Woodrow Wilson actually said...

The Governor of The Panama Canal is authorized to prescribe such detailed rules and regulations as may be necessary to carry out this order.

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

In the absence of a currency certificate no allowance will be made for depreciated currency.

The Secretary of State is authorized to make regulations concerning registration additional to these rules and not inconsistent with them.