December 22, 1945
New York Times.
The war has brought in its wake an appalling dislocation of populations in Europe. Many humanitarian organizations, including the United Nations Relief and the Rehabilitation Administration, are doing their utmost to solve the multitude of problems arising in connection with this dislocation of hundreds of thousands of persons. Every effort is being made to return the displaced persons and refugees in the various countries of Europe to their former homes. The great difficulty is that so many of these persons have no homes to which they may return. The immensity of the problem of displaced persons and refugees is almost beyond comprehension.
A number of countries in Europe, including Switzerland, Sweden, France and England, are working toward its solution. The United States shares the responsibility to relieve the suffering. To the extent that our present immigration laws permit, everything possible should be done at once to facilitate the entrance of some of these displaced persons and refugees into the United States.
In this way we may do something to relieve human misery and set an example to the other countries of the world which are able to receive some of these war sufferers. I feel that it is essential that we do this ourselves to show our good faith in requesting other nations to open their doors for this purpose.
Most of these persons are natives of central and eastern Europe and the Balkans. The immigration quotas for all these countries for one year total approximately 39,000, two-thirds of which are allotted to Germany. Under the law, in any single month the number of visas issued cannot exceed 10 per cent of the annual quota. This means that from now on only about 3,900 visas can be issued each month to persons who are natives of these countries.
Very few persons from Europe have migrated to the United States during the war years. In the fiscal year 1942, only 10 per cent of the immigration quotas was used; in 1943, 5 per cent; in 1944, 6 per cent; and in 1945, 7 per cent. As of Nov. 30, 1945, the end of the fifth month of the present fiscal year, only about 10 per cent of the quotas for the European countries has been used. These unused quotas, however, do not accumulate through the years, and I do not intend to ask the Congress to change this rule.
The factors chiefly responsible for these low immigration figures were restraints imposed by the enemy, transportation difficulties and the absence of consular facilities. Most of those Europeans who have been admitted to the United States during the last five years were persons who left Europe prior to the war, and thereafter entered here from non-European countries.
I consider that common decency and the fundamental comradeship of all human beings require us to do what lies within our power to see that our established immigration quotas are used in order to reduce human suffering. I am taking the necessary steps to see that this is done as quickly as possible.
Of the displaced persons and refugees whose entrance into the United States we will permit under this plan, it is hoped that the majority will be orphaned children. The provisions of law prohibiting the entry of persons likely to become public charges will be strictly observed. Responsible welfare organizations now at work in this field will guarantee that these children will not become public charges.
Similar guarantees have to be or will be made on behalf of adult persons. The record of these welfare organizations throughout the past years has been excellent, and I am informed that no persons admitted under their sponsorship have ever become charges on their communities. Moreover, many of the immigrants will have close family ties in the United States and will receive the assistance of their relatives until they are in a position to provide for themselves.
These relatives or organizations will also advance the necessary visa fees and travel fare. Where the necessary funds for travel fare and visa fees have not been advanced by a welfare organization or relative, the individual applicant must meet these costs. In this way the transportation of these immigrants across the Atlantic will not cost the American taxpayers a single dollar.
In order to enter the United States it is necessary to obtain a visa from a consular officer of the Department of State. As everyone knows, a great many of our consular establishments all over the world were disrupted and their operations suspended when the war came. It is physically impossible to reopen and to restaff all of them overnight. Consequently it is necessary to choose the area in which to concentrate our immediate efforts. This is a painful necessity because it requires us to make an almost impossible choice among degrees of misery. But if we refrain from making a choice because it will necessarily be arbitrary, no choice will ever be made and we shall end by helping no one.
The decision has been made, therefore, to concentrate our immediate efforts in the American zones of occupation in Europe. This is not intended, however entirely to exclude issuance of visas in other parts of the world.
In our zones in Europe there are citizens of every major European country. Visas issued to displaced persons and refugees will be charged, according to law, to the countries of their origin. They will be distributed fairly among persons of all faiths, creeds and nationality.
It is intended. that, as soon as practicable, regular consular facilities will be reestablished in every part of the world, and the usual, orderly methods of registering and reviewing visa applications will be resumed. The pressing need, however, is to act now in a way that will produce immediate and tangible results. I hope that by early spring adequate consular facilities will be in operation in our zones in Europe, so that immigration can begin immediately upon the availability of ships.
I am informed that there are various measures now pending before the Congress which would either prohibit or severely reduce further immigration. I hope that such legislation will not be passed. This period of unspeakable human distress is not the time for us to close or to narrow our gates. I wish to emphasize, however, that any effort to bring relief to these displaced persons and refugees must and will be strictly within the limits of the present quotas as imposed by law.
There is one particular matter involving a relatively small number of aliens. President Roosevelt, in an endeavor to assist in handling displaced persons and refugees during the war and upon the recommendation of the War Refugee Board, directed that a group of about 1,000 displaced persons be removed from refugee camps in Italy and settled temporarily in a war relocation camp near Oswego, N. Y. Shortly thereafter, President Roosevelt informed the Congress that these persons would be returned to their homelands after the war.
Upon the basis of a careful survey by the Department of State and the Immigration and Naturalization Service, it has been determined that if these persons were now applying for admission to the United States most of them would be admissible under the immigration laws.
In the circumstances it would be inhumane and wasteful to require these people to go all the way back to Europe merely for the purpose of applying there for immigration visas and returning to the United States. Many of them have close relatives, including sons and daughters, who are citizens of the United States and who have served and are serving honorably in the armed forces of our country.
I am therefore directing the Secretary of State and the Attorney General to adjust the immigration status of the members of this camp who may wish to remain here, in strict accordance with existing laws and regulations
The number of persons at the Oswego camp is, however, comparatively small. Our major task is to facilitate the entry into the United States of displaced persons and refugees still in Europe. To meet this larger problem, I am directing the Secretary of State, the Attorney General, the Secretary of War, the War Shipping Administrator and the Surgeon General of the Public Health Service to proceed at once to take all appropriate steps to expedite the quota immigration of displaced persons and refugees from Europe to the United States. Representatives of these officials will depart for Europe very soon to prepare detailed plans for the prompt execution of this project
The attached directive has been issued by me to the responsible Government agencies to carry out this policy. I wish to emphasize, above all, that nothing in this directive will deprive a single American soldier or his wife or children of a berth on a vessel homeward bound, or delay their return.
This is the opportunity for America to set an example for the rest of the world in cooperation toward alleviating human misery.
December 22, 1945
Secretary of State, Secretary of War, Attorney General, War Shipping Administrator, Surgeon General of the Public Health Service, Director General of UNRRA.
The grave dislocation of populations in Europe resulting from the war has produced human suffering that the people of the United States cannot and will not ignore. This Government should take every possible measure to facilitate full immigration to the United States under existing quota laws.
The war has most seriously disrupted our normal facilities for handling immigration matters in many parts of the world. At the same time the demands upon those facilities have increased manifold.
It is, therefore, necessary that immigration under the quotas be resumed initially in the areas of greatest need. I, therefore, direct the Secretary of State, the Secretary of War, the Attorney General, the Surgeon General of the Public Health Service, the War Shipping Administrator, and other appropriate officials to take the following action:
The Secretary of State is directed to establish with the utmost dispatch consular facilities at or near displaced person and refugee assembly center areas in the American zones of occupation. It shall be the responsibility of these consular officers, in conjunction with the immigrant inspectors, to determine as quickly as possible the eligibility of the applicants for visas and admission to the United States.
For this purpose the Secretary will, if necessary, divert the personnel and funds of his department from other functions in order to insure the most expeditious handling of this operation. In cooperation with the Attorney General he shall appoint as temporary vice consuls, authorized to issue visas, such officers of the Immigration and Naturalization Service as can be made available for this program
Within the limits of administrative discretion, the officers of the Department of State assigned to this program shall make every effort to simplify and to hasten the process of issuing visas. If necessary, blocs of visa numbers may be assigned to each of the emergency consular establishments. Each such bloc may be used to meet the applications filed at the consular establishment to which the bloc is assigned. It is not intended, however, entirely to exclude the issuance of visas in other parts of the world.
Visas should be distributed fairly among persons of all faiths, creeds and nationalities. I desire that special attention be devoted to orphaned children to whom it is hoped the majority of visas will be issued.
With respect to the requirement of law that visas may not be issued to applicants likely to become public charges after admission to the United States, the Secretary of State shall cooperate with the immigration and naturalization service in perfecting appropriate arrangements with welfare organizations in the United States which may be prepared to guarantee financial support to successful applicants. This may be accomplished by corporate affidavit or by any means deemed appropriate and practicable.
The Secretary of War, subject to limitation imposed by the Congress on War Department appropriations, will give such help as is practicable in:
(A) Furnishing information to appropriate consular officers and immigrant inspectors to facilitate in the selection of applicants for visas; and
(B) Assisting until other facilities suffice in:
(1) Transporting immigrants to a European port;
(2) Feeding, housing and providing medical care to such immigrants until embarked; and
(C) Making available office facilities, billets, messes and transportation for Department of State, Department of Justice and United Nations Relief and Rehabilitation Administration personnel connected with this work, where practicable and requiring no out-of-pocket expenditure by the War Department and when other suitable facilities are not available.
The Attorney General, through the Immigration and Naturalization Service, will assign personnel on duty in the American zones of operation to make the immigration inspections, to assist consular officers of the Department of State in connection with the issuance of visas and to take the necessary steps to settle the cases of those Allies presently interned at Oswego through appropriate statutory and administrative processes.
The Administration of the War Shipping Administration will make the necessary arrangements for water transportation from the port of embarkation in Europe to the United States, subject to the provision that the movement of immigrants will in no way interfere with the scheduled return of service personnel and their spouses and children from the European Theatre.
The Surgeon General of the Public Health Service will assign to duty in the American zones of occupation the necessary personnel to conduct the mental and physical examinations of prospective immigrants prescribed in the immigration laws.
The Director General of the United Nations Relief and Rehabilitation Administration will be requested to provide all possible aid to the United States authorities in preparing these people for transportation to the United States and to assist in their care, particularly in the cases of children in transit and others needing special attention.
In order to insure the effective execution of this program, the Secretary of State, the Secretary of War, the Attorney General, War Shipping Administrator and the Surgeon General of the Public Health Service shall appoint representatives to serve as members of an interdepartmental committee under the chairmanship of the Commissioner of Immigration and Naturalization.