Woodrow Wilson actually said...

By virtue of the authority vested in me by law, it is hereby ordered:

Consuls may issue, upon forms prescribed by the Department, certificates of registration good for one year, for use with the authorities of ...

No fee shall be required for registration nor for any service connected therewith, except for the issuance of a certificate of registration.

Except in cases of emergency no person shall be given a certificate of registration until his application for registration has been approved...