Now, with the extension of the scope of operations, the increst the arrival of European steerage in 1920 was plainly more thi machinery found in 1920 could possibly handle, despite the and untiring effort of the veteran principal officers. The avers arrivals in steerage from Europe for the first half of 195 out roughly 6,500 persons weekly, and in the second half of the the average is probably 12,000 weekly. Naturally, the steam not come in on the schedule of a railway system and sometimes steamers will arrive in one day. The number of seamen to » spected in 1919 and 1920 was probably greater than it was in e 1917 or 1918.

The remedy is in the hands of the Government, or in the har Congress, in respect to this very serious situation. Ellis I to-day is what might probably be termed a barrier in the of orderly transportation of a man who makes a journey wh. braces two continents, with the ocean between and the effort to r his destination in the interior of this continent. In fact, our e for making this presentation is that we consider it a vital spars the present theory that there is an immigration menace.

In analyzing Mr. Wallis's tables of the number of detaine sengers at Ellis Island-and he gave us a table over the peri ginning with the arrivals of December 13 and ending with the arrived on December 28-it is found that there are three prime c of detention:

First. Special inquiry. The practice appears to be that if the mary inspector who receives the applying alien, after passing medical examination upon arrival at the Ellis Island station. anything at all questionable in respect to the admissibility of applicant, the applicant is immediately set aside and marke special inquiry, which means that his case is thoroughly exan by a board of probably, on the average, three other immigran spectors.

The second category is known as "temporary detains," an the average is double the special-inquiry detention list. They detained for possibly one of five or more main reasons:

First. Awaiting the appearance of some one at Ellis I-lar claim the alien.

Second. Awaiting some finishing proof of admissibility. Third. Arrivals without tickets to destination. As stated v day, this third cause of temporary detention is probably contrib more than any other cause to the total of the temporary detains t at Ellis Island.

Fourth. The fourth cause is that a certain proportion of the s for reasons which can be elaborated if you please, have not suž cash money on arrival.

Fifth. The fifth cause is that recently it became necessary, in judgment of the commissioner, to limit the number of persons te "callers" at the Ellis Island station. This limitation is very er The aim was undoubtedly to reduce the number of people at any time on the island in order that those who were there could bett handled.

The third general heading of detentions comprises the propor of persons admitted to Ellis Island Hospital upon the primary r cal inspection when the aliens arrive there.

The total number of detentions in the period December 13 to December 28, with respect to arriving vessels, for special inquiry, is reported to be 3.621. The total number of temporary detains, 5.592. The total number of hospital cases, 539. That is a statement of the number of those who were detained out of a total of 27,068 arrivals. But the detentions overnight, which, after all, do cause the great problem for the commissioner, are very serious, indeed. On December 13, according to this statement, there were 1,569 persons lodged at Ellis Island overnight. It varied throughout the ensuing days. Sometimes below, but usually above. On the night of December 16 there were 2.011 people detained at Ellis Island overnight. Senator STERLING. I suppose your idea is that through tickets to destinations would obviate a great deal of that?

Mr. SANDFORD. They would march through the island the same day and take their trains to destination if otherwise admissible. Lately it has been possible for Mr. Wallis to issue at the end of each day a partial list of these detained aliens under the temporary detention classification, and these lists are available to all interested in coordinating the various functions that must be performed at Ellis Island by the numerous aid societies and others. Every single nationality that is represented in large numbers in our country has some immigrant aid society.

In addition the steamship line primarily must bear the burden and responsibility of endeavoring to clear up the causes for temporary detention, so that there may be quick adjudication of each individual detention. It means, though, that all of those persons who for any reasons throughout the day are detained for any one of the five main reasons for temporary detentions lodged at Ellis Island over at least one night.

Senator STERLING. Do these boards of special inquiry act promptly? Mr. SANDFORD. As fast as possible. I am not competent to say whether the number of inspectors assigned to special inquiry boards are sufficient for what appears not to be an enormous amount of traffic per day on the average, even during the past six months, and when Ellis Island apparently broke down in September; it is an average of about 2,000 persons per day.

Senator STERLING. One would think that there would be a need for several of those boards.

Mr. SANDFORD. Indeed.

Senator STERLING. And in session at the same time hearing these various cases.

Mr. SANDFORD. Yes, sir.

The CHAIRMAN. That leads me to ask you a question: What remedy have you got to propose to better the conditions at Ellis Island? Is there any fault in the machinery provided in the statute? Does it require additional legislation in any way?

Mr. SANDFORD. Not legislation. It requires legislation in the sense of appropriations.

The CHAIRMAN. Well, will you state what remedy you have in mind to better the conditions of detention and congestion at Ellis Island? Mr. SANDFORD. A larger appropriation and an increased staff and recognition of the fact that the present scale of compensation at Ellis Island is still prewar.

The CHAIRMAN. Didn't you say something about the railroad facilities, Mr. Sandford?

Mr. SANDFORD. Yes.

The CHAIRMAN. That they were inconvenient or inadequate or something of that kind?

Mr. SANDFORD. Yes. May I lead on to that in the development of my statement?

The CHAIRMAN. Yes. I don't wish to interrupt the order of your testimony. Proceed in your own way, Mr. Sandford.

Mr. SANDFORD. To restore the simplification of through travel by a class of people who require it, from our experience, facilities at time of starting on the journey, to reach the destination, in the sense of the transportation. To-day there is no compilation of rail fares from ports of landing in the United States to the interior cities and towns to which there is a tide of travel from Europe. The information available to the steamship lines in Europe, and to the booking agent in Europe, is comprised in the list of rail tariffs filed with you yesterday, and it would require almost a lifetime of service in railroad business, and familiarity with computations of rates on the basis of keys and master tariffs to determine what is the rate to Ashland, Oreg., from New York.

As long back as memory runs, in 1914, and prior to 1914, the need of a special facility for the through booking effectively, correctly, and at the start of the movement of the passenger, was met by the issue of what was termed the "immigrant rail tariff," and in that tariff there appeared alphabetically, with the name of the State following it, the destinations in the United States and Canada, the rail rate, the baggage allowance, and all necessary information, so that anyone who applied say, in Liverpool, to proceed to the United States, was first asked: "What is your destination?" And if he said. "Columbus, Ohio," he was not accepted as a passenger or booked without a quotation of the ocean rate and the inland rate to make the through rate. And he was required to book through. Consequently, if on primary examination at Ellis Island that individual was found admisible, he was immediately transferred to the railroad room, socalled, at Ellis Island, and went out to Columbus on an evening train.

To meet this emergency, which the ocean carrier considers to be a very serious element in Ellis Island congestion, and also to contribute to the so-called “lack of money" cases, the steamship lines have employed a man who has been at work for weeks in an attempt. to use the master tariff and the key tariff in the construction of a special tariff. That was filed with you yesterday. It will, however, take two months before it will show its résults in respect to passengers who are booked in Europe.

Those passengers who are booked in America for their travel from Europe to America, are, however, through booked here, because the agent in Columbus, Ohio, can go to the local railway agent at Columbus, Ohio, and ascertain the rate from Ellis Island, N. Y., to Columbus, and the "prepaid passenger," as we term it, the man whose ticket is purchased here and sent abroad as the safest means of providing for transportation, does not come into this element at all.

The CHAIRMAN. If they had adequate machinery for distribution at Ellis Island, in your opinion, would there have been any complaint as to congestion at the present time?

Mr. SANDFORD. In this particular respect, in respect to the through booking, it is undoubtedly true that from 25 to 40 per cent, depending upon race, would proceed through Ellis Island as a clearing house instead of a detention camp.

Senator STERLING. You say they were formerly required to book through?

Mr. SANDFORD. Yes.

Senator STERLING. Now, who required that?

Mr. SANDFORD. The steamship companies.

Senator STERLING. And did the immigrant pay for his passage through to destination?

Mr. SANDFORD. The immigrant paid for his passage through to destination.

Senator STERLING. To the steamship company?

Mr. SANDFORD. Yes; to the steamship company; and the steamship company settled with the railroad.

The CHAIRMAN. Have you any data as to the destinations of the immigrants and the percentages that go to different parts of the country?

Mr. SANDFORD. Not here.

The CHAIRMAN. There was some introduced, I think, yesterday. Mr. SANDFORD. It was requested that we prepare and submit material of that description.

The CHAIRMAN. Can you submit it?

Mr. SANDFORD. The Ellis Island authorities can do so much better than we, because they check over every one of the answers by the individual alien to the 28 questions required by law to be answered, and it may be that our information would not be quite so correct, because often a man changes his mind about his destination.

The CHAIRMAN. Is there any such flood of immigrants at Ellis Island, in your opinion, that calls for a suspension of immigration? Mr. SANDFORD. There certainly is not.

The CHAIRMAN. Were you familiar with the tide which came in `in the prewar period?

Mr. SANDFORD. Yes.

The CHAIRMAN. How does the prewar period compare in regard to numbers with the present arrivals?

Mr. SANDFORD. In net of European steerage?

The CHAIRMAN. Yes.

Mr. SANDFORD. It was higher, on the average.

The CHAIRMAN. Higher, on the average, now?
Mr. SANDFORD. Higher, on the average, then.
The CHAIRMAN. Before the war?

Mr. SANDFORD. Yes.

The CHAIRMAN. Well, I think the figures bear you out in that. Senator HARRISON. When did the steamship companies cease to practice this through routing?

Mr. SANDFORD. When the railways ceased to furnish the tariffs. Senator HARRISON. Well, when was that?

Mr. SANDFORD. Well, probably shortly after 1914, when the
began. The traffic then, however, was so very small that thi
did not constitute a problem.

Senator DILLINGHAM. Did you place in the record yester
statement of the number in steerage coming into this country
ing a period of years?

Mr. SANDFORD. No; simply the totals of the period prior w
war and of the post-war period.

Senator DILLINGHAM. Well, what period did that cover?
Mr. SANDFORD. From 1893 to 1920, inclusive.

Senator DILLINGHAM. Have you got the figures relating to C
during the same period?

Mr. SANDFORD. Yes; on the same statistical sheet the Cana
immigration is also embraced.

Senator DILLINGHAM. So that is already in the record?
Mr. SANDFORD. I don't believe it is in the record.

Senator DILLINGHAM. Well, I would like to have it put int
record, if you have it.

Mr. SANDFORD. Yes; I will find one.

Senator DILLINGHAM. If you do that, we will be glad to ha
printed.

(The statement of transatlantic passenger movement for T
States and Canadian ports, submitted by Mr. Sandford, is here
printed in full, as follows:)

Statement of transatlantic passenger movement.

UNITED STATES PORTS.
[Boston to Galveston, inclusive.]