report submitted by this Department on the 23d day of February, 1910, to the chairman of the Senate Committee on Civil Service and Retrenchment.

Mr. W. L. Soleau, in September, 1911, resigned the position of Disbursing Clerk. As his successor I appointed Mr. George Johannes, who has risen from the position of messenger, which he held as late as 1902.

The economies which were introduced by the Chief of the Division of Publications, and to which reference was made in my last report, find further illustration in this year's showing of that Division.

The Solicitor's Office is not strictly a branch of my Department, but dependence upon that office is so constant that I must express my indebtedness to the Solicitor and his associates for their regular assistance, and more especially for the unremitting interest which they have shown in the success of the Department's general york.

About the Bureau of the Census an adequate impression can be gained only by reading the more complete report. The work of the Thirteenth Decennial Census has, however, advanced sufficiently to justify the statement that the regular administration in the District of Columbia will cost less than it did in the last census; also that a larger total appropriation than was made for the Twelfth Census will be needed. This is explained by the larger territory to be covered, by the increase in population, by the enormous growth of industries, by the requirement for taking a census of a large class of objects not heretofore included, by the statutory provision for higher compensation to supervisors, and in certain instances to enumerators, and by the absolute necessity for paying higher compensation to enumerators generally. The reports of this Bureau, it is believed, will be issued in a form both useful and convenient, and if necessary appropriations are made will appear within the time contemplated by law.

In connection with the Bureau of Immigration and Naturalization, I renew my recommendations of last year; more particularly that inspectors and physicians be placed on ships carrying large numbers of immigrants, and that heavier fines be imposed upon steamship companies for bringing aliens afflicted with contagious diseases. I also recommend that provision be made for the continued protection of immigrants after their landing, even to the extent of having receiving stations at important inland points; that a larger discretion be lodged in some official to admit unfortunate members of an incoming family, where the showing made protects society against burden and danger; that more discretion be given commissioners to sustain appeals from the decisions of boards, so as to relieve the immigrants from unnecessary discomfort and delay and the Secretary's Office from the constantly increasing burden of detail work; that the period

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for deporting confessed criminals be extended; and that amendments to the immigration laws, whatever their form, may look as far as possible to examinations to be had before embarkation or at the time of entry, and may not place too much reliance upon the drastic writ of deportation.

I call particular attention to the much-needed improvements at Ellis Island, a situation which was clearly shown during the hearings before the House Committee on Rules. As much is true at Galveston, where the detention station is finished and has been accepted, but a small appropriation is needed to furnish the station. In Philadelphia an appropriation is needed to complete the authorized expenditure for the completion of the station. In connection with all of them it may be well to remember that the cost of the Immigration Service does not exhaust the head tax collected from immigrants and turned into the Treasury.

The Division of Information has had increased success in the distribution of immigrants to points where labor is needed. This, of course, means chiefly farm employment, for the supply of which there is a steadily growing demand. The plans of the Chief of the Division contemplate a system of cooperation between his Division and the State immigration commissioners.

The Division of Naturalization is working with an inadequate force, but returns a balance of $65,982.60 to the general revenue.

The Bureau of Corporations had an unexpected opportunity to demonstrate the value of its work in connection with the reorganization of the Tobacco Trust. This business had been investigated and reported upon. When the Attorney General came to consider plans for the reorganization, the Bureau was in a position to meet his request for assistance by assigning for that purpose an expert who was thoroughly acquainted with the character and operations of the concern. Other investigations and reports pertain to the lumber industry, transportation by water, the International Harvester Co., steel industries, and State taxation of corporations.

The Bureau of Labor is engaged in a number of investigations, among which, perhaps, the most immediately interesting is the inquiry into the cost of living. This report promises to be thorough and to provide a basis for intelligent discussion of this much-mooted question. In addition, reports are being prepared on conditions of employment in the iron and steel industry, on the employment of women and girls in the larger cities, on industrial diseases in various industries, and on the labor laws of the principal industrial countries of the world.

The Bureau of Manufactures reports unprecedented growth. Its correspondence with representatives of commerce and industries has almost doubled in the last year; the demand for Daily Consular and

Trade Reports has nearly reached the authorized limit; acknowledgment for opportunities presented and availed of are many; and the suggestion and demand for a closer relation between governmental activity and general commerce and industry are becoming more and more urgent.

The Bureau of Statistics has perfected its system of publications so that its reports of exports and imports are promptly given to the public. This information is of such general interest that it reaches the public through the press at stated intervals in advance of regular publications.

The Bureau of Standards is extending its work. Lengths, mass, volume, temperature, quantity of heat, light, electrical quantities, and properties of materials constitute the chief subjects of its investigations. Work done for private parties is paid for at fixed rates. If its tests for departments of the Government were charged for at like rates, a considerable sum would be collected. This Bureau establishes standards, sometimes for the use and guidance of private parties, and sometimes to enable State officials to enforce such standards. In the latter cases it furnishes a happy illustration of successful cooperation between Federal and State authority.

The work of the Bureau of Fisheries may be illustrated by the single statement that during the year the fish and fish-egg output totaled considerably more than 3,500,000,000; that is, 558,000,000 eggs, over 3,000,000,000 fry, and 14,800,000 fish of fingerling, yearling, or adult size. It operates four steamers and one seagoing schooner in connection with its work, has 37 hatcheries, and several stations for scientific experiment and investigation. Since the seal treaty has been ratified, legislation must be had to carry out the terms of that treaty. The value of this year's yield of seal furs is about equal to that of last year, which was $403,946.94 (the number of skins sold being 12.920). It exceeded that of last year under the leasing system by $250,571.94 (the number of skins sold that year being 15,000). As a result of the discontinuance of pelagic sealing it may be assumed that within a few years the share for the United States will show a large increase, even after the stipulated amounts have been paid to participating nations.

The Bureau of Lighthouses has successfully reorganized its Service in obedience to the act of June 17, 1910. The magnitude of this Service may be appreciated when it is stated that it employs about 5,500 men and that it has under its control about 110 vessels (of which 45 are steam and 2 gasoline vessels), 64 lightships (33 of which are propellel by steam), lighthouses numbering about 775, and aids to navigation of every grade numbering about 12,000. As to the latter, particularly, constant experiments and improvements are in progress.

The Coast and Geodetic Survey employs 14 steam and 3 sailing vessels. In anticipation of the early completion of the Panama Canal, instructions have been given to make a detailed survey of the approaches to the canal. This Bureau furnishes another illustration of cooperation with other governmental agencies. The State of Delaware was assisted by experts from this Bureau and from the Bureau of Fisheries in making an oyster survey. The delimitation of the Alaska frontier and the re-marking of the boundary between the United States and Canada is progressing under the direction of the Superintendent of the Coast and Geodetic Survey acting for the Department of State.

Under the direction of the Bureau of Navigation a complete wireless system has been installed in obedience to the act of Congress of June 24, 1910. It has hired various motor boats to enforce navigation laws, and is now engaged in bringing to justice persons who have been guilty of procuring crews by improper methods. Its immediate force is small, because in many respects officials of the Treasury Department represent this Bureau. In this connection the proposed readjustment of customs districts is of great importance. Ports that have practically no customs collections may have important work for the Bureau of Navigation, and if the customs office is abolished at such a point it may become necessary to provide another officer for this Bureau. This would become even more important if provision is made for the police control upon navigable waters. It appears to be a well-founded complaint that frequently the police control of municipalities is evaded by vessels that go out beyond State jurisdiction, and that many of the worst crimes are to be attributed to this lack of police control. This condition can probably not be corrected without Federal aid.

The Steamboat-Inspection Service reports 392 lives lost out of a total of 314,768,885 passengers carried by water. This includes every loss from any cause. Nevertheless, I am disposed to recommend that the law governing the personnel of crews should be strengthened so as to afford better guaranty, more especially as to the fitness of men so employed. It appears to me that in this respect the law has not kept pace with statutes governing common carriers by land.

COMPLAINTS.

There have been complaints made of the Immigration Service and of the management of the seal interests in the Fisheries Bureau, both of which have been conducted under my immediate supervision.

IMMIGRATION.

In the Immigration Service it would be unreasonable to look for peace. The questions involved are in their very nature calculated. to excite controversy; particularly in a country which, on the one hand, has a large population whose interest in new immigration is based upon considerations of immediate relationship and natural sympathy, and which, on the other hand, has a citizenship which is strongly impressed with the need for more restriction. Such a situation makes for unceasing agitation for the amendment of the immigration laws, and it goes without saying that so intense a conflict must be reflected in public judgment of the administration of existing law. In point of fact, the contending forces to this controversy are much more evenly divided than appears on the surface. It is true that the critics of the law and of its enforcement are most successful in bringing their grievances to public attention. It is equally true that the files of the Department contain earnest declarations from representatives of State eleemosynary institutions, from labor organizations, and from others in favor of a strict administration of the immigration laws. Again, while the criticism of too strict administration has been practically centered upon one point-Ellis Island— the criticism of too lax administration comes from different parts of the country. The first appears to be predicated more especially upon interest in individual cases, while the latter seems to be concerned more with the general problem.

With the effect of this agitation upon proposed amendments the Department has, of course, nothing to do, unless it be, upon invitation, to make recommendations. The immediate effect upon immigration may be matter of speculation. It is my impression that the kind of criticism which has at times been offered must serve to discourage desirable immigration. If people abroad who are free to choose give any heed to the extravagant accounts which have found their way into the press, the effect must be discouraging as to them. On the other hand, undesirable immigrants are probably affected very little by these reports, because it may be assumed that at least a certain proportion of them do not come to our shores induced by their own initiative or decision.

With respect to the administrators of the law, the effect has been to guard in every way against hardship and discomfort, always with an eye to the rational enforcement of the law. It is perfectly true that many immigrants are temporarily detained, to their disappointment and discomfort, although they may subsequently be found to be clearly admissible. But it would be unsafe to argue from this premise that the detention was improper. We know from complaints