filing, and the proper number of persons certified for admission. The
apportionment of admissions from each country might be calculated on a
basis of its population, also upon the nature of the employment offered,
and upon the desirability of the alien himself, his general
assimilability, his willingness to become naturalized, to adopt the
English language and the American standard of living among efficient
workers, etc.,--all as proved by past experience with his countrymen. This
plan, in so far as it provides for a sliding scale of admissions, is in
line with that proposed by Professor Gulick. He advocates making all
nations eligible for admission and citizenship, but would admit them only
in proportion as they can be readily assimilated. This would admit
annually, say, five per cent of those already naturalized, with their
American children. The principle here seems to be that we can assimilate
from any land in, and only in, proportion to the number already
assimilated from that land. But the difficulty of applying such a test
lies in the complexity of the assimilative process. No measure yet exists
for assimilation. Anthropologists are convinced that various strains in
the populations, for example of France, or Great Britain, which have been
dwelling together for centuries, are not by any means assimilated. Mere
naturalization is not a sufficient test of assimilation; it is only the
expression of a desire to be assimilated; and it may only be a device for
the promotion of business success here or in foreign parts, as we have
already indicated in the case of the Greeks. Hence in working out the
basis of a sound immigration policy, it would seem more practicable to
consider first the question of economic utilization rather than
assimilation. This, of course, does not exclude from the Secretary of
Labor's judgment the category of assimilability as one of the factors in
determining the apportionment of admissions.

It will appear that the plan outlined above limits immigration policy to