It is interesting and highly suggestive to note from the next table that, notwithstanding the “hard-luck story” told in this report as to arrearages of work and the delays and the omissions of first one and then another important feature of that work, the beneficiaries of such work—those who have paid their money for prompt and efficient service—have annually for years past paid into the Federal Treasury more than was used for the purpose for which it was paid.
The aggregate of such surplus items, which cannot be regarded as other than a trust fund in essence, and even deducting the amount expended for military naturalizations amounts to $539,446.80. It would easily have been much more if the clerks had been furnished to serve the aliens who desired to become citizens. The burst of public sympathy for, and interest in, the young alien who entered our service to make the “supreme sacrifice” for democracy which found expression in a special appropriation of $400,000 to pay the cost of making these young heroes citizens in law, as they already are in heart, over a period of 13½ months, did not, in fact, cost the people of this country as a whole anything. As long as over half a million dollars of the fund contributed by the newly made citizens from civil life remain unexpended for the purposes for which it was paid, it would appear to the ordinary observer that they, and not the general body of American citizens, gave the $400,000 to pay for the cost of giving free of charge the well-deserved “priceless heritage of American citizenship” to the young alien soldiers who fought for liberty and this country.
The government of the United States is making money out of the business of admitting aliens to citizenship, and is not keeping fairly or efficiently its end of the transaction. In the period since the enactment of the Naturalization Law, as Commissioner Campbell has said, aliens in pursuit of citizenship—even though thousands of them did not get it!—have paid fees to an amount exceeding by more than half a million dollars the total cost of the Naturalization Bureau—a margin itself larger by more than $200,000 than the total appropriation for the Bureau in any year save one.[96]
This money, if devoted to the purposes to which morally it belonged, would have been ample to supply the supervisory and clerical force in the Bureau necessary to make prompt and effective examination of declarations, petitions, and certificates, and to maintain a proper and complete system of records, and of indices by which those records could be made available for reference by the alien, the government, and the public. Provided always that the Bureau did not permit itself to be diverted and swamped by extraneous and self-assumed functions in the field of public education which it is not adapted, either by the logic of good administrative organization or by the nature and aptitudes of its personnel, to perform. It has never been within arm’s length of keeping up with the business committed to it by law, and by the nature of its function; nevertheless, during the past decade at least, it has taken on voluntarily and, with increasing exuberance of ambition, sought additional legislation to authorize activities and functions of an extraordinarily inclusive and far-reaching character in the domain of education—apparently even of native-born persons—beyond any possibility of effective accomplishment without very great increase of expenditure for personnel and material change in the “personal equation” of the present force.
It is no doubt agreeable to compile and publish statistics purporting to show the degree of “co-operation” between the public-school authorities and the Naturalization Bureau; imposing totals can be presented if every slightest indication of general interest in the education of the foreign born is classified and heralded as “co-operation” and no allowance whatever is ever made for failures or defections.[97] All this might be tolerated or condoned; but it becomes a rather ghastly spectacle when its most conspicuous consequence is the neglect of legitimate business of the highest importance to the aliens who pay for but do not get it, and to the people of the United States.
The Naturalization Bureau, in the fundamental nature of its function, has in all conscience enough to do! A “man’s-size job” is to be found in the scrutiny of the petitioner for citizenship, from the day when he files his declaration of intention to that when he receives, or is refused for good reason, his certificate of naturalization. The natural business of the Bureau is to be the disinterested but vigilant informant of the court as to the facts regarding the applicant; the watchdog of the standards by which aspirants for our active membership are judged—also the keeper of records minutely accurate and in cross-referenced detail up to the minute.
FITNESS OF CANDIDATES
There is great need of a better method for ascertaining the fitness of candidates for citizenship than obtains at present. Various suggestions have been made to improve the practice. One is the creation of a system of “traveling commissioners,” appointed perhaps by the courts, who would hold sessions at convenient times and places. Another is that the function of naturalization should be removed from the judicial to the administrative sphere, so that examinations and admissions should both be under the control of the Naturalization Bureau or some other administrative branch of the Executive.
There is much to be said in support, especially, of the latter suggestion. But there seems a weight of reason in favor of maintaining the peculiarly American practice of lodging this solemn function in what is, on the whole, our most impressive organ of government—the court. As a rule, the courts are performing the function with increasing sense of the importance and dignity of the proceeding. It would be simple, and require little either of new legislation or additional personnel or duties, to make the Naturalization Examiner now in being and on duty, already equipped with honesty and zeal, something in the nature of a Master, representing the court in the taking of testimony, and reporting thereto his findings and recommendations. Thereupon the judge could pursue such further inquiry as he thought proper, accept or reject the findings, and enter his order accordingly.
In the great preponderance of practice this is what actually happens now. The proceeding should be the subject of sufficient stenographic record, to be attached to the papers on file in the court and in the Naturalization Bureau at Washington, and the index, certainly at Washington, should be so minutely exact, prompt, and accessible, that the record of every case, from declaration to final adjudication, would be available like any other public record upon a moment’s notice.