The Evian Conference on the Refugee Question (Part E) 
 
 Source: S. Adler-Rudel, Year Book XIII of the Leo Baeck Institute (London 1968), p. 235-273 
 
 
 1. Problems arising out of the laws and regulations dealing with immigration. 
 
 The laws regulating the conditions under which immigrants may or may not be admitted are the most important instrument at the disposal of the government of the countries of immigration for enforcing their immigration policies. Obviously, therefore, we must leave it to the individual governments of the countries that have declared their willingness to co-operate in the solution of the problem, to determine their capacity to absorb immigrants, to set on a plan distributing the immigrants among the individual countries and to formulate the financial as well as formal requirements under which immigration will be possible. 
 On the basis of our experience during the last few years we should like to submit below, as a contribution towards the formulation of such a plan, a few suggestions which we believe vital for the planning and proper carrying out of both emigration and immigration. 
 
 
 Stabilising the regulations: 
 
 Planning for and regulations of emigration, both of which aim at a far-reaching agreement between the interests of the countries of immigration and the interests of the emigrants, presupposes stability in the laws regulating immigration. 
 It would be impossible to formulate plans for the proper Gaining of suitable immigrants in new occupations and languages for any particular country, unless one could be reasonably sure that no material changes in the immigration laws are likely to occur. 
 
 
 Uniform handling of regulations: 
 
 Of equal importance for the proper carrying through of emigration is the uniform handling, on the part of immigration officials and the consulates of the countries of immigration, of the regulations relating to immigration. 
 We have noticed that regulations (for instance those concerning consular fees) have been interpreted differently by different authorities, which has given rise to difficulties which could be avoided by instructing the authorities in charge of immigration accordingly . 
 
 
 Facilitating the formalities: 
 
 Immigration under and within the limits of the immigration laws could be facilitated considerably by the simplification of the necessary formalities. Reducing to a minimum in the case of bona fide immigrants the number of documents required and of formalities to be complied with would be of considerable help. The Jewish organisations charged with the preparation and carrying through of the emigration, are, themselves, interested in a very large measure in seeing to it that immigrants comply with the immigration laws for their country of destination. In view of the fact that the Jewish emigration organisations are responsible not only to the German authorities and the authorities of the countries of immigration, but also to the immigrants themselves, it might be feasible to require only the most important documents such as identification uppers, a certificate from the police department and a medical examination. This would also help to reduce the cost of legalising the various documents, which sometimes run into very large amounts. 
 As regards identification papers, some way should be considered to provide emigrants without nationality or those that have lost it with a document, which will be recognised by the immigration authorities. In cases where the ordinary identification papers have become void it would assist the immigrants in becoming absorbed into their new country, if they could receive a document certifying their admission into the country and granting them the right to stay. 
 
 
 Landing money instead of blocked deposits: 
 
 In some countries admission is dependent on a deposit being made by the immigrants which will remain blocked for a very considerable time. It would help the immigrant in getting settled if the blocked deposit might be replaced wholly or in part by so-called landing money . The immigrant could then use such money as he will have to produce on landing, as has always been the case in a number of countries in any case for immediate investment in a business, instead of having to borrow or waiting for its release which , in some cases, would be carried out in instalments spread over a long time. 
 
 
 The family as the unit for landing money: 
 
 In case of married couples the amount of the landing money should be based on the family as the unit, i.e. husband, wife and children under age, should not be required to produce the landing money for every individual in the family, as is now the case in some countries. 
 This would eliminate difficulties and hardships arising out of the fact that under the present procedure husbands will be separated for long periods from their families and children from their parents. 
 When setting the amount required as landing money the fact should be kept in mind that the immigrants are able to acquire only limited amounts of foreign exchange. Setting too high a landing money might be the equivalent of a stoppage of immigration, because the immigrants will be unable to procure the amounts required. 
 
 
 Facilitating requests for immigrants: 
 
 Certain countries will admit immigrants on the strength of immigration affidavits or requests by one of their citizens. In these cases immigration could be very materially facilitated by a liberal interpretation of the financial status of the guarantor or if the personality and the professional ability of the applicant could be taken into account, or if such guarantees would be accepted from relatives, friends and certain recognised societies. 
 
 
 Contract labour: 
 
 Certain countries will admit contract labour. If a labour exchange, under public control, could be established, it would be possible to import into such countries, workers to the extent as the country sees fit to admit. 
 If the immigrant, on the strength of his contract, will be able to support himself out of his wages without any additional expense and merely on the strength of his ability to work, he might be admitted without any further guarantees as to his financial status. The occupational training of the emigrants could be based on the requirements of the countries of immigration in certain crafts. 
 
 
 Colonising: 
 A number of countries, particularly those thinly populated, misfit admit sealers and their families, farmers and farm trained persons who, by starting settlements , would contribute to the development of the country. 
 That Jewish immigrants, if properly trained, are able to colonise successfully is demonstrated by the agricultural and mixed settlements in Palestine, the colonies on which the IDA settled Jewish families in the Argentine - and the success of several smaller Jewish settlements in a number of other countries. We believe that, at the present time, there are several thousand Jewish families in Germany that are willing and able to settle as farmers. If, therefore, the immigration regulations can be adapted to the requirements of such settlements, it would be possible to settle state or privately owned farms with Jewish immigrants in countries with a suitable climate. 
 
 
 Immigration of children and youth: 
 
 From the point of view of the receiving country it appears as though the admission of youthful immigrants offers great advantages. Oar experience shows that those children will most easily and completely adopt the language and the customs of their new country who had previously been raised with an eye towards the particular circumstances of their country of immigration. 
 
 
 Up till now 2204 children and juveniles of the ages 14 to 17 have been settled in Palestine with the help of the "Kinder- und Jugendalijah" Furthermore, we have placed 427 children of the ages 10 to 14 in families in the United States. 
 If it could be arranged that the youth be admitted either to be placed with families willing to take them in or to be raised in schools or institutions, we believe that the children, when entering upon a business career, will be familiar with life as it exists in their new countries. 
 
 
 Special facfor the subsequent immigration of the immediate family 
 
 It is our experience that Jewish emigrants will send for their families at the earliest possible moment. As soon as the emigrant has taken root in his new country, he will try to have his family with him once again and he will make requests for the admission of his relations, parents and children. These requests for the admission of relations could be facilitated if the request need merely be accompanied by evidence that the applicant trill be able to take care of his relations after they are admitted. 
 This proposition, if adopted, would help avoid a very extended separation of the individual members of a family. On the other hand, in view of the evidence that will have to be submitted as to the ability to support the new arrivals, the country of immigration is hardly running any risk in this matter. At the moment, several countries still require an immigrant to have resided in the country for a number of years before he will have the right to request the admission of relatives. In many cases this represents an unfair hardship, which could easily be avoided. 
 
 
 Directing the Emigration 
 
 If the above propositions, which have been submitted merely as examples, could be adopted, it would give the organisations in charge of the arrangements, for the Jewish emigration from Germany (Hilfsverein der Juden in Deutschland, Palaestina-Amt der Jewish Agency for Palestine) the ability to influence in an even larger degree than hitherto the choice of the individual emigrant as to where he should go. 
 The choice of the country, which an emigrant selects, is invariably influenced by the emigrant's personal initiative, his professional or occupational tendencies, his family and relations as well as a number of other factors. The personal responsibility in the selection of the country to which he emigrates offers the best assurance that the emigrant will establish himself and develop his capabilities as far as possible without outside assistance. 
 To direct the personal initiative so, that a planned distribution of emigrants among the prospective countries takes place, that excessive concentration in certain countries, districts or cities will be avoided, that the emigrant will be trained both in language and in his trade to meet the requirements of the country to which he contemplates going - in short to so control the emigration that a smooth taking root in the country of immigration becomes possible - this direction of the emigration is a task which can be accomplished by the emigration organisations only if they can reckon with a willingness in principle on the part of the immigration countries to absorb Jewish immigrants and only if a constant contact with the representatives of such countries is possible. 
 
 
 There is a justifiable hope that the emigration problem, which for the Jews in Germany has become a matter of life and death, can be solved if the countries to which an emigrant can go will admit a penned and controlled immigration to the extent that their laws the economic and political possibilities permit. 
 
 
 2. The financial aspects of a plan of emigration 
 
 The emigration of Jews from Germany and their settlement in their new country is inevitably dependent on the financial means which are required being available. 
 The costs of emigration, therefore, are twofold: those, which can be paid for in Reichsmarks and those, which must be made available in the country of immigration. 
 
 
 Financing emigration 
 
 It is of course understood that, as far as possible, the emigrant himself should supply the money required for emigration items, such as transportation, documents, consular fees, clothing and furniture transport. Experience thus far has shown that the largest part of these items can be provided for by the emigrant and his relatives. 
 It is possible beyond this to get from those Jews in Germany who are somewhat better situated financially a large pan of the necessary funds required to finance the emigrant without means. 
 Such sums as may still be lacking after such money raising efforts as are possible have been expanded, must be covered by assistance from Jewish benevolent organisations abroad. 
 
 
 Financing immigration 
 
 In addition to financing the emigration, one must make sure that the immigration in the new country is accomplished on an economic basis which will furnish the assurance that the immigrant can provide for his own development. 
 The Jews in Germany realise perfectly that they may hope for co-operation from other countries only if they do not become public charges in those countries, which are prepared to absorb them. 
 The simplest and least expensive emigrants are those young people who have completed their training in a trade or handicraft and, consequently, can be absorbed in the production process immediately upon immigration. 
 The older the immigrant, the more necessary is it that means be made available for their bare existence for the period immediately following their emigration and for the establishment of their future means of livelihood. 
 In view of the age distinction existing among German Jewish emigrants one must bring the youths who have completed their occupational training to emigration as soon as possible and in the case of the older emigrants arrange for the necessary financial support. 
 In addition adequate Devised amounts are required to comply with the immigration requirements in those countries in which the possession of a certain capital by the emigrant is required. 
 
 
 Transferring moneys out of Germany 
 
 To accomplish an increase in emigration it is therefore necessary to expand the transfer possibilities. Based on experience thus far and in view of the difficulties inherent in this problem, an expansion in transfer possibilities can only be accomplished on the assumption that the Jews in Germany can continue to use their present capital for emigration that it should be possible, with the assistance of the new country, to solve the transfer problem in such a way as to meet the requirements of the German economy. 
 There is another very important aspect, which the solving of the transfer problem brings. Experience indicates that if the transfer of capital is possible amounts could be made available from the sums so transferred for needy emigrants. In this manner it is possible to provide the needy emigrants, via the transfer, with sums that originate from persons with greater means. 
 The capital transfer possibilities in the case of Palestine are such that the emigrants' own capital and sums raised by the Jewish National Fund result in production centres being created which makes a further immigration of Jewish labourers possible. 
 In the case of emigration abroad it is not always true that a capital transfer results in the creation of a production centre for Jewish workmen. It is therefore necessary that any transfer arrangement for people of means should provide for some financing for needy immigrants. 
 Schedule 6 shows in detail emigration via transfer in Europe and Overseas of both wealthier and needy emigrants, whereas emigration via the Palestine transfer arrangement can be seen in schedule 2. 
 If the transfer possibilities which serve Jewish emigration from Germany are to be used to the maximum extent possible, it will be necessary to include this in every type of capital available to the emigrant and to include this in a large and more broadly conceived transfer arrangement than has hitherto been the case. The importance of the Palestine transfer arrangement on which entire Palestinian emigration for Jews in Germany is based may not and should not be influenced by this. 
 Such a concentration can perhaps best be accomplished through establishment of an emigration bank, which could receive the moneys available to emigrants and administer them centrally. 
 It is clear that an emigration bank such as this can have a purpose only if adequate transfer possibilities be offered. This requires the consent of the German government as well as the co-operation of the countries in question. This requires also that new mebe made available for the temporary financing of sums awaiting transfer. It is invariably necessary that the emigrant who has capital in some force awaiting transfer be guaranteed at least a fraction of his Reichsmark capital in foreign exchange, in order that he thus be enabled to await the actual transfer of his capital abroad. There should be no difficulty in finding many projects, which furnish adequate security for such a guarantee. 
 The material and suggestions herein given represent a mere outline of the questions relative to emigration. They should be judged as mere comments, which will require extensive amplifying. 
 In a moment in which one quarter of the members of the Jewish community in Germany are no longer able to sustain themselves and are the recipients of public charity, in which thousands face the prospect of a perpetual unemployment in which tens of thousands of healthy and work eager people who have lost the place in which they lived, and seek with their emigration the possibility of establishing a new existence and contributing their strength for the common good, at such a time are we filled with the hope that the conference in Evian achieve its high purpose, and that it will make possible the creation of new existences for people to whom history has decreed emigration as their mission.