work generally, and despite the additional inquiries covered by the Thirteenth Census and the additional elaboration of certain classes of the statistics, there will actually be a net saving in office expenditures. The Director of the Census has very little discretionary control over the cost of the field work of the census, and it is practically only in the office work that reductions in expenditures can be brought about; it is evident that in this branch the present administration has been very successful in securing economy.

PROPOSED WORK FOR THE FISCAL YEAR 1913.

From what has been said above, it is seen that a large amount of work in further elaboration of the Thirteenth Decennial Census ought to be performed during the fiscal year 1913. It is, in fact, recommended that the work of the Bureau of the Census during that fiscal year be confined substantially to this supplemental work and to the annual investigations required by law. Very little work needs to be done upon the special intercensal inquiries, quinquennial or decennial, authorized by the permanent census act. On the other hand, the activity of the Bureau during the fiscal years 1914 and 1915 should properly be devoted to such intercensal inquiries.

This policy is substantially in accord with that in the fiscal year following the Twelfth Census period. Much the greater part of the work of the Bureau of the Census in the fiscal year 1903 was in the supplemental analysis of the results of the Twelfth Census. A beginning was made upon the special investigation of wealth, debt, and taxation; but this investigation was not completed for several years. It is considered preferable at the present time to defer the work on wealth, debt, and taxation to the fiscal year 1914. The statistics of this subject being based primarily upon the records of State and local governments, the data can not be collected until after the close of the fiscal year to which they relate. The proposed investigation, therefore, would best cover statistics for States and localities having fiscal years ending June 30, 1913, or at any subsequent date up to but not including June 30, 1914; in most cases, however, relating to fiscal years ending June 30, 1913, or December 31 of that year.

It is not necessary or desirable, however, to defer the statistics of electrical industries to any appreciable degree, and some field work on these industries should therefore be begun toward the close of the fiscal year 1913, the greater part being performed during the fiscal year 1914. This investigation would relate to the business year of the various firms ending December 31, 1912, or at the nearest date thereto, being thus at an interval of five years after the last similar investigation.

By thus excluding, for the most part, during the fiscal year 1913 work on intercensal inquiries other than those of an annual character,

it will be possible to maintain a substantially uniform force in the employ of the Bureau. Otherwise it would be necessary, provided the desirable work in supplementing the Thirteenth Census is performed, to have a much larger force for the fiscal year 1913 than for the years immediately following. No real loss in the regular periodicity of intercensal reports or in their value will result from this policy; for. as already stated, very little work on such reports was done during the fiscal year 1903, and the permanent force of the Bureau will be adequate to perform all the required investigations promptly during the years following 1913.

In order to completely finish all the supplemental tabulations and analyses of the results of the Thirteenth Decennial Census which are desirable, and at the same time to carry on the annual work of the Bureau of the Census, it will be necessary to employ a somewhat larger force during the fiscal year 1913 than during the fiscal year 1909, the last preceding the census period. The average number of employees, including special agents, in the census force in Washington in 1909 was about 625, while it is expected that an average of 770 will be necessary for 1913, the number at the beginning of the year being perhaps somewhat larger and at the end less than this figure. As it is not believed that the number of employees for the fiscal year 1914 should appreciably exceed the number for 1909, it seems desirable that this temporary excess of clerical force should be provided for through the retention of a limited number of the temporary Thirteenth Census clerks. The long experience of these clerks in census work would render them more valuable than clerks who could be obtained from the ordinary civil-service register, particularly in view of the temporary character of the employment. I have, therefore, recommended to Congress, in connection with the estimates of appropriations for the Bureau of the Census for the fiscal year 1913, a proviso that in addition to the regular force the Bureau may employ from among the temporary Thirteenth Census clerks on its rolls on May 1, 1912, not to exceed 175 clerks for a period not to extend beyond June 30, 1913, and have included an estimate of $120,000 for the payment of such clerks at salaries not to exceed $1,000 each or at piece-price rates of payment.

Owing to separations from the service which have occurred in the Bureau of the Census since June 30, 1909, it will be necessary to make a considerable number of appointments to the permanent census force during the fiscal year 1913. It is highly desirable that, in making these appointments, the Bureau should be able to profit by the training which it has given to temporary clerks during the Thirteenth Census period. Nevertheless, it is also desirable that these permanent appointments should be made under the ordinary civilservice procedure. Many, however, of the temporary Thirteenth

Census clerks have already successfully passed competitive civilservice examinations for departmental positions, and others will doubtless pass such examinations in the near future. I have, therefore, recommended to Congress, in connection with the estimates for the appropriations for 1913, that a proviso be inserted to the effect that the Civil Service Commission, in certifying eligibles from the examination registers for appointment to positions in the permanent census force during the year 1913 at salaries of $1,200 or less, shall give preference to those who have had at least one year's experience in census work. Such preference, however, is proposed to be subject to the rule of apportionment, which rule would take precedence in case there should not be, from a State entitled to appointment under the apportionment, any candidate who had had the prescribed experience. It requires no argument to show that clerks who have had a year or more of census work and who have also successfully passed a competitive examination for departmental clerkships would be more useful additions to the census force than could possibly be found among those who have had no such experience.

BUREAU OF IMMIGRATION AND NATURALIZATION.

IMMIGRATION IN GENERAL.

The report of the Commissioner General of Immigration shows that the number of aliens who entered the country during the past fiscal year was considerably smaller than the number that entered in the fiscal year 1910, viz, 878,587, as compared with 1,041,570, the difference being 162,983. At the close of the fiscal year 1910 the influx of foreigners was large and continuous. This condition is shown to have obtained throughout the next four months-July, August, September, and October-but beginning with November and extending throughout the remainder of the year there was a constant falling off in the number of arrivals.

The figures given above relate to immigrant aliens, viz, those coming to the country with the avowed purpose of remaining. In addition to the 878,587 such persons, 151,713 of the nonimmigrant class entered, making a total of 1,030,300, compared with 1,198,037 for the previous fiscal year. During the year there departed from the country 518,215, of whom 295,666 were of the emigrant and 222,549 of the nonemigrant class. In the previous fiscal year 380,418 aliens left the country, of whom 202,436 were of the emigrant and 177,982 of the nonemigrant class. A comparison of these figures shows that the actual increase in the alien population for the fiscal year 1911 was 512,085, as compared with 817,619 for the fiscal year 1910 and 543,843 for 1909.

AGES, LITERACY, AND FINANCIAL CONDITION OF IMMIGRANTS.

The following facts regarding the 878,587 immigrant aliens admitted during the year are significant. The ages of 714,709 of them ranged between 14 and 44 years, while 117,837 were under 14 and 46,041 were 45 or over. Concerning those over 14 years of age, 182,273 could neither read nor write, and 2,930 could read but not write, a total of 185,203. It is interesting to compare this with the number of illiterates admitted in the fiscal year 1910-258,140-especially as the decrease of 72,937 is not explained by the general decrease in immigration, but is an actual lowering of the ratio, thus: Of those admitted in 1910 over 14 years of age 28 per cent were illiterate, while of those admitted in 1911 over 14 years of age only 24.5 per cent were illiterate. The total amount of money shown to inspection officers by arriving aliens was $29,411,488, or an average of about

$33 per person. There is no way to determine how much of this was sent the applicants by relatives or friends living in the United States. Of the aliens entering 586,904 claimed to have paid their own. passage, while 281,718 admitted that their passage had been paid by relatives and 9,965 admitted that it had been paid by some person other than a relative. On this point it is difficult to obtain reliable information, as dependence must be placed upon the statements made by the aliens, who frequently feel that it is to their advantage not to disclose the facts. The fact that over 333 per cent of the total number admitted were assisted, whereas in 1910 only 25 per cent were, indicates a remarkable increase.

AGES AND PERIODS OF RESIDENCE OF DEPARTING ALIENS.

During the year 295,666 aliens emigrated from the United States. Concerning 49,080 of these, a record of the period they had lived here could not be procured, as they left across the Canadian border. The statistics show, however, that 15,889 of these emigrants were less than 14, 248,021 were from 14 to 44, and 31,756 were 45 years of age or over; 201,294 had resided in the United States less than 5 years, 35,323 from 5 to 10 years, 4,990 from 10 to 15 years, 2,438 from 15 to 20 years, and 2,541 over 20 years.

OCCUPATIONS OF IMMIGRANTS AND EMIGRANTS.

It is interesting to note the general classes into which the occupations of the aliens entering and leaving the country, respectively, are segregated. Of common unskilled laborers, 155,996 immigrated and 173,952 emigrated, compared with 148,892 skilled immigrating and 33,473 emigrating. Thus, there was an actual decrease during the year in unskilled laborers of approximately 18,000, while there was an increase of skilled of over 100,000.

SOURCES OF IMMIGRATION.

The growing disparity between the number of aliens entering the United States from countries of northern and western Europe and those entering from countries of southern and eastern Europe is again illustrated by the statistics for the past year. Formerly a large proportion of our immigration came from Teutonic and Celtic countries. During the past year only 202,391 immigrants, or about 23 per cent of the total, came thence, constituted as follows: Belgium, 5,711; Denmark, 7,555; France, 8,022; German Empire, 32,061; Netherlands, 8,358; Norway, 13,950; Sweden, 20,780; Switzerland, 3,458; England, 52,426; Ireland, 29,112; Scotland, 18,796; Wales, 2,162. On the other hand, 572,218 immigrants, or about 65 per cent