Expenditures under this appropriation at present are as follows:

Mr. SHREVE. There seems to be an increase there.
Mr. CARR. There is not an increase.

Mr. SHREVE. No, there is not increase; it is by transfer. I wish you would explain that.

Mr. CARR. What seems to be an increase from $1,900,000 to $1,940,000 is not an increase at all. The appropriation entitled "Appropriation for interpreters and guards," has been discontinued, and we have thrown into this appropriation for salaries the classified men who were paid out of that appropriation; we have also thrown the guards and the other subordinates who were paid from the discontinued appropriation into the contingent fund, along with the janitors and people of that sort. The interpreter appropriation was $96,200; we have put $40,000 of it in this salary appropriation, and $50,000 in the contingent expense appropriation and omitted $6,200. So actually there is no increase whatsoever; in fact, there is a decrease of $6,200 in the whole appropriation.

Mr. TINKHAM. Will you kindly, for the record, describe the distinction and differences, if any, between the consul general and consul and vice consul, and their duties.

Mr. CARR. The consul is an officer who generally has charge of the consulate without general supervisory jurisdiction. A vice consul is the subordinate of the consul, either in his own office or in charge of a small office of his own situated in some other city. The consul general is an officer with all of those functions plus the super

visory jurisdiction and control over all the consuls and vice consuls in that political jurisdiction, or a part of the political jurisdiction placed under his charge.

Mr. TINKHAM. Which jurisdiction, of course, is set up officially in your department as being a consul general's jurisdiction?

Mr. CARR. Yes. For example, to put it in the concrete we have a consul general in Paris with jurisdiction over all the consuls and vice consuls, the consular agents in France proper. Then we have consuls at Marseilles, at Bordeaux, at Lyons, and other places in France, under the supervisory jurisdiction of the consul general in Paris.

In those consulates, at Marseilles, for example, we may have a junior consul under the senior consul in charge of that office. We certainly will have one or more vice consuls under the immediate jurisdiction of the consul in charge of that post. Then we have in the consulate a clerical force in addition.

We may have a vice consulate over at Toulon, under the jurisdiction of the consul at Marseilles, and responsible to him immediately and indirectly responsible to the consul general in Paris, who is the general in charge of the whole group.

Then we have a consular agent in one of the outlying places, under the consul at Marseilles, the consular agent not being a career or classified man, but merely a local business man. He is simply an officer who has a commission enabling him to sign papers and perform certain routine services there of a consular nature.

That describes the organization.

It is quite conceivable that in some countries where there is too much supervisory work for one consul general, we may divide the country in half and assign two consuls general to that country, and put each of them in charge of a part of the country.

Mr. TINKHAM. That is true in England, is it not?

Mr. CARR. It is temporarily true in England; we have a consul general in London and just at the moment we have one in Liverpool, but that is not meant to be a permanent arrangement.

Mr. SHREVE. About how many consuls general have we altogether? Mr. CARR. We have altogether 48, or plus seven inspectors, 56. Mr. TINKHAM. So that the roster of consul offices is as follows: Consul inspector, consul general, consul, vice consul, and consular agent,?

Mr. CARR. Yes, sir.

Mr. TINKHAM. No other officer under consular service?

Mr. CARR. Then there would be interpreters, senior and junior interpreters, those who are classified and began as students. Mr. TINKHAM. In Japan, China, Turkey, and Siam?

Mr. CARR. There would be student interpreters in the same country.

Mr. TINKHAM. Certainly.

Mr. CARR. Then consular assistants.

Mr. TINKHAM. What are consular assistants?

Then,

Mr. CARR. Consular assistants are junior men who come into the service at $1,500 a year and of whom there are at present 11. after the first year, they get $1,650. After the second year they get $1,800. After the third or fourth year they get $2,000 and are made eligible to appointment as vice consuls de carrière at $2,500.

Mr. TINKHAM. Will you explain the difference between vice consul and consuls de carrière?

Mr. CARR. There are two kinds of vice consul, there are vice consuls who are not career men, who perhaps are clerks and have commissions as vice consuls to enable them to sign official documents and papers, or occasionally take charge of an office. Then there is a vice consul de carrière who enters the service under examination precisely as a consul does. He enters class 3 of vice consuls. Then he is promoted on merit, first to class 2 and then to class 1. Then to the grade of consul. Then he may go on up the line until he is made the consul general.

Mr. TINKHAM. So that the distinction between a consul de carrière and a vice consul is that one takes an examination and the other does not.

Mr. CARR. You mean a consul of career and a vice consul not of Yes, one has the option of being promoted on merit and the

career.

other does not.

Mr. SHREVE. You might explain the duties of the inspector as to whom he reports?

For

Mr. CARR. The inspector is a consul general at large; that he is given a territory which embraces a number of political divisions. instance, there is one inspector for Central and South America, another for the Far East, another for western Europe, another for eastern Europe, another for Africa, India, and Turkey, and one for North America.

They are expected to travel over those regions and inspect each consular office therein once every two years and make a detailed report on that office, on the personnel of the office, on the business of the office, on the character of the business being done, on the character of the personnel, on the conduct of the office, and make whatever recommendations they see fit to bring the office up to the required standard, and also as to the treatment of personnel. They make a detailed report of some 40 pages on each office.

Mr. SHREVE. Where is that report submitted?

Mr. CARR. That report is sent directly to the Secretary of State. Mr. SHREVE. Mr. Carr, you always have had an unexpended balance in this appropriation?

Mr. CARR. We have had the last few years, because we have not been able to fill our entire quota of offices. Of course there will be some small unexpended balance even if we were to fill all the places in the service. That is inevitable in any appropriation for salaries, there will be some unused portions of annual salaries, depending upon whether vacancies are filled instantly when they occur without permitting salary to lapse. We have had in the past few years a good deal of unexpended balance because owing to the failure of the United States to restore relations or enter upon relations with a number of these countries it was not necessary to bring the service to its full strength.

Mr. SHREVE. Well, could you not absorb this $40,000 transferred at the bottom of page 26, $40,000 in the estimate, salaries of Consular Service, for interpreters and guards, for which there was an appropriation for the fiscal year 1924, could you not absorb that item in this appropriation.

Mr. CARR. Not without removing some of the personnel we have. Mr. SHREVE. That would be necessary, would it?

Mr. CARR. That would be necessary.
Mr. SHREVE. What was your unexpended balance for last year?
Mr. CARR. Last year, 1923, $180,000.

Mr. SHREVE. Do you not expect to have an unexpended balance this year?

Mr. CARR. There may be a small unexpended balance from unused portions of salaries; but the only way we can estimate, sir, is on an annual salary basis of the men we have actually under employ. We now have on the rolls a sufficient number of men to call for the full amount of this appropriation.

REQUESTS FOR ESTABLISHMENT OF CONSULATES.

I should like to say this, in addition, for your information: That we have not asked for an additional appropriation under this head, although I have some 100 places at which various people, business men and others, have urged that consulates be established, we have not been able to establish them because we have not the money.

There is one further consideration, sir, and that is that if we draw a correct inference from the action of the immigration committee we might contemplate, I presume, carrying with the Consular Service a large burden of the selection of immigrants abroad and that will mean that we ought to keep our service fully staffed with career men. Mr. ACKERMAN. Have you attempted to make any estimate from the bill as it is introduced as to the burden it would be upon this department?

Mr. CARR. The bill as Mr. Johnson reported it would according to the best figures I have been able to give, probably require a million and a half dollars increase in appropriation. I think possibly that might be scaled down a bit if some suggestions which the Secretary has made are adopted in connection with the administration features of the bill.

Mr. ACKERMAN. Ten per cent?

Mr. CARR. Yes, I think quite as much as that. I think, for example, that they could simplify the administration of that bill by doing away with the immigrant's certificate and taking instead a certified copy of the application of the immigrant. That would reduce the clerical work tremendously in the consulates and accomplish the same purpose that the committee has in mind.

Then there is the further consideration also that we are being called upon constantly by both the Department of Commerce and the Department of Agriculture, and by other departments, for assistance abroad in gathering information, and the only way we can hope to do that work effectively and astisfactorily is through the career men. We can not trust unclassified clerks to do that kind of work without at least supervision of capable career men.

Mr. WRIGHT. These points that Mr. Carr brings out, the fact that we have received requests from bona fide interests to establish something approximating 100 new offices, is another way of answering the question which either you or Mr. Tinkham put this morning as to the reason why our activities were increased and our staff necessarily increased.

Mr. SHREVE. Mr. Secretary, would you please insert a list of those places.

Mr. CARR. I have them right here.

DIGEST OF RECOMMENDATIONS FOR ESTABLISHMENT OF CONSULAR OFFICES AND FOR INCREASES IN GRADE THEREOF.

ABYSSINIA.

Adis Abeba (consulate general).—Recommended strongly by Consul General Skinner and former Ambassador Davis.

AFRICA.

Accra, Gold Coast.-Reasons: United States Shipping Board line from New York to West Africa; remoteness from consulate at Dakar; and commercial importance of the Gold Coast. Recommended by American firms.

Beira, Portuguese East Africa.-Reasons: Increasing importance of Beira; regular trade between Beira and the United States; and regular calls by American vessels. Recommended by American firm.

Boma, Congo.-Reasons: Large mineral and agricultural resources being developed to high degree by Belgian Government. Recommended by private firms.

Ceuta, Morocco.-Reasons: Difficulty of communication with Spain; expenditure by Spanish Government of large sums on public work; extension of roads, harbor, and port works, and encouragement of colonization; and markets of the district have been largely supplied by English, French, German, and Spanish products and there is a wide field for the introduction of American products. Recommended by Consul General Hurst, of Barcelona and Habana.

Elizabethville, South Africa.-Reasons: Remotness of Katanga district from nearest American consulate at Johannesburg; general manager and most of principal employees of the important copper smelters of the "Union of Miniere" in that vicinity are American citizens; and large numbers of American missionaries in Belgian Congo. Recommended by Consul General at Cape Town. Melilla.-Reason: Same as for Ceuta.

Mogador, Morocco.-Reasons: Certification of invoices and issuance of disinfection certificates. Recommended by Consul General Maxwell Blake.

Lagos, Nigeria.-Reasons: Establishment of United States Shipping Board line between New York and West African ports; remoteness from nearest consulate at Dakar; and Nigeria has a population of from sixteen to eighteen millions of the most progressive natives of West Africa, with a foreign trade now amounting to about $100,000,000 a year, which should increase at the rate of 5 per cent annually. Recommended by Consul Yerby, of Dakar, and by a great number of American firms.

Lobito. Establishment of vice consulate recommended upon completion of Benguela Railroad to relieve Johannesburg. Recommended by Consul Reed Paige Clark.

Stanley Pool.-Vice consulate recommended, with ample jurisdiction to handle business originating in West Congo. Recommended by Consul Reed Paige Clark.

Tetuan, Morocco.-Same as Ceuta.

ALBANIA.

Koritza.-Recommended by Albanian Federation of America.

ARGENTINA.

Bahia Blanca (consulate).—Recommended by Consul General Robertson, of Buenos Aires. Mendoza (consulate).-Same reason and recommendation as for Bahia Blanca. Tucuman (consulate).—Same reason and recommendation as for Bahia Blanca. Consulate at one of the Patagonian ports.-Same reason and recommendation as for Bahia Blanca.

BOLIVIA.

Puerto Suarez.-Reasons: No American consular representatives in eastern Bolivia; many American citizens passing through eastern Bolivia and must call upon British vice consul for assistance; difficulty of entering Argentina because of strict regulations and lack of American consular assistance; and advancement of American trade interests. Recommended by Dr. W. L. Shurz, of Department of Commerce, and Mr. Fred D. Moody.