The Bureau of Naturali zation The Bureau of Labor Statistics The Chil dren's Bureau The Public by commissioners at the principal ports and a large number of agents and subordinate officials. These officials are intrusted both with the physical examination of the immigrant and the determination of whether he falls within one of the excluded classes. As has been seen, their decision is subject to a series of appeals to higher officials ending, however, with the Secretary of Labor, from whose decision there is no appeal nor is there a judicial review. The service is in part supported by a tax levied upon entering immigrants. The Bureau of Naturalization is charged with oversight of the enforcement of the naturalization laws. It supervises the work of the courts in naturalization matters, stimulates the preparation of candidates for naturalization, and is the repository for the applications, preliminary papers, and the duplicates of the naturalization certificates. The Bureau of Labor Statistics is charged with the gathering of statistics relating to labor, the investigation of the causes of and the facts relating to controversies and disputes between employers and employees, and the publication of bulletins showing the condition of labor in this country and in others. The Children's Bureau investigates and reports upon all matters pertaining to the welfare of children and child life among all classes. DETACHED MISCELLANEOUS BUREAUS The most important and active of these detached bureaus are the Interstate Commerce Commission, the Federal Trade Commission, the Federal Reserve Board, and the Civil Service Commission, but the composition, organization, and work of these are discussed at length elsewhere. The Public Printer has charge of and manages the Government Printing Office. Here are printed all the vast number of documents, reports, and papers that are considered necessary for the government. The Joint Committee on Printing, composed of three senators and three representatives, exercises some control over the printing of reports, and has charge of the printing of the Congressional Record, which is issued daily during the sessions of Congress. The Smithsonian Institution was created to receive the be- The Smithsonian Instiquest of James Smithson, an Englishman, who, in 1826, left tution his fortune for the foundation of an institution for the "increase and diffusion of knowledge among men." It is governed by a Board of Regents consisting of the Vice President, the Chief Justice, three members of the United States Senate, three members of the House of Representatives, and six citizens of the United States appointed by a joint resolution of Congress. The secretary is the executive officer and the director of the activities of the institution. The institution in coöperation with the Library of Congress maintains a library. There are the following government bureaus under the direction of the Smithsonian Institution: the National Museum, Bureau of American Ethnology, National Zoological Park, International Exchanges, Astrophysical. Observatory, Regional Bureau for the United States, International Catalogue of Scientific Literature. American Union The Pan-American Union is the official organization of the The Pantwenty-one republics of the Western Hemisphere, founded and maintained by them for the purpose of exchanging useful information and fostering commerce, intercourse, friendship, and peace. It is supported by the joint contributions of the republics which are members. It is governed by the diplomatic representatives of the various states at Washington with the Secretary of State as chairman ex officio. It publishes monthly bulletins, handbooks, and descriptive pamphlets, commercial statements, and every variety of information helpful in the promotion of Pan-American interests. It also sets the date, selects the place of meeting, and prepares the programs for the regular Pan-American conferences. The United States Bureau of Efficiency is to establish and maintain efficiency rating for the executive departments in the District of Columbia. The United States Shipping Board was established as a war measure in 1916 to construct, equip, purchase, lease, or charter vessels suitable for use as naval auxiliaries in time of war, and may lease, sell, or charter such vessels, under the regulations provided by the president, to citizens of the United States. The board is authorized to organize one or more corporations for the it The United States Efficiency The United ping Board States Ship The Alien The United purchase, construction, lease, or charter of vessels. It also has some supervision over common carriers in that certain contracts and agreements must be filed with the board, and complaints may be made to it. It consists of five members appointed by the president, with power to appoint its own secretary and naval architects, special experts, and examiners. Other employees are under the civil-service regulations. The Alien Property Custodian had power to receive, manage, or sell the property of enemy aliens. Under this power a large number of very important industries were taken from their owners and were administered or sold under the regulations of the custodian. The United States Tariff Commission was appointed by act of Congress in 1916 to investigate the administration, operation, and effects of the customs laws and their relation to the federal revenues. The information which this commission collects is to be put at the disposal of the president, the Ways and Means Committee of the House, and the Finance Committee of the Senate. CHAPTER XI THE CONSTITUTIONAL PROVISIONS CONCERNING THE ORGANIZATION OF CONGRESS 1 cance of the legislature of a federal state The employment of the word "Congress" to designate the The signifilegislative assembly of the United States was not accidental. word "ConDeliberate design and precedent alike suggested the name. The gress" as the meetings of the colonial governors, the gatherings which preceded the Revolution, and the assembly of the Confederation were all so designated. But more important than precedent, the formation and design of the body demanded the choice of a name which should distinguish it from the old colonial assemblies and the legislatures of the states. These bodies were the legislative assemblies of single sovereign or partially sovereign states. The citizens owed but a single allegiance-allegiance to their respective states. In the words of political science, they were simple states, as contrasted with confederate or federal states, Not so with the United States. The Confederacy was a league; the new government, about to be established, was a federal state, composed not of one single sovereign political unit but of the states, each sovereign in all fields not delegated to the federal government. The legislative body must represent, therefore, not a single political unit but many units. The meaning of the terms "legislature," parliament," and "assembly" had been restricted by custom to the meeting of representatives of single states. The use of the word "Congress," itself a diplomatic term, connoted the idea of a meeting of representatives or envoys from many states. ་་ The true significance of the name "Congress," as designating an assembly of diplomats, is seen from the structure and working of both the Senate and House of Representatives. In the 1 All legislative powers herein granted shall be vested in a Congress of the United States, which shall consist of a Senate and House of Representatives. -The Constitution of the United States, Article I, Sect. i Senators sometimes regard the interests of states as superior to interest of the country Representatives often judged by what they have gained for their dis tricts rather than by serv ices to the country Unfortunate results Senate it is the more obvious. Even to-day senators sometimes speak of themselves as ambassadors of their state. The equal number assigned to every state, large or small, the method originally prescribed for their election, and the political influence of the individual senators all tend to emphasize this idea. Even party ties, strong as they are, may be broken with impunity when conflicting with the interests of the states. Thus the Democrats in 1913 were deprived of the votes of several Democratic senators, who felt that the provision for free sugar in the Underwood Tariff Bill would injure the industries of their states. In the House of Representatives this characteristic is less obvious. Nevertheless, it exists to a very real extent. The qualification for membership, constitutional and customary, makes the representative, to a very real degree, a delegate from the district which chooses him. As will be seen, favors gained for the district — public buildings, improvements, pensions, claims, and offices too often are the requisites for political preferment; nor will distinguished service to the nation as a whole often outweigh the local claims and demands for special consideration for the district. The result is unfortunate both from the point of view of the character of the members of Congress and the quality of the work they do. The successful "log roller" who obtains legislation pleasing to his constituency too often seeks and receives the support of the people. The time and energy of Congress is frittered away in meeting purely local demands, and too often wise and statesmanlike measures of national importance are saddled with restrictions and exemptions in favor of some influContrast with ential locality. In England it is far otherwise. Legislation of a English Parliament purely local character-"private bill legislation" has a procedure which is semijudicial in form and entirely different from the great political measures. Members of Parliament, although chosen by local constituencies, hold themselves bound to represent the country at large, not solely their local constituencies, and have neither the opportunity nor the burden of satisfying the local desires for national favors. The ablest leaders of the party are sure of election from some constituency and are thus enabled to lead and direct the national legislation unhampered by local demands. |