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UNEMPLOYMENT IN THE UNITED STATES 83
Assuming, for instance, that here is a town where industry is
unionized——
Mr. DovucLas (interposing). And with an agreement?
Mr. MicuENER. Let me finish my question. Where the town is
unionized, industry is unionized, and here is another section of the
country engaged in the same industry, the same line of business, where
they are not unionized; now, assuming that there is a lack of employment
 in the unionized town and there is a surplus of employment in
the section of the country which is not unionized, would this permit
the taking of those nonunion men from that section of the country and
setting them down in the union section and requiring the people to
use them?
Mr. Doveras. Not requiring to use them, but the employment service
 could recommend these men to the employers, then whether the
employer would hire the men or not would depend upon his agreement
with the union. If he had an agreement with the union providing for
the union shop, he would not hire them; if he had no such agreement
with the union, then he could hire them. In brief, the employment
service merely effectively recruits labor and does not of itself have
anything to do with the union shop or the anti-union shop. That is
a matter for employers and workers to agree upon or to disagree upon.
Now, gentlemen, I am afraid I have taken up more of your time than
I should, and unless you have questions I shall stop.
Senator Wagner. Thank you very much. The last witness that
I will call is Dr. John B. Andrews, who is the Director of the American
Association for Labor Legislation, and who has made a particular
study of this subiect for some years.
STATEMENT OF JOHN B. ANDREWS, DIRECTOR OF THE AMERICAN
ASSOCIATION FOR LABOR ILEGISIATION

Mr. Axprews. Mr. Chairman and members of the committee, it
has been three years since I last appeared before your committee.
That was in connection with the longshoremen’s compensation legislation,
 which is now working so smoothly that I am encouraged to
come back. This afternoon in a very few minutes, because I am
anxious that the opposition shall have all the time that they need to
present their opposition case, I wish very briefly to recall to you what
our problem is here.
We are faced with a very serious condition. I am not so much
interested in theories as I am in the fact that in this country we have
millions of wage earners unemployed. You do not know, I do not
know, perhaps within a million how many are unemployed. That in
itself is sufficient surely to suggest——
Mr. MonTaGUE . (interposing). What would you give as your
approximation of the number?
Mr. AnpreEws. I have refused to try to estimate, because I know
that no person in this country can know probably within a million
how many people are unemployed. What we need is the program of
legislation for which we have been working now for 15 years in this
country and which every private conference and every public commission
 that goes into the subject of unemployment tells the public
we, of course, should adopt as the minimum legislative program. If
we adopt these three bills, if we adopt the plan of getting better