States, British, German, and Italian laws, is shown by the following table:

TABLE 2.—Cubic air space per steerage passenger allowed by laws specified, on various decks, according to height between decks.

Feet.

Cubicfeet. Cubic feet. Cubic feet. Cubic feet. Cubic feet. Cubic feet. Cubic feet. Cubic fect.

105.9

The table shows that under the United States law of 1908 steerage passengers are afforded a considerably greater amount of air space than under the other laws considered. The British law is next in this regard. In the amount of air space specified the German and Italian laws are nearly alike. Under the German, however, the amount of space for sleeping is relatively greater than would appear from the above comparison for the reason that space devoted to hospitals and to the tables and benches for dining is not deducted from the amount specified for steerage passengers. The Italian law appears to be silent in this regard and consequently it may be said that the allowance of air space under it is somewhat smaller than under the law of Germany. Under the United States and British laws space devoted to hospitals, public rooms, lavatories, bathrooms, etc., is included in the space allotted to steerage passengers.

While the steerage laws of the four countries considered are far from uniform in detail, it is apparent that the intent of each is "to give to those who come and go in passenger vessels a security of comfort and convenience," which, as expressed by Senator Newton, of Virginia, who framed it, was the purpose of the first United States law for the regulation of the steerage.

However, ships of one nation carrying steerage passengers to or from the ports of another are subject to the laws of both countries, and this tends to produce a uniformity of practice. In the case of ships bringing steerage passengers to the United States, for instance, the United States law relative to space would be effective without regard to the law of the country from which the ship sailed. Other features of the various laws are not so clearly defined as is that of space provision, and in consequence there is some difficulty in meeting the requirements of all the nations; but generally in such cases the possible disadvantage to the steerage passenger is not great.

There has been some discussion of the merits of dormitories, or large compartments, as compared with smaller compartments, or staterooms, for steerage passengers. The passenger laws considered permit either system, and circumstances largely control the steamship companies in the matter. In recent years there has been a tendency

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toward the adoption of the stateroom system, particularly on steamships sailing from British and northern European ports, while large compartments still prevail in the southern European trade. On some of the recently built boats of the Hamburg-American Line, so-called third-class quarters have been added. In such cases one steerage deck is fitted with staterooms, while on other steerage decks the largecompartment system is retained. The stateroom system of course insures greater privacy, and is now practically demanded by many emigrants, especially those from northern European countries. On the other hand it is said that some southern and eastern European emigrants prefer the large compartments, but whether this is or is not true, it is certain that there is no general demand for small staterooms on the part of such passengers. It is claimed, also, that the larger compartments are better ventilated and lighted than are steerage staterooms. However, the matter has not been considered of sufficient importance to demand legislation in favor of either system. Descriptions of the two general types of steerage by agents of the Immigration Commission who made an investigation of steerage conditions on several transatlantic steamships in 1908 will be found elsewhere in this volume."

ENFORCEMENT OF STEERAGE LAWS.

From the result of the Immigration Commission's investigation just referred to it is clear that bad steerage conditions are for the most part due to the nonenforcement of the various laws regulating the carriage of steerage passengers rather than to faulty provisions in those laws.

Of the four laws considered, none but the Italian provides for actual governmental supervision over a ship at sea, and consequently on ships not subject to the Italian regulations, provisions of the law which can not be controlled from ports of sailing and arrival are dependent to a great extent upon the policy of the steamship company and the will of the commanding officer. The number of steerage passengers to be carried, the equipment of the steerage, and the quality and quantity of food taken on board can, of course, be regulated according to law, but the treatment of passengers, the condition in which the steerage is kept, and the cooking and distribution of the food during the voyage can not be so controlled.

The Immigration Commission has recommended to Congress that properly qualified officials of the United States, both men and women, be placed on ships carrying steerage passengers. Senator William P. Dillingham, chairman of the Commission, and Representative William S. Bennet, also a member of the Commission, have introduced bills in accordance with this recommendation, both of which are pending in Congress.

"See pp. 296–302.

See Steerage Conditions. Reports of the Immigration Commission, vol. 37. (Senate Doc. No. 206, 61st Cong., 2d sess.)

ABSTRACT OF THE REPORT ON

THE IMMIGRATION SITUATION IN OTHER

COUNTRIES.

For the complete report on the immigration situation in other countries see Reports of the Immigration Commission, vol. 40.