The Commissioner General of Immigration is much more emphatic in his statements. The report for 1909 contains the following passages (p. 112): “The promoter is usually a steamship ticket agent, employed on a commission basis, or a professional money lender, or a combination of the two.... He is employed by the steamship lines, large and small, without scruple, and to the enormous profit of such lines.... To say that the steamship lines are responsible, directly or indirectly, for this unnatural immigration is not the statement of a theory, but of a fact, and of a fact that sometimes becomes, indeed, if it is not always, a crying shame.... [Referring to Contract Labor Inspector John Gruenberg] He shows quite clearly that all of the steamship lines engaged in bringing aliens from Europe to this country have persistently and systematically violated the law, both in its letter and spirit, by making use of every possible means to encourage the peasants of Europe to purchase tickets over their lines to this country. They have issued circulars and advertisements, and made use of extensive correspondence, through their own agents in this country and in Europe.” The law referred to is Section 7 of the Act of 1907, repeating in substance Section 4, Act of 1891 (p. 111). The ease and persistency with which this provision, carefully worded as it is, is violated, furnishes a striking example of the difficulty of passing statutes which shall be capable of enforcement, especially in foreign countries, to put a stop to practices which are universally conceded to be undesirable.