, a like principle is found. The wageearners with the lowest standard of living, even tho they are somewhat less efficient, tend strongly to replace the more ambitious workers with higher standards. With their lower ideals they will underbid for employment, and the employers naturally hire the cheaper workmen, even tho, in the long run, the community may be injured.