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The Gateway: U.S. Immigration Issues and Policies.

Last year two major pieces of legislation affecting the way America approaches its immigration situation were introduced in the Congress (S. 1765 and H.R. 4832, the Omnibus Immigration and Control Act, and S. 2222 and H.R. 5872, the Immigration Reform and Control Act of 1982, both in the 97th Congress, 1st session). Both bills would make substantial changes in a number of areas of U.S. immigration law, including implementation of summary exclusion proceedings, ability to declare "immigration emergencies" with the right of interdiction on the high seas, and institution of sanctions against employers. There is an excellent chance that these bills will be reintroduced in the second session of this Congress. The proposed legislation is just one of many responses America is generating to its devastating immigration problems. This extensive and scholarly study by the American Enterprise Institute is another response. It is a collection of 11 essays, and responsive commentary, generated at an April 1980 conference, cosponsored by AEI and the University of Illinois College of Business Administration. As the essays indicate, the conference was concerned with "the scarcity of substantive research on which to base public policy" (p. 1). The essays are organized to reflect the four sessions of the conference: the supply of and demand for immigrants; the progress of immigrants; the economic impact of immigrants; and alternative immigration policies. Skimming the essays and commentary, the reader will quickly realize that the focus of the work is economic and social, not legal or practical. In fact, two-thirds of the participants were economists. This is not to diminish the usefulness of the volume. It begins to alleviate the paucity of economic analysis of our immigration situation, especially the essays by Jeffrey Williamson, Barry Chiswick, and Julian Simon on aspects of the economic impact of immigrants. These and the other essays should be of interest to scholars and researchers who are delving into the background of the problems. However, the book is of less use to the lawyer, legislator, or public policy maker who is battling on the "front lines." Several of the essays, including David Reimer's survey of American immigration policies and practices and Larry Morgan and Bruce Gardner's proposal for a U.S. guest-worker program are easily accessible to the noneconomist. In fact, Reimer's essay should probably be required reading for our legislators. However, the analytical approach to the majority of the material in this book will discourage most noneconomists. This is unfortunate because the authors have taken a significant step toward establishing a factual basis for the creation of effective immigration policies. I was disappointed, given the title and the cosponsors, that The Gateway proved so difficult for the layman to get through.