countries as well as in the Western Hemisphere. The 172 aliens who were admitted as coming from the Virgin Islands of the United States were 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.

FINANCIAL CONDITION OF ALIENS,

The 1,554 aliens admitted into Porto Rico as coming from foreign during the year had in their possession money in the total amount of $559,949, divided as follows: Three hundred immigrants, $35,796, or $119.32 per capita; 1,254 nonimmigrants, $524,153, or $417.98 per capita.

CONTRACT LABORERS.

There were excluded and deported during the year three contract laborers, and that the number of exclusions is not greater is undoubtedly due to the fact that the large proportion of the immigrants, particularly coming from Spain, are so well informed on the contract labor provisions of the immigration law that it is extremely difficult to secure sufficient evidence to exclude. There are no section 24 inspectors attached to this district and the regular force is at all times occupied in connection with the examination of arriving aliens, for which reason it has been impossible to investigate cases of suspected contract laborers who were admitted upon arrival on account of lack of evidence to exclude. During the fiscal year a Spanish subject, a long-time resident of Porto Rico and prominent business man, who had appeared as the principal witness in the case of an alien contract laborer, pleaded guilty in the Federal court to a charge of perjury and was sentenced to one year's imprisonment in the Federal prison at Atlanta, Ga. The case of this person was pending in the Federal court at the close of the last fiscal year.

ILLITERACY.

During the year there were excluded by boards of special inquiry four illiterate alien passengers, and 2 illiterate seamen were deported on department warrants. These figures, however, are in no way indicative of the number of illiterates who arrived during the year at ports of the island, illiterate seamen who came here in pursuit of their calling representing about 8 per cent of the 15,567 alien seamen examined.

MEDICAL EXAMINERS.

The medical examinations as conducted at the port of San Juan are not considered satisfactory, for the reason that the medical officer, who is also connected with the Public Health and Quarantine Services, frequently can not devote such time and care to the examination of alien passengers and seamen as should be done for the purpose of a proper enforcement of the act of February 5, 1917. When it is considered that the medical officer, whose time is divided among three assignments, in the course of the year examined 15,567 alien seamen and 1,587 alien passengers, the present medical inspection system can not be considered satisfactory. In view of the fact that medical certifications in the cases of alien seamen afflicted with a loathsome or dangerous contagious disease have greatly increased during the past year in this district, it would seem that a rigid form of medical inspection should be practiced and that a medical officer should be charged with this work who might devote his entire time and attention to the interests of the Immigration Service. It is urgently recommended that this matter be taken up with the Surgeon General with a view of having a medical officer for solely immigration work.

PASSENGER SHORE LEAVE.

The utmost care was exercised in granting shore leave to alien passengers arriving at ports of Porto Rico from foreign countries, and permission to go on land was granted only in exceptional cases, when the alien was in possession of the documents required under State Department regulations and after he had been examined not only under the immigration law but also by officers representing the various intelligence services. In all, 160 aliens were granted shore leave, the majority of these being citizens or subjects of allied countries and beyond a doubt friendly disposed toward the United States.

OFFICE QUARTERS.

While under ordinary conditions the office quarters of this service, located on the third floor of the new Federal building, and consisting of four rooms, are adequate for the proper transaction of the public business, they proved unsatisfactory during the past year, due to the fact that the employees handling the work of the Passport-Permit Division under the direction of the State Department occupied one-half of the office space, thus causing crowded conditions.

PROSECUTIONS.

One alien whose case was pending from last year pleaded guilty to an indictment for perjury before a board of special inquiry and was sentenced to one year's imprisonment at Atlanta Penitentiary.

One case against the master of an American vessel for violation of section 8 of the immigration act was dropped on the recommendation of this office.

Prosecutions were instituted against nine persons for violation of various Federal laws, as a result of reports made by this office.

In addition to the above, about 50 American citizens were referred to the United States attorney for investigation, such persons being suspected of having failed to register under the selective service act.

WHITE-SLAVE MATTERS.

There were reported to the United States attorney during the year three cases where Porto Rican women were about to proceed to the mainland of the United States for an immoral purpose, their passage having been arranged by suspected importers. The departure of the persons in question was prevented, one by the Department of Justice and two by the passport-permit officers.

CHINESE.

Two Chinese laborers arrived at the port of Fajardo from the Virgin Islands of the United States, were examined, excluded and deported, namely, M. G. Jam Sion and Li Lock.

HABEAS CORPUS.

There were no habeas corpus proceedings had in this jurisdiction during the fiscal year.

ALIEN ENEMIES AND HOSTILE ALIENS.

Only two alien enemy passengers applied for entry into Porto Rico during the year, both of whom were found admissible.

There were admitted during the year 29 hostile aliens, subjects of countries associated with Germany in the war. They were all Syrians, Turkish subjects and French protégés, and held proper permits to enter under State Department regulations. Two of these aliens proceeded from Porto Rico to the mainland of the United States with State Department permits. There were also 15 other aliens of this class, residents of the mainland or Porto Rico, who proceeded to the mainland with proper State Department permits and were given by this service certificates, Form 546.

Fourteen alien enemies, natives or subjects of Germany, and one Austrian subject were given certificates, Form 546, for travel to the mainland of the United States.

LABORERS FOR WAR WORK.

There were no aliens temporarily admitted into Porto Rico under departmental orders for war work on the island or on the mainland of the United States.

However, 13,095 Porto Rican laborers were transported to ports of the mainland of the United States between September 19 and November 7, 1918, and the officers of this service were charged with the enforcement of the joint order of July 26, 1917, with regard to 11,593 of these war workers. The act of May 22, 1918, relating to the control of foreign travel, and the President's proclamation of August 8, 1918, which went into effect in Porto Rico November 1, 1918, were enforced in modified form under special authority of the State Department with regard to 1,502 laborers who departed for the mainland subsequent to November 1, 1918. Not only did this service, although handicapped by an all-too-small force of employees, use its best efforts

to protect the interests of the United States in enforcing the travel regulations but its officers also gave at all times unstinted assistance to the United States Employment Service and the War Department in connection with the recruiting, registration, and placing aboard ship of the war workers. On the other hand, this service is indebted to the United States Employment Service and the representatives of the War Department for their hearty cooperation in all matters affecting this service in connection with State Department work. The commissioner of immigration at this port on October 21, 1918, was appointed special agent of the Department of Labor. In this capacity he took charge of the offices of the United States Employment Service at San Juan and throughout the island, in addition to his duties as officer in charge of the Immigration Service. The task assigned to him was of considerable magnitude, not only in connection with the shipments of laborers to the mainland but especially with regard to the repatriation of the Porto Rican war workers, who after the signing of the armistice were returned to San Juan on Government transports, it being the duty of the special agent to arrange for transportation to their homes throughout the island, mobilize them for shipment, and take note of thousands of claims and complaints, provide for the care of sick or disabled workers, and attend to other details too numerous to be incorporated in this report without digressing from its primary purpose. It should be stated that although the offices of the United States Employment Service in Porto Rico were officially closed on March 22, 1918, there remained still a considerable amount of work to be done, disposing of inquiries regarding missing and dead war workers and assisting the War Department in the adjustment of accounts and claims.

GENERAL WAR ACTIVITY.

The officers of this service, in addition to performing their regular duties as immigrant inspectors and as control officers in connection with the enforcement of the travel regulations with regard to incoming passengers and crewmen, were during the year particularly active in cooperation with the naval and military intelligence services and the Department of Justice, devoting all possible time and energy to matters not falling directly withir. the scope of their duties but of importance to the services mentioned.

PERSONNEL.

The officers and employees of this district are deserving of the highest praise for the manner in which they performed their duties. This is particularly true with regard to the immigrant inspectors. Due to their all-to-small number these officers were compelled to work exceedingly long hours practically throughout the entire year, being on duty as a rule seven days a week from sunrise to sunset and frequently to a late hour of the night. It was seldom possible to allow them a day off for rest or recuperation, needed so much in a tropical climate. Although overworked, at all times they performed their duties, no matter how taxing to their physical endurance, willingly and cheerfully and with commendable efficiency. In order to arrange for reasonable working hours and to make possible for inspectors one day off in each week for rest and recreation, at least one additional immigrant inspector should be assigned to the port of San Juan at an early date. In this connection it should be stated that the Immigration Service is the only Federal or insular service which so far has not been able to give its employees at least one day off in seven.

SUGGESTED AMENDMENTS TO IMMIGRATION LAWS, RULES, AND REGULATIONS. 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. There seems to be no good reason for this. Aliens entering either possession from foreign countries are examined under the immigration laws, and therefore no restrictions should be placed on legally admitted aliens who subsequently may desire to travel mfro one possession to another.

Provisions should be made for the exemption from payment of head tax of aliens having a bona fide residence in Porto Rico and the Virgin Islands of the United States, who, without relinquishing such residence, visit West Indian islands for a temporary period of less than six months. This would place alien residents in the insular possessions on a 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 mentioned is so closely interwoven with that of the West Indian islands under foreign control that it would seem just and fair to make the provision indicated.

The present literacy test cards are unsatisfactory because, (a) The diction in the majority of cases is archaic or unusual; (b) the subject matter is frequently metaphorical or, at least, does not narrate thoughts of common experience; (c) unless the inspector is familiar with the language or dialect in which the test is made, it is impossible for him to verify whether or not the alien understands what he has read. To correct these defects it is suggested that for all languages and dialects cards be prepared in which the alien is required to perform some act or acts. This has been done for Japanese and Hindu, and is equally necessary in the case of many other languages.

PASSPORT PERMIT WORK.

Under cabled instructions received October 3, 1918, the acting commissioner of immigration organized passport-permit offices in the island of Porto Rico for the purpose of putting into effect the act of May 22, 1918, and the President's proclamation of August 8, 1918, regulating the control of foreign travel. Through the cooperation of Hon. Arthur Yager, governor of Porto Rico, who caused the blanks necessary for the enforcement of the travel regulations to be printed by the bureau of printing and supplies of Porto Rico, the service was fully established and ready to transact business on October 15, 1918. However, in view of a disastrous earth quake which had stricken the island on October 11 the enforcement of the passport-permit regulations was postponed by the Secretary of State until November 1, 1918.

PERMIT OFFICES AND ORGANIZATION.

Passport-permit offices were established at the ports of San Juan, Guanica, Ponce, and Mayaguez, at which applications for permits to depart were received by regular immigrant inspectors, officers serving under temporary appointments, and immigrant inspectors (excepted). At the subports of Fajardo, Aguadilla, Humaçao, Jobos, and Arecibo, where customs officers also act as immigrant inspectors and where passenger traffic is insignificant, it was not deemed advisable to establish permit offices. At the ports mentioned the officers were instructed to serve as travel-control officers in a dual capacity, namely, as immigrant inspectors for incoming passengers and crew members and as customs officers for outgoing passengers and crews. This arrangement met every need without causing any undue hardship to the traveling public. At the ports of Ponce, Mayaguez, and Guanica it was possible to cover both features of the passport work, permits for departing aliens and control of incoming passengers and crews, without any addition to the regular immigration force.

The permit office at San Juan, which as a matter of course was expected to handle the greater part of the passport-permit work, was organized with three officers serving under temporary appointments and one regular immigrant inspector. The latter, Roger L. Conant, who is a highly efficient officer of wide experience, was placed in charge of the entire passport-permit division under the supervision of the commissioner and acting commissioner of immigration. The personnel, subsequent to the organization of the passport-permit division to the close of the fiscal year, varied from four to eight employees, depending on the volume of business to be handled at the particular time. Although each and every immigrant inspector connected with the division acted as an independent permit agent, as contemplated in the act of May 22, 1918, the President's proclamation, and the confidential instructions, the assignment of an officer in charge made possible a proper systematizing of the records and files appertaining to passport work and assured uniform practice in the enforcement of the travel regulations. It further facilitated the conduct of necessary investigations, the officer in charge assuming this work with regard to practically all applicants for permits to depart. In order to make the investigation work as efficient as possible, the officer in charge secured the cooperation of the Department of Justice, the naval and military intelligence services, the insular police department, and of such other United States Government officers as were in a position to furnish information about an applicant. This plan worked very satisfactorily for the reason that frequently reports were corroborated from a number of sources. Permit agents in San Juan as well as in subports performed their difficult duties with credit to themselves and the department which they represented. Although the public was at first somewhat antagonistic to the enforcement of the passport regulations, this was soon overcome by the tact of the permit agents.

They were received by permit agents in the island and acted upon, either locally or by the State Department, applications for permits to depart from 1,213 aliens, of whom 382 were destined to the mainland of the United States, 362 to near-by islands under foreign control and the Virgin Islands of the United States, and 469 to foreign countries in the Western Hemisphere and Europe.

Of the 1,213 applications for permits to depart filed by aliens, 606 were granted by the Foreign Permits Office of the State Department, 561 were granted locally by permit agents, 23 refused by the Foreign Permits Office, and 23 were left pending at the close of the fiscal year.

In addition to the above applications, immigrant inspectors acting as control officers for incoming passengers, granted permits to depart to approximately 750 aliens of the transient class, in accordance with the requirements of the confidential instructions. American citizens numbering 3,222 applied for departure permits in the form of identity cards. In this number are included American citizens who were given identity cards under the travel regulations enforced between July 1 and October 30, 1918. Of the 3,222 citizens, 1,754 were destined to the mainland of the United States, 1,468 to near-by islands under foreign control and the Virgin Islands of the United States.

Of the applicants, 3,180 were granted identity cards, 22 refused, and 20 applications were pending at the end of the fiscal year.

In addition to the above, 11,593 war workers were granted permits to depart for the mainland of the United States under travel regulations promulgated under the joint order of July 26, 1917, and 1,502 of such workers were given permits under the act of May 22, 1918, and the President's proclamation, the Secretary of State having authorized certain modifications with respect thereto.

Including 13,095 war workers, permits to depart were granted during the year to 16,317 American citizens.

Immigrant inspectors in Porto Rico, primarily assigned to immigration work, exercised the functions of control officers for the State Department under the joint order of July 26, 1917, the act of May 22, 1918, and the President's proclamation of August 8, 1918, with regard to approximately 68,433 persons arriving at ports of the island from the mainland of the United States, the Virgin Islands of the United States, and foreign countries.

DETENTION OF PASSENGERS.

There were detained during the year at ports of Porto Rico for secondary examination, primarily under the passport regulations, 97 alien passengers and 1 American citizen. Of the alien passengers who were detained, 7 were excluded.

The 97 detentions referred to above were made with regard to 20,706 regular passengers destined to ports of Porto Rico, of whom 2,219 were aliens. There were detained aboard vessels approximately 24,000 transient aliens who had to be refused shore leave under the travel regulations.

COMMISSIONER OF IMMIGRATION, SAN FRANCISCO, IN CHARGE OF DISTRICT NO. 18, COMPRISING NORTHERN CALIFORNIA AND NEVADA AND THE ANGEL ISLAND IMMIGRATION STATION.

APPLICATIONS.

The total number of alien applicants for admission considered at this port during the fiscal year ended June 30, 1919 was 14,913, of which 14,701 were new applications, there having been 212 cases pending at the close of the previous fiscal year. Of these 14,624 were admitted, 136 were debarred, and 153 were still pending on June 30, 1919. The above figures do not include any passengers landed as citizens of 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 3,773 Chinese in transit under bond.

In addition to the above, there were 630 new applications for admission as Americar citizens of the Chinese race, of which applicants 621 were admitted, 18 deported, and one died prior to the determination of his status, leaving 38 cases pending at the close of the year. Fourteen cases of this class were pending at the close of the fiscal year 1918. Although it was anticipated that, with the opening of the Panama Canal, a considerable portion of European immigration entering the United States would seek admission through the port of San Francisco, that expectation has not been realized, doubtless by reason of war conditions; and immigration through this port is, as heretofore, almost exclusively confined to Japanese and Chinese, and aliens from the East Indies, Russia, Armenia, Mexico, and Central and South America. Chinese immigration still remains below normal, but it is believed that, with the removal of war restrictions on travel, there will be a large influx of aliens of this nationality.