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country, entered every branch of activity, and was, as a rule, quickly and thoroughly assimilated, the new immigration has consisted largely of single men, it has gone directly to the cities and to the manufacturing centers and has remained there. It has moved in racial groups and to a large extent has maintained them, and compared with the older immigration it, as a rule, shows a slighter tendency to become American citizens and the number who have gone to the land have been negligible.

The committee are of the opinion that in the present emergency a restriction should be applied to the type last described and are convinced that such restriction should be accomplished through some measure that will insure definite effectiveness. It is the belief of the committee, however, that the provisions in the House bill for the admission of relatives will not insure that definite result which the present situation demands. It is a well-recognized fact that the immigration from southern and eastern Europe is, to a very considerable extent, made up of relatives coming to join relatives who have preceded them and it is impossible to estimate or anticipate what the extent of the movement would be under the provisions of the House bill. It not only seems almost certain that it would be larger but that the system would be open to fraud and abuse; it would also result in a decided discrimination in favor of southern and eastern Europe as against the older immigration from northern and western Europe. Having reached these conclusions concerning the House bill the committee then gave consideration to the so-called percentage limit plan.

A percentage plan was suggested by the United States Immigration Commission in 1910 as a possible means of immigration control, but the proposal made at that time was a limitation to a certain percentage of the average immigration from such country for a given period of years. The publication of the census returns for 1910, however, afforded a new and more equitable basis for the purpose, and the plan was accordingly revised so as to limit immigration to a fixed percentage of the foreign born of each nationality resident in the United States. A bill limiting the number from any country in any fiscal year to 10 per cent of the natives of such country resident in the United States was introduced in the Senate by Mr. Dillingham, the chairman of the Immigration Commission, as early as June 2, 1913, but as the period of the war immediately followed and the flow of immigration almost ceased, the proposition was not pushed to a decision. In subsequent Congresses other bills to this effect were introduced by him, and in the present instance the committee had before it Senate bill 4627, which was introduced by him December 13, 1920. After careful consideration the committee adopted this bill as the best basis for temporary legislation and best designed to meet the existing emergency, and with certain changes it is recommended to the Senate as an amendment in the nature of a substitute for the House bill (H. R. 14461).

Briefly stated, the proposed amendment provides that until June 30, 1922, the number of immigrants who may be admitted to the United States from any country in any fiscal year shall be limited to 5 per cent of the number of natives of that class resident in the United States in 1910. Immigration from countries on the American continent and from adjacent islands and from China,

Japan and the so-called Asiatic barred zone is not subject to the provisions of the proposed amendment, so that in effect it is applicable only to European countries, Turkey in Asia, Africa, and Australasia.

The approximate number of immigrants who would be admissible from each of the various countries which come within the scope of the proposed amendment, compared with the average annual immigration from such countries in 1910-1914 is shown in the following table:

Number of natives of countries specified who were resident in the United States in 1910; average number of immigrant aliens who were admitted from such countries during 1910-1914; and the number who would be admissible annually under the Dillingham 5 per cent plan.

Attention is called to the fact that under the provisions of the proposed amendment the number permitted to enter the nited States in any fiscal year of the older immigration class from northern and western Europe, would be 337,020, when, as a matter of fact, the normal flow of this immigration annually from 1910-1914 was only 132,850. There is not reason to believe that such number would be increased under the provisions of such amendment.

On the other hand an examination of the table shows that the provisions of the proposed amendment would reduce the number of immigrants of the so-called new class, coming from southern and eastern Europe to a most remarkable degree. The reduction is indicated by the fact that the average annual immigration of this class in 1910-1914 was 738,612, while, under the provisions of the proposed amendment, it can not exceed 256,916 annually. In other words, the number admissible annually from southern and eastern Europe would be substantially one-third of the average number who

were annually admitted by the United States during the years

1910-1914.

The committee are of the opinion that the proposed amendment better meets conditions than the provisions of the House bill. That the admission into the United States during the next fiscal year of only one-third of the number of immigrants that were admitted annually for three years prior to the opening of the World War will meet every requirement dictated by prudence and will at the same time obviate the many objections which have been offered to a system absolutely prohibiting immigration of all classes except those mentioned in the House bill is confidently expected.

The present immigration laws of the United States are admirable for the protection of the United States against those who are physically and mentally defective as well as against all objectionable classes and conditions. Those who have not studied existing laws know but little regarding their breadth and character.

But new problems have been presented as the result of changed conditions in the United States resulting from our peculiar and excessive industrial development and from the changed conditions which have been caused and accentuated as the result of the World War.

Marked improvements are demanded in the administration of existing laws. Our national condition demands the adoption of new policies regarding the selection of immigrants who shall in the future be admitted to the United States and some strong policy must be adopted whereby a better selection and distribution of arriving immigrants shall be secured. The situation in the agricultural and rural sections of the country so far as common and agricultural labor is concerned is distinctly bad, and means must be adopted by which future immigration shall to a certain extent at least be deflected from industrial centers and find employment upon the land.

To study this problem and to frame adequate legislation is impossible during the present short session of Congress.

For the reasons stated the committee favor temporary legislation which, while it will protect the United States during the next fiscal year, will not operate to the great injury or disadvantage of sections and classes nor prevent the admission of such a reasonable number of immigrants as will meet present conditions in the United States.

O

66TH CONGRESS, }

SENATE.

{

REPORT No. 802.

LONGEVITY PAY FOR RESERVE AND NATIONAL GUARD OFFICERS.

FEBRUARY 14 (Calendar day, FEBRUARY 15), 1921.-Ordered to be printed.

Mr. SPENCER, from the Committee on Military Affairs, submitted the following

REPORT.

[To accompany S. 4894.]

The Committee on Military Affairs, to whom was referred the bill (S. 4894) to provide longevity pay for reserve officers and National Guard officers serving under orders of the War Department, having considered the same, report favorably thereon with the recommendation that the bill do pass without amendment.

This bill has the approval of the War Department as well as of the committee, as it is apparent that these officers should have credit for active service. The letter from the War Department approving this measure reads as follows:

The CHAIRMAN, COMMITTEE ON MILITARY AFFAIRS,

WAR DEPARTMENT, Washington, February 11, 1921.

United States Senate.

SIR: I have the honor to acknowledge the receipt of a copy of S. 4894, referred to me by your committee, with a request that it be furnished with the views of the War Department relative to this measure.

The omission of a provision, in the act of June 4, 1920, for longevity pay for reserve officers detailed to duty as additional members of the General Staff for this very important duty, was evidently unintentional.

The duty required of these officers necessitates the selection of officers of considerable experience and warrants their being placed on a longevity basis for pay.

recommend that S. 4894 be enacted.

Respectfully,

S R-66-3-vol 1—17

NEWTON D. BAKER,

Secretary of War.