In 1907 the U.S. Congress created a joint commission to investigate what many Americans saw as a national crisis: an unprecedented number of immigrants flowing into the United States. Experts—women and men trained in the new field of social science—fanned out across the country to collect data on these fresh arrivals. The trove of information they amassed shaped how Americans thought about immigrants, themselves, and the nation’s place in the world. Katherine Benton-Cohen argues that the Dillingham Commission’s legacy continues to inform the ways that U.S. policy addresses questions raised by immigration, over a century later. Within a decade of its launch, almost all of the commission’s recommendations—including a literacy test, a quota system based on national origin, the continuation of Asian exclusion, and greater federal oversight of immigration policy—were implemented into law. Inventing the Immigration Problem describes the labyrinthine bureaucracy, broad administrative authority, and quantitative record-keeping that followed in the wake of these regulations. Their implementation marks a final turn away from an immigration policy motivated by executive-branch concerns over foreign policy and toward one dictated by domestic labor politics. The Dillingham Commission—which remains the largest immigration study ever conducted in the United States—reflects its particular moment in time when mass immigration, the birth of modern social science, and an aggressive foreign policy fostered a newly robust and optimistic notion of federal power. Its quintessentially Progressive formulation of America’s immigration problem, and its recommendations, endure today in almost every component of immigration policy, control, and enforcement.

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The "Great American Problem" at the turn of the twentieth century was immigration. In the years after the Civil War, not only had the annual numbers of immigrants skyrocketed but the demographic mix had changed. These so-called new immigrants came from eastern and southern Europe; many were Catholics or Jews. Clustered in the slums, clinging to their homeland traditions, they drew suspicion. Rumors of a papist conspiracy and a wave of anti-Semitism swept the nation as rabid nativists crusaded--sometimes violently--for the elimination of 'foreigners'. In place of wholesale denunciation, wild theories, and impractical propositions, however, progressive reformers proposed the calm consideration of rational and practical measures. With their faith in social engineering, they believed that enlightened public policy would lead to prosperity and justice. Such was the hope of the Dillingham Commission, appointed by Congress in 1907 to investigate the immigrant problem. In Immigrants, Progressives, and Exclusion Politics, Robert Zeidel introduces the nine members of the Dillingham Commission, created by the Immigration Act of 1907, and shadows them from day to day, in the office, on board ship, at the inspection station. With every mile they traveled through Europe, with every form that their staff completed, the commissioners meticulously gathered facts. On every page of their 41-volume report, they sought to present those facts without bias. In general, the Dillingham Commission reached positive conclusions about immigrants. While it recommended a few restrictions, it did so primarily for economic--rather than cultural or "racial"--reasons. With the isolationist backlash after the Great War and in the face of the Red Scare, the commission saw its work hijacked. Compiled in the spirit of objectivity, the report was employed to justify purely nativist goals as the United States imposed stringent regulations limiting the number of immigrants from other countries. Prejudice trumped progressive idealism. As Zeidel demonstrates, social scientists in the 1920s learned what physicists would discover two decades later: scientists do not control the consequences of their research.

This book sheds light on one of the most controversial issues of the decade. It identifies the economic gains and losses from immigration--for the nation, states, and local areas--and provides a foundation for public discussion and policymaking. Three key questions are explored: What is the influence of immigration on the overall economy, especially national and regional labor markets? What are the overall effects of immigration on federal, state, and local government budgets? What effects will immigration have on the future size and makeup of the nation's population over the next 50 years? The New Americans examines what immigrants gain by coming to the United States and what they contribute to the country, the skills of immigrants and those of native-born Americans, the experiences of immigrant women and other groups, and much more. It offers examples of how to measure the impact of immigration on government revenues and expenditures--estimating one year's fiscal impact in California, New Jersey, and the United States and projecting the long-run fiscal effects on government revenues and expenditures. Also included is background information on immigration policies and practices and data on where immigrants come from, what they do in America, and how they will change the nation's social fabric in the decades to come.