complished before we can expect materially to diminish the frequency and force of accidents. When any order out of the regular scheme is given, provision should be made so that the attention of more than one person should be involved when it is executed. Moreover, it should be made an impossibility for one man's obliviousness to occasion dis

aster.

A second potent cause of railroad wrecks is primarily due to operative methods that arc antiquated. The glaring defect is that things are done backward; the several steps of action are a reversal of the natural and logical sequence. In the infancy of railroading, when conditions were simple, it made little difference. As the entire fabric grew rapidly the method first adopted finally broke down from overweight. It is perfectly fruitless to try to make the old way do. We do many things "backward," but most of us do not notice it, because either it is of small consequence, or we know of no other way. With a vast and exacting industry, as railroading is to-day, the case is differ ent, and adequate and logical method is of prime import.

derlying principles are just the reverse of those now in force. At the present time when anything goes wrong, when one train gets into the same block with the one ahead, when orders overlap, when signals fail, or when an employee makes a mistake, there is immediately potential accident. Hundreds of mistakes and mishaps occur on the railways every day, although the public hears nothing of them. It is only when dire disaster takes place, in which lives are lost, that a thrill of horror awakens us to the gravity of the situation. Of course, somebody is "disciplined," but this in no way lessens the danger or removes the cause. The case is identical with that of the football; no matter what happens to it or how fierce the contests over it have been, it remains as good an object for scrimmage as before.

When anything goes wrong in the operation of railway trains the very fact itself should make it impossible for the trains affected to proceed. They should be brought to a standstill instantly. There should be no possible means, for example, by which two trains could enter the same block.

One thing is certain: Mistakes of any kind whatsoever, instead of inviting catastrophe, should themselves make accident absolutely

FEDERAL legislation upon the subject of immigration extends over a period of but a quarter of a century. The act of 1819 regulated the "carriage of passengers carriage of passengers" (ocean passengers at that time for the most part were immigrants), but for nearly a century after the adoption of the Constitution Congress was content to permit the seaboard States to control immigration by local legislation. The principal exception to this policy was the temporary act of 1864 encouraging immigration because of the scarcity of labor resulting from the Civil War. Immigration acts were also passed in 1862, 1869, 1873, and 1875; these were not general laws, but dealt specifically with coolie immigration and contract labor.

The act of August 3, 1882, was the first general immigration law, repeated decisions of the Supreme Court having made it clear that immigration was a subject for federal rather than State legislation. This act excluded certain undesirable persons, provided for a small head-tax, and for co-operation of federal officials with State immigration boards.

In 1891 this law was superseded by a new act which codified the existing laws, definitely established federal supervision over immigration, strengthened the clauses relating to exclusion, and provided for the return of all debarred aliens. Supplementary legislation approved in 1893 and 1894 provided for the appointment of commissioners of immigration at the several ports and the extension of administrative supervision.

During the period of industrial depression which occurred shortly after the passage of the act of 1891 vigorous efforts were made to secure decidedly restrictive legislation by requiring what was known as the "illiteracy test." Such a measure, indeed, was passed by Congress in 1896, but was vetoed by President Cleveland. This veto was soon justified by returning national prosperity, which brought such insistent demands for labor that the principal reasons for the existence of the proposed act of 1896 were, for the time being, removed.

In 1903, however, a third general act was passed, embodying the results of experience gained under earlier legislation. Inspection was made more rigid; the head-tax

The far-reaching effect of the great population movement of the last three or four years led to a renewal in Congress of the agitation for restrictive legislation. Bills to regulate immigration were introduced in both the Senate and House of Representatives early in the Fifty-ninth Congress. Each body passed its own bill, and, in accordance with Congressional procedure, these conflicting measures were referred to a conference committee composed of Senators and Representatives. In February of the present year the conferees agreed upon a new bill, embodying the best features of the two measures, together with certain additional provisions. This bill was presented to both houses, passed, and was approved by the President February 20, 1907.

Thus, to a peculiar degree the new immigration law represents the maturest judgment of Congress, for disagreement between the two houses resulted in critical and impartial review by a small number of painstaking and able Senators and Representatives, foremost among whom were Senators Dillingham, of Vermont, and Lodge, of Massachusetts, and Representative Bennet, of New York.

The immigration act of 1907 is not a radical or restrictive measure. In the opinion of persons best qualified to judge, the new law is of value principally in codifying laws relating to immigration and in strengthening

complished before we can expect materially to diminish the frequency and force of accidents. When any order out of the regular scheme is given, provision should be made so that the attention of more than one person should be involved when it is executed. Moreover, it should be made an impossibility for one man's obliviousness to occasion dis

aster.

A second potent cause of railroad wrecks is primarily due to operative methods that arc antiquated. The glaring defect is that things are done backward; the several steps of action are a reversal of the natural and logical sequence. In the infancy of railroading, when conditions were simple, it made little difference. As the entire fabric grew rapidly the method first adopted finally broke down from overweight. It is perfectly fruitless to try to make the old way do. We do many things "backward," but most of us do not notice it, because either it is of small consequence, or we know of no other way. With a vast and exacting industry, as railroading is to-day, the case is different, and adequate and logical method is of prime import.

Instead of the existing methods of operating trains, it is necessary to have something entirely new, some system in which the un

derlying principles are just the reverse of those now in force. At the present time when anything goes wrong, when one train gets into the same block with the one ahead, when orders overlap, when signals fail, or when an employee makes a mistake, there is immediately potential accident. Hundreds of mistakes and mishaps occur on the railways every day, although the public hears nothing of them. It is only when dire disaster takes place, in which lives are lost, that a thrill of horror awakens us to the gravity of the situation. Of course, somebody is I disciplined," but this in no way lessens the danger or removes the cause. The case is identical with that of the football; no matter what happens to it or how fierce the contests over it have been, it remains as good an object for scrimmage as before.

When anything goes wrong in the operation of railway trains the very fact itself should make it impossible for the trains affected to proceed. They should be brought to a standstill instantly. There should be no possible means, for example, by which two trains could enter the same block.

One thing is certain: Mistakes of any kind whatsoever, instead of inviting catastrophe, should themselves make accident absolutely impossible.

THE IMM

FEDERAL legislatio:

of immigration exten

of but a quarter of a cer 1819 regulated the (ocean passengers at part were immigrants tury after the adoptic Congress was conter. States to control im lation. The princi i was the temperat gimmigration bear Lacue resulting mar

gration acts were 2. 1873, and 1875: the but dealt specifica. and contract in The act of Au

general immigra of the Suprem that immigration rather than Stat

cluded certain s for a small hea--1. federal officia boards.

In 1891

new act wh... definitely esta immigration ing to exclus of all debar lation app for the ar migratio:

tension

Dur which

the a

to se

t child immigrants has been prorevent the virtual slavery which fore often occurred, and greater immigrant on shipboard has been

last provision (which does not take til January 1, 1909) will not affect er and newer steamers, and will not ally affect the older ones. Out of 175 ers bringing immigrants last year to ort of New York, more than half would have violated this law had it been in t, and the worst case of violation would been an excess of but sixty-seven immi

nts.

rinally, the law provides for the appointat of a commission of nine,-three Senrs, three Representatives, and three perns to be named by the President,—who are rected to make a careful and exhaustive tudy of the whole question of immigration, and to report to Congress at the earliest pracbeable date, with recommendations for any uture legislation which may seem

necessary.

to be Those who are best informed emphatically approve of the new law. It is unquestionaoly a wise, intelligent, humane statute, far more likely to prove a success than if it included more radical provisions, likely to excite opposition. Supplemented by such additional legislation as may be suggested by the report of the commission, the law of 1907 should prove adequate to deal with conditions as they at present exist.

Immigrants are now arriving in the United States in so great numbers that they affect the social, physical, financial, and moral weltare of the nation. The judgment of Congress that no investigation or legislation should be spared in order to deal effectively with this great problem will surely be approved by every thoughtful American.

1841-1845

1846-1850

1856-1860

|| 1831-1853

1861-1865
866-1870

1871-1875

1876-1880

1881-1885

1886-1890

PERIODS

Rico, and Hawaii, have been exempted from the head-tax, in order to place no obstacle in the way of attracting immigrants to those localities, but the transfer of such immigrants from Guam, Cuba, Porto Rico, and Hawaii has been carefully safeguarded, in order that the occurrence of industrial depression in the islands may not result in the sudden removal of large numbers of undesirable settlers from outlying territories to continental United States. This is the famous paragraph which may be called the "California compromise," since under it the President possesses authority to exclude Japanese immigrants.

The provisions excluding persons possessing physical infirmities, polygamists, and those who are suspected of immigrating for immoral purposes have been greatly strengthened, and severe penalties have been prescribed, in clear language, for the enforcement of these sections of the law. The new law also is an advance over its predecessor in that it includes the provision relating to contract labor, inadvertently omitted from the act of 1903. This provision is made effective for the first time by providing adequate detective service.

Heretofore the Immigration Bureau has kept a strict and accurate record of the arrival of immigrants, but the increasing tendency on the part of persons of certain nationalities to return to the mother country has not been measured statistically. The final clause of Section 12 in the new act provides means for ascertaining how many aliens leave this country each year. By this important section it will now be possible to ascertain the net increase of population each year resulting from alien arrivals.

The passage money paid by immigrants to

1821-1905.

previously existing provisions, with additional legislation which in general tends to strengthen Government supervision and more effectively exclude undesirable immigrants. Some of the more important provisions of the new law are these:

The so-called head-tax upon immigrants has been increased from $2 to $4. It is not expected that this tax will restrict immigration, but it will recompense to some degree the federal Government, and thus indirectly the nation, for the expenditure incurred before individual immigrants become self-supporting.

Outlying territories, such as Guam, Porto

share in their total revenues. As might be expected, the companies have worked this mine vigorously by stimulating migration. The new law places more responsibility upon the steamship companies, makes them liable for bringing in immigrants illegally, and compels them to return rejected aliens free of charge. Under the old law the rejection of an immigrant was a source of greater profit to the steamship companies than his admittance, since the company thus reaped the benefit of double passage money. It is probable that this section will prove to be a very wise and timely provision.

The responsibility of the steamship companies in connection with the subject of contagious diseases is further emphasized by the