Up to the present time, with the exception of the Oriental races, there has been no real restriction to immigration. Our policy has been selective rather than restrictive. Of those arriving certain individuals are rejected by the immigration authorities because of some defect of mind, of body, or of morals, or because of age infirmity, or some other cause by reason of which the aliens are likely to become public charges. For the official year 1914, of the 1,218,480 applying for admission 15,745 were excluded because they were likely to become a public charge; 6,537 were afflicted with physical or mental infirmities affecting their ability to earn a living; 3,257 were afflicted with tuberculosis or with contagious diseases; and 1,274 with serious mental defects. All told, in that year less than 2 per cent of the total number applying for admission were rejected and sent back to the countries from which they came.
Our immigration policy ends with the selection. From the stations the immigrants pass into the great cities, chiefly into New York, or are placed upon the trains leaving the ports of debarkation for the interior. They are not directed to any destination, and, most important of all, no effort is made to place them on the land under conditions favorable to successful agriculture. And this is the problem of the future. It is a problem far bigger than the distribution of immigration. It is a problem of our entire industrial life. For, while our immigrants are congested in the cities agriculture suffers from a lack of labor. Farms are being abandoned. Not more than one-third of the land in the United States is under cultivation. Far more important still, millions of acres are held out of use. Land monopoly prevails all over the Western States. According to the most available statistics of land ownership, approximately 200,000,000 acres are owned by less than 50,000 corporations and individual men. Many of these estates exceed 10,000 or even 50,000 acres in extent. Some exceed the million mark. States like California, Texas, Oregon, Washington, and other Western States have great manorial preserves like those of England, Prussia, and Russia which are held out of use or inadequately used, and which have increased in value a hundredfold during the last fifty years. These great estates are largely the result of the land grants given to the railroads as well as the careless policy of the government in the disposal of the public domain.
Here is one of the anomalies of the nation. Here is the real explanation of the immigration problem. Here, too, is the division between the "old immigration" and the "new immigration." For the "old immigration" from the north of Europe went to the country. The "new immigration" has gone to the cities because the land had all been given away and the only opportunity for immediate employment was to be found in the cities and mining districts. The "new immigration" from the South of Europe is as eager for home-ownership as the "old immigration" from the north of Europe. But the land is all gone, and the incoming alien is compelled to accept the first job that is offered, or starve. It is this too that has stimulated the protest on the part of labor against the incoming tide. For, so long as land was accessible for all, the incoming immigrants went to the country, where they could build their fortunes as they willed, just as they did in earlier generations.
The European War has forced many new problems upon us. And one of these is the relation of people to the land. Of one thing, at least, we may be certain--that with the ending of the war there will be a competition for men, a competition not only by the exhausted Powers of Europe but by Canada, Australia, and America as well. Europe will endeavor to keep its able-bodied men at home. They will be needed for reconstruction purposes. There will be little immigration out of France; for France is a nation of home-owning peasants and France has never contributed in material numbers to our population. The same is true of Germany. Germany is the most highly socialized state in Europe. The state owns the railways, many mines, and great stretches of land. In England too the state has been socialized to a remarkable extent as a result of the war. Russia and Austria-Hungary have undergone something of the same transformation. When the war is over these countries will probably endeavor to mobilize their men and women for industry as they previously mobilized them for war. And in so far as they are able to adjust credit and assistance to their people, they will strive to keep them at home.
But that is not all. Millions of men have been killed or incapacitated. Poland, Galicia, parts of Hungary and Russia have been devastated. Many nobles who owned the great estates have been killed. Many of them are bankrupt. Their land holdings may be broken up into small farms. The state can only go on, taxes can only be collected if industry and agriculture are brought back to life. And the nations of Europe are turning their attention to a consciously worked out agricultural programme for putting the returning soldiers back on the land. Not only that, but reports from steamship and railroad companies indicate that large numbers of men are planning to return to Europe after the war. The estimates, based upon investigation, run as high as a million men. Poles and Hungarians are imbued with the idea that land will be cheap in Europe and that the savings they have accumulated in this country can be used for the purchase of small holdings in their native country, through the possession of which their social and economic status will be materially improved.
I have no doubt but that the years which follow the ending of the war will see an exodus from this country which may be as great as the incoming tide in the years of our highest immigration. Along with this exodus to Europe, Canada will endeavor to repeople her land. Western Canada especially is working out an agricultural and land programme. Even before the war her provinces had removed taxes from houses and improvements and were increasing the taxes upon vacant land, with the aim of breaking up land speculation. And this policy will probably be largely extended after the war is over. England, too, is developing a comprehensive land policy, and is placing returning soldiers upon the land under conditions similar to those provided in the Irish Land Purchase Act. It is not improbable that the war will be followed by a breaking up of many of the great estates in England and the settlement of many men upon the land in farm colonies, such as have been worked out in Denmark and Germany. Even prior to the war Germany had placed hundreds of thousands of persons upon the state-owned farms and on private estates which had been acquired by the government for this purpose. Over $400,000,000 has been appropriated for the purpose of encouraging home-ownership in Germany during recent years.
All over the world, in fact, the necessity of a new governmental policy in regard to agriculture is being recognized. Thousands of Danish agricultural workers have been converted into home-owning farmers through the aid of the government. To-day 90 per cent of the farmers in Denmark own their own farms, while only 10 per cent are tenants. The government advances 90 per cent of the cost of a farm, the farmer being required to advance only the remaining 10 per cent. In addition, teachers and inspectors employed by the state give instruction as to farming, marketing, and the use of coöperative agencies, while the railroads are owned by the state and operated with an eye to the development of agriculture. As a result of this, Denmark has become the world's agricultural experiment-station. The immigration from Denmark has practically ceased, as it has from other countries of Europe in which peasant proprietorship prevails.
In my opinion, immigration to the United States will be profoundly influenced by these big land-colonization projects of the European nations. It may be that large numbers of men with their savings will be lured away from the United States. As a result, agricultural produce in the United States may be materially reduced. Even now there is a great shortage of agricultural labor, while tenancy has been increasing at a very rapid rate. And America may be confronted with the immediate necessity of competing with Europe to keep people in this country. A measure is now before Congress looking to the development of farm colonies, in which the government will acquire large stretches of land to be sold on easy terms of payment to would-be farmers, who are permitted to repay the initial cost in installments covering a long period of years. Similar measures are under discussion in California, in which State a comprehensive investigation has been made of the subject of tenancy and the possibility of farm settlement. Looking in the same direction are the declarations of many farmers' organizations throughout the West for the taxing of land as a means of ending land monopoly and land speculation. This is one of the cardinal planks in the platform of the non-partisan organization of farmers of North Dakota which swept the State in the last election. Every branch of the government was captured by the farmers, whose platform declared for the untaxing of all kinds of farm-improvements and an increase in the tax rate on unimproved land as a means of developing the State and ending the idle-land speculation which prevails.
If such a policy as this were adopted for the nation as a whole; if the idle land now held out of use were opened up to settlement; if the government were to provide ready-made farms to be paid for upon easy terms, and if, along with this, facilities for marketing, for terminals, for slaughter-houses, and for agencies for bringing the produce of the farms to the markets were provided, not only would agriculture be given a fillip which it badly needs but the congestion of our cities and the immigration problem would be open to easy solution. Then for many generations to come land would be available in abundance. For America could support many times its present population if the resources of the country were opened up to use. Germany with 67,000,000 people could be placed inside of Texas. And Texas is but one of forty-eight States. Under such a policy the government could direct immigration to places of profitable settlement; it could relieve the congestion of the cities and Americanize the immigrant under conditions similar to those which prevailed from the first landing in New England down to the enclosure of the continent in the closing days of the last century. For the immigration problem is and always has been an economic problem. And back of all other conditions of national well-being is the proper relation of the people to the land.