Someone has said that the problem of the 20th century is to learn how to live together, class with class, nation with nation, race with race. It is the problem that we must master in the Pacific before it masters us. We may build up, not tear down, a civilization fairer and stronger than any that the world has ever known, because East and West, the Old World and the New, each makes its contribution for the common good.

C. SCIENTIFIC CO-OPERATION BY HERBERT E. GREGORY

Scientific work in the Pacific has been established on a cooperative basis. It supplements the work of organizations engaged in social, political and religious activities.

Scientific studies are guided by the National Research councils of the various Pacific countries. These Research councils differ somewhat in their connection with their Governments. In the United States, the Council has the very favorable position of being a Government advisor without being under Government control. In Australia, Japan and Canada there is a close connection with the Governments; in New Zealand, the Institute of Science and, in the Philippines, the Bureau of Science, take the place of councils. These National Research councils have each a Committee on Pacific Investigations. This Committee is connected in one way or another with the parent-organizations-in the United States, it is part of the Division of Foreign Relations. Through these committees passes much of the work relating to Pacific science.

This organization which brings about co-operation in Pacific science involves a great many institutions, a great many individuals and several governments. The governments operate mainly through their scientific bureaus, which are closely associated with the Research councils. Outside of the direct governmental co-operation, the different institutions and individuals are tied together in all sorts of ways.

This co-operative organization was established after long, careful study and with a good deal of hesitation. When, many years ago, the proposal was made for a combined attack on unsolved Pacific problems, the question was seriously. raised whether it was possible for scientific men to work together, even in one country, and especially in different countries. Is it possible for institutions and governments to unite on a common project or program? Is the government that owns a Pacific island going to welcome a scientist from another country who wishes to make maps, study conditions, make collections, and perhaps carry the collections off to another country? The proposal involved a code of ethics which seems rather ideal, for it is obvious that no institution can enter into work of this kind successfully,

if it thinks first in terms of itself; if its primary business is to build itself up instead of to serve.

In order to adopt a co-operative system it was necessary to assume that individuals, institutions and governments could work together; that there were enough broad-minded men, who would submerge themselves, sacrifice their institutions, their self-interests, and work entirely to advance knowledge instead of to enhance their reputation. Correspondence between the scientific men of the different nations, a great many conferences within these nations and between government bureaus, gave promise of success.

The advantages of co-operation in Pacific scientific work are these: 1. It recognizes the limitations of the human intellect. The Pacific is a very big place and bristles with scientific problems. The problems are too big for any man or any institution or any one country-so big that they can not be solved in any reasonable time and so complex as to require the union of a great many minds in order to make any progress at all.

2. The co-operative method provides an opportunity for adequate planning of projects. For large projects, it seems that a great amount of time spent in making the plan before anything is done at all is time profitably spent. In order to make a satisfactory plan it is necessary to have all the view-points that can be gotten.

3. Co-operation tends to secure adequate publication of scientific results. The "hit-or-miss" method results in a lot of separate contributions unconnected, often overlapping, whereas the ideal thing is to save our friends the necessity of reading so much stuff, and by an interchange of criticism when a paper is in process of making, to prepare manuscripts so that each is a progressive contribution to a problem instead of separate contributions to unrelated problems.

4. By a co-operative method it is possible to use amateurs, who greatly outnumber professional scientists. Observations by a missionary, merchant, or native-anyone with a keen sense, who notes things down,-can be utilized under a co-operative scheme.

5. Cost is another consideration. To spend one month on each of the 20,000 Pacific islands an exploring ship with a group of scientists would require about 1,600 years and about $95,000,000. And there are other Pacific lands besides islands and some islands might require more than a month for the study of its geology, zoology, botany, and ethnology!

On the whole, I feel that the scientists deserve no special credit for adopting the co-operative method; the work can be done in no other way.

In a serious consideration of Pacific work, the first thing to do, it was thought, was to find out the present state of knowledge of the various branches of science. The way to find that out was to call together a group of men who were familiar with problems in their own fields. An informal exchange of views took place at the Australian meeting of the British Association for the Advancement of Science in 1914 and "Plans for Pacific Exploration" formed part of the program for the Pasadena meeting of the American Association in 1918. After much correspondence, the United States National Research Council organized the Pan-Pacific Science Conference, which met in Honolulu in 1920. For this Conference the delegates were carefully selected to insure the attendance of leaders of scientific thought in Japan, Australia, New Zealand, the United States and Canada. The local newspapers called the delegates a "hand-picked bunch." On the basis of what little was known programs were formulated for co-operative work, including personnel, time, place, and costs. Most of the projects outlined have been brought to completion.

In 1923, the Pacific scientists met in Sydney and Melbourne under the auspices of the Australian Research Council. About 120 delegates gave serious consideration to the problems which concern the advancement of knowledge of Pacific peoples. The Australian Congress decided to undertake several pieces of work for which governmental and privately endowed institutions in different countries shared the responsibility.

A third Science Congress is to meet in Japan in 1926, under the auspices of the Japanese National Research Council.

Fundamentally, Pacific scientists are not concerned with human relations. They are interested in zoology, geology, botany, agriculture-in pure and applied science, not history, ethics, religion, and politics. But from the beginning of the investigation, they have been brought face to face with human problems. It was found that the gathering of knowledge of rocks and of marine animals could wait, but that if science could do anything to improve the condition of Pacific peoples, it must act at once. It was therefore decided to select problems not in order of their intrinsic merits, but in order of their urgency. The Australian Congress unanimously passed the resolution: "The scientific problem of the Pacific which stands first in order of urgency is the preservation of the health and life of the native races."

In the face of the facts that 75 per cent of the Polynesians have disappeared since 1870 and that 8,400 people died in a single epidemic in Samoa in 1919, it would be a hard-hearted scientist indeed who would not

drop his personal interests to assist in the preservation of races which have much to contribute to human culture.

This human side has come to play a very large part in the scientific work in the Pacific. We feel that it is possible to develop the Pacific islands into a place that will support some millions of people. Hawaii is a good illustration of what may be done. Our whole purpose is to use science to make the Pacific a better place to live in for us, and to make room in it for a happy life for those who are to follow us.

22. IMMIGRATION IN THE PACIFIC

ANALYSIS OF ACTS AND ADMINISTRATION

PAPER PREPARED AT REQUEST OF INSTITUTE OF PACIFIC RELATIONS
BY H. DUNCAN HALL

Introductory Note:

The following analysis covers the chief aspects of the more important immigration Acts of the Pacific. The student who sets out to make a comparative study of such legislation, must constantly bear in mind that it is useless to study it in vacuum. An immigration Act usually expresses in a special degree the particular economic and geographical environment of the country which enacts it.

A few examples may be given of the kind of facts which must be kept in mind when comparing one Act with another. Emigration usually takes place from countries with lower, to countries with higher, economic standards. But some countries (e. g., Japan and Mexico) occupy an intermediate position. Japan both receives immigrants from lower standard countries such as China and Korea, and sends emigrants to higher standard countries such as the United States. Geographical situation may be all important. The smallness of Australia's population in relation to her area must be read in the light of her geographical environment-her distance from other centers of population; the difficulty which her peculiar environment imposes in the way of settlement; and the proportion of her usable to her total area-which is less than 13. The relation of methods of controlling immigration to the circumstances of the particular country adopting these methods, must be remembered. The system whereby the admission of aliens for permanent settlement is controlled as in New Zealand by permits issued at the discretion of the Minister, may be workable where the country is isolated and the stream of immigration is small, but it may be quite unworkable as a method of controlling immigration to a country with conditions like those of the United States.

Amongst the chief methods of controlling immigration-such as the quota system, literary tests, the permit system, etc.-there is one method in general use which does not receive sufficient emphasis in the following analysis. This is the control over immigration exercised by many countries through their consuls and immigration agents abroad, by the issue or withholding of pass-ports and visas. The refusal of shipping companies to issue tickets to immigrants likely to be denied admission and therefore to become charges upon the companies, is another factor to be taken into consideration.

Where possible some reference is made to the more important administrative modifications of Acts and ordinances. The importance of this aspect cannot be over-emphasized. But the administration of the immigration Acts of the Pacific countries is as yet an unwritten chapter.

It would be unwise to draw any elaborate conclusion from this tentative analysis. But the main point which seems to emerge is that the various acts have a great deal in common. They are based on the same fundamental principles. As regards conditions of admission there is much common ground. There is more divergence in respect of methods of controlling and restricting immigration; but even here there is a measure of agreement, e. g., as regards the large amount of discretionary power left in the hands of administrative officials. The wide use of the permit system, and the quota system—either fixed or variable quotas—may be noted. A preliminary study of some of the divergencies raises the question whether greater uniformity (e. g., as regards the treatment of exempted or non-immigrant classes) might not be possible and desirable.

For purposes of comparison, the analysis of each country's legislation proceeds as far as possible along the following lines. (See Emigration and Immigration: Legislation and Treaties (International Labour Office, 1922.)

I. Basic Principles.

2.

Conditions of Admission and methods of controlling immigration.

3. (a) Police Regulations (moral character, etc.).

(b) Health Regulations.

(c) Defence of Social Order.

(d) Regulations relating to race, nationality or religion.

(e) Literacy tests.

(f) Economic conditions.

(g) Numerical limitation.

3. Exempted classes or non-immigrants.