Mr. STEFAN. You have not covered immigration and naturalization in the field. You are going You are going to put the justifications in the record together with the exhibits?

Mr. WALLER. Yes, sir.

(The matter referred to is as follows:)

TABLE D.-Immigration and Naturalization, field, by objective classification symbols

TABLE D.-Immigration and Naturalization, field, by objective classification symbols-Continued

If every dollar requested for this project is not appropriated it will mean (1) reduced efficiency in the inspection services rendered international travelers; (2) an increasing number of undesirable aliens remaining unlawfully in the United States, and (3) inability on the part of the Service to deal effectively with the responsibilities specifically imposed by the Congress of the United States.

FULL-TIME EMPLOYMENT, FIELD (EXCLUSIVE OF BORDER PATROL)

A total of $15,256,000 for 4,487 man-years of full-time employment is requested for the fiscal year 1949, as compared with $15,023,000 for 4,457 man-years during the current fiscal year. This is an increase of $233,000 for 1949. This increase is subdivided as follows:

A. Promotions required by law...

B. Additional personnel (30 man-years)

Total...

$142, 400

90, 600

233, 000

A. Mandatory promotions.-The amount required for mandatory promotions represents 61 percent of the total increase for full-time employment. The estimate of $142,400 represents the amount approved by the Bureau of the Budget for this purpose, based upon its standardized formula applicable to all Government agencies. This amount includes $109,900 for automatic within-grade promotions pursuant to Federal Employees Pay Acts and $32,500 for automatic promotion of immigrant inspectors pursuant to the act of May 29, 1928, as amended (8 U. S. C. 109).

B. Additional personnel. The increase of $90,600 is required to provide 30 additional man-years of employment in 1949, 16 investigators, CAF-8, $60,300, and 14 clerks, CAF-3, $30,300. The following table shows the average force by principal employee groups for 1947, 1948, and 1949 and the increase for 1949 over 1948.

Additional investigators: The most disturbing problem with which we are faced concerns the tremendous number of nonimmigrants who are arriving in the United States for temporary stay. Officers at ports of entry exercise as great a degree of diligence in their examination as is possible under present circumstances, and deny extensions of stay in many cases. However, control depends largely upon the extent to which investigations can be conducted in the communities where these overstayed nonimmigrants have taken up residence. The number of such cases requiring investigation is increasing and will continue to increase until the situation is brought under control.

The present force is unable to give proper attention to the close follow-up now required of aliens admitted temporarily as visitors, transients, students, seamen, etc. In 1947 we tried to keep up with the situation by the temporary assignment of additional officers and clerks. With the concurrent increase in personnel requirements for inspection work, the 1948 budget will not permit such temporary assignments. The expected result is dreaded. An increasing number of aliens are being found employed in the United States in various capacities, following illegal entry or admission as visitors. The number of section 4-E students making application for employment has increased and additional alien contract labor cases are now being received. This work is in addition to the present high volume of illegal entry cases, which has increased our investigative and warrant hearing work or the past year.

There are several thousand cases of aliens admitted for temporary stay, where there is no record of departure and the period for which admitted has expired. These cases should, by all means, be investigated at the earliest possible date. Obviously, the immigration laws should be enforced. Failure to do so creates contempt for the law and encourages its violation, but it goes further than that— all of these aliens who are unlawfully here must be housed and fed. Many thousands of them engage in laboring pursuits. The alien who is here unlawfully, fearing that he might be turned in to the immigration authorities, is more tractable than the lawfully resident alien and a United States citizen, thus tending to encourage employment of illegal entrants to the exclusion of citizens and lawfully resident aliens.

The foregoing explains the need for the 16 additional investigators in 1949, as well as for continuance of the present average force of 363. On July 1, 1947, there were pending 153,614 investigations contemplating warrants of arrest. Even with the increased force it can reasonably be estimated that only 115,000 such investigations can be completed in 1949, since the average production per man-year is approximately 300.

Additional clerks: In connection with the program for following up overstayed visitors and transients, it is necessary to prepare card records on all temporary and transient arrivals, check out-bound manifests against such cards, and write follow-up letters to the aliens or to other districts or stations requesting investigations. The volume of clerical work on immigration matters is terrific. It embraces such matters as applications for extension of temporary stay, bordercrossing cards, reentry permits, student cases, preexaminations, adjustment of

There are

status, visa petitions, boards of special inquiry, fines, and head tax. now arrearages in almost every district. In the Los Angeles office alone, there are approximately 76,000 voluntary departure cards received from the various ports which are on hand for filing; approximately 36,000 alien registration cards showing temporary admission, and being potential expulsión cases, are on hand for creation of files which, of course, require searching the indexes in each case, and approximately 2,000 reports from the California Bureau of Criminal Investigation are on hand for a search of indexes and filing. There is a pressing need for additional stenographic assistance to expedite the operation of boards of special inquiry. It is impossible for a single secretary-member to maintain transcription on a current basis due to legnthened board procedure occasioned by enactment of the Administrative Procedures Act unless granted at least 1 day each week free from recording hearings.

Primary inspectors: From the earlier discussion of the inspection problem it will be evident that there can be no reduction in the average employment of 1,058 primary inspectors. The table, Comparative Statistics on Specified Immigration and Naturalization Activities, shows that (1) the number of aliens admitted advanced progressively from 202,306 in 1945 to 513,597 in 1947 and the trend is still upward; (2) the number of arriving airplanes inspected increased from 44,389 in 1945 to 74,681 in 1947, with 90,000 estimated for 1949, and (3) the number of border crossers increased from 55,801,140 in 1945 to 77,350,266 in 1947.

Chairmen, boards of special inquiry: The average force of 19 board of special inquiry chairmen is already taxed to the limit. With the anticipated increases in the number of arrivals, together with the complexity of Chinese cases now being received and the lengthened procedure required by the Administrative Procedures Act, this force will be hard pressed to accomplish 27,500 hearings in 1949 as compared with 25,648 in 1947.

Deportation examiners: An average of 175 deportation examiners was employed during 1947 when 18,663 aliens were deported. A total of 21,600 deportations is estimated for 1949, so that only by the utmost effort on the part of each officer can the work load be carried with an average force of 172 deportation examiners in that year.

Status examiners: An average force of 34 status examiners is estimated for 1949, as compared with 36 employed in 1947. This force is engaged primarily upon applications for derivative citizenship certificates and applications for registry of record of arrival. While the table of comparative statistics indicates that the volume of this work anticipated for 1949 will be about the same as that during 1946 and 1947, it is to be emphasized that the number of status examiners has been reduced from 51 in 1946 to 34 in 1948 and 1949.

Naturalization examiners: The remarks concerning status examiners apply equally to naturalization examiners. The average force of naturalization examiners has been reduced progressively from 232 in 1946 to 190 in 1947 and 160 in 1948 and 1949. In the case of naturalization examiners it must be considered that while the trend of the volume of petitions filed with courts has been downward, the number of declarations filed has been increasing since 1946. This means that the volume of petitions filed will resume an upward trend about the close of the fiscal year 1949. No further reduction in the force of naturalization examiners can be considered in the light of the general resumption in naturalization activities.

Miscellaneous officers: Grouped under this classification are attorneys, parole officers, detention and deportation officers. The estimated average employment for this group has been reduced to 41 in 1948 and 1949 as compared with 56 employed in 1947. This reduction has been possible largely through greater utilization of air transportation for alien party movements and shifting of certain responsibilities to the officer in charge and supervisory group. With the general increases expected in the number of deportations, arrivals, hearings, etc., an average force of 41 represents the minimum with which effective operations can proceed.

Other employee groups: The other groups shown on the table, Principal Employee Groups, consist of officers in charge and supervisory employees, security officers, and the custodial force. The total average force estimated for these groups in 1949 is approximately 13 percent less than that employed in 1947. The statistics cannot be related directly to the work of this force. However, the increases indicated in immigration activity generally show that, in view of the force reductions already accomplished, the figures indicated for 1949 cannot be pared further without a dangerous weakening of the support needed for successful administration and enforcement of the laws.

1 Estimate for 4 months based upon actual figures for July and August and checked with trend shown by January to June figures.

2 Estimated inward movement based upon total arrivals and departures reported for 4 months.

3 Estimate based upon actual total investigations for 4 months, subdivided by class in same percentage as actual figures for January to June.

4 Comparable statistics for prior years not available.

* Covers 6 months only. Based on revised reporting system.