academic work as may be advisable for all persons over 14 years of age in industry and agriculture. 2. The passage of a law by Congress embodying the recommendations of the special commission on national aid to vocational education. 3. The authorization by Congress of the creation of a Federal board to administer funds appropriated by Congress to the several States for vocational education, the board to consist of three members, one educator, one representative of organized labor, and one representative of organizations of employers, to be appointed by the President, with the consent of the Senate, to serve for a term of six years, the first appointments to be for two, four, and six years, with salaries of $8,000 each per annum; the Federal board so constituted to establish rules and standards for expenditure of Government funds awarded to the several States. The Federal board shall require of each State asking for Government funds the adoption of the following standards before any awards can be made or funds be appropriated by the board: 1. Compulsory daytime continuation schools for all children in industry between the ages of 14 and 18 years for not less than five hours per week at the expense of their employers. 2. Night schools for all persons over 18 years of age who are desirous of further educational opportunities, either cultural or vocational. 3. Standards of efficiency for teachers. 4. Joint State control in administration of vocational education by public school authorities, organized labor, and organized employers, with equal representation. 5. The Federal board to establish some model schools for industrial training in agriculture and vocations as examples to the several States. SCIENTIFIC MANAGEMENT. Admitting that scientific management as a system presents certain possible benefits to labor and to society, the report proceeds to give a rather extended statement of its diversities and defects and concludes: Scientific management at its best has succeeded in creating an organic whole of the several departments of an institution, establishing a coordination of their functions which has previously been impossible, and in this respect it has conferred great benefits on industry. As regards its social consequences, neither organized nor unorganized labor finds in scientific management any adequate protection to its standards of living, any progressive means for industrial education, any opportunity for industrial democracy by which labor may create for itself a progressively efficient share in management. PRISON LABOR. Two recommendations are submitted: 1. The abolition as far as possible of indoor manufacture and the substitution of such outdoor work as that upon State farms and State roads, providing that where prisoners are employed they should be compensated and that the products which they manufacture should not be sold in competition with the products of free labor. 2. The enactment by Congress of a bill providing that all convict-made goods when transported into any State or Territory of the United States shall be subject to the operation of the laws of such State or Territory to the same extent and in the same manner as though such goods had been produced therein. IMMIGRATION. Discussing immigration the report urges restriction based upon the general provisions of the so-called Burnett-Dillingham bill. It recommends: 1. The enactment of legislation providing for the restriction of immigration based upon the general provisions contained in the so-called Burnett-Dillingham bill, which has received the approval of two successive Congresses. With a full realization of the many theoretical objections which have been urged against the literacy test, the concensus of evidence is so strong that its practical workings would be to restrict immigration to those who are likely to make the most desirable citizens, to regulate immigration in some degree in proportion to the actual needs of American industry, and finally to promote education in Europe, that it seems necessary at least to urge that this plan be given a practical test.1 2. The enactment of legislation providing that within six months from the time of entry all immigrants shall be required, under penalty of deportation, either to declare their intention to become citizens by taking out their first papers or to definitely register themselves with the proper authority as alien tourists, and further providing that all immigrants who have failed to take out their first papers at the end of two years shall be deported, as shall all who fail to take out their second papers when they become eligible, deportation in each case to act as a bar to future entry. 3. The provision by the States and municipalities, with the assistance of the Federal Government if necessary, for the education of all adult persons who are unable to speak, read, or write the English language. In order to accomplish this it may be necessary to provide that employers shall grant certain definite periods of leisure for such instruction. LABOR CONDITIONS IN AMERICAN COLONIAL POSSESSIONS. The investigations of the commission were confined to conditions in Porto Rico, and the following general recommendation is offered: That provision be made by Congress for early and thorough investigation of the industrial and social conditions in Porto Rico and all other American colonies. CHINESE EXCLUSION. The act creating the commission directed it to inquire "into the question of smuggling or other illegal entry of Asiatics into the United States or its insular possessions." The constructive suggestions and recommendations submitted on the subject of Chinese exclusion are based upon the findings of two special investigators, and are approved by the entire commission with reservations as to agencies of administration. Changes in the law. The following changes should be made in the law in the interest of administrative efficiency: 1. That the many laws relating to the exclusion of Chinese be codified into a comprehensive statute. 2. That Chinese alleged to have entered the United States surreptitiously shall be tried by administrative process, i. e., on Secretary of Labor's warrant-in all cases irrespective of time of entry or defense of citizenship. At the present time only 1 Dissented from by Commissioner Walsh. Report, p. 302. 11408°-15-5 Chinese alleged to have entered within three years may be tried on Secretary's war rant. 3. That immigration officers be specifically given the power of arrest or taking into custody. 4. That immigration officers be given the right to administer binding oaths in all cases arising under the immigration law. 5. That immigration officials be given the power to compel attendance of witnesses and the production of documentary or other evidence in all cases providing for punishment for contempt. 6. That the attacking of an immigration official or interference with him in the performance of his duties, or any maltreatment of him growing out of the performance of his duties, should be made a penal offense. 7. That the place of deportation to which contraband Chinamen shall be sent may be, in the discretion of the Secretary of Labor, the country whence he came, or the country of his citizenship, or the trans-Atlantic or trans-Pacific port from which he embarked for this continent. 8. That there be a clearer and more definite legislative definition of the exempt and the admitted classes. 9. That there be a clearer definition of legislative policy as to the status under the immigration and Chinese exclusion law of Chinamen admitted as exempts and subsequently assuming a nonexempt status. 10. That the pecuniary and family conditions for the return of Chinese laborers in the United States to China be repealed. 11. That the recommendation of a new registration because it is needed to enforce the present law be rejected. This must not be understood to mean a rejection of a new registration law as a part of legislative policy, but solely when it is urged for administrative reasons. 12. That masters of vessels be responsible for every Chinese member of their crew who was on board the vessel when it enters and is not on board when it is ready for clearance. United States commissioners. 1. That the jurisdiction of United States commissioners in Chinese exclusion cases be abolished, or, what is less desirable— 2. That the following changes in the system be made: United States commissioners should receive adequate compensation for the service rendered. United States commissioners should be made courts of record and stenographic and other expenses provided for. The Government should be given right of appeal in Chinese cases. The judicial system. 1. That the handling of cases of contraband Chinamen should be by administrative rather than by judicial procedure. 2. That the present administrative procedure be continued practically without modification, except for the improved handling of appeals as recommended elsewhere in these suggestions. 3. That writs of habeas corpus should be issued only on the basis of a prima facie case. 4. That in criminal cases (smuggling) full sentences should be imposed instead of light sentences as at present. 5. That, if advisable, the cases of contraband Chinamen might be held under the board of special inquiry procedure provided for in cases of immigrants not passed upon primary inspection for admission. The adoption of this suggestion would necessitate the employment of a considerable number of additional men—and for this reason ought not to be adopted immediately. General administration. 1. Definitely withdraw the order of 1905. 2. By conference with Treasury Department provide for more careful sealing and supervision of sealed freight cars crossing the border— a. By placing seal number and place of each car on the manifest. b. By taking number and place of each seal of each car independently, and testing seal. c. By comparing local record with manifest immediately. d. By examination of contents of each car where there is the least discrepancy or suspicion. The selection of inspectors. 1. That the position of Chinese inspector be revived. 2. That the selection of Chinese inspectors by civil-service examination for general immigrant inspectors be continued. 3. That the present examination be changed in scope as follows: a. That all papers now required be omitted except "practical questions." b. That greater credit-larger proportion of examination-be given for practical experience in handling the public. c. That new examination in report writing be given to include a practical test in condensation-material to relate to immigration, formulation of a report on a given statement of fact, letter writing. d. That the examination include a test on Canadian immigration laws. e. That it include a test of knowledge of our National Government, particularly of those departments that are related to the work of immigration-Treasury Department, Congress, the judicial system, Department of State. f. That, if possible, an oral examination be included. g. That the examination include somewhere questions on the relation of immigration and emigration to a national policy, on immigration as an internal policy, and a general history of immigration. 4. That the examination have specific reference in its questions to immigration work and not be mere general tests. 5. That Chinese inspectors be selected from the more experienced immigrant inspectors who show an inclination and ability in the special requirements of this end of the service. 6. That the probationary period of an immigrant inspector be one year. Chinese interpreters. 1. That in the selection of interpreters the present examination be continued, except that in testing ability to translate or interpret actual cases be taken in course of routine work rather than the present moot examination. 2. That in securing candidates for positions as interpreters the Immigration Service should look to the large number of Chinese students in our universities, particularly those who are here at the expense of the United States Government (the Boxer indemnity money.) 3. That the position of Chinese interpreter be graded into two grades at least, as follows: a. Those who can interpret the spoken Chinese of one or more dialects. b. Those who can, in addition, read the written language. 4. That the salary program outlined for inspectors be adapted to the interpreters. 5. That a conference be arranged by the various departments of Government who use interpreters of Chinese to work out some plan of securing honest, capable interpreters-perhaps in cooperation with the universities. A staff organization at Washington. 1. That there be established at Washington a staff organization including at least— a. Another Assistant Secretary of Labor to handle Chinese appeal cases, etc. b. A central law organization providing for the continuous study of the legal aspects of immigration. c. A central Chinese smuggling bureau reinforcing district administration in its attempt to deal with smuggling gangs and other organized smuggling. d. A central agency of training and inspection, providing for the continuous supervision and training of the men in the service. e. A central clearing house of information and records. 2. That it be specifically made a function of the division of supervision and training to keep district officers informed as to a. Significant court decisions in all districts. b. Significant discoveries of district offices, e. g., the Japanese (Korean) passport case. c. Effective methods of handling particular situations, e. g., of commissioner who refuses to give full credence to preliminary hearings before immigrant inspectors by bringing contraband Chinamen immediately before commissioner. d. Chinese refused papers in any place. 3. That this organization should keep field officers informed as to forward steps and other significant developments. Salary plan. 1. That the service be regarded for salary purposes as a unit rather than as 23 individual units. 2. That the administrative officers work out a detailed plan of graded salary increases. 3. That there be an annual increase in salary of a definite amount for a definite number of years of service upon certification of meritorious service during the preceding year. On the basis of an initial salary of $1,380. it seems to us there ought to be an annual increase of at least $36 per year for 15 years, making a maximum salary of $1,920. The specific amounts named are offered as suggestions. 4. That positions in the service ought to be graded and correspondingly higher initial salaries provided for the higher grades. The system of annual increases, perhaps of the same amount, ought to be provided here. A larger increase for a less number of years might be advisable. It should be provided in this connection that a man promoted from a lower to a higher position, if he is receiving a higher salary than the initial salary of the higher position, should receive the next higher salary to the salary he is receiving in the lower position. A person standing in a little house watching those who come across an international bridge in Suspension Falls, another doing primary inspection work on beard of inquiry work at Ellis Island, another working "under cover" among the thugs cf Buffalo and being beaten into insensibility, another doing train inspection work, would receive no pay because of difference of duties. It is submitted that some recognition of this difference in duties ought to find expression in the salary schedule. 5. Superior service should be rewarded both by formal commendation and by salary increases. Two provisions might be included: a. The reward for a single brilliant piece of work, such as working under cover with smugglers, risking one's life, and landing the gang in jail. b. The provision of a higher annual increase for men giving continuous superior service. |