from these islands to the United States, or from one island group to another, was prohibited, although moving from island to island of the same group was allowed. Certificates of residence were also required in the insular possessions. The law of 1904 is still in force.

During 1906 the question of Japanese immigration became acute, and the Pacific States demanded exclusion legislation for the Japanese of the same sort as existed for the Chinese. This was finally settled in the passport provision inserted in the immigration law of February 20, 1907. This provision authorized the President to refuse admission to any aliens making use of passports to the insular possessions, the Canal Zone, or any country other than the United States, to gain admission to the continental United States. The President in his proclamation of March 14, 1907, availed himself of this provision and excluded "Japanese or Korean laborers, skilled or unskilled, who have received passports to go to Mexico, Canada, or Hawaii, and come therefrom." To give this full force, an understanding with Japan was reached that the existing policy of discouraging the emigration of her subjects to this country should be continued. This agreement, by which the two Governments coöperate to secure an effective enforcement of the regulation

contemplates that the Japanese Government shall issue passports to continental United States only to such of its subjects as are nonlaborers, or are laborers who, in coming to the continent, seek to resume a formerly acquired domicile, to join a parent, wife, or children residing there, or to assume active control of an already possessed interest in a farming enterprise in this country.

WHEN

RESTRICTION OF IMMIGRATION1

GENERAL FRANCIS A. WALKER

HEN we speak of the restriction of immigration, at the present time, we have not in mind measures undertaken for the purpose of straining out, from the vast throng of foreigners arriving at our ports, a few hundreds, or possibly thousands, of persons, deaf, dumb, blind, idiotic, insane, pauper, or criminal who might otherwise become a hopeless burden upon the country, perhaps even an active source of mischief. The propriety, and even the necessity, of adopting such measures is now conceded by men of all shades of opinion concerning the larger subject. There is even noticeable a rather severe public feeling regarding the admission of persons of any of the classes named above; perhaps one might say, a certain resentment at the attempt of such persons to impose themselves upon us. We already have laws which cover a considerable part of this ground; and so far as further legislation is needed, it will only be necessary for the proper executive department of the government to call the attention of Congress to the subject. There is a serious effort on the part of our immigration officers to enforce the regulations prescribed, though when it is said that more than five thousand persons have passed through the gates at Ellis Island, in New York harbor, during the course of a single day, it will be seen that no very careful scrutiny is practicable.

It is true that in the past there has been gross and scandalous neglect of this matter on the part both of government and people, here in the United States. For nearly two generations, great numbers of persons utterly unable to earn their living, by reason of one or another form of physical or mental disability, and others who were, from widely different causes,

1 From "Economics and Statistics," Vol. II, pp. 437-450.' Henry Holt and Co., 1899.

unfit to be members of any decent community, were admitted to our ports without challenge or question. It is a matter of official record that in many cases these persons had been directly shipped to us by states or municipalities desiring to rid themselves of a burden and a nuisance; while it could reasonably be believed that the proportion of such instances was far greater than could be officially ascertained. But all this is of the past. The question of the restriction of immigration to-day does not deal with that phase of the subject. What is proposed is, not to keep out some hundreds, or possibly thousands, of persons, against whom lie specific objections like those above indicated, but to exclude perhaps hundreds of thousands, the great majority of whom would be subject to no individual objections; who, on the contrary, might fairly be expected to earn their living here in this new country, at least up to the standard known to them at home, and probably much more. The question to-day is, not of preventing the wards of our almshouses, our insane asylums, and our jails from being stuffed to repletion by new arrivals from Europe; but of protecting the American rate of wages, the American standard of living, and the quality of American citizenship from degradation through the tumultuous access of vast throngs of ignorant and brutalized peasantry from the countries of eastern and southern Europe.

The first thing to be said respecting any serious proposition importantly to restrict immigration into the United States is, that such a proposition necessarily and properly encounters a high degree of incredulity, arising from the traditions of our country. From the beginning, it has been the policy of the United States, both officially and according to the prevailing sentiment of our people, to tolerate, to welcome, and to encourage immigration, without qualification, and without discrimination. For generations it was the settled opinion of our people, which found no, challenge anywhere, that immigration was a source of both strength and wealth. Not only was it thought unnecessary carefully to scrutinize foreign arrivals at our ports, but the figures of any exceptionally large immigration were greeted with noisy gratulation. In those days the American people did not doubt that they derived a great advantage from this source. It is, therefore, natural to ask, Is it possible that our fathers

and our grandfathers were so far wrong in this matter? Is it not, the rather, probable that the present anxiety and apprehension on the subject are due to transient causes or to distinctly false opinions, prejudicing the public mind? The challenge which current proposals for the restriction of immigration thus encounter is a perfectly legitimate one, and creates a presumption which their advocates are bound to deal with. Is it, however, necessarily true that if our fathers and grandfathers were right in their view of immigration in their own time, those who advocate the restriction of immigration to-day must be in the wrong? Does it not sometimes happen, in the course of national development, that great and permanent changes in condition require corresponding changes of opinion and of policy?

We shall best answer this question by referring to an instance in an altogether different department of public interest and activity. For nearly a hundred years after the peace of 1783 opened to settlement the lands beyond the Alleghanies, the cutting away of the primeval forest was regarded by our people not only with toleration, but with the highest approval. No physical instrument could have been chosen which was so fairly entitled to be called the emblem of American civilization as the Axe of the Pioneer. As the forests of the Ohio valley bowed themselves before the unstaying enterprise of the adventurous settlers of that region, all good citizens rejoiced. There are few chapters of human history which recount a grander story of human achievement. Yet to-day all intelligent men admit that the cutting down of our forests, the destruction of the tree-covering of our soil, has already gone too far; and both individual States and the nation have united in efforts to undo some of the mischief which has been wrought to our agriculture and to our climate from carrying too far the work of denudation. In precisely the same way, it may be true that our fathers were right in their view of immigration; while yet the patriotic American of to-day may properly shrink in terror from the contemplation of the vast hordes of ignorant and brutalized peasantry thronging to our shores.

Before inquiring as to general changes in our national condition which may justify a change of opinion and policy in this respect, let us deal briefly, as we must, with two opinions regarding the immigration of the past, which stand in the way of any fair consideration of the subject. These two opinions were, first, that immigration constituted a net reenforcement of our population; secondly, that, in addition to this, or irrespective of this, immigration was necessary, in order to supply the laborers who should do certain kinds of work, imperatively demanded for the building up of our industrial and social structure, which natives of the soil were unwilling to undertakė.

The former of these opinions was, so far as I am aware, held with absolute unanimity by our people; yet no popular belief was ever more unfounded. Space would not serve for the full statistical demonstration of the proposition that immigration, during the period from 1830 to 1860, instead of constituting a net reënforcement to the population, simply resulted in a replacement of native by foreign elements; but I believe it would be practicable to prove this to the satisfaction of every fair-minded man. Let it suffice to state a few matters which are beyond controversy.

The population of 1790 was almost wholly a native and wholly an acclimated population, and for forty years afterwards immigration remained at so low a rate as to be practically of no account; yet the people of the United States increased in numbers more rapidly than has ever elsewhere been known, in regard to any considerable population, over any considerable area, through any considerable period of time. Between 1790 and 1830 the nation grew from less than 4,000,000 to nearly 13,000,000,- an increase, in fact, of 227 per cent, a rate unparalleled in history. That increase was wholly out of the loins of our own people. Each decade had seen a growth of between 33 and 38 per cent, a doubling once in twenty-two or twenty-three years. During the thirty years which followed 1830, the conditions of life and reproduction in the United States were not less, but more, favorable than in the preceding period. Important changes relating to