KCI우수등재
미국 문맹테스트 이민법을 통해서 본의회와 이민국의 관계 = Relationship between Congress and the Bureau of Immigration through the Lens of the Literacy Test Act in America
저자
발행기관
학술지명
권호사항
발행연도
2009
작성언어
-주제어
KDC
900
등재정보
KCI우수등재
자료형태
학술저널
수록면
197-228(32쪽)
제공처
소장기관
This study is to reveal why and how the Bureau of Immigration extended its discretionary power in relationship to Congress` attitude toward the law and its administration. It will also explain why the immigration service ended up being both inefficient and dehumanizing and how the conflict between Congress and the Bureau of Immigration, by extension, created an expanded illegal immigration problem. In many studies, scholars of immigration history have pointed out that the federal immigration agency functioned with considerable freedom compared to other government agencies. Since the very beginning of the twentieth century, indeed, the Bureau of Immigration and each immigration station acted largely unchecked in applying its discretion to immigration laws. This discretion led to abuses. Its scope of responsibilities and a heavy work prompted scholars to accuse the immigration agency of inefficient and dehumanizing administration. The history of self-governing immigration policy by the Bureau of Immigration was largely carried on in relation to Congressional attitudes toward immigration issues and immigration laws because Congress and the immigration administration or administrators shared responsibility for running immigration policy. In order to explore the relationship between Congress and the Bureau of Immigration, this study uses the Literacy Test Act of 1917 since it was the first congressional attempt to legislate a systematic restrictive immigration law. In addition, the Literacy Test Act of 1917 played the role of prototype for the relationship between Congress and the Bureau of Immigration. No other immigration laws took such a long time of debates in Congress than the Literacy Test Act. After 4 presidential vetoes, it took almost a quarter century to become the law since its first appearance in an 1893 bill. But after a long and exhausting debate to meet political pressures from various interest groups, Congress did not want to interfere with way to complex and difficult immigration issues, resulting in discretionary administrations. And this development became a standard practice. In the context of the Literacy Test Act and its administration, congressional pressure on the Bureau had mainly two facets: the unwillingness to interfere with immigration issues right after the enactment of legislation, and the matter of money. There was also an enormously wide diversity of individual cases and exceptions that immigration law had to cover. For these reasons, Congress, after passing legislation, tended to delegate further responsibility of preparing regulations to administrative officials. Given Congress` unwillingness to interfere with immigration issues, immigration officers gradually could and did operate with wide latitude, often reflecting the growing racist ideas of the period. However, Congress in the early 1920s was not willing to enlarge the station`s facilities or even repair the existing structures. Rather, by facing a difficult dilemma between the demand from growers for cheap labor and anti-immigrant nativism, Congress negotiated these concerns by focusing on “temporary solutions” such as exempting Mexicans from the literacy test. Congress in 1923 allowed the temporary admission of illiterate laborers on the pretext of relieving the administrative hardship caused by dealing with illiterates habitually crossing at the borders. Facing increasing illegal traffics on the border lines, the immigration service confronted even more complex pressures than just a matter of inadequate budget and lack of capacity. As the restrictive measures of the immigration law began to be felt, this large increase of illegal immigration were not surprising. And, by adding the provision allowing the temporary admission of illiterate laborers, Congress had constructed classifications of entry that supported local and regional labor markets. But this congressional “solution,” with its lack of capacity to provide a comprehensive answer to immigration policy, actually and eventually encouraged illegal immigration.
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