For practical administrative purposes, the term "laborer, skilled and unskilled," within the meaning of the executive order of February 24, 1913, shall be taken to refer primarily to persons whose work is essentially physical, or, at least, manual, as farm laborers, street laborers, factory hands, contractors' men, stablemen, freight handlers, stevedores, miners, and the like, and to persons whose work is less physical, but still manual, and who may be highly skilled as carpenters, stone masons, tile setters, painters, blacksmiths, mechanics, tailors, printers, and the like; but shall not be taken to refer to persons whose work is neither distinctively manual nor mechanical but rather professional, artistic, mercantile, or clerical--as pharmacists, draftsmen, photographers, designers, salesmen, bookkeepers, stenographers, copyists, and the like.[19] The weakness of the provision, however, is in the difficulty it gives rise to in practical application and in the liability of wrong construction to be placed by the American public in the administration of the "Gentlemen's Agreement." The difficulty lies not at all in the lack of mutual understanding between the American and the Japanese Governments in respect to this question. The _modus operandi_ arrived at between these two Governments has worked satisfactorily. But because of the lack of a specified definition of "non-immigrants" and "immigrants," the distinction to be made between them, and, consequently, the granting of passports, as already stated, is left in a large measure to the discretion of the authorities of the Foreign Office of the Japanese Government. The foregoing defect and the confusion on the part of the American people suggest that the adoption of a specific definition of "immigrants" and "non-immigrants"--in other words, laborers and non-laborers--on the basis of whether a person is coming to America for work and settlement or for a temporary visit, seems quite essential.