crime to allow him to proceed in ignorance of conditions in the United States. The groundwork of future citizenship should be laid the moment his status changes from that of an alien immigrant seeking admission to that of an admitted alien. The difference between the form of government of the country from whence he came and that of the country he enters should be made plain to him. The ideals of American life should be explained to him. His status as one entering upon a probationary period before citizenship is conferred should be minutely detailed to him. The difference between his standing as one subject to the rule of a single individual known as a sovereign and that of a citizen of the United States in which capacity he is no longer a subject, but may stand as one sovereign among millions of equals, should be impressed upon the immigrant's mind the day he lands; and no matter whether the tide of immigration flows in increased or restricted volume, no matter though laws restricting immigration be passed, the duty of the Government to safeguard American institutions, so far as beginning to educate the immigrant at the threshold of our country, is apparent.

REPRESENTATIVE OF THE DIVISION.

A representative of the division should be selected from the staff of officials at each immigration station to take charge of the literature of the division, and impress upon each admitted immigrant the necessity and the duty of studying carefully the publications given to him.

The uncertainty prevailing in the United States to-day regarding the thought and probable future action of the foreign-born residents of the United States is largely due to the fact that no effort was made in the past to begin their education in the fundamentals of American citizenship on the date of their admission to this country.

NUMBER ADMITTED IN 1919.

In the official year which ended June 30, 1919, there were 141,132. alien immigrants, and 95,889 nonimmigrant aliens admitted to the United States, a total of 237,021 persons to whom information concerning the principles of American citizenship could have been given. As compared with former years the number admitted last year may appear insignificant, but when consideration is given to the fact that 141,132 persons could have taken the first step toward American citizenship under proper influences and direction, it is to be regretted that a fund sufficient to carry out a program such as indicated had not been appropriated. It is suggested that the bureau include in its estimates a request for an appropriation to cover the expense incident to the prosecution of so important an undertaking.

RULE 17 A.

The number ordered released under this rule by the department was 154.

Those who secured employment on being released under this rule was 83. The savings of the 83 so released amounted, on the average, to about $150 each.

The operation of the rule with full explanation is elaborated on in the report of the Commissioner General and as a consequence extended reference to it is not necessary.

CONCLUSION.

On receipt of the data from the various States on which to base the publications provided for in the law creating the division, the work of distribution will be undertaken at each of the immigration stations.

A detailed report of the routine work of the division is not deemed necessary; such information as may be required can be given as called for.

While the Division of Information makes no recommendations, it strongly urges that steps be taken to secure the passage, by the Congress, of an appropriation sufficient to print and distribute the publications specifically indicated in the statute under which the division operates.

HON. A. CAMINETTI,

T. V. POWDERLY, Chief of Division of Information.

Commissioner General.

APPENDIX III.

REPORT ON SEAMEN'S WORK.

U. S. DEPARTMENT OF LABOR,
BUREAU OF IMMIGRATION,
Washington, June 30, 1919.

SIR: The following report of the work of the special representative of the Bureau of Immigration on seamen's work for the fiscal year 1919 is submitted herewith.

The past year has furnished ample confirmation of the views so often expressed by the bureau that the provisions of the immigration law and regulations affecting seamen could be reasonably enforced at the ports of the United States in such a manner as not to interfere with the operation of the seamen's act or foreign commerce and at the same time cure an evil practice extensively followed, under which aliens who are diseased, criminals, or otherwise inadmissible would be taken aboard vessels at foreign ports ostensibly as seamen and on arriving in United States ports would desert and remain in the country.

After a year's experience with the enforcement of the provisions of original rule 10 of the immigration regulations, the bureau recognized the necessity of making changes in the regulations, to meet the unforeseen conditions arising from the United States becoming a party to the World War and to conform with the United States Supreme Court's decision in the case of Scharrenberg v. Dollar Steamship Co.

It was no ordinary undertaking to frame a rule that, while sustaining the requirements of the immigration act, would at the same time recognize the demands of the seamen's act, the espionage act, and the various other war measures involving activities on the part of the Treasury Department, the Department of Commerce, the Department of Justice, the military intelligence branch of the War Department, and the naval intelligence branch of the Navy Department. After the new draft of rule 10 had been approved by the Secretary and copies mailed to commissioners and inspectors in charge at the various seaports throughout the country with instructions to have the same become effective May 10, 1918, the special representative was detailed by the bureau to supervise the work of unifying and improving the enforcement of the amended rule. All the seaports on the Atlantic and Pacific coasts, and the Gulf and Great Lakes ports were visited and conferences held with commissioners, assistant commissioners, inspectors in charge and their subordinates, and medical officers in charge and their assistants relative to handling of the seamen under the provisions of rule 10 as amended. The special representative was very much impressed with the interest manifested by all those cfficials who participated in the conferences. It was particularly gratifying to hear the favorable comments passed upon the new rule and the spirit of cooperation evinced by all concerned.

The knowledge and experience gained during the conferences with the officials in charge at the ports visited forced the conviction that practically all the difficulties arising in connection with the enforcement of the provisions of rule 10 of the immigration regulations resulted from the extraordinary conditions prevailing and not through a failure on the part of the framers of the amended regulations to provide for most contingencies which were likely to arise.

SEAMEN'S IDENTIFICATION CARDS.

From the date on which the immigration act of 1917 went into effect it was recognized by the bureau and by the field officers charged with the administration of the seamen's provisions thereof, that an effective means must be devised to insure that the registration and examination requirements of the law would be properly carried out. With this end in view it was determined that an identification card bearing his description and photograph should be furnished each. seaman who had been properly examined and registered and that the seaman should be required to retain the card in his possession at all times as evidence of his lawful status. As a means of enforcing this necessary regulation it was further determined that the masters. of vessels should be required to detain the members of the crew on board until such time as the seamen could be inspected and furnished with identification cards. Moreover, paragraph f of subdivision 3 of rule 10, as originally drawn and repeated in circular of April 18, is a definite and positive instruction to immigration officials that no seamen should be allowed to land either temporarily or permanently unless he has been registered in the manner prescribed by the rule and furnished with the card of identity.

The strict enforcement of the provisions of the immigration regulations relating to the registration and furnishing of identification cards to alien seamen was almost impossible during the past year. Some confusion and embarrassment were occasioned by the necessity of other governmental departments supervising to some extent the entry of alien seamen. Conditions showed no sign of improvement until a representative of the bureau, serving as a member of a committee to study plans for the State Department to assume full control of foreign travel, urged the committee to have all seamen's identification cards then in existence (except coastwise cards) discontinued and superseded by Form K for American citizens and Form L for alien seamen.

Under present conditions no necessity is apparent for making any change in the forms of seamen's identification cards now in use, unless the supply of blank forms now on hand should become exhausted. In case this occurs, it is most respectfully recommended that use be made of the large supply of Form 685 which is now on hand.

There is considerable work involved in issuing a card to each seaman, but its value as a means of identification could not be overestimated should new legislation prohibiting immigration for a period of years be passed, because it is apparent that a large number of dangerous and undesirable aliens will use every effort to enter the country under the guise of seamen.

Should the passport regulations be discontinued and the control of seamen revert to the immigration service, it is strongly urged that a supply of blank forms of seamen's identification cards be forwarded to the American consuls at foreign seaports, with instructions to give the widest publicity to their use and to notify all steamship companies having vessels sailing from ports within their jurisdiction to ports in the United States that under the immigration regulations no seaman in their employ will be permitted to leave the vessel upon arrival at a port in the United States unless he is in possession of an identification card bearing his photograph. If this plan shall be approved by the bureau, a provision should be inserted in the new immigration bill-now pending before Congress-imposing a penalty of $10 on the master, agent, owner, or consignee of any vessel arriving in the United States from any foreign port or place who shall bring to the United States as one of the crew of such vessel any alien not in possession of an identification card bearing his photograph; the fine not to be remitted or refunded in cases of seamen who are furnished with identification cards by immigration officials prior to the departure of the vessel foreign. In every instance when immigration officials have served written notice upon the master to retain on board seamen who are not in possession of identification cards, an officer should be detailed to the vessel to check up and verify the departure of every such seaman.

CREW LIST.

In view of the fact that the seamen's sections of the law have been in operation for over two years, there does not appear to be any valid reason why the masters of vessels engaged in the foreign trade should fail, upon their arrival at ports of the United States, to deliver to the immigration officials at the time the vessel is boarded the list required by section 36 of the law. It is customary at all large seaports to include in the list (Form 680) the names of all persons employed on board the vessel. Masters, agents, owners, and consignees are under notice that unless the list contains the names of all persons employed on board, a situation is likely to arise under which a seaman who is really an alien but who for some ulterior purpose claims to be an American citizen would be omitted from the list and a fine thus incurred. These responsible persons usually prefer to make their lists complete, taking no chances of omitting a name because the seaman claims to be an American citizen (when he is not) and thereby incurring a fine.

When the plan of having masters of vessels engaged in the foreign trade deliver to the immigration officials upon their arrival at ports of the United States a separate crew list bearing the visé of the American consul at the foreign port of departure was under consideration by the State Department, the bureau suggested that in order to simplify matters and avoid complications it would be better to have the consul visé the immigration (Form 680) crew list. The adoption of the consul's viséed crew list resulted in confusing the situation, and the department was confronted with many difficulties in assessing fines upon masters who failed upon arrival to deliver the immigration crew list and who stated that they were advised by the American consul that the viséed crew list and no other was required.