Emigration to the United States

The problem of the assimilation of the various elements in cluded in this vast volume of immigration was giving rise to some anxiety before the World War. A policy of restriction was advocated as far back as 1880. American labour organizations had long been in favour of some form of restriction, and a corn mission appointed by President Roosevelt in 1910 reported that immigration restriction "was demanded by economic, moral and social considerations" and suggested a restriction law on a per centage basis. Experience during the World War raised the issue in an acute form, and a clause was inserted in the Consolidating Immigration Act of 1917 prohibiting the entry of illiterates over 16 years of age. This proved ineffectual in producing the desired effect. It was anticipated that the close of the World War would be followed by an influx from Europe which would equal, and perhaps exceed, anything which had hitherto been experienced. That this fear was not without foundation was shown by the fact that 430,000 immigrants entered the United States in 192o and over 800,000 in 1921.

The United States Immigration Act, 1921.

In order to meet this situation emergency legislation was passed and came into operation on June 2, 1921, which limited "the number of aliens of any nationality who may be admitted under the immi gration laws to the United States in any fiscal year . . . to 3 per centum of the number of foreign-born persons of such nationality resident in the United States as determined by the United States census of 1910." This fixed the total annual immigration at 357,803 and that from Europe at 353,747, approximately one-third of the number of European immigrants during the years 1913 and 1914. The proportion or quota for Great Britain and Ireland under this law was 77,342, for Germany 68,059, for Italy 42,057, for Poland 25,827, for Russia 34,284 and for Sweden 20,042. Certain cate gories of persons were excluded from the quota arrangements.

This Act not only limited the aggregate numbers of immigrants. It was also selective in character, in that its effect was to reduce the proportion of immigrants from southern and eastern Europe to less than one-half of the total, viz., 198,00o from northern and western Europe and 158,000 from southern and eastern Europe.

The object of the law was, however, partially defeated by in creased immigration from Canada and Mexico, which were not included within the scope of the quota provisions, and from which aliens could enter provided they had been resident in a country on the American continent for one year (subsequently amended to five years). In consequence of the increase in immigration from

Canada and Mexico the total immigration during the three years 1922-4 during which the law was in operation was actually on the up-grade, as will be seen from the following figures:— The Act of 1921 was only a temporary measure in order to allow time for framing a more permanent policy of restriction. This was embodied in the Immigration Act of 1924 (the "John son Act").

The Immigration Act, 1924.—This Act came into force on July t, 1924, and assigns a temporary maximum limit of about 160,0o0 to the number of immigrants from Europe to be ad mitted in any one year, that number to be ultimately reduced to 150,000 per annum. (This total is exclusive of immigrants from countries outside the operation of the law and of non-quota immigrants.) The main provisions of the Act are : (i.) In any year there shall be admitted to the United States not more than 2 per centum of the number of foreign-born in dividuals of any nationality resident in Continental United States as determined by the United States census of 1890. This con stitutes each country's quota. The minimum quota of any na tionality is too. The census of 1890 was chosen because it was considered that the census record of that year showed that the number of foreign-born persons then corresponded better than later censuses to the racial composition of the United States population in 1924. On this basis the annual quotas allotted to the principal countries of emigration are as under. For com parison the quotas allotted under the 1921 Act are also shown, and the average immigration from the countries mentioned during the decade 1901-10:— desirable types. Immigrants from other countries on the American continent do not come under the law at all if born in one of those countries, but if born elsewhere they can only be admitted as part of the quota of their country of birth, i.e., a person born in Great Britain can only be admitted from Canada if he can be included in the British quota.

(iii.) Aliens ineligible to become naturalized citizens under the United States naturalization laws are not admitted excepting under existing Treaty stipulations. This provision excludes the Japanese. Japanese immigration had previously been governed not by a formal treaty, but by a "Gentleman's Agreement" under which the Japanese Government agreed to limit the entry of its subjects into the United States.