Citation
Government of the Philippine Islands

Material Information

Title:
Government of the Philippine Islands message from the President of the United States transmitting a letter from the Secretary of War submitting a report of Brig. Gen. Frank McIntyre, Chief of the Bureau of Insular Affairs, upon his recent trip to the Philippine Islands
Abbreviated Title:
Special report of Frank McIntyre, Brigadier General, U.S. Army, Chief, Bureau of Insular Affairs to the Secretary of War on the Philippine Islands
Creator:
United States. Bureau of Insular Affairs
Place of Publication:
Washington, D.C.
Publisher:
Government Printing Office
Publication Date:
Language:
English
Physical Description:
51 p. ; 23 cm.

Subjects

Subjects / Keywords:
Philippines -- History -- 1898-1946 ( lcsh )
Pilipinas -- Kasaysayan -- 1898-1946
Filipinas -- Historia -- 1898-1946
Temporal Coverage:
19050101 - 19160112
Spatial Coverage:
Asia -- Philippines
Asia -- Filipinas
Asya -- Pilipinas
Coordinates:
13 x 122

Notes

General Note:
VIAF (name authority) : United States. Bureau of Insular Affairs : URI http://viaf.org/viaf/148344927/
General Note:
The U.S. Bureau of Insular Affairs was administered by the U.S. War Department, now the U.S. Department of Defense, and had responsibility for the Philippines in 1916.
General Note:
Cover title: Special report of Frank McIntyre, Brigadier General, U.S. Army, Chief, Bureau of Insular Affairs to the Secretary of War on the Philippine Islands
General Note:
"January 12, 1916 -- read; referred to the Committee on the Philippines and ordered to be printed.
General Note:
64th Congress, 1st Session. Senate. Document no. 242
Funding:
Funded with resources from SOAS Archives and Special Collections and with the generous support of the Philippine Department of Foreign Affairs and the Office of Senator Loren Legarda.

Record Information

Source Institution:
SOAS University of London
Holding Location:
SOAS University of London
Rights Management:
This item is licensed with the Creative Commons Attribution, Non-Commercial License. This license lets others remix, tweak, and build upon this work non-commercially, as long as they credit the author and license their new creations under the identical terms.

Downloads

This item has the following downloads:


Full Text
WAR DEPARTMENT : BUREAU OF INSULAR AFFAIRS

SPECIAL REPORT OF

FRANK McINTYRE

BRIGADIER GENERAL, U. S. ARMY
CHIEF, BUREAU OF INSULAR AFFAIRS

TO

THE SECRETARY OF WAR

ON THE

PHILIPPINE ISLANDS

x

WASHINGTON
GOVERNMENT PRINTING OFFICE
1916




64tii Congress / o-^-m-atvgi (Document

1st bessioji \ fe-hNATii. j No. 242

THE GOVERNMENT OF
THE PHILIPPINE ISLANDS

MESSAGE FROM THE
PRESIDENT OF THE UNITED STATES

TRANSMITTING

A LETTER FROM THE SECRETARY OF WAR SUBMIT-
TING A REPORT OF BRIG. GEN. FRANK McINTYRE,
CHIEF OF THE BUREAU OF INSULAR AFFAIRS, UPQN
HIS RECENT TRIP TO THE PHILIPPINE ISLANDS

e

JANUARY 12, 1916.Read; referred to the Committee on the Philippines
and ordered to be printed

WASHINGTON
GOVERNMENT PRINTING OFFICE
1916




CONTENTS.

Page-

Message of the President__________________________________________________________________________________________5

Letter of submittal of the Secretary of War------------------------------------------------------5

Introduction------------------------------------------------------------------------------------------------------------------7

Law and order______________:----------------------------------------------------------------------------------7

Philippine constabulary____________________________________________________________________________________________7

Education______________________________________________________________________________________________________________________9

English language________________________________________________________________________________________________________9

Filipinization of the public service________________________________________________________________________10

Civil service_________________________________________________________________12

Sanitation______________________________________________________________________________________________________________________15

Agriculture____________________________________________________________________________________________________________________16

Agricultural colonies--------------------------------------------------------------------------------------------------17

Roads_____________________________________________________________________19

Railroads_____________________________'------------------------------------------------------------20

Prisons__________________________________________________________________________________________________________________________20

Political conditions-------------------------:--------------------------------------------------20

Economic conditions__________________________________________________________________________________________________23

External trade____________________________________________________________________________________________________23

Internal trade______________________________________________________________________________________________________24

Industrial:--------------------------------------------------------------------------------------------------------24

Household industries________________________________________________________________________________________25

Agriculture______________________________________________________ 25

Labor______________________________________________________________________________________________________________________26

Government finances--------------------------------------------------------------------------------------------------27

Central________1________________________________________________________________________________________________27

Provinces______________________________________________________________________________________________________________30

City of Manila____________________________________________________________________________________________________30

Municipalities______________________________________________________________________________________________________30

City of Manila______________________________________________________________________________________________________31

Department of Mindanao and Sulu------------------------------------------------------------------------32

Government of the Philippine Islands-----------------------------------------------33

3




MESSAGE OF TRANSMITTAL.

To the Senate and House of Representatives:

I transmit herewith the report of Brig. Gen. Frank Mclntyre,
Chief of the Bureau of Insular Affairs, upon his recent trip to the
Philippine Islands.

Inasmuch as the bill extending a greater measure of self-govern-
ment to the Filipinos is now pending in Congress, it is recommended
that this report be printed as a congressional document.

Woodrow Wilson.

The White House,

January 12,1916.

LETTER OF SUBMITTAL.

War Department,
W ashing ton, January 10, 1916.

Mr. President :

In my last annual report I mentioned that Gen. Frank Mclntyre,
Chief of the Bureau of Insular Affairs, had just returned from an
extended trip to the Philippine Islands, and that his report contain-
ing a recital of facts and actual conditions there would be shortly
transmitted. The report I now submit herewith in duplicate, with
the suggestion, inasmuch as the Philippine bill has been reported by
the Senate Committee on the Philippines and is now the subject of
debate in the Senate, that it be transmitted to Congress, with the
recommendation that it be printed as a public document.

Draft of message of transmittal, in duplicate, for your signature,
if you concur in this recommendation, is also submitted herewith.

Very sincerely,

Lindley M. Garrison,

Secretary of War.

5




SPECIAL REPORT OF BRIG. GEN. FRANK McINTYRE,
UNITED STATES ARMY. ON THE PHIL-
IPPINE ISLANDS.

War Department,
Bureau of Insular Affairs,
Washington, December 1, 1915.

Sir: In compliance with your instructions, I sailed from San
Francisco on July 3, last, to visit the Philippine Islands, and return-
ing arrived in Washington on October 22, last.

I was in the Philippine Islands from July 30 to September 9,
1915. My itinerary in the islands is attached, marked "Appen-
dix A."

I made every effort in Manila and at other points visited by me
to ascertain the actual conditions of the Philippine government and
of the Philippine people, and of the attitude of the people toward
the government. I gave persons desiring to see me every oppor-
tunity to do so, and I am not aware that anyone who desired to see
me was unable to do so.

I conversed freely with persons of every shade of opinion in the
islandsAmericans, Filipinos, and foreignersand found that the
people of the islands were well satisfied with the government, and
there was every indication that the satisfaction was greater than
it had been at any time in the past.

LAW AND ORDER.

There was no disorder in any part of the islands.

There was in those parts of the islands inhabited by the Moros
a far better condition than could have been anticipated a few years
ago by the most sanguine. The relation between the departmental
government and the Moros was as close as the nature of the country
inhabited by them permitted. The principal Moro chieftains within
reach of the points visited by me came to see me and gaTTe every
indication of satisfaction with conditions existing in their territory.
The peaceful conditions which have existed for a number of years
among the wild people of Luzon have been continued, and these
people are steadily progressing toward civilization.

THE PHILIPPINE CONSTABULARY.

It is impossible to omit from consideration in any reference to law
and order the Philippine Constabulary. This consists at present of
316 officers and 4,864 men. The officers are in part Americans and in
part Filipinos, the number of Filipinos being gradually increased.

7


8

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

The present condition of the constabulary is well described by
Secretary Dickinson in the report which he made after his visit in
1910, which I quote as follows:

This is a useful and effective body of men now consisting of 322 officers and
4,451 enlisted men operating from 138 stations. The commissioned officers are
generally Americans, bat a number of Filipinos are also officers, and the policy
is to fill vacancies by their appointment as rapidly as they meet the require-
ments. They are maintained much more cheaply than our American soldiers or
Philippine Scouts. Their pay is less, their outfit more economical, and they
subsist upon the country, thus saving the enormous cost of transportation
incident to supplying the army.

Besides serving as a military force to keep order and suppress insurrection,
they are very efficient as auxiliaries in sanitary work, especially during epidemics.
Although they do not receive the same amount of training and military disci-
pline which the scouts do, yet they are, looking especially to their availability
for sanitary work, of greater utility than the scouts. *

In your report to the President (Secretary Taft's report of 1G0S) you stated
that when you were in the islands the native papers condemned the constabu-
lary, but that during the two following years a change had taken place, and
that nothing was more popular in the islands than the constabulary. I am
happy to say that this popularity is unabated, and that the constabulary and
its administration are well intrenched in the respect and confidence of the
people. The men and the native noncommissioned officers take great pride in
their organization. They are well set up, efficient, keen in their work, and
would be an effective force in case of foreign invasion. They conciliate con-
stantly the people toward the administration, are learning the English language
and habits, and thus are the medium of wholesome influences upon their peopie.

Every word of commendation of this body in the foregoing is ap-
plicable to-day.

Although the constabulary is practically of the same strength as
on Secretary Dickinson's visit in 1910, the improved condition in
law and order is such as to enable this body to accomplish now the
work in which it was at that time assisted by the use of Philippine
Scouts. At present no Philippine Scouts are used to assist the con-
stabulary in the maintenance of order.

In the annual appropriation act for the fiscal year 1908 the
Philippine Commission included a provision by which the officers
of the Army made available as chief and assistant chiefs of the con-
stabulary might, as vacancies occurred, be replaced by civilians.

This has been continued in the law; it is unwise and should be
repealed.

The maintenance of the high standards of the constabulary re-
quires at least the full number of Army officers authorized.

This is said with a full appreciation of the excellent work of the
constabulary officers. I know nowhere of men doing better or more
efficient work than the young officers of the constabulary.

The municipal police in the islands are highly creditable bodies.
I saw nothing that impressed me more than the truly wonderful
improvement in the bearing and appearance of the police of the
several municipalities.

It is only fair to say, in recognition of the excellent work of the
several administrations in the islands, that the maintenance of law
and order therein does not now require the presence of a single
American soldier, and that the duty of such soldiers in the Philip-
pine Islands is to-day in all respects identical with their duty in the
United States in time of peace.


9 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.



EDUCATION.

In so far as practicable, I visited the public and private schools.
rlhe school buildings were, in general, of durable material, well
suited to their purposes and to the climate, and while there was a
general feeling among the people that there was still a lack of room
in the schools for the pupils who might attend, I became convinced
that the present attendance can not be increased without an expen-
diture of money in excess of the resources of the islands, and that
the school system can not be extended, even though the money were
available, without calling in a large number of teachers from the
United States. In other words, it appeared that the supply of suit-
able teachers in the Philippines was wholly in use in the schools as
they are at present conducted and that any effort to increase the
number of schools and teachers without obtaining a supply of teach-
ers from the outside would result in the employment of persons as
teachers who would be probably more harmful than beneficial.

The zeal for education that has been so often remarked by visitors
to the Philippines is unabated. The willingness of the people of
the islands to expend their money for schools is still marked.

There has been satisfactory progress in the schools, both in the
number of buildings and teachers and in the number of pupils at-
tending, but a material increase in the number of schools or the
number of pupils would only be justified in case the number of
teachers from the United States could be correspondingly increased.

I am convinced that any effort to economize in the number of com-
petent American teachers is a mistake and that steady progress de-
mands that the number of American teachers be not decreased from
the maximum of the past five years.

This would not mean failure to employ such Filipino teachers as
become available. A fair measure of progress would mean the em-
ployment of all available competent Filipino teachers.

THE ENGLISH LANGUAGE.

One of the difficult questions to answer definitely is that as to the
progress of the English language among the people of the islands.

That the progress is great and that the English language is to-day
more generally understood in the islands than any language in which
there exists a general literature or in which any large part of the
business of the world is conducted is undoubted. It would appear
that the English language is more generally understood throughout
the archipelago than the Spanish language. It is also true that a
traveler in the islands can, with a knowledge of the English language
only, communicate with people in all parts of the archipelago much
more readily than can a native Filipino who speaks only his native
dialect, and relatively few Filipinos have ever been able to speak a
native dialect other than their own.

The doubtful point is as to the thousands of children who after
a few years quit the schools to live and labor in households where
the elders speak only the native dialect. Do they retain their
English and progress in it, or do they gradually lose the little English
they have acquired at the schools? I received quite positive answers

S. Doc. 242, 64-1-2


10 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

to this question; they were not all alike, but the weight of opinion
was favorable to progress. That there could remain among the
observant with opportunities to judge an element of doubt indicates
the necessity of action which would remove this question from the
field of uncertainty. The immense majority of the children are of
this class and if the result of teaching them English is simply to
enable them with some personal effort to become literates in their
native dialect there is a great waste of effort.

There is still discussed from time to time among intelligent per-
sons interested in education the question whether it would not be
better in the first two or three grades of the public schools to teach
in the native dialect. One view is that in this way a child going
to school would acquire more information in two or three years than
where, as at present, a considerable part of his time is taken up in
acquiring a foreign language.

The answer to this seems to be that while a child could accumu-
late more concrete information, the concrete information acquired
by a child in two or three years at school is of itself of little value,
and that what is of value is that the child acquires instruments which
may lead to further knowledge if intelligently used. The native
languages do not possess the literature which would be of use to a
child in enlarging his knowledge of the world; thus the benefit
gained in two or three years study in a native dialect would be
limited to the concrete information thus acquired, as the child would
be without possession of those tools which would open up other
sources of information.

It would seem, therefore, to be the part of wisdom to continue,
as at present, making English the language of instruction, thus giv-
ing the child a knowledge of a language which will enable him to
continue acquiring knowledge from written books, even after leaving
school.

The bureau of education now issues a number of publications.
It is thought that none of these have the educational value that
might be given to a weekly leaflet of Current Events published
in plain, simple English distributed freely throughout the islands.
This would stimulate the continued interest in English in those who
have left the schools, and would, if intelligently edited, be of wide
educational value.

If not too manifestly for that purpose, it might be of great as-
sistance to the government in many fields.

FILIPINIZATION OF THE PUBLIC SERVICE.

In his special report to President Taft, made in 1910, Secretary
Dickinson said:

In your special report of 1908, under the heading Civil service," you say:

" Still in many of the bureaus the progress of Filipinos to the most re-
sponsible places is necessarily slow, and the proportion of them to be found in
positions of high salaries is not as large as it ought to be in the near future.
The winnowing-out process, however, is steadily reducing the American em-
ployees in the civil service."

One of the demands most urgently brought to my attention was that the work
of increasing the proportion of the Filipino employees is not being pressed, and
that, especially in the higher salaries, there is discrimination against Filipino
employees. The Filipinos bear the burden of government, and should, so far as


11 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.



is consistent with proper administration and the maintenance of the present
attitude of the United States in the government of the islands, be given a pref-
erence in employment.

*******

The general question was taken up with the Governor General and the heads
of departments and bureaus. It is the fixed policy of the administration to
proceed as rapidly as the good of the service will permit in increasing the
Filipino employees, and I am satisfied that there will be a hearty coopera-
tion upon the part of all. The Governor General has always favored this
course. *

I append as a part of my report a table, marked "Appendix G," showing, for
the several years set out, the number of Americans and Filipinos employed in
the various services therein mentioned.

Without a careful analysis of these tables one might get a false impression
of the extent to which the government of the islands has been Filipinized dur-
ing the period covered by them. They show the increase of Filipinos in the
civil service of the islands, but it should be observed that in the period covered
by these tables the number of Filipino members of the commission has been
increased 33£ per cent, the number of judges of first instance by 100 per cent,
and there has been created the Philippine Assembly, an elective body composed
exclusively of Filipinos.

To-day four of the nine members of the Philippine Commission, which con-
stitutes the upper house of the legislature, are Filipinos. The entire lower
house is composed of Filipinos. In the executive departments the important
portfolio of finance and justice is held by a Filipino. Three of the seven jus-
tices of the supreme court, including the chief justice thereof, are Filipinos,
and 10 of the 20 judges of first instance are Filipinos, while practically all the
lower judicial officers are Filipinos.

The policy in this regard, as set forth in the report of Mr. Taft in
1908 and of Mr. Dickinson in 1910, and which has been outlined in
practically every official statement on this subject since the estab-
lishment of civil government in the Philippine Islands, has been
steadily adhered to by the present Governor General. The change
in the subordinate positions has been somewhat more rapid than it
has averaged in the recent past. It has, however, been by no means
radical. Filipinization has been marked by necessary conservatism
in the higher positions in the government.

To illustrate this, the last paragraph in Secretary Dickinson's
report of 1910 would read, if written to-day, as follows:

To-day 5 of the 9 members of the Philippine Commission, which constitute
the upper house of the legislature, are Filipinos. The entire lower house is
composed of Filipinos. In the executive departments the important portfolio
of finance and justice is held by a Filipino. Three of the 7 justices of the
supreme court, including the chief justice thereof, are Filipinos, and 22 of the
36 judges of first instance are Filipinos, while practically all the lower judicial
officers are Filipinos.

The only change from 1910 is that 5 instead of 4 of the 9 mem-
bers of the Philippine Commission are now Filipinos, the changes
in the number of judges of first instance being the result of an in-
creasing number of judges of first instance, as it will be noted that
the number of American judges is greater than in 1910.

There has been one feature of Filipinization that is unfortunate.
It seems to have been accepted that once a Filipino has filled an office
it would be a step backward thereafter to appoint an American to
that position. This is unwise. The conditions required in an office
change with progress. Circumstances that make the appointment of
a Filipino to a position advisable may change. The appointment of
an American under these circumstances would not be an admission
of error. However, if error has been made in this regard, it should


12

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

be corrected. It would be particularly fortunate if this unwritten
law could be departed from by this insular administration, which
has in so marked a degree the confidence of the Filipino people that
it cculd make such a change without arousing a feeling that it was
a backward step.

Certain other features of Filipinization are referred to under the
head, The civil service."

THE CIVIL SERVICE.

From its organization the Philippine government has striven to
establish an efficient civil service based upon merit. The progress
of the service from its origin is well and fully set forth in the annual
reports of the bureau of civil service.

I found the civil service of the government efficient and the civil-
service law and regulations being strictly enforced. I found, how-
ever, among the American employees in the civil service a degree of
unrest, to explain which requires a review of certain conditions
affecting Americans in that service.

In organizing the central government it was at first difficult to
utilize a large number of Filipinos, for the reason that they were
lacking in knowledge of American methods of administration and
were ignorant of the English language. Salaries were fixed having
in mind, not the employment of Filipinos living at their homes, but
Americans who, in mcst instances, had to fye brought from the
United States or who contemplated returning to the United States.
This necessarily made an expensive civil service in a country that
could ill afford it.

Unfortunately, in fixing the salaries of government officers the
commission failed to recognize the difference between Americans
and Filipinos, and such Filipinos as were appointed to the more
responsible positions under the governmentand many were so
appointed even in the early dayswere given salaries altogether
out of proportion to what they would command in nongovernmental
occupations. It is probable that this was done, in the first instance,
in a desire to attract the good will of Filipinos toward the govern-
ment. It was early recognized as an error, but it is an error of the
kind that is difficult to correct.

It was the announced policy of the commission to replace Ameri-
cans in the Philippine civil service by Filipinos as rapidly as Fili-
pinos competent to take the places could be developed. During this
process it became apparent that if the schedule of salaries was to
continue as established for American employees, when the service
should be Filipinized the government of the Philippine Islands
would be the most extravagant in the world. This fact was pointed
out in so many words by Governor General Smith in 1907.

The correction of the difficulty was, in part, left to the judgment
of bureau chiefs, and in certain cases it was corrected to the limit
of their authority; that is, in the lower clerical positions. As Ameri-
can employees left such positions Filipinos undertaking the work
were, in some cases, placed in a lower grade. While this still re-
sulted in giving the Filipino a larger salary than his service would
command in the open market, it had, when done, the effect of bring-
ing about a slight reduction of expense.


13 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.



This method of correcting the evil administratively exposed the
bureau chief to the criticism that he was hostile to Filipinos in that
he was adopting a policy toward them not sanctioned by legislative
recognition of the widely different conditions affecting Americans
and Filipinos in the Philippines. The bureau chief found also that
replacing an American by a Filipino did not bring with it the reason-
able economy that it should, while it generally brought increased
labor in supervision or decreased efficiency or both.

The net result was neither fair prcgress in Filipinizaticn nor
economy. On the other hand, there was with governmental develop-
ment normally an increase in expenditures for salaries Avhich outran
the increase in revenues.

In 1905, when the cost of the civil service of the government had
become excessive, a board was convened to make recommendations
looking to econcmy and efficiency, and, as a result of the report of
this board, the number of employees in the civil service was reduced
from 3,307 Americans and 4.023 Filipinos on January 1, 1903, to
2,616 Americans and 3,902 Filipinos on January 1, 1907.

With reference to the effect of this on the American personnel,
the director of civil service in his report for 1906 said :

It must be stated with regret that there has been no change in the tendency
for the best qualified employees to resign after from two to five years of
service. The method that was adopted in reorganizing the Government service
and reducing the force has tended to instability in the service. Because of
the impossibility of ascertaining until the appropriation act had passed the
reductions that would be made in the force, in some bureaus new appoint-
ments were made up to the date of the reorganization, when employees of
other bureaus that might have been transferred to the vacancies were dropped
" on account of reduction of force." It is possible that many of the parsons
so dropped were, in fact, more or less inefficient. However, reduction of
force" was the reason given for the removals, and as a result there is at
present a feeling of uncertainty among many efficient employees as to their
tenure of office.

In 1913 the conditions which had required the calling of the board
in 1905 had again arisen; once more the cost of this service was
beyond the resources of the Government. There had been the natural
growth of the civil service, the natural resistance of bureau chiefs
to dispense with the services of faithful Americans in subordinate
positions, and the natural tendency to replace efficient Americans
on leaving by Americans, in part due to the fact that the replacing
of an American by an untried and less efficient Filipino brought with
it practically no resulting economy.

It was contemplated to meet this condition as it was met in 1905.
A board was ordered to make recommendations which would bring
about economy. (Copy of order attached, marked "Appendix D.")
Pending the report of this board such economies as could be effected
without changes in the law were made.

This was the condition of affairs when Gov. Gen. Harrison suc-
ceeded Gov. Gen. Forbes, and the legislature convened in 1913.

The report of the 1905 board had to be considered by the com-
mission only, and most of the reforms recommended by it were
adopted.

In 1913 the legislature consisted not only of the commission but
of the assembly, and the legislature, with the concurrence and support
of the Governor General, undertook to bring about those reforms


14

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

which it deemed necessary to bring the cost of the civil service of the
Government within its resources. In so far as it affected the Ameri-
can personnel the legislature took the identical action taken by the
commission in 1905.

As a result of the appropriation bill of 1913-14 and executive
action, the number of Americans in the service was reduced from
2,623 on January 1, 1913, to 1,978 on December 31, 1914, while the
number of bureaus was reduced from 25 to 22.

While the reduction in the total of Americans employed from 1913
to 1915 was approximately the same as in 1905-1907 the number leav-
ing the service from 1913 to 1915 was far less, as fewer Americans
were given original appointments between 1913 and 1915.

I noted on my visit in 1915 the same feeling of uncertainty among
many efficient employees as to their tenure of office" reported by the
director of civil service in 1906.

It is thus noted that similar conditions in two cases brought about
similar results. In mv opinion in both cases the same errors were
committed, first, in providing for reduction of "salaries in positions
that required the services of highly efficient Americans; second, in
not openly making a proper difference in salaries between residents
of the Philippine Islands and residents of the United States holding
similar positions; and, third, in not making it equally clear that while
for some time it would be necessary to fill certain subordinate places
with Americans, it was rather desirable than otherwise that these
positions should be vacated at the end of contractual periods.

It is in recognition of the hardship of the present situation on
American officials and employees of the Philippine Government that
I earnestly recommend or renew the recommendation made in 1907
for the passage by the Philippine Legislature of the appended bill
for retirement of certain employees of the Philippine Government.

It will be noted that the benefits of the bill are extended only to
those emplovees or officials who receive an annual salary of $3,000
or more. This would indicate the view of the government on the
question of permanency of employment and would be a notice to
nonresident employees receiving less salary and who were not in
line to be promoted to positions carrying a higher salary than $3,000
that their service with the Philippine government was on a con-
tractual basis, and that their permanency in that service was not
regarded as being to the interest of the government; while, on the
ether hand, its provisions should be attractive to those Americans
whom it was desired to retain more or less permanently in the
service. This would remove the constant feeling of uncertainty
existing among American employees and which is emphasized at
such times as retrenchment or efforts at reform bring about more
than the usual number of changes in the personnel. This unrest
among American employees of the government has been constant
since the establishment of American government in the Philippines.
For the 10 years ending June 30, 1913, the average annual number
of Americans leaving the service was 646. For the two years since,
ending June 30, 1915, the average annual number was 569. The
number of Americans newly appointed in the service during the last
two years was far less than in any similar previous period.

It has been sometimes said with apparent reason that the salaries
fixed for Americans employed in the Philippine civil service were too


15 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.



high. Experience with the service does not show that this was the
case, as the service was continually losing its best American em-
ployees by their voluntary withdrawal from the Islands. The
director of civil service, in his report for 1907, commenting on this,
said:

It. is a matter of regret to report that the percentage of withdrawals from
the service of competent and desirable men has been greater during the past
year or two than theretofore, while there have been fewer separations of the
incompetent and undesirable. On January 1, 1907, there were 2,616 Americans
having regular appointment in the service. During the fiscal year ended June
30, 1907, approximately 500 Americans resigned, about double the number with-
drawing from the service during the preceding fiscal year. Of the 500 over 100
were university or college graduates, including scientists, civil engineers, sur-
veyors, physicians, teachers, and subordinate officials, as against 40 university
or college graduates for the preceding year. Of the remaining 400 a consider-
able number were graduates of high or normal schools. The loss to the Gov-
ernment of these trained and experienced men is in many instances irreparable.
Good men were evidently discouraged, and apparently lost hope that the Phil-
ippine public service promised a career which would justify their remain-
ing in it.

To those who have studied the subject for a number of years it is
clear that the salaries paid to American employees in the Philippine
Islands were low, and that, while the number of Americans could
have been materially reduced, particularly in subordinate positions,
those retained should be given increased rather than decreased sal-
aries. The difficulty has been that Filipinos, both in high and in low
positions in the Philippine government, have been given salaries alto-
gether too high.

Many instances could be cited in which bright young Filipinos
were attracted to the minor governmental positions not only from
the professions but from commerce and particularly from agricul-
ture. It is a distinct impediment to the progress of the islands that
such is the case.

Statements loosely made that politics had been injected into the
Philippine civil service are wholly baseless. It could with equal or
perhaps greater accuracy be said that politics had been recently up-
rooted from the Philippine civil service, as among those leaving that
service recently were persons more actively and more prominently in
politics than those entering.

The fact is, however, that the Philippine civil service is and has
alwavs been practically untouched by politics. Allegations that
politics had entered the Philippine civil service are equally untrue
whether referring to the last two years or to prior periods.

SANITATION.

The grent work of sanitation in the islands, which has been so
commended bv visitors in the past, has been steadily advanced.
Her 1th conditions in the islands continue to be much better than
in any of the neighboring oriental countries.

During my visit cholera was reported at several points. The work
of suppression was promptly undertaken, and under such well-
orgmized system that there was no excitement or panic, but a feeling
of confidence that it would soon disappear.

The last few years have been marked by a notable extension of
sanitary work amcng the Moros and pagans.


16

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

The improvement of the water supply by the boring of artesian
wells has been continued, and the number of such wells is being
steadity increased. During my visit a well-boring outfit was just
beginning an artesian: well at the settlement of the Datu Piang up
the Cotabato River in Mindanao, which illustrates to what remote
points this work has extended.

The following municipalities have water systems: Manila, Cebu,
Vigan, Zamboanga. Siquijor, Mambajao, Boac, Coron, Tagbilaran,
Sariaya, Jolo, and Romblon.

The initial work on a much-needed improved system at Zamboanga
was under way during my visit.

I was present at the inauguration of the new system at Vigan.

AGRICULTURE.

It is apparent that the progress of agriculture in the islands has
not kept pace with progress in other directions, notablv in the public
improvements, education, and sanitation. The beautiful highways
that have been built at large expense and which require annually
a considerable amount for their maintenance have not been accom-
panied by the development in agriculture and the consequent traffic
over the highways which ordinarily accompanies such construct*on.
It would be difficult, if not impossible, to justify the beautiful roads
in the Philippine Islands on economic grounds alone. If their con-
struction is justified, it must be, for the present, on the ground of
educational benefits and usefulness in the maintenance of law and
order.

Agriculture being the principal and almost exclusive eource of
wealth of the people, its backwardness requires more than a passing
word.

It is due in the first place to the extreme depression resulting from
years of war and insurrection prior to the establishment of aw ^o--
ernment in the islands, and to the conservative nature of the people:
and, in the second, to the fact that the government had not interested
itself in agriculture in the intensive way that it had taken up educa-
tion and sanitation.

Recently the government has displayed greater activity in this di-
rection, and there seems at present to be a more widespread interest
in the development of agriculture. During my visit there was held
in Manila a congress of agriculturists. There were nearly 600 dele-
gates in attendance, representing practically all sections of the archi-
pelago and every phase of agriculture.

This was the first congress of the kind in the history of the
islands. The opinion was general that much good would come
therefrom. Following, as it did, the organization of insular mu-
nicipal and provincial agricultural societies throughout the islands
under the stimulus of the bureau of agriculture, it betokens awaken-
ing interest in the power of cooperation.

Within the past two years the legislature has passed important
acts for the special benefit of agriculture in the islands; notably,
an act providing for inspection, gracVng and baling of man'la
hemp; and a sugar central act, providing government aid in the
establishment of sugar centrals.


17 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

It is customary in discussing the backwardness of agriculture to
lay great stress on the loss of work animals by rinderpest and on
the frequent destruction of crops by locusts. I have no desire to
minimize these plagues, yet I am confident that to a great extent the
actual loss from these causes is largely due to the unsatisfactory
condition of agricultural labor.

The same activity and cooperation of farm labor essential to any
form of successful agriculture would practically nullify the ravages
of these pests. Without such activity and cooperation, even in the
absence of the pests, agricultural progress would lag.

The eradication of rinderpest has probably required a greater
expenditure of money than all other work of the bureau of agri-
culture combined.

In order to show fully the effort made, the false hopes of success
raised only to be disappointed, and how groundless is the complaint
that recent changes in methods of handling the disease were threat-
ening disaster, I append quotations from the annual reports of the
commission from 1905 to 1913, inclusive, on this subject.

The abundance of carabao in the fields now makes it no longer
possible to ascribe agricultural depression to disease of work animals.

The locusts are still bad. It would seem that they would, unless
destroyed by natural causes, continue so until more general culti-
vation destroys their breeding places. Meantime, intelligent co-
operation in fighting them would greatly reduce their ravages.

I saw locusts in considerable number in six widely separated
places on my visit. There was widespread commendation of the
work being directed personally by the assistant director of agricul-
ture in combatting them.

I append extracts from the reports of the Governor General for
1912 and 1913, from which it will be seen that the locust conditions
are unfortunately normal.

AGRICULTURAL COLONIES.

I visited the American colony at Momungan. It is situated on the
road between Camps Overton and Keithley in Mindanao at a dis-
tance of about 6 miles from Camp Overton and at an elevation of
about 1,300 feet above the sea. While the road is a mountain road,
auto trucks make the trip from Overton, on the seacoast, to Momun-
gan in about 50 minutes.

I found there 56 Americans with Filipino families52 white men
and 4 negroes. The colony is in a district inhabited by peaceful
Moros engaged in agriculture, who may be employed as laborers, as
the colonists are in position to use additional labor. The land selected
for the colonists is in a beautiful rolling country traversed by the
River Agus, as well as by the highway joining Overton and Keithley.

At the time of my visit the colonists had been established in their
homes about one year, and the result of one year's work was re-
markable. They had an average of about 16 acres of land per
family in cultivation. They were harvesting corn, beans, sweet po-
tatoes, and peanutSj and they had no difficulty in finding markets for
these. The houses of the colonists were comfortable and suitable to
the climate, and were notably better than those of Filipinos of the
S. Doc. 242, 64-1-3


18

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

tenant class throughout the archipelago. There was no indication of
dissatisfaction among the colonists, and if they continue to be satis-
fied there seems no reason why the experiment should not be a
success.

There is considerable travel along the road traversing the colony,
so that the colony is not isolated. The colony receives the sympa-
thetic attention of the governor of the Province, Col. Gilsheuser, of
$he constabulary, and is assisted in so far as possible by the com-
manding officers of the two scout posts at Overton and Keithley.
It is probable that no better site could have been selected in the
Fhilippine Islands for this very interesting experiment.

The inception of this colon}'- is not without interest. In February,
3913, the Philippine Legislature appropriated a fund of 400,000
pesos, known as the Rice colonization and plantation fund," to be
Bsed for the establishment and operation of colonies and plantations
public lands, and by executive order No. 29, March 10, 1913,
ov. Forbes appointed a committee of three to carry the provisions
of that act into effect. It seems that this act had contemplated the
locating of Filipino families, taken from those district where there
was a congestion of population, in districts where there was a lack
of population and an abundance of land suitable to rice and other
cereals.

Later, however, owing to the enforcement in the Philippine Islands
of the act of Congress of August 24, 1912, providing for the dis-
charge of civilian employees of the Quartermaster's Corps and their
replacement by an enlisted personnel, many men who had been for
9 long time in the islands as Army employees and who were un-
willing to enlist under the provisions of this act were discharged.
At the same time, owing to necessary retrenchment, a number of men
who had similarly been for years in the employ of the government
>f the Philippine Islands were discharged. These men were given
opportunities to return to the States, and were, in general, treated
liberally dn the matter of final payments on discharge, but there
were among them a number of men who had married Filipino women
and who were unwilling to leave their wives and families, and who,
believing that such families would be unhappy under conditions in
the United States, elected to remain in the islands.

The heads of these families being without employment, the idea
was conceived of taking advantage of act No. 2254, referred to, and
f locating these families in a suitable place in the islands. Gov-
ernor General Harrison, on April 2, 1914, appointed a board to in-
vestigate and report upon a suitable location for the establishment of
an additional agricultural colony in which such of these people as
were of good character and gave hope of success in an agricultural
5fe could be located.

This board selected the site at Momungan. Suitable lands were
surveyed and set aside, in order that each head of a family might
lake up a homestead, and other lands were reserved in order that
file homestead might be enlarged. One can readily appreciate the
doubts of the success of a sociological and agricultural experiment
of this nature. One year after the establishment of the colony,
fiowever, conditions were such as to remove most of these doubts.
It is proposed to place this colony under the administrative super-
vision of the Bureau of Agriculture.


19 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

I visited also the Moro and Filipino colonies established on the
Cotabato River. These colonies are under the administrative super-
vision of the department of Mindanao and Sulu and are receiving
constant attention from the governor of that department, as well as
from the governor of the Province in which they are located.

In these colonies were approximately 1,000 families, divided'
equally between Christian Filipinos, recruited largely from the over-
crowded Province of Cebu, and Moros of the immediate vicinity.
Generally speaking, the Christians and Moros alternated. The de-
tails of the operations of these colonies are reported on by the gov-
ernor of the department of Mindanao and Sulu.

The experiment of having Moros and Christian Filipinos live
amicably in the same neighborhood is so far a success, and will
continue to be a success if the supervision continues as sympathetic
as it has been under Gov. Carpenter, the department governor, and
Gov. Bryant, the governor of the Province of Cotabato.

The agricultural progress is, however, beset Avith difficulties. The
land is flat bottom land covered by a dense growth of cogon grass.
The sanitary difficulties would seem to be considerable. It is dif-
ficult to rid the country of mosquitoes and is difficult to bring into
subjection the very heavy tropical growth of grass. Ordinarily,
work of this kind would require a greater capital than that which the
government can give to these colonists, and it requires a union of
effort over a very considerable territory. It is fair to say, however,
that the people in the colonies are not discouraged and that'those
who have supervision over them are enthusiastic.

The Filipino-Moro colonies experiment has great importance, in
that it runs counter to two heretofore rather generally accepted
theories: First, that the antagonism between the Moro and Christian
Filipino was such that they could not live together in peace; and,
second, that the rural Filipino was so without ambition that he could
not be colonized even to. better his condition. Gov. Carpenter is in
a fair way to demonstrate the baselessness of both of these proposi-
tions if he has not already done so.

ROADS.

The road development in the islands is marked. Perhaps no
country on earth is so fully equipped with good roads in proportion
to its material wealth as tlie Philippine Islands. The road construc-
tion is being continued, and there is no disposition on the part of the
people to object to road making. As one intelligent member of the
legislature said to me, We like to build roads because the money is
spent in the islands. The labor is employed here and the material is
purchased here." This, of course, would not justify, ordinarily, the
construction of roads, but it seems to be the line of thought which
has been pursued in constructing a good many of the roads where
there is little traffic to justify the building, either present or prospec-
tive.

Unless there is an early development of agriculture, the mainte-
nance of the present good-roads system will become a heavy burden
on the people. It is fortunate that the outlook for agriculture is
more favorable than in the past.


22

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

RAILROADS.

I personally inspected all the lines of the Manila Railroad Co.,
except the branch to Cabanatuan and the section in Albay, and all
of the Philippine Railway Co.'s lines in Panay and Cebu.

I found these lines in every respect in first-class condition, well
suited to the general conditions of the community served by them.
Just as it has been noted that highway development has not been
followed by the agricultural development along the route which
might have been anticipated, it is noted that the railroads, particu-
larly in Panay, have not been accompanied by that development
which one might expect to follow the construction of a railroad
through such fertile territoiy.

PRISONS.

So far as practicable, I visited the prisons at the several points
touched by me and carefully inspected the San Ramon Prison in
the Province of Zamboanga. There is probably no better equipped
prison in the world and none better suited to its purposes than this
prison, which has some 400 inmates. The one unfavorable feature
is that with the beautiful, well-cultivated land and fine coconut
plantation it is not self-supporting. The superintendent believes
that it will soon be self-supporting.

The large central prison at Bilibid I visited, but did not inspect
further than to see that the high standard which has been established
at this prison in the past was maintained.

Prisons in the Philippine Islands compare favorably with the
prisons anywhere in the United States. .

POLITICAL CONDITIONS.

There are in the Philippines three principal political parties:
the Nacionalista Party, which is the majority party; the Progresista
Partv; and the third party, which is an offshoot of the Nacionalista
Party.

At present all of these parties favor, with certain modifications, the
Jones bill, as it is known, or the bill to declare the purpose of the
people of the United States as to the future political status of the
people of the Philippine Islands, and to provide a more autonomous
government for those islands." This bill passed the House of Rep-
resentatives and was considered by the Senate Committee on the
Philippines, but not passed at the last session of Congress.

The Nacionalista (or majority) Party seem unequivocally for the
bill with the expressed hope that it may be amended in certain ways,
but passed without amendment rather than not passed.

The position of the Progresista Party seems to be that stated by
the president of that party in articles criticizing the bill published
in the organ of the party in the city of Manila. He said:

At this point I wish to say that I do not desire that the Bill, Jones, No. 2 "
should completely fail, my only desire, as well as that of many Filipinos, as
I understand, being that the bill should be amended in such a manner that it
shall constitute a true step toward the establishment of a local government
responsible to the Filipino people, not to the Governor General, the President,
the Secretary of War, or the Bureau of Insular Affairs, especially in those


21 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

subjects in which the international responsibility of the United States is not
in any way affected.

Only thus may we succeed in ending the agitations of a political character
that have disturbed the country for so many years, making possible a truly
stable government accepted by all or by the majority of the Filipinos, if not as
the summum of their aspirations, at least as a step that must lead us
irrevocably, sooner or later, to the realization of our national ideals.

The third party advocates the passage of the Jones bill, with the
preamble so modified as to provide a fixed date for the independence
of the islands.

These parties are apparently, numerically in the order given, with
the Nacionalista Party, embracing apparently a large majority of
the people.

While not an organized party, there are certain Filipinos neg-
ligible in number, who do not favor any bill which contemplates the
separation of the islands, from the United States.

The Americans in the islands seemed almost unanimously to favor
the administrative features of the Jones bill, but a majority seemed
to be unfavorable to the preamble.

Generally speaking, all who had studied the bill so as to under-
stand fairly well its provisions seemed to favor the bill as it was,
or favored it with a desire that the preamble should be omitted, and
that appointments by the Governor General should be effective with-
out the confirmation of the senate created by the bill.

It is doubtful if there are any persons in the Philippines who con-
sider political questions who do not feel that there should be some
legislation along the general lines of that proposed. Certainly I
received no intimation that there were such during my visit to the
islands.

The reason for this was quite evident to those who have followed
conditions in the islands during the past eight or ten years. The opin-
ion is practically unanimous that the form of government established
in the islands, with an appointive commission as the upper house of
the legislature, an elective assembly for the lower house, and with the
commission, or upper house, given exclusive legislative authority
over one-third of the territory of the archipelago, was no longer
workable. The disagreements between the two houses had assumed
an almost irreconcilable form. This was displayed in the failure for
three years of the legislature to agree on a budget, the most important
legislation committed to it. That the failure of the government in
its legislative branch was not more apparent was due almost entirely
to the personal affection of the Filipinos for Gov. Forbes, then Gov-
ernor General. This feeling which enabled Gov. Forbes to obtain
the passage of many bills through the lower house of the legislature
was manifested at the time in many ways, and I can testify that it
remains now that Gov. Forbes is no longer in the islands. Notwith-
standing this feeling, however, the Filipino opinion is that the form
of government had outlived its usefulness, and this opinion is shared
by practically all Americans in the islands, even by those who ad-
vanced the idea that it should have been remedied by the abolition
of the popular assembly.

It may at first glance appear that the form of government is now
operating smoothly, since, under Governor General Harrison, the an-
nual appropriation bills have been passed and other bills advocated by


22

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

the Governor General have received attention and, in general, been
enacted. This conclusion, however, would be erroneous. At present
there is what might be called a modus vivendi simply because both
the upper and lower houses of the legislature are looking forward
to the passage of a new organic act to take the place of the present
government act which has developed to that point where further
progress is impracticable. How long this modus vivendi would con-
tinue it is impossible to say, but every consideration of prudence
urges the passage of a bill which more clearly defines the power to
be given to the expression of Filipino public opinion in matters of
legislation and the extent to which such power is to be limited by the
relation of the islands to the United States.

There is, however, another and an important respect in which the
form of government of the islands is defective and which no local
good will can correct.

To-day the revenues of the central government are almost wholly
derived from customs and internal revenues. Legislation of Con-
gress has withdrawn from the local government power effectually to
legislate in respect of either of these taxes.

The local government may not borrow without the express
authorization of Congress.

The great wealth of the local government is in the public lands
and mines and the local government is without power to enact laws'
which would bring about the development of these lands and mines.

For thirteen consecutive years the Philippine Commission urged
amendment of the public land laws without receiving the attention
of Congress.

For five years the commission begged authority to borrow money
for needed public works in vain.

Briefly, the local government has been and is without authority
to regulate its income, to avail itself of its credit, or to utilize its
wealth. As a consequence, a highly efficient government with im-
mense potential wealth is continually checked in its progress.

And to-day, while admiring the beautiful roads of the islands, one
is inclined to the thought that their construction was economically
without justification because of the lack of agricultural development
following their construction. We see the government and the people
freely spending money for roads, but without authority to take the
necessary steps to develop the territory through which the roads
passed.

While I have given above the public views of the political parties
of the islands, I am convinced that no serious part of the Filipino
people desires separation from the United States at this time, and
that the serious people of the islands are wholly without belief that
they can foresee clearly the day they would desire this separation.
Nevertheless, there is likewise no doubt that all Filipinos look for-
ward, with varying degrees of hopefulness, to the time when they
can take over the full responsibility of their own government, and
they desire a recognition of this hope by the United States.

Finally, Filipino public opinion in the islands is more favorable to
the United States to-day than it has been at any time in the past.
This is doubtless, in part, progressive. It is inspired, in part, by
their belief that an earnest effort has been made to give them all the
participation in the government which in their own interests could


23 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

now be given, and, in great part, by the more general belief in the
purely benevolent intentions of the United States toward the islands.

We have reached that point in our progress where there must be
given to the government of the Philippines that power granted by
the pending bill or we shall soon see retrogression in the great works:
of sanitation, education, and material progress.

Not the least wonderful feature of the work in the Philippines is
that it was accomplished by a government in the islands whose
natural resources were so without its control. One hesitates eve&
to speculate on what would have been the progress in the Philippines
had the act of 1902 given these powers to the Philippine Commission

' ECONOMIC CONDITIONS.

In studying economic conditions in the Philippine Islands it Is
necessary to have in mind a few factors that are abnormal n.-d tend
to explain apparent contradictions in reports of conditions.

While the Philippine government is self-supporting, the United
States Government sends annually to the islands approximately
$12,000,000 for disbursements therein in connection principally with
the Army and Navy. The total of the taxes collected in the Philip-
pine Islands per annum is approximately $18,000,:00. The total
exports approximate $48,000,000 per annum, differing but slightly
with the total imports. The total circulation in the islands is ap-
proximately $26,000,000.

From the foregoing, it is apparent that the governmental activities
in the islands, as compared to private activities, are far beyond
anything that we are accustomed to see in the States, and when we
consider the large proportion, averaging about 20 per cent, of the
entire revenue of the islands, expended in permanent public works,
we can see to what an extent business in the Philippines is based o\\
the expenditures of Federal and Philippine Government funds and
how out of proportion these expenditures are to the expenditures
based on the one great source of wealth of the islands, agriculture.

This has been the case to such an extent that government retrench-
ment is followed by the cry of hard times on the part of merchants,
even though agriculture, on which practically all of the people de-
pend for a livelihood, is fairly prosperous. With the development
of agriculture this condition should disappear. The exports from
the islands should be many times as great as they have ever been*
and there seems now a promise that/this will be the case in the near
future, particularly if the local government is placed in a position
to utilize its resources and credit.

External trade.The European war has greatly increased the
transportation rates to and from the islands. It has interfered with
the usual markets. At one time there were serious fears that the
normal sources of such rice, coal, and fresh beef as were imported
would be cut off. Fortunately this was satisfactorily adjusted.

The market for copra is still, however, interfered with, and ac-
cordingly the price is depressed. This is one of the principal exports
of the islands.

The tobacco market is similarly affected.

Sugar, on the other hand, profited.


24

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

Notwithstanding the effects of the war, the total exports for 1914
were exceeded but once in the 10-year period.

Conditions affecting exports likewise affected imports. The total
for the year 1914 was exceeded by three years of the 10-year period.

The total foreign trade for the year was exceeded in 2 of the 10
years ending in 1914.

So far, therefore, as the foreign trade is concerned, conditions,
with the exception of those depending directly on shipping, indicate
normal progress.

Statistics of foreign trade for 1915, to include the time of my stay
in the islands, were of the same general nature as those of 1914.

Internal trade.With reference to the internal trade, the tax col-
lections on the business of merchants, manufacturers, and common
carriers for 1914 would indicate that the total of the internal busi-
ness in the islands had been exceeded but once in the preceding period
of 10 years. This shows a very satisfactorjr interior condition, con-
sidering the handicaps of business as the result of the European war.

Unfortunately the effect of the war was not equally distributed in
all localities and on all occupations. The Manila Railroad Co.,
which under its concession is required to carry on railroad construc-
tion in several places in the islands, dependent, as it is, on British
capital, was compelled to curtail very much its program.

The copra and hemp Provinces were also depressed.

On the other hand, there was every indication of increased pros-
perity in the sugar industry and in those places, such as Iloilo, which
depended upon that industry.

The presence in the Philippine Islands of three of the four American
members of the Philippine Commission who resigned in 1913 engaged
in business bears testimony to the hopefulness of economic conditions
in the islands, the more so in that of the members of the Philippine
Commission who had left the service prior to that time no one had
engaged in any profession or business in the islands.

Industrial.I visited, in so far as possible, the principal manu-
facturing plants. I inspected three of the largest cigar factories.
While this was one of the industries that had been unfavorably
affected by the war, the plants were working in full force and there
was every indication of prosperity. Incidentally these factories are
large, comfortable buildings, sanitary in all details, and under the
constant inspection of the bureau of health.

I visited the sugar central at San Carlos in Occidental Negros,
and the central of the Calamba* Sugar Estates Co. on the Calamba
friar estate. I found conditions at both of these places encouraging.
These are two of the three largest modern centrals in the islands.

During my stay in the islands the insular board appointed for that
purpose had determined on the erection of a Government-assisted
central at Isabela in Oriental Negros. and an invitation for bids on
its construction was issued. It would seem that the success of this
central is unquestioned, as it is to be built in one of the best sugar
sections of the islands where the necessary cane is assured.

During my stay in the islands the cement mill at Binangonan,
near Manila, began operations. There has been talk for a number
of years in the Philippines of establishing cement mills, but this is
the first practical step taken. The mill was established on purely
Filipino initiative and with Philippine capital.


25 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

I inspected on the island of Mactan in the Province of Cebu the
plant under construction by the Visayan Refining Co. This will be
by far the largest manufacturing plant in the islands outside of
the city of Manila. The work of construction was progressing
rapidly and the manager of the plant expected that it would be
ready for business by January 1, 1916. Judging by the very en-
couraging success of the similar plant in Manila of the Vegetable
Oil Co., this plant should be a success and will mean a great deal to
the islands. It should be noted that the export of coconut oil from
the islands has increased from a total of $40 in 1912 to a total of
$2,619,183 in 1914. This increase is due entirely to the mill of the
Vegetable Oil Co. in Manila.

I visited the gold-mining section of Masbate, where several mills
are located, and I inspected the largest of thesethat of the Colo-
rado Mining Co. This company employs about TOO men and is
operating to its full capacity. Shortly after my departure this com-
pany declared a dividend of 10 per cent, which indicates the confi-
dence of its managers.

Household industries.I spent two days in the small mountain
town of Lucban. This town is known for its delightful climate and
for the manufacture of hats from the buri palm. These hats are
similar to the Panama hat of commerce. Hat making is here a
household industry, and it was very noticeable that practically every
woman and child appearing at the windows had in their hands a hat
on which they were working. These hats have been heretofore, in
the greater part, sold to dealers for export to Italy and Germany.
The Avar had interfered to some extent with the normal demand.
This, however, creates only temporary difficulty, as the hats will find
a ready and perhaps better market in the United States. I under-
stood that the prices had been depressed a little, but the supply
never equals the full demand.

Other household industries, such as the manufacture of mats,
baskets, pottery, embroidery, lace, etc., and the various Philippine
cloths, were all progressing along normal lines.

Broadly speaking, the condition of industrial and commercial
industries in the Philippine Islands is normal and is particularly
fortunate in being so during this period of general disturbance.

Agriculture.This has been discussed generally elsewhere. As,
however, agriculture is almost the exclusive source of wealth in the
islands, one must understand that without development in agricul-
ture it is idle to anticipate more than spasmodic development in in-
dustrial or commercial lines. Unfortunately the agricultural devel-
opment has been slow. In the production of rice and sugar we have
never exceeded the most prosperous years of Spanish control of the
islands, and many of the Provinces bear evidence to-day of not being
so productive as they have been in years prior to the insurrection in
the Philippines. In other words, these Provinces have never re-
covered. Too much of the commerce of the Philippine Islands has
been predicated on large governmental expenditures and expendi-
tures for the Army and Navy in the islands and, with retrenchment
on the part of the government and the removal of troops from the
islands or from one section to another, there has been a tendency to
complain of hard times.

S. Doc. 242, 64-1-4


26 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

Unfortunately the part of the community most affected by these
changes has been the American business element. In Iloilo during
my visit there was evidence of such prosperity as there had not been
in Iloilo within the memory of man, and yet some of the American
business people there were depressed because their business had to
so large an extent been contingent on the continued presence there of
the garrison of American troops, which had been removed.

Labor.On the Manila Railroad and the Philippine Railway,
with the exception of a few directing positions and higher technical
positions, such as civil engineer, all the operations are carried on by
Filipinos, who, m addition to the laborers of the road, are the station
agents, conductors, locomotive engineers, and constitute the principal
clerical force. Some of the mechanics are Chinese or Japanese.

A similar condition exists in the Manila Electric Railroad & Light
Co. The railroad managers are thoroughly pleased with Filipino
labor, and, in fact, the impression is general that more satisfactory
labor could not be gotten in any countrv for these purposes.

In the sugar mills, shipbuilding, and other industrial plants the
same condition exists. On the steamships engaged in interisland
traffic, governmental and otherwise, the sailors, subordinate, and, in
some cases, the principal officers are Filipinos. Expression is gen-
eral that they are very satisfactory.

However, Filipino labor must in its great part be employed in
agriculture. Unfortunately, this seems the point at which the Fili-
pino laborer is weakest. This is witnessed by the general condition
of agriculture in the islands, and is the general complaint of land-
owners and those who employ labor directly or who have Filipino
tenants. There seems no doubt that this is due mainly to inherited
conditions and to the unsatisfactory relation of agricultural em-
ployers and landowners to their laborers and tenants. It is ob-
served that in such properties as the San Carlos Milling Co. and the
Calamba Estates Co. there is little or no trouble with labor. The
trouble seems to be where the old conditions continue and these are
the general conditions, such estates as those mentioned being excep-
tional.

When I visited on Masbate the mine and mills of the Colorado
Mining Co. I found there employed nearly TOO Filipinos. Most
of these men had been agricultural laborers who had been transferred
to this employment. Col. McCoy, the president and manager of the
company, who was with me at the time of my visit, expressed the
greatest satisfaction with Filipino labor. He explained that the
men in starting were, in general, irregular in their appearance for
work; that during the month the average man would work from
10 to 15 days. He authorized a bonus to those men who worked over
24 days a month and now the bonus has become practically a part
of the monthly pay, as practically the entire force works more than
24 days a month.

The Filipino, when satisfactorily employed, continues indefinitely
with his employer. On the Manila Railroad there are employees of
all grades who have been with the company since the date of its be-
ginning operations in 1888. I saw laborers on the right of way who
were pointed out to me by the president of the railroad as having
been so employed, and I saw their first Filipino locomotive engineer,
who was still employed on the railroad. These were indicative of a


27 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.



general condition, and the laborers employed on the railroads out-
side of Manila were, in general, men who had been agricultural
laborers.

It seems clear that to stimulate agriculture in the Philippine
Islands it is necessary to bring about a more satisfactory condition
of the laborer; that is, the laborer must perform more work and.he
must perform it in the belief that he is going to be benefited by it.
It is not easy to change the customs of ages, and it is not desirable
to make revolutionary changes. It is probable that if there were
scattered throughout the islands, as there might well be, large
estates under modern management, the conditions would be corrected
thereby, and possibly it is the only way in which they could be cor-
rected; but it would seem to be the duty of the agricultural bureau of
the Philippines and of the labor bureau to investigate carefully
conditions of the employment of agricultural labor and to suggest
a gradual modification of existing conditions, so as to induce the
laborer to work more and the employer to give him a larger benefit
from the product of his labor.

When due allowance has been made for the various pests that have
followed war and insurrection in the Philippines and for the recur-
rence of droughts unprovided against by irrigation and the visits
of typhoons, against which there is no provision, the lack of progress
in the Philippine Islands in agriculture still requires further
explanation.

That the Philippine Commission from its organization appre-
ciated the necessity of developing agriculture is apparent from its
reports and is within the personal knowledge of those who have
observed the working of that body. The difficulty seems to have
been that the recommendations frequently made by the commission
as to the public lands of the islands, an early recommendation as
to immigration and similar recommendations which would have
brought about results beneficial to agriculture, were unheeded. This
brought with it a natural discouragement and the energy which
should have been devoted preferentially to agriculture was devoted,
in large part, to the development of those things which it was within
the power of the local government to develop without assistance
from Congress.

The backward state of agriculture in the Philippine Islands, more
than anything else, points to the compelling necessity of granting
to the local government in the Philippine Islands greater authority
than it has had heretofore.

GOVERNMENT FINANCES.

Central.Unless one has clearly in mind the very large portion of
the expenditures of the Philippine government that have been made
for permanent public improvements, one would get the impression
that since the end of the fiscal year 1910 (June 30, 1910) the financial
condition of the Philippine government had grown steadily worse.
If, however, one gives proper value to the public works constructed
and now in beneficial use, the resulting condition becomes one of
only temporary difficulty, to be justified or not, according to one's
judgment of the timeliness and value of the work accomplished.


28

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

In the three fiscal years 1908, 1909, and 1910 there was expended
for public works, from the proceeds of bond sales, $2,150,000, and
from revenue funds, $3,800,000. In the fiscal years 1911, 1912, and
1913 there was, on the other hand, expended for public works, from
the proceeds of bond sales, $500,00, and from revenues, $8,280,000.

The natural result of this was that, notwithstanding there was in
each of these latter years an excess of revenue over expenditures,
other than for public improvement, the payment from the current
revenues of such large amounts for public improvements had the
effect of materially reducing the net working surplus of the govern-
ment, so that a working surplus of approximately $9,500,000 on
June 30, 1910, had been reduced to $7,100,000 on June 30, 1913. This
reduction of the net working surplus resulted from carrying on a
uniformly heavy plan of permanent improvements in the belief that
the improvements were necessary to the progress of the islands,
anticipating authority from Congress to cover the expenditures in
part by an issue of bonds. The bond issue was not authorized. As
a result of this, the unappropriated surplus of the government was
reduced below what had previously been considered a safe amount.
Even to maintain the working surplus at the amount stated it was
necessary to make available funds that had been theretofore ear-
marked for other purposes. In practice this had very much the effect
of making liquid certain assets of the government and prevented, to
the extent availed of, the further obtaining of funds from those
sources.

This of itself would have been the source of no difficulty had the
program of public works been at that time completed. Such, how-
ever, was not the case, and it became necessary to suspend the large
expenditures for public works, the only alternative being the con-
tracting of a floating indebtedness, which has never been necessary
in our government of the Philippine Islands.

The difficulty was emphasized in the last half of the year 1913 by
a material decrease in revenue, due largely to the abolition by the
tariff act of 1913 of the export tax in the Philippines.

As a result of these two conditions the net working surplus was
reduced on December 30, 1913, to $5,600,000, of which but $250,000
was in cash available for appropriation.

The financial operations of the central government for 1914 were,
briefly, in round numbers:

Net income________________________________________

Liquidations of assets of the government____________

Governmental expenses____________________________

Fixed charges_____________________________________

$10, 400, 000
1, 000, 000

- $11, 400, 000

8, 000, 000
800,000 '
- 8, 800, 000

Excess of revenues over governmental expenditures________ 2, 600, 000

But during the year $1,300,000 was expended on permanent im-
provements and $2,700,000 was given in aid to local governments.

This would indicate a deficiency in revenues for the year of
$1,400,000. It will be observed that this deficiency is created largely
by assistance given to the local governments, provincial and mu-
nicipal.

It is evident that the government could not continue expenditures
in excess of its revenues, even though the expenditures are for public


29 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.



improvements which become permanent assets, or for assistance to
the provinces and municipalities. Therefore at the session of the
legislature in 1914-15 additional internal-revenue taxes were im-
posed. By the provisions of the act these taxes were imposed for the
fiscal year 1915. The fiscal and calendar years in the Philippine
Islands are now identical.

The imposition of these additional taxes is in a fair way to make
the revenues of the government for the current year exceed the
expenditures for all purposes.

The additional taxes, however, being only for the year 1915, it is
necessary to make some provision to prevent a future excess of
expenditures over revenues, and it is expected that a new internal-
revenue law will be enacted at the present session of the Philippine
legislature.

The constantly increasing amount advanced by the central govern-
ment to the provinces and municipalities is indicative of a condition
which calls for correction. Either taxation should be revised, in
order that the provinces and municipalities shall be self-supporting,
or certain of the expenditures now classed as provincial and munici-
pal should be taken over by the central government. Public opinion
in the Islands, as elsewhere, seems to favor the first alternative; that
is, a readjustment of taxation so as to make the provinces and munici-
palities self-supporting without, giving up any of their present func-
tions.

It is altogether probable that this view will lead to a certain loss
of efficiency, which will perhaps be the price paid by the local govern-
ments for the satisfaction of expending their own funds rather than
permitting them to be expended by the central government. There
is no doubt that the work can be done more economically by the cen-
tral government.

The total bonded indebtedness of the Philippine government is:

The balance in the sinking fund for the payment of the land-pur-
chase bonds on December 31, 1914, was $1,927,980.59. The balance
in the sinking fund for the payment of the public works and im-
provement bonds was on that date $855,832.58. There is no other
indebtedness of the Philippine government.

The government, however, has under its contracts with the Manila
Railroad Co. and with the Philippine Railway Co. a contingent
liability to advance the interest on certain 4 per cent interest guaran-
teed bonds of these companies in case the companies should be un-
able from their income to pay this interest. Under this contingent
liability the government had advanced on the 31st of December,
1914, a total of $1,317,448.50, practically all of which was on account
of the Philippine Railway Co. The Manila Railroad Co. has gen-
erally earned the interest on its interest-guaranteed bonds.

Re-

Amount. deem- Due.
able.

Land purchase bonds, 4 per cent.

Public works and improvement bonds, 4 per cent.
Public works and improvement bonds, 4 per cent.
Public works and improvement bonds, 4 per cent.

$7,000,000 1914 1934

2,500,000 1915 1935

1,000,000 1916 1936

1,500,000 1919 1939


30

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

The amount advanced by the government under these contracts
becomes an indebtedness of the railroads to the government, payable
at the end of the period for which the interest is guaranteed, about
1937. In practice this guarantee has the effect of requiring the gov-
ernment to advance in payment of interest approximately $250,000
a year. This amount is gradually decreasing.

However commendable the program of public-work construction
may be, I am of the opinion that there should be a marked decrease
in the construction of nonproductive public works, and that expendi-
tures in the near future should be directed more largely to increas-
ing the agricultural output of the islands. To maintain in their
present excellent state the highways of the islands requires an annual
expenditure of approximately $1,000,000, and as the mileage of these
roads is increased the cost of maintenance is also increased. This
becomes in its nature a fixed charge. Fortunately, the roads have
been constructed very largely from revenue. Therefore, there is very
little in the way of bonded indebtedness due to the roads. The main-
tenance charge, however, is a very large charge against the total
government revenues which approximate $18,000,000 per annum.

Provinces.The total indebtedness of the Provinces of the Philip-
pine Islands is approximately $1,900,000. This indebtedness is to the
insular, or centra], government which has from time to time made
loans to the Provinces from funds subject to its control. No Prov-
ince has issued bonds or has outstanding public indebtedness.

The total provincial revenues approximate $3,500,000. There has
been a disposition to increase the expense of the provincial govern-
ments without increasing their revenues. This has necessitated an
increasing amount of assistance from the central government. The
legislature is now considering the question of readjusting revenues,
as heretofore stated, in order that this continual assistance from a
central government may be avoided.

City of Manila.The revenues of the city of Manila are approxi-
mately $1,500,000 per annum, which is supplemented by $625,000
contributed by the central government, and for the past two years
the expenditures and fixed charges have slightly exceeded this
amount. The city of Manila has a bonded indebtedness of $4,000,-
000, which becomes due $1,000,000 in 1935, $2,000,000 in 193T, and
$1,000,000 in 1938. On December 31, 1914, there was a sinking fund
of $310,000.

Municipalities.The total income of all the municipalities and
townships and settlements of the Philippine Islands is approximately
$3,750,000 per annum, which is slightly in excess of their expenditures
other than for public works. Loans to the municipalities, other than
the city of Manila, have been made from time to time from funds
controlled by the insular government.

A consideration of the foregoing statements and of the large ex-
penditures for public improvements made from revenues show that
the finances of the Philippine Government are in good condition.
Such difficulties ,as have occurred have been temporary and almost
entirely due to the lack of control which the insular government has
over its borrowing power. This has had, with the natural disad-


31 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

vantages, the great advantage of preventing a large public indebted-
ness of the islands. The temptation to contract large indebtedness
in connection with the public works which have been executed in
the islands and those which are deemed essential to further progress
would have been, it is believed, too great for the local government
to have withstood.

It is belived, however, that a sufficient check would have been the
requirement of the approval of the President prior to contracting
indebtedness rather than the necessity of obtaining affirmative legis-
lation from Congress. It is thought that nonproductive public
works should be proceeded with cautiously, pending a development
of the producing capacity of the islands. The latter is the great
necessity at this time and should precede further heavy expenditures
on other public works.

THE CITY OF MANILA.

The city of Manila is fast becoming, if it is not already, the most
beautiful of the larger commercial cities of the Far East.

In addition to being the capital of the islands, it is the chief com-
mercial port and business center. It is the location also of the
larger industrial plants. While the islands are widespread, Manila
is the recognized center. There has been at times, and is at present,
a tendency in the extreme southern islands to make Singapore the
commercial Mecca rather than Manila. In the interest of the com-
munity of the islands an effort should be and has been made to
overcome this. Manila, being the seat of the central government,
owes a great deal of the recent improvement to that fact. A great
deal of the recent work has been done directly by the central gov-
ernment, and in the natural order of things a great deal more will
be done in future. Furthermore, the city of Manila is assisted an-
nually by a very considerable appropriation, now fixed at not to
exceed $625,000 per annum, which goes to the maintenance of the
government of the city.

By act No. 183, enacted by the Philippine Commission July 31,
1901, a charter was granted to the city of Manila. This charter
vested the government in a municipal board consisting of three mem-
bers to be appointed by the Governor General, by and with the con-
sent of the Philippine Commission, and to be removed in the same
manner, and it prescribed the duties of the several members of the
board. This was later modified in some respects, and finally, by
act No. 1869 of the Philippine Legislature, passed June 18, 1908,
the government was vested in a municipal board consisting of six
members, three to be appointed by the Governor General, by and
with the consent of the commission, and to be removed in the same
manner, an ex officio memberthe city engineerand two members
to be elected from the city of Manila.

This modification has in practice proven detrimental to the in-
terests of the city. A return should be made to the former smaller
board and to the principle on which the original law was based, which
recognized Manila as a city of the Philippine Islands rather than
a city of those who reside therein. Local politics should not enter
into the managament of a city which is alike the seat of the govern-
ment and the principal industrial and 'commercial center of the en-
tire islands.


32

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

The local population of Manila has its representation in the as-
sembly and has never been without its representation on the ap-
pointive commission, or upper house.

The situation created by the addition of the elected members to the
board is such that a transfer of the capital from Manila is seriously
considered by leading Filipinos. This would be no remedy, in so
much as Manila would continue to be the principal port and the
industrial center of the islands.

The organic act of the Philippine Islands should provide that the
government of the capital city of the islands should be vested in a
board consisting of three members, to be appointed by the Governor
General of the islands.

THE DEPARTMENT OE MINDANAO AND SULTJ.

Probably the most important office under the Philippine Commis-
sion to-day is that of governor of the Department of Mindanao and
Sulu.

This department includes seven Provinces, about one-third of the
area of the Philippine Islands, practically all of the Mohammedan
and about one-third of the pagan population of the islands, together
with a considerable Christian population.

Because of the turbulent nature of its inhabitants it had, under
the Spanish administration and under ours until December, 1913,
been treated largely as a military problem. Gen. Pershing, the last
military officer holding the office of governor of the Moro Province,
became convinced that with his departure conditions would be ripe
to establish in that region a purely civil government.

This view was adopted, and on his departure in December, 1913,
Governor General Harrison appointed, to succeed him as governor,
Frank W. Carpenter. This selection was made with due appre-
ciation of the delicacy and difficulty of the task imposed on the new
governor, whose entry on his duties was practically coincident with
the withdrawal of all American troops from that region.

It was felt that the most difficult task was imposed on the man
who by experience was best qualified to undertake it.

Mr. Carpenter had for years, as assistant executive secretary and
executive secretaiy, been most intimately associated with the Filipino
people. He had won their confidence and affection.

My visit to his department satisfied me that his selection had been
a wise one. Customs inherited through ages may not be forgotten in
a few months, and it is perhaps too much to expect that the turbulent
Moros have become for all times men of peace. There was certainly
no indication of disorder at the time of my visit. There was not only
a spirit of friendliness displayed by the Moros to Americans, but to
the young Filipinosmen and womenwhom Gov. Carpenter was
introducing in his school and sanitary work among the Moros and
pagans there was extended a welcome apparently from the heart.

Too much can not be said in praise of the fine spirit of these young
Christian Filipinos who had begun this work in Mindanao and Jolo.
I am not sure that they were not moved somewhat by the desire to
show that the Christian Filipino and the Moro were not antagonistic
and that the peculiar hostility of the Moro to the Filipino, so much
talked of, was a myth.


33 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.



Whatever the motive, a dreary task is being undertaken with a fine
spirit and with most remarkable success.

Gov. Carpenter's annual report, to be published as a part of the
Annual Report of the Philippine Commission for .1914 (Reports of
the War Department for 1915, vol. 3), is a relation of a striking
piece of work well done. Conditions, as I found them, verify, as
well as two years' time permits of its verification, the wisdom of
Gen. Pershing's recommendation of a civil government in the Moro
Province and of Gov. Harrison's selection of the civil governor.

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

One hears in the Philippine Islands criticism of the insular gov-
ernment. I heard such criticism while there. It is evident, though,
that much of the criticism which we see published in the United
States is not heard in the islands by those wTho have intimate knowl-
edge of the affairs of the government there. Such criticisms are, in
great part, reserved for those who are ignorant of conditions in the
islands, present and past.

In general, the criticisms, in so far as definite grounds therefor
could be obtained and in so far as they affected the executive depart-
ments of the government, were without basis or trivial in character.

I heard no criticism whatever in the islands affecting the integrity
of any official of the government. Minor employees have from time
to time been discovered as defaulters and guilty of dishonest prac-
tices. In the early days of the organization of the Philippine gov-
ernment the number of such offenders was quite large, due to the
necessity of selecting employees from those available and without
the careful investigation of their character under rules which the
commission adopted and applied as soon as practicable. Thereafter,
as the result of an improved civil service, the number of defalcations
and irregularities was greatly reduced, and this favorable condition
has continued.

The detection of crimes of this kind is largely the result of the
constant inspections by the auditor's office, and the auditor's office
in the islands to-day leaves nothing to be desired.

The bureaus of the government have at their heads men long in
the civil service of the Philippine government. Notwithstanding
the loss of some excellent men as the result of retrenchment and vol-
untary resignations, the bureaus of the Philippine government had
never had at their heads men of as long average service in the islands.
The bureau of customs and of internal revenue, the two bureaus
from which the government receives its principal revenues, are, as at
present organized, highly efficient, and no bureau of the government
is headed by an inexperienced or inefficient man.

The governing boards in the Provinces and municipalities are
elective and display a varying degree of efficiency. I examined more
closely the Province of Tayabas and the municipality of Lucban.
Knowing the impossibility of examining all or a large number, I
took the Province of Tayabas as typical, and I selected the munici-
pality of Lucban because it was remote from the railroad and trav-
ersed by no improved highway. I found conditions in the Province
and in this municipality to be highly creditable to the local officials.


34

the government of the philippine islands.

These officials took the greatest pains to show me and to explain to
me every detail of local administration. They were apparently
proud of what they were doing, and their pride was justified by
conditions.

One of the most agreeable impressions of my travels in the islands
was the kindly feeling of the Filipino people toward Americans and
the warm feeling of personal regard they evinced for those Ameri-
cans who were working with them in the government service. I
found this feeling generally throughout all the Provinces and
municipalities visited by me. This is a condition which reflects
credit alike on the American officials and on the people among whom
they work.

In closing, I can quote, as fully applicable to conditions as they
exist in the islands to-day, what Secretary Dickinson said in his
report of 1910:

I am satisfied and I believe that anyone who makes a careful study of the
personnel of the Philippine government will feel that the United States has
just reason to be proud of the government it has established in the Philippine
Islands.

The high motives which prompted Governor General Harrison's
acceptance of his office have guided his conduct thereof. He has
labored unceasingly, and as a result of these labors he has gained the
admiration and respect of the people of the islands. As a consequence,
the excellent state of law and order prevailing in the Christian prov-
inces of the Philippine Islands is better assured than it has been at
any time in the past, while the penetration of schools and sanitary
work in the portions of the islands inhabited by the wild people and
Moros, particularly the latter, is beyond the most sanguine expecta-
tions of two years ago.

The unfortunate condition existing in the legislature which re-
sulted in a failure for three years to pass the annual appropriation
bill and the failure to provide revenues by necessary taxation has
been replaced by a spirit of good will and cooperation between the
two houses. Appropriation bills have been passed promptly, and
additional taxes have been imposed to meet the heavy public work
expenditures which the legislature does not wish to suspend.

The legislative treatment of the Moros and other non-Christian
inhabitants not represented in the legislature has been more liberal
than at any time in the past.

Yery respectfully,

Frank McIntyre,

Chief of Bureau.

Hon. Lindley M. Garrison,

Secretary of War.


APPENDIXES.




Appendix A.

ITINERARY OF GEN. McINTYRE.

1915.

July 31. Manila.
August 1. Manila.

2. Manila.

3. Manila.

4. Manila.

5. Manila.

6. By rail to Batangas and Pagbilao; by highway to Atimonan and

return.

7. By rail to end of line, walking 3 miles to southern line, thence

to Hondagua by rail, returning to Lucena, Tayabas Province.

8. Lucena, thence to Lucban via Tayabas.

9. Lucban.

30. Manila; night of 10th, at Los Banos.

11. Manila.

12. Left Manila for Mangalden; thence by automobile to Baguio via

Benguet Road.

13. Baguio, leaving in afternoon, via Naguilian Road, for Bauan and

San Fernando.

14. Arrived Vigan, via San Fernando and Tagudin.

If). Vigan, attending inauguration of waterworks system.

10. Left for Laoga, Ilocos Norte, returning to Vigan same evening.

17. Left Vigan, arriving Manila morning of the 18th via Bauan.

18. Left Manila 11 p. m. for southern trip.

19. At sea.

20. Arrived Capiz, going by Philippine Railway to Iloilo and leaving

there at midnight.

21. Arrived San Carlos, Negros; visited plant of San Carlos Sugar

Central and left in afternoon for Camp Overton.

22. Arrived Camp Overton, proceeded in automobile to Dansalan,

via Overton-Keithley Road, passing through Camp Keithley.
Crossed Lake Lanao in launch to Tampanan, returning Dan-
salan ; thence to Camp Overton en route to Jolo.

23. Arrived San Ramon Penal. Farm and inspected prison, leaving in

evening for Jolo. #

24. Jolo. Automobile trip across island to Maimbung and Indana,

leaving at noon en route to Cotabato.

25. Arrived at mouth of Cotabato River and proceeded up river, stop-

ping at Cotabato town and Dulauan.

26. Arrived at Fort Pikit, visited fort, proceeded clown river, making

several stops.

27. Arrived Zamboanga.

28. Left Zamboanga for Cebu.

29. Arrived Cebu.

30. Cebu.

31. Cebu.

September 1. Arrived Aroroy, inspected Colorado Mining Co. mine and mills,
en route to Manila.

2. Arrived Manila.

3. Manila and vicinity.

4. Manila and vicinity.

5. Manila and vicinity.

6. Manila and vicinity.

7. Manila and vicinity.

8. Manila and vicinity.

9. Sailed from Manila.
October 11. Arrived San Francisco.

37


38

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

Appendix B.

EXTRACTS FROM THE REPORTS OF THE PHILIPPINE COMMISSION
ON THE SUBJECT OF RINDERPEST, 1905 TO 1913, INCLUSIVE.

[Extract from report of Gov. Gen. Luke E. Wright, Nov. 1, 1905 (Philippine Commission

Report, 1905, pt.l, p. 84).]

The rinderpest and other diseases which afflicted the carabao, horses, and
cattle have been practically exterminated, and while the people still need more
work cattle than they have, the supply is slowly but steadily increasing. The
insular government, through its board of health, has kept a large force of
men in the field who have inoculated the cattle, and this made them immune
against rinderpest. It is believed that there is no further danger from this
source.

inoculation against rinderpest.

[Extract from report of Dean C. Worcester, secretary of the interior, Oct. 20, 1905 (Report
of the Philippine Commission, 1905, pt. 2, pp. 47-49).]

Late in the year 1902 the manufacture of antirinderpest serum was begun
by the bureau of laboratories. This serum, if injected hypodermically in proper
quantity, affords a temporary immunity against rinderpest, which ordinarily
lasts from one to two months. Permanent immunity may be secured through
inoculation by the so-called simultaneous method," which consists in injecting
3 cubic centimeter of virulent blood from a sick animal on the one side and
30 cubic centimeters of serum at the same time on the other. The result is
ordinarily a very slight attack of the disease, which does not prejudicially
affect the general health of the animal inoculated and confers permanent
immunity.

The difficulty involved in this method arises from the varying susceptibility
of individual animals to rinderpest. The majority of Philippine cattle may
be classified as normal, and with normal individuals inoculation by the simul-
taneous method is uniformly successful. Some animals, however, have a
greater or less degree of natural immunity. This fact is discovered when they
are inoculated by the simultaneous method for the reason that they fail to
develop fever. The operation is then repeated until they do react, more viru-
lent blood and less serum being used each time. A small percentage of animals
are, however, highly susceptible. With this class the usual dose of serum
fails to hold the disease in check, and it may terminate fatally.

The percentage of mortality which may be expected has been found to vary
widely in different countries and with different breeds of cattle, this variation
depending partly upon varying susceptibility to rinderpest and partly upon
complications with other cattle diseases generally prevalent in the countries
in question.

The first simultaneous field inoculations in the Philippines were carried
on by veterinarians employed by the bureau of laboratories, and were ex-
tremely successful, the mortality being only 3.44 per cent.

Under general provisions of law the board of health for the Philippine
Islands was charged with the combating of infectious diseases of animals.
During my absence in 1903 the commissioner of public health insisted quite
strongly that cattle inoculation be turned over to the board of health. This
was done, and a veterinary division Avas established in that bureau.

In my opinion, sufficiently careful supervision has not been exercised over the
veterinary division. In at least two instances veterinarians did careless work,
which resulted in heavy mortality and created strong local prejudice against
the inoculation. The corps apparently became alarmed, and the simultaneous
inoculation was abandoned and serum alone was employed to stop the spread
of the disease. This change of policy was adopted without my knowledge
or approval. It, of course, pleased the more ignorant owners of cattle, who
were delighted when the spread of the disease was promptly checked in their
herds by the use of serum, with no mortality among animals not actually in-
fected at the time of inoculation, while some 60 per cent of the infected animals
were cured.

If the insular government had abundant means and the necessary corps of
veterinarians, it could unquestionably protect the cattle of the Philippines
against rinderpest by inoculation with serum alone; but the expense involved


39 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.



would be enormous, for the reason that the immunity conferred is only tem-
porary, and after two or three months rinderpest is likely to reappear in the
very herds where it has been checked. If permanent results are to be secured,
the simultaneous method, or some modification of it, must be employed.

Recently two important additions have been made to our knowledge relative
to the use of antirinderpest serum. One is that the serum may be used not
only as a preventive agent to protect well animals, but also as a curative agent
for those actually diseased. For the latter purpose it is best to in.iect directly
into the jugular vein. The chief veterinarian states that of the infected ani-
mals treated with serum only 40 per cent have died, as against approximately
85 per cent of those not so treated. In other words, 60 per cent of the animals
treated have been saved. The second discovery of importance is that if the
serum be used upon an animal on a given date, and virulent blood be injected
10 days or two weeks later, permanent immunity is secured and the percentage
of mortality is reduced, with Philippine animals at least, practically to zero.
At the serum laboratory, where this method is now exclusively used, not a
single animal has been lost during the past year as a result of inoculation.

There is not the slightest doubt as to the efficiency of inoculation by the
simultaneous method or by the modification of that method above referred to,
and complete demonstration of this fact is furnished every day at the serum
laboratory, where it is necessary to keep constantly on hand a supply of
animals suffering from rinderpest in order that virulent blood for the making
of serum may be available. The whole place is so infected with the disease
that if animals which have not been immunized are brought there they promptly
sicken and die. Immunized animals, however, may be and are kept there
constantly and never contract the disease.

It may therefore safely be said that the problem of doing away with rinder-
pest in these islands reduces itself to one of administration and of overcoming
popular prejudice where such prejudice exists. The latter difficulty is not of
a permanent nature. When the people once become familiar with the results
of inoculation they are no longer opposed to it. In point of fact, requests for
inoculation have come in during the past year far more rapidly than they could
be acceded to.

The administrative problem, which involves keeping the veterinarians sup-
plied with serum at remote points in the archipelago and the exercise of neces-
sary supervision over their operations, presents no insuperable obstacles,
especially as the serum will, under reasonably favorable circumstances, keep
six months.

Were it possible in the Provinces to use serum first and follow it after a
suitable interval with virulent blood, a good deal of loss to property owners
might be saved, but this is difficult, especially in the case of the more ignorant
classes, who are satisfied to have their animals temporarily protected against
the disease by serum, and are unwilling to return them for inoculation with
virulent blood.

At the present time veterinarians are instructed to use serum inoculation
on herds in which rinderpest has appeared, as inoculation of diseased animals
by the simultaneous method would be apt to result fatally. The use of the
serum temporarily protects the animals which are not infected and cures
many of those which are actually diseased. After a suitable interval the
veterinarians then return and inoculate all of the animals with virulent blood,
thus conferring permanent immunity upon them.

In the event that a property owner will not consent in advance to subsequent
inoculation with virulent blood, veterinarians are instructed to decline to use
serum on his herd. All inoculations of animals belonging to herds which are
free from disease are by the simultaneous method, or with serum followed by
blood, as circumstances make necessary.

Especial attention is being given to inoculation of animals in the sugar and
hemp producing Provinces. In western Negros the systematic inoculation of
all cattle in the Province has been requested by the people, and is being per-
formed with the cooperation of the provincial and municipal authorities. The
islands will be covered, Province by Province, as rapidly as circumstances will
permit. During the year rinderpest has been temporarily checked in 22 Prov-
inces.

The disastrous results of attempting inoculation of the recently imported
dairy herd against rinderpest caused groundless loss of confidence on the part
of many persons in the efficacy of this treatment. It should be remembered
that these inoculations were made on animals which had come from a country


40

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

whore the disease had never existed, and which had just made a long overland
.journey, followed by a sea voyage of 10,000 miles. The results, made it evident
that much greater care was necessary in dealing with such animals, but threw
no light on the question of the value of simultaneous inoculation in dealing
with rinderpest among Philippine cattle under ordinary conditions. Conclu-
sions on the latter subject must be drawn from actual experience, the results
of which have been such as to afford an overwhelming argument in favor of
the inoculation.

division of animal industry.

[Extract from report of Donn C. Worcester, socrotarv of t^e interior. SeDt. 1, 1906 (Report
of t!:e Philippine Commission, 1006, pt. 2, pp. 48-49).]

Under the provisions of act No. 1407, the veterinary corps was transferred
from the bureau of health to the bureau of agriculture on October 19, 1905,
and in the latter bureau a division of animal industry was established, which
included not only the work of veterinarians in the inspection and control of
animal diseases, but the work of the stock farm at Baguio, where experiments
are being conducted in the breeding of horsrs, cattle, sheep, goats, and hogs;
horse breeding throughout the islands by the use of improved sires imported by
the bureau of agriculture and loaned to the provincial governments and private
persons; and the dairy farm at Manila.

When this work was taken over a severe outbreak of rinderpest prevailed in
western Negros, and another existed in the Province of Zambales. Inoculation
by the simultaneous method was used in Zambales with complete success, the
mortality among the inoculated animals being extremely low, and complete
immunity being obtained. The same method was employed at the outset with
equal success in Negros, but after a short time an extraordinarily high mor-
tality developed, which necessitated the immediate dispatch of an employee of
the bureau of science in order that the cause might be ascertained. It proved
to be due to the prevalence of surra in the infected herds. Carabao infected
with surra may continue to live and work for years, but while inoculation by
the simultaneous method of healthy animals is attended ordinarily with a loss
of but 3 or 4 per cent, costly experience in Negros abundantly demonstrated
the fact that the same method employed on animals infected with surra caused
a loss of approximately 50 per cent.

As the surra infection proved to be general in the towns north of Bacolod, it
was obviously impracticable to use the simultaneous method there, and serum
alone was employed. It has proved a very simple matter to stop an epidemic
of rinderpest with serum, but the immunity thus conferred is transient, lasting
at the best but two or three months. After the disease had been fully controlled
in Negros an effort was made to interest some of the more important hacen-
deros of the Province in the establishment and maintenance, for their own
protection, of a cattle quarantine. This Province imports carabao and cattle
from all over the archipelago, and the fact was pointed out that rinderpest
would inevitably be reintroduced unless adequate quarantine measures were
adopted. Such measures could be made effective only through the cooperation
of the people themselves, as carabao can be landed at almost any point on the
west coast of Negros. It proved impracticable to awaken the slightest interest
in cattle quarantine, and as a result the disease has again been introduced,
has caused serious damage, and must once more be stamped out.

The islands were almost free from rinderpest from January to July. With
the oncoming of the rainy season outbreaks have occurred at a number of
widely .c:er>arated points, but have been promptly controlled as soon as men could
be got on the ground.

In the Province of Batangas, distant but half a day's journey from Manila,
the diseasa prevailed for two months, and more than 500 head of cattle died
before it occurred to the governor to advise the bureau of agriculture. The few
men available were immediately dispatched to the scene of trouble, and the
results were so satisfactory to property owners that the governor sent an
urgent telegram requesting that 20 more inoculators be sent at once.

Tbe treatment with serum of animals actually sick of rinderpest has resulted
in the saving of approximately 70 per cent of those treated. As a result of
checking of rinderpest by inoculation the supply of cattle and carabao is
steadily increasing. Little by little the people will learn the necessity of
promptly informing the director of agriculture when the disease appears in any


41 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.



given locality, and there would seem to be no good reason why it may not ulti-
mately be eliminated as a serious cause of death among cattle in the Philip-
pines.

control of infective diseases.

[Extract from report of W. C. Welborn, director of a Philippine Commission, pt. 2. pp. 170-177).]

When the veterinary work was taken over from the board of health a severe
outbreak of rinderpest prevailed in the beet-sugar growing section of Occi-
dental Negros, where it. had caused serious losses among the carabaos and cat-
tle of that Province. There was a scarcity of antirinderpest serum at that
time which materially hindered the work of inoculation. The simultaneous
method was being used with apparently good success. In a few instances a
high rate of mortality was encountered, which proved to be due to complications
of surra and hemorrhagic septicemia. This made it necessary to suspend the
use of the simultaneous method before the outbreak was fully under control,
but by the use of serum in and around the infected centers, the disease was
well under control by the end of December. The only other outbreak of im-
portance which prevailed at that time was in the Province of Zambales. Simul-
taneous inoculation was used there with good success. So far as known only
a fewT scattered cases occurred in widely separate:! districts during the five
months following January 1, the principal Provinces affected being Misamis,
Occidental Negros, Albay, and P>oliol. Most of the smaller outbreaks were
readily suppressed by serum inoculations given to the affected and exposed
animals and those in the immediate vicinity. Quarantine measures were en-
forced as far as practicable, but in the absence of any general law making
veterinary sanitary measures compulsory, reliance had to be placed principally
in provincial and municipal officers.

The governors, provincial and municipal boards, presidentes, and local officers
of the bureau of health have rendered valuable assistance in locating infected
centers and suppressing infective diseases.

During the eight months covered by this report 5,ISO cattle and carabaos
have been inoculated, and 245, or 4.23 per cent, of these died subsequently from
rinderpest. From the statistics available, the exact number of animals suffering
from the disease at the time of inoculation can not be determined, but prac-
tically all of the deaths were among animals receiving serum as a curative
agent. In most cases where the animals were not sick or did not develop the
disease in one or two days after the inoculation the serum protected them
against a fatal attack. However, it should not be overlooked that in inocu-
lating animals in these islands by either method a great many of these animals
are likely to be immune from previous outbreaks of rinderpest. Therefore
we should be careful not to claim credit for saving all the animals inocu-
lated that fail to contract the disease. In Germany a few yeirs ago it was
reported that inoculation with virulent blood was abandoned because losses
were as high as 25 per cent, and because it spread the disease.

Of our inoculations 4,961 head received serum only, with 152, or 3.0S per
cent, subsequent deaths; 6S5 received simultaneous inoculations, with SO, or
11.69 per cent, subsequent deaths; 134 head received virulent blood following
about 10 days after the serum inoculation, and of these 13, or 9.6 per cent, died
subsequently of rinderpest.

In considering these figures it should be remembered that a much larger num-
ber of animals were inoculated with serum only than by either the simultane-
ous or deferred methods; that the bulk of the animals receiving serum only
were never exposed to the disease; and that all of those receiving simultaneous
or deferred inoculation are given a cubic centimeter or more of virulent blood,
which produces a genuine case of rinderpest, and would in most cases prove
fatal but for the serum preceding or accompanying the blood given. On the
other hand, all animals suffering from the disease at the time of inoculation are
included in those receiving serum only, and it is among these that the heaviest
death rate occurs; while all animals given simultaneous or deferred inocula-
tions are judged to be free from rinderpest at the time the virulent blood
is administered. It has been observed that animals suffering from surra,
hemorrhagic septicemia, foot-and-mouth disease, or Texas fever die readily
from rinderpest contracted either by natural infection or virulent-blood inocu-
lation simultaneously with any of them. As the first three frequently exist in
communities where rinderpest has appeared, it becomes impracticable to give


42

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

any form of virulent-blood inoculation without first eliminating all of these
diseases as complications. This is very difficult in the cases of surra and hem-
orrhagic septicemia. Texas fever is of no importance with native cattle, as
they are generally immune to it, but has been a serious complication in imported!
nonimmune cattle, especially from the Northern States and southern Australia.
The virulent blood taken from native animals to inoculate the imported cattle
against rinderpest precipitates a case of Texas fever soon after the rinderpest
reaction has occurred.

The principal advantages of the serum method of inoculation are that it is
easily and quickly administered by any person of ordinary intelligence after a
little experience. An inoculator can cover a large territory in a short time;
it imparts a temporary immunity which usually protects the animals until an
outbreak can be suppressed; it meets with popular favor, which is essential;
it can not produce death and may be given indiscriminately to animals suffering-
from the disease, exposed to it, or free from it; serum will save the lives of a
large per cent of animals in which rinderpest has already developed; draft
animals may continue to work after inoculation; it requires less serum than
the deferred method; and it is the cheapest method for a given number of
animals.

Some of its disadvantages are that the immunity produced by serum is only
temporary; the animals are liable to contract rinderpest if exposed to it after
the lapse of three or four months unless- inoculated again; and it requires more
serum than the simultaneous method.

The principal advantages of the simultaneous and deferred methods are that
they impart permanent immunity to the animals inoculated; it increases the
value of the animals because they may be herded or driven where they will be
exposed without fear of contracting rinderpest; they are not nearly so liable to
carry the infection as nonimmune animals; they may serve as a barrier against
the spread of the disease where a large number of immune animals exist in a
community.

Some of the disadvantages of these two methods are the high rate of mor-
tality which follows the inoculations; they are purely prophylactic and can be
used only with noninfected animals; can not be practiced with safety where
other infective diseases exist as complications; slow and tedious of administra-
tion, requiring the services of a skilled veterinarian; both methods are more
expensive for a given number of animals than the surum method, and if an
attempt were made to immunize all the bovine animals of the islands the cost
would become prohibitive; they are not in favor among the people and would
have to be enforced by legal processes; danger of further spreading the disease,
as each animal receiving virulent blood carries the infection and must be kept
in quarantine until fully recovered.

Under the conditions which prevail in these islands the surum method prom-
ises best results for general use. The simultaneous method may be used to
advantage where the country is densely settled and the animals concentrated
in large numbers, provided no complicating diseases prevail at the time of inocu-
lation. The deferred method is practical only with small herds of valuable
animals, such as imported dairy cattle, and where complications might follow
the simultaneous method.

[Extract from report of Dean C. Worcester, secretary of the interior, Oct. 28, 1907 (Report
of the Philippine Commission, 1007, pt. 2, p. 52).J

The energies of the division of animal industry have been largely directed
toward holding in check this disease, which has appeared at one time or an-
other during the year in the majority of the Provinces. The policy at pres-
ent pursued is to combat it at all points where it appears by the use of serum
only. This practice has the advantage that it immediately checks the disease
in any given locality, is not attended with any loss due to the inoculation, and
even results in the cure of a very large percentage of the animals diseased
at the time of inoculation. It is, of course, very popular with cattle owners.
The drawback is that the immunity produced is of a temporary nature, and
after two or three months animals which have received only serum inocula-
tion become again susceptible to rinderpest, although if attacked they suifer
less severely than do those which have not been immunized.

The simultaneous method of inoculation in which blood from a diseased
animal and serum are administered at the same time, confers permanent im-
munity, and can be effected with a very low percentage of loss, if the animals


43 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.



inoculated are not suffering from surra and are properly cared for while under-
going treatment. The neglect of owners who sometimes even leave them with-
out drinking water while under treatment and the complications which have
arisen through the occasional unsuspected presence of surra have led to so
many difficulties that it has been deemed advisable to confine inoculations by
this method to animals under treatment at regular quarantine stations except
in special cases.

In repeated instances rinderpest has been introduced into provinces which
had previously been entirely free from it, through the importation of diseased
cattle. The need of an effective quarantine law which would give the bureau
of agriculture power to penalize and prevent the shipping of animals suffering
from dangerous communicable diseases has long been apparent, but as in the
case of all sanitary measures, such a law could not be of practical value until
the state of public sentiment justified its enactment. On October 10, 1907, it
was believed that this time had corne, and an act to prevent the introduction
into the Philippine Islands of dangerous communicable animal diseases, to pre-
vent the spread of such diseases within the islands, and for other purposes,
was passed by the commission.

Several especially valuable practical demonstrations of the value of inocu-
lation by the simultaneous method have been afforded in the provinces, where
animals thus immunized have remained well while nearly all others about them
sickened and died. There is now a strong demand for the animals permanently
immunized at the serum laboratory, and a private cattle dealer has recently
announced his intention of establishing extensive yards and going into the
business of permanently immunizing and selling cattle. The highly satisfac-
tory results obtained in checking rinderpest in badly infected herds brought to
Manila for slaughter, and in saving the animals already diseased, have been
especially appreciated by the. public, and it seems not to much to hope that
serious popular opposition to cattle inoculation, due to ignorance or supersti-
tion, is now decidedly on the wane and that the most serious difficulties in
the way of protecting the horned cattle of the Philippines from rinderpest have
been overcome. At all events, the demand for serum has been greatly in excess
of the available supply and more immunization work could therefore not have
been done no matter how great the demand for it. Arrangements have now
been made materially to increase the supply of serum, the unexpended balance
of the congressional relief fund having been made available for this purpose,
and effective means of preventing infection by dust during the dry season have
been devised, so that its keeping properties have been greatly improved and
the danger of abscesses following inoculation seems to have been completely
done away with.

[Extract from report of G. E. Nesom, director of agriculture, Aug. 8, 1908 (Report of
Philippine Commission, 1908, pt. 2, p. 303).]

As in previous years, rinderpest has continued to be the most destructive
infective animal disease existing in the islands. The situation has been greatly
aggravated by the constant importation of infected cattle from Hongkong.

On account of the increase in the number of outbreaks over that of the pre-
vious year, it has been necessary to limit the inoculations almost entirely to
herds actually infected.

During the year 6,933 cattle and 14,072 carabaos, or a total of 21,005, were
inoculated with antirinderpest serum. Of these, only 621, or 2.95 per cent, are
reported as having died.

The percentage of animals suffering from the disease at the time of inocula-
tion has been very large, and the total number inoculated was nearly 5,000 head
more than for the previous year.

The total amount of serum used in making these inoculations was 5,384
bottles of 300 cubic centimeters each.

The principal outbreaks of rinderpest have occurred in the Provinces of
Batangas, Pampanga, Capiz, Antique, Negros, Occidental, and La Laguna. It
has also appeared to less extent in most of the other Provinces.

In many cases the provincial and municipal officials have cooperated by estab-
lishing and policing systems of quarantine, and have otherwise given valuable
aid in the work. This is necessary, as the bureau of agriculture has no means
for employing a force sufficiently large to do this work throughout the islands.
Besides, to do so would be a violation of the spirit of the local self-government
system in general operation throughout the Provinces.


44

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

bureau of agriculture.

[Extract from report of Dean C. Worcester, secretary of the interior, Oct. 20, 1909 (Report
of the Philippine Commission, pp. 11S-JL19).]

Suppression of animal diseases.Beyond doubt the most important work of
the bureau of agriculture during the past year has been that for the combating
of dangerous communicable diseases of domestic animals. In my last annual
report the fact was mentioned that the tide of public sentiment had turned in
the matter of inoculation against rinderpest, and that the demands for serum
and veterinarians were consequently far in excess of the available supply.
Every effort has been made during the year to meet the difficulty thus created.

The completion of the serum laboratory and of the large new stables at the
Alahang stock farm, and the provision of increased facilities for the manu-
facture of serum at the bureau of science, have resulted in quadrupling the
output of antirinderpest serum. All the veterinarians who could be secured
at the salaries authorized by law for our service were brought to the islands.
The director of agriculture was instructed that he must meet all demands for
assistance, so far as the men and serum at his disposal would allow, and must,
if necessary, cut other work, no matter how important, in order to keep the
necessary funds available. These instructions were reiterated toward the end
of the year when the insufficiency of the funds available for the general work
of the bureau of agriculture was becoming painfully evident. The only limit
which I allowed to be placed upon the work of saving cattle and carabaos
was that imposed by the total amount of the appropriation for the bureau. The
director of agriculture was warned that he must not incur a deficit, as there
was no way in which it could be made good, but when toward the end of the
year such a course became necessary in order to avoid a deficit, and after all
other means of making economies had been exhausted, veterinarians were nec-
essarily ordered to discontinue traveling except in meeting a few of the most
threatening outbreaks.

Immediately after the passage of the annual appropriation bill the situation
was saved by the Acting Governor General, who made 20,000 pesos immediately
available for continuing the work. Although the increase in the veterinarian
force and in the amount of serum available has made possible the obtaining
of better results than during any previous year, I am not of the opinion that
the best possible results were obtained for the money expended.

In at least one instance a serious epidemic, involving the loss of some 4,000
head of carabaos, occurred when, in my opinion, it might perfectly well have
been prevented and would have been prevented by the employment of better ad-
ministrative methods. After full examination into the causes of this disaster, I
deemed a thorough reorganization of the .service necessary, and declined to allow
the director of agriculture to go on leave until the necessary changes in per-
sonnel and in the duties of officers and employees had been effected. It is too
soon to state whether these changes will produce the desired result.

Toward the close of.the year the serum was allowed to fall off in immunizing
power. For this I can find no excuse except the absolute lack of funds with
which to pay for experimental animals. Under the provisions of the last
appropriation bill, which gave to secretaries of departments and to the gov-
ernor general certain powers relative to the transfer of funds from one appro-
priation to another, which had not heretofore been possessed by these officers,
such a situation will be impossible in the future.

The outbreak above referred to, which occurred on the island of Siquijor,
was by far the most serious one of the year. Another, which occurred in the
Cagayan Valley of northern Luzon, was for a time very threatening, but was
ultimately checked after a long and stubborn fight. A very large number of
minor outbreaks were promptly stamped out. Others were not attacked until
they had attained considerable dimensions, owing to transportation difficulties
and to the continued lack of sufficient veterinarians and serum, but were
ultimately more or less effectively dealt with. On the whole, it can be said
that, in spite of many minor and some very important defects, the service of
the veterinary division of the bureau of agriculture in the suppression of rinder-
pest has been decidedly more satisfactory than ever before, and has resulted
during the year in preventing enormous losses to the owners of cattle and
carabaos in the Philippine Islands.

It is confidently anticipated that further progress will be made during the
coming year. Additional veterinarians have been authorized and the serum


45 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.



output will be augmented as rapidly as possible, but it should be remembered
that veterinarians after arrival must of necessity spend a large amount of
time in becoming familiar with the language and with the peculiarities and
prejudices of the people; must gain experience in dealing with rinderpest,
which they almost invariably lack; and must learn to travel rapidly and
economically before they reach anything like their highest efficiency; while the
presence of wild deer which become infected with rinderpest, and of course
can not be quarantined, the general indisposition of the Filipino people to
protect themselves or their neighbors by the imposition of any local quarantine
measures other than those put into effect by the director of agriculture, and
other serious obstacles combined, prevent, and will for a time continue to
prevent, the achievement of the immediate and complete success in the eradica-
tion of rinderpest, which, under more favorable circumstances, might be
obtainable.

During the year 22.285 carabaos and 6,469 cattle were inoculated against
rinderpest, while 3,322 carabaos and 312 cattle were reinoculated. Only 639
carabaos and 153 cattle are known to have died after inoculation. This, too, in
spite of the fact that many of the animals inoculated were badly diseased at
the time the serum was administered, and of the further fact that the im-
munizing power of the serum was allowed to fall off materially toward the
close of the year.

[Extract from report of Newton W. Gilbert, secretary of public instruction, Oct. 1, 1910
(Report of the Philippine Commission, 1910, pp. 183-184).]

During the year the efforts of the bureau have been concentrated chiefly
upon the fight against animal disease, and at its close the situation showed no
little improvement. Fifteen Provinces and 204 municipalities were at one time
or another during the year reported as having been freed from rinderpest.
In many instances, however, the freedom lasted only a few days, the disease
again making its appearance and, upon its extermination, the Province or
municipality being again reported clean. It will be seen, therefore, that
these figures contain no few duplications. At the close of the year rinderpest
was reported in 12 Provinces and 25 municipalities, and unfortunately these
are scattered throughout the archipelago, so that the infection is still wide-
spread. The most serious outbreaks occurred in Batangas and Occidental
Negros, and the most gratifying work of the year was done in the former
Province, where the disease now seems to have been almost entirely eradicated.
If it were possible properly to quarantine this Province, there would be little
likelihood of another serious outbreak. Conditions in Occidental Negros have
also been much improved. With the increase in the price of sugar and the con-
sequent cultivation of a large amount of land which had heretofore been lying
fallow, large numbers of animals have been imported into this Province and
it is of great importance that rinderpest should not be permitted to get beyond
our control there. During the year more than 10,000 animals were reported
as suffering Avith rinderpest and almost 8,000 as having died. Some 63,000
inoculations of antirinderpest serum were made.

The veterinary corps has been increased. On July 1, 1909, 21 veterinarians
were on duty. During the year 4 resigned and 1 visited the United States on
leave, while 25 new appointees arrived and entered upon their duties, making
an average of 39 veterinarians on duty throughout the year. In addition, 8
agricultural inspectors and 6 American and 56 Filipino inoculators were en-
gaged in the work. It has been found difficult to secure skilled veterinarians;
the salaries which we are able to pay are not sufficiently large to attract con-
siderable numbers of these men in the United States, and unfortunately among
the Filipinos there are no veterinarians. The College of Veterinary Science
was opened this year with a view to training Filipinos for this work. The
enrollment, however, is, as has been said, very small.

Ten thousand one hundred and forty-five liters of antirinderpest serum were
produced during the year, a much larger amount than we obtained in any
former year. The production for July, 1909, was 507 and for June, 1910, 1,417
liters. The serum herd was increased from 154 to 524. The percentage of
serum obtained from fresh blood for the past four years is as follows: Twenty-
two and seven-tenths per cent, 28.6 per cent, 38.38 per cent, 40.2S per centa
steady increase, which may be attributed to the experience of our laboratory
workers and to improved methods and facilities in handling the product.

One of the chief difficulties in the way of the complete eradication of animal
disease is the indifference, amounting at times to active opposition, of people


46

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

and officials to the work. I think the general temper is greatly improved,
however, and the improvement will continue as the importance of the work
and the sincerity of the government become more generally understood.
Valuable assistance in this respect has been given by the Governor General,
who has, by suspension or removal from office, awakened several apathetic
officials to a full realization of their duty.

To the suppression of an outbreak of disease an effective quarantine is essen-
tial. In this work the municipal police have proved quite inefficient, and in so
far as has been possible they have been replaced by detachments from the
constabulary. The services of the latter have been most satisfactory, but de-
creased appropriations for that organization have led to a reduction in its
forces, and we are unable to obtain these men in anything like sufficient num-
bers. If the bureau of agriculture is to do effective work in suppressing animal
disease, it must be able to call in the services of the constabulary to a far
larger extent than has ever before been possible.

[Extract from report of Gov. Gen. W. Cameron Forbes, Nov. 7, 1911 (Report of the Philip-
pine Commission, 1911, p. 20).]

At the beginning of the last fiscal year, after 10 years of continuous effort to
control rinderpest, more than half the Provinces were still infected and no
noticeable gain had been made. In view of these facts a complete change in
the system was made, the use of the rinderpest serum was discontinued, the
desultory work throughout the Provinces was made a secondary part of the
work, and a large number of employees of the bureau of agriculture were con-
centrated in the Province of Pangasinan. Maj. Gen. J. Franklin Bell, com-
manding the Philippine Division of the United States Army, by detailing over
1,200 Philippine Scouts to maintain a quarantine between Pangasinan and the
adjoining Provinces, made possible the success of the scheme which depended
on cleaning one particular part of the infected territory, keeping this part free
from reinfection, and gradually pushing the line of clean territory farther and
farther. Starting from the eastern part of Pangasinan, practically the whole
Province has been cleaned by this system, and a similar successful campaign
has been carried on in the island of Siquijor, which is now entirely free from
rinderpest. The intention is to go over the whole country by this method, and,
it is hoped, within a few years to rid the entire archipelago of this disease.

[Extract from report of W. Cameron Forbes, acting secretarv of public instruction, Nov.

6, 1911 (Report of the Philippine Commission, 1911, pp. 170-171).]

During the past year the chief efforts of the bureau have been given to the
rinderpest campaignabout 50 per cent of the entire funds of the bureau
devoted to this purpose and the veterinary corps largely increased. At the
beginning of the fiscal year 1911 there were on duty 41 veterinarians, 6 Amer-
ican live-stock inspectors, and 56 Filipino live-stock inspectors. On June 30,
1911, there were 47 veterinarians, 1 veterinary pathologist, 1 veterinary ento-
mologist, 56 American live-stock inspectors, and approximately 300 Filipino
live-stock inspectors.

The following quotation gives an idea of the rinderpest situation in the
fiscal year 1910:

" Fifteen Provinces and 204 municipalities were at one time or another during
the year reported as having been freed from rinderpest. In many instances,
however, the freedom lasted only a few days, the disease again making its
appearance, and upon its extermination the Province or municipality being
again reported clean."

After some years of scattered work of this sort, it became evident that no
great advance was being made and that some change in method was necessary.
In July, 1910, Dr. A. R. Ward, of the University of California, was appointed
chief veterinarian and undertook the organization of a systematic campaign
against the rinderpest. After exhaustive investigation the conclusion was
reached that under the conditions existing in the Philippines, the use of anti-
rinderpest serum was impracticable, and it was discontinued. Following the
discontinuance of the use of serum, the effort to control rinderpest was cen-
tered upon the object of keeping animals separated from one another and upon
detecting the diseased animals, so that they might be placed under restraint in
corrals. It also became evident that with the forces available it was impossible
to combat the rinderpest in all parts of the islands at the same time. It was,
therefore, decided to concentrate the total available force of the bureau of agri-
culture in the Province of Pangasinan, and to call on the constabulary and


47 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.



scouts for any aid which they could give in maintaining the necessary quaran-
tine. Maj. Gen. J. Franklin Bell, commanding the Philippine Division of the
United States Army, appreciating its importance, made possible the work which
has so far been done by assigning 1,200 scouts, 41 cavalrymen, and 5 veter-
inarians for duty with the bureau of agriculture. Owing to the enthusiasm
and fine discipline of this force, the bureau of agriculture has been able to
maintain an effective quarantine over a large part*of the Province of Panga-
sinan, and has gradually succeeded in wiping out rinderpest from the entire
eastern portion of the Province and as far west as Lingayan. A similar cam-
paign was inaugurated in the island of Siquijor, which also has resulted suc-
cessfully. The difficulty, however, remains that in this country, which is en-
tirely unfenced, if the strict quarantine, which can only be maintained by a
military force, is withdrawn, a single infected animal may enter clean territory
and reinfect the entire district, leaving the whole work to be done again. An-
other great difficulty encountered in the effort to suppress rinderpest is the fact
that, in spite of its destructive history of hundreds of years, the cause of the
malady, the methods by which it is carried, the period at which it is most in-
fective, and the duration of the period of infectivity are still questions to be
definitely determined. In order to get some light on these problems the serum
laboratory at Alabang was converted into a research laboratory, and the
results obtained, which so far have been largely at variance with the princi-
ples formerly followed in the Philippine Islands, have been very successfully
applied to the work in the field. It was shown from experiments conducted at
Alabang that the sick animals cease to be dangerous to others shortly after
the diagnostic symptoms are fully developed, and that the most infective period
of the disease is in its early stages when the symptoms can not be recognized.
As it was impossible, under the conditions prevailing in this country, to deter-
mine what animals had been in contact with the diseased animal, in order to
slaughter them as well as the sick animal, the system of slaughtering, which
has been successful in other countries, was, after a short trial, abandoned as
impracticable.

Rinderpest has shown a tendency to spread extensively during the year,
especially from central Luzon south toward Manila, in the islands of Leyte,
Cebu, and Siquijor, and in the Provinces of Oriental Negros, Surigao, Cagayan,
and Isabela. The total number of municipalities infected at the close of the
year was 81, as compared to 25 reported at the close of the previous year;
but owing to the more effective methods employed for detecting and reporting
disease at the end than at the beginning of the fiscal year, it is impossible to
judge anything from these figures. However, with the knowledge whi^h has
been gained from the experimental work and with the system and effective
fighting force which are being daily improved, as a result of experience, it is
hoped little by little to eradicate this worst of cattle diseases from the
Philippine Islands.

[Extract from report of Nowton W. Gilbert, Ach'ns? Governor General. Oct. 1, 1912 (Re-
port of the Philippine Commission, 1912, pp. 25-26).]

The rinderpest situation has improved and the quarantine policv inaugurated
by the bureau of agriculture has been consistently followed throughout the
year. After due consideration it had been decided by the officials in chnro:e
that only by means of concentrated quarantine could the rinderpest situation
be relieved. By concentrated quarantine is meant a port quarantine to pre-
vent the disease entering the islands from outside and a local quarantine of
infected districts until the disease is eradicated. This system involves some
hardship on the people and to a certain extent cripples agriculture and com-
merce by preventing the free movement of animals between the Provinces. The
government has endeavored to get the cooperation of the municipal and
provincial governments and of the farmers and has succeeded to a large extent.
With the aid of the scouts, placed at the disposal of the government bv the
commanding general, strict quarantines have been maintained in t^e infected
districts. A quarantine fence has been established between the hills and the
coast, cutting off from the south the Provinces north of Pangasinan. Pans:a,sinan
has been cleaned and the ounrantine has slowly fought its way south through
the Provinces of Nueva Ecija, Tarlac, Pampanga, and Bulacan. That a measure
of success has been achieved is proved by the figures which show a reduction
of 47 per cent in the number of municipalities infected, from 64 to 84. The
number of reported deaths of carabao and cattle from rinderpest for the year
was approximately 3 000, or one-quarter of 1 per cent of all the animals, while
in 1902, 625,000 deaths, or about 43 per cent of the animals existing in the


48

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

islands, were reported. A quarantine against Indo-China and Hongkong has
been maintained throughout the year. Practically every time a shipment was
allowed in the islands infection resulted. Cattle from Indo-China and Hong-
kong can now be landed only at Manila, after a three months' quarantine. This
measure has been deemed necessary in spite of the constant protests of cattle
importers. It is thought that the protection of over 1,000,000 animals now in
the islands is of greater importance than further importations.

[Extract from report of Newton W. Gilbert, secretary of public instruction, Oct. 11, 1912
(Report of the Philippine Commission, 1912, pp. 239-240).]

Rinderpest.Animal disease is now a comparatively small factor in the in-
dustrial economy of the islands, but potentially it is a very large factor. During
the year only 4,312 new cases of rinderpest were reported among the cattle and
carabao, with 2,847 deaths. The census of 1903 states that during the year 1902,
629,176 cattle and carabao died of disease, chiefly rinderpest. The following
table shows the known amount of infection at. the beginning and end of the year:

Week ending NTew easo p 3r week; Deaths per week.'1 7rr>vince' inf3cted. Munici- pnlit.ie^ ir.f acted. fBarrios infected.
July 1,1911......................................... 254 23 230 19 17 11 64 34 170 69
Juno 29, 1912.........................................


1 Cattle and carabao.

The comparatively small number of deaths from rinderpest has retarded
but little the rapid increase in the herds of carabao and cattle. The per-
centage of deaths from this source compared to births is almost negligible.
This does not mean, however, that our work has ended. If the efforts of the
government were to any considerable extent relaxed and the disease allowed
to spread, whole Provinces would again be swept clean of their work animals.
The existence of disease also hinders capitalists from investing large sums in
cattle raising in the Philippines, and the chief work of the bureau will not be
ended until rinderpest has been completely eradicated from the islands and
all sources of outside infection eliminated.

The method followed in combating the disease was the same as last year
that is, through strict quarantineand the satisfactory results seem to justify
the belief that this is the only feasible method for making headway against
rinderpest. Effective quarantines have been possible through the cooperation
of the military authorities. The division commander, Maj. Gen. J. Franklin
Bell, has placed at the disposal of the government a, large number of scouts,
who have rendered valuable service. On the last day of the year there were
on duty in this work 30 officers and 1,390 enlisted men, belonging to 13 com-
panies of the Fifth, Seventh, and Ninth Battalions of the Philippine Scouts.
Not only have the men given splendid service, but their officers have shown
enthusiasm, patience, and tact in discharging duties which were often disagree-
able, and their cooperation could not have been fuller had they been an in-
tegral part of the organization of the bureau of agriculture. Provincial officials
and, to a considerable extent, the people in general are coming to appreciate
the necessity of quarantines and are cooperating in a measure which makes
effective work easier as the campaign progresses.

The following table shows the extent to which disease was prevalent during
the last eight days of the year:

Suspects. New cases. Convalescents. Deaths.
Cattle. Cara- bao. Cattle. Cara- bao. Cattle. Cara- bao. Cattle. Cara- bao.
Pangasinan.......................... 5 6 5 1
Zambales............................ 5 2 4 2
Pampanga........................... 6 9 3 5
Rual................................. 9 5 7 2
Laguna.............................. 3 2 13 2
Capiz................................ 1 3 4 1
Iloilo................................. 3 4 20 7

Total........................... 31 28 4 56 20



49 THE GOVERNMENT OF THE PHILIPPINE ISLANDS.



It is only fair to state that this table is not conclusive. There is, without
doubt, some unreported disease, particularly in the northern part of Luzon.
From time to time territory adjacent to the foothills of Benguet is infected
by animals coming from the north, although every effort is being made to
prevent their introduction from this territory until the bureau has had an
opportunity to move its force into northern Luzon and stamp out such disease
as exists Ihere.

[Extract from report of Newton W. Gilbert, Acting Governor General, Sept. 25, 1913
(Report of the Philippine Commission, 1918, p. 28).]

The campaign against animal diseases, of which the most menacing is rinder-
pest, has been steadily pushed during the year. At the end 8 Provinces, with
24 municipalities, were known to be infected, a smaller number than at the
end of the preceding year, though slightly larger than at one time in the course
of the 12 months. Altogether 4,781. cases were reported, with 2.787 deaths, an
increase of 419 cases but a decrease of 60 deaths, as compared with the pre:
ceding year; the number of both cases and deaths was largest in the third
quarter. On the whole, therefore, the situation is not materially changed,
although it is. of course, in every way a vast improvement on that of a few
years aero. Strict quarantine of infected districts has continued to prove the
most effective means of dealing with the problem. At the close of the year a
total of 90 officers and enlisted men of the constabulary and 901 of the Philip-
pine Scouts were on duty assisting in the campaign. Their work has been done
iri an extremely creditable manner. Experience with the introduction of the
disease by cattle shipped from foreign ports has proved so unfortunate that
quarantines on such shipments, of varying duration and degrees of strictness,
have been very generally maintained, and the imports have fallen oft' materially.

veterinary division.

[Extract from report of Newton W. Gilbert, secretary of nubile instruction, Sept. 23, 1913
(Report, of Philippine Commissron, 1913, p. 257).]

During the year the staff of this division has been decreased by 4 veteri-
narians and 17 American live-stock inspectors, and increased by 14 Filipino
inspectors. At the beginning of the year rinderpest was prevalent both in the
Visayas and on the island of Luzon. Eleven Provinces were known to have
infection in 35 municipalities. Infection was known to exist in the Provinces
of Surigao, Capiz, and Iloilo, while on Luzon the disease was confined, so
far as was known, to the Provinces of Bulacan, Isabela, Laguna, Mountain,
Pampanga, Pangasinan, Rizal, and Zambales. Of these, Bulacan, Capiz, Iloilo,
Laguna, Mountain, Rizal, and Surigao were cleaned during the year, but to
offset this, the Provinces of Cagayan, Ilocos Norte, Ilocos Sur, and La Union
were known to be infected on June 30, 1913. During the year 4,731 cases of
rinderpest, with 2,787 deaths, were reported. Seventy-two per cent of the new
cases and 70 per cent of the deaths occurred in three Provinces, namely Pam-
panga, 1.785 new cases and 1.335 deaths; Zambales, 1,212 cases and 449 deaths;
and La Union, 438 cases and 184 deaths. At the time of the greatest scourge
of the disease in these three Provinces, there was not the decree of cooperation
between the bureau of agriculture and the local officials which is necessary to
combat it successfully. It is believed that this condition has been remedied
in all these Provinces. In Zambales and La Union, in fact, the disease is almost
wiped out.

Appendix C.

PROPOSED ACT.

Be it evaded by the Senate and House of Representatives of the United
States of America in Congress assembled, That when any citizen of the United
States employed by the Philippine government shall have had ten or more years
of continuous, actual, and satisfactory service he may, upon making application
to the Governor General of the Philippine Islands, be retired from active service,
and when so retired he shall receive for a period equal to the number of years
of such satisfactory service an annual compensation equal to two and one-half


50

THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

per centum for each year's active service rendered by him, of the average cur-
rent pay received annually by him during said period of active service: Pro-
vided, That the terms of this act shall apply only to employees receiving for
ten or more years at the time of retirement an annual salary of not less than
six thousand pesos, or a total salary during his service equivalent thereto: And
provided further, That the payments required under this act shall be made from
the treasury of the Philippine Islands or from the Province or municipality
paying the salary of the employee at the time of his retirement from the service.

Appendix D.

THE GOVERNMENT OF THE PHILIPPINE ISLANDS, EXECUTIVE

BUREAU.

committee for investigating the conduct of business in the bureaus and
offices of the philippine government.

Executive Order) r 7

No > Manila, July 10, 1913.

Charles H. Sleeper, director of lands; William T. Nolting, collector of inter-
nal revenue; John S. Leech, director of printing; and Clifford H. French,
assistant auditor, are hereby appointed a committee for the purpose of investi-
gating the conduct of the business of the various bureaus and offices in the
insular government and making report and recommendations on the following
points:

1. Any work which was performed by any bureau which was, in their judg-
ment, unnecessary.

2. Duplication of work.

3. Administrative economies, including the more rapid Filipinization of the
service where advisable.

The committee will take as a basis the report of the organization committee
appointed by Executive Order No. 14, series of 1905, will see how far the
recommendations of that committee are now being carried out, and will study
further the report of that committee and amend the same if, in their judgment,
experience has proved the recommendations of said report faulty in any par-
ticular.

All directors and officers of bureaus are directed to assist the committee in any
way, give them such information and data as they may require, and such
clerical help as may be needed in the conduct of their business.

Whenever the committee is engaged in examining the bureau of which any
member is chief, such member shall disassociate himself from the committee
during the period of the examination of his own bureau.

The reduction of customs revenues, past and prospective, and the proposed
abolition of all export duties rendered necessary a reduction of the current ex-
penses of the government.

It is believed that all bureaus will benefit if they may have an opportunity of
taking advantage of improved methods of other bureaus and thus standardizing
what is best in the service.

W. Cameron Forbes,

Governor General.

Appendix D.

[Extracts from annual reports of Hon. Newton W. Gilbert, Acting Governor General of
the Philippines, 1912. 1918.]

From report of 1912:

At the end of the long dry season great swarms of locusts appeared, especially
in the southern islands. The locust question having been brought to the con-
sideration of the legislature by the Governor General, act No. 2121 was passed
providing means for combatting this pest by the appointment of provincial
locust boards, by making an appropriation for the fight, and by placing the
general management and leadership of it in the hands of the director of agri-
culture. Provinces requesting assistance from the general government have
been furnished funds, and it is believed that the fight has been more successful


THE GOVERNMENT OF THE PHILIPPINE ISLANDS.

51

than in previous years. It is the opinion of the undersigned that the plague of
locusts can never successfully be handled until methods are found of extermi-
nating the locusts in their breeding places.

From report of 1913:

During the last quarter of the year very severe outbreaks of locusts appeared
in eastern and southern Luzon, and at its close 33 out of the 38 Provinces were
more or less infested. The work of destruction in the cultivated areas has
been pushed to the utmost and has always, within any given place and time,
been carried to success, but in some Provinces the condition is so widespread
that it must necessarily be a question of months, if not years, before the uncul-
tivated tracts are completely cleared of the breeding swarms which there
persist and resist all regular measures of control. There has been on the whole
an increasing degree of cooperation on the part of the local authorities and the
people in the necessary work, though it sometimes imposes appreciable incon-
venience or even hardship on the latter. The experiments with bacilli parasitic
in the migratory locusts, while very successful in the laboratory, have not so
far proved of much practicable value in the field. It is hoped that further
research will result in the discovery of a really effective remedy.

o




Full Text

PAGE 1

WAR DEPARTMENT BUREAU OF INSULAR AFFAIRS SPECIAL REPORT OF FRANK McINTYRE BRIGADIER GENERAL, U.S. ARMY CHIEF, BUREAU OF INSULAR AFFAIRS TO THE SECRETARY OF WAR ON THE PHILIPPINE ISLANDS WASHINGTON GOVERNMENT PRINTING OFFICE 1916

PAGE 3

64TH CoxGRESS t 1st !:Jession f SENATE { DOCUMENT No. 24:.l THE GOVERNMENT OF' THE PHILIPPINE ISLANDS MESSAGE FROM THE PRESIDENT OF THE UNITED STATES TRANSMITTING A LETTER FROM THE SECRETARY OF WAR SUBMIT TING A REPORT OF BRIG. GEN. FRANK McINTYRE, CHIEF OF THE BUREAU OF INSULAR AFFAIRS, UPQN HIS RECENT TRIP TO THE PHILIPPINE ISLANDS JANUARY 12, 1916.-Read; referred to the Committee on the Philippines and ordered to be printed WASHINGTON GOVERNMENT PRINTING OFFICE 1916

PAGE 5

CONTENTS. i1essage of the President ____________________________________________ Letter of submittal of the Secretary of War __________________________ Introduction ________________________________________________________ l,a,v and order _____________________________________________________ Philippine constabulary _____________________________________________ Education __________________________________________________________ English language ___________________________________________________ I~lipiniza~ion of the public service ___________________________________ C1v1l service ________________________________________________ ______ Sanitation __________________________________________________________ Agriculture _________________________________________________________ Agricultural colonies ________________________________________________ Roads ________________________________________________________ ------Rail roads ------------------------------------------------------Prisons ------------------------------------------------------------Political conditions _________________________________________________ Economic conditions ------------------------------------------------External trade -------------------------------------------------Internal trade __________________________________________________ Industrial ____ --------------------------------------------------Household industries-------------------------------------------Agriculture _____________________________________________________ Labor __________________________________________________________ Government :finances ________________________________________________ Central ________ -----------------------------------------------Provinces ______________________________________________________ City of Manila _________________________________________________ Municipalities--------------------------------------------------City of ~fanila _____ ~-----------------------------------------------Department of Mindanao and Sulu ___________________________________ Governmen~ of the Philippine Islands ________________________________ 3 Puge. 5 5 7 7 7 9 9 10 12 15 16 17 19 20 20 20 23 23 24 24 25 25 .26 27 27 30 30 30 31 32 33

PAGE 7

MESSAGE OF TRANSMITTAL. To the Senate and House of Representatives: I transmit herewith the report of Brig. Gen. Frank McIntyre, Chief of the Bureau of Insular Affairs, upon his recent trip to the Philippine Islands. Inasmuch as the bill extending a greater measure of self-govern ment to the Filipinos is now pending in Congress, it is recommended that this report be printed as a congressional document. The WHITE HousE, January lf, 1916. vVooDROW "WILSON. LETTER OF SUBMrrTAL. Mr. PRESIDENT: vVAn DEPARTMENT, Washington, January 10, 1916. In my last annual report I mentioned that Gen. Frank McIntyre, Chief of the Bureau of Insular Affairs, had just returned from an extended trip to the Philippine Islands, and that his report contain ing a recital of facts and actual conditions there would be shortly transmitted. The report I now submit herewith in duplicate, with the suggestion, inasmuch as the Philippine bill has been reported by the Senate Committee on the Philippines and is now the subject of debate in the Senate, that it be transmitted to Congress, with the recommendation that it be printed as a public clocmnent. Draft of message of transmittal, in duplicate, for your signature, if you concur in this recommendation, is aim submitted herewith. Very sincerely, LINDLEY M. G,rnmsoN, Secretary of lV ar. 5

PAGE 9

SPECIAL REPORT OF BRIG. GEN. FRANK McINTYRE, UNITED STATES ARMY. ON THE PHILIPPINE ISLANDS. WAR DEPARTMENT, BUREAU OF INSULAR AFFAIRS, Washington, December 1, 1915. Srn: In compliance with your instructions, I sailed from San Francisco on ,July a, last, to visit the Philippine Islands, and return ing arrived in Washington on October 22, last. I was in the Philippine Islands from July 30 to September 9, 1915. My itinerary in the islands is attached, marked "Appen dix A." I made every effort in Manila and at other points visited by me to ascertain the actual conditions of the Philippine government and of the Philippine people, and of the attitude of the people toward the government. I gave persons desiring to see me every oppor tunity to do so, and I am not aware that anyone who desired to see me was unable to do so. I conversed freely with persons of every shade of opinion in the islands-Americans, Filipinos, and foreigners-and found that the people of the islands were well satisfied with the government, and there was every indication that the satisfaction was greater than it had been at any time tn the past. LAW AND ORDER. There was no disorder in any part of the islands. There was in those parts of the islands inhabited by the Moros a far better condition than could have been anticipated a few years ugo by the most sanguine. The relation between the departmental government and the Moros was as close as the nature of the country inhabited by them permitted. The principal Moro chieftains within reach of the points visited by me came to see me and gae every indication of satisfaction with conditions existing in their territory. The peaceful conditions which have existed for a number of years among the wild people of Luzon have been continued, and these people are steadily progressing toward civilization. THE PHILIPPINE CONSTABULARY. It is impossible to omit from consideration in any reference to law and order the Philippine Constabulary. This consists at present of 316 officers and 4,864 men. The officers are in part Americans and in part Filipinos, the number of Filipinos being gradually increased,7

PAGE 10

8 THE GOVERNM:ENT 01!' THE PHILIPPINE ISLANDS. The present condition of the constabulary is well described by Secretary Dickinson in the report which he made after his visit in 1910, which I quote as follows: This is a useful and effective body of men now consisting of 322 officers and ,J,451 enlisted men operating from 138 stations. The commissioned officers are generally Americans, but a number of Filipinos are also officers, and the policy is to fill vacancies by their appointment as rapidly as they meet the requite ments. They are maintained much more cheaply than our American soldiers or l'hilippine Scouts. Their pay is less, the.ir outfit more economical, and they subsist upon the country, thus saving the enormous cost of transportation incident to supplying the army. Besides serving as a military force to keep order and suppress insurrection, they are very efficient as auxiliaries in sanitary work, especially during epidemics. Although they do 110t receive the same amount of training and military disci pline which the scouts do, yet they are, looking especially to their availability for sanitary work, of greater utility than the scouts. In your report to the President ( Secretary Taft's report of 1008) you stated that when you were in the islands the nati,e papers condemned the constabu lary, but that during the two following years a change had taken 11lace, aml that nothing wns more 1101mlar in the islands thnn the constabulary. I am happy to say that this popularity is unabated, and that the constabulary and its administration are well intrenched in the respect and confidence of the people. The men and the native noncommissioned officers take great pride in their organization. They are well set up, efficient, keen in their work, and would be an effective force in case of foreign invasion. They conciliate con stantly the people toward the administration, are leaming the English lnngnage and habits. and thus are the medium of wholesome influences upon their people. Every word of commendation of this body in the foregoing is applicable to-day. Although the constabulary is practically of the same strength as on Secretary Dickinson's visit in 1910, the improved condition in law and order is such as to enable this body to accomplish now the work in which it was at that time assisted by the use of Philippine Scouts. At present no Philippine Scouts are used to assist the con stabulary in the maintenance of order. In the annual appropriation act for the fiscal year 1908 the Philippine Commission included a provision by which the officers of the Army made available as chief and assistant chiefs of the con stabulary might, as vacancies occurred, be replaced by civilians. This has been continued in the law; it is unwise and should be repealed. The maintenance of the high standards of the constabulary re quires at least the full number of Army officers authorized. This is said with a full appreciation of the excellent work of the constabulary officers. I know nowhere of men doing better or more efficient work than the young officers of the constabulary. The municipal police in the islands are highly creditable bodies. I saw nothing that impressed me more than the truly wonderful improvement in the bearing and appearance of the police of the several municipalities. It is only fair to say, in recognition of the excellent work of the several administrations in the islands, that the maintenance of law and order therein does not now require the presence of a single American soldier, and that the duty of such soldiers in the Philip pine Islands is to-day in all respects identical with their duty in the United States in time of peace.

PAGE 11

THE GOVERNMENT OF THE PHILIPPINE ISLANDS. 9 EDUCATION. In so far as practicable, I visited the public and private schools. '1 he schod buildings were, in general, of durable material, well s11ited to their purposes and to the climate, and while there was a general feeling among the people that there was still a lack of room in the schools for the pupils who might attend, I became convinced that the present attendance can not be increased without an expen diture of money in excess of the resources of the islands, and that the school sy,tem can not be extended, even though the money were arnihble, withont calling in a large number of teachers from the Un:ted States. In other words, it appeared that the supply of suit able teachers in the Philippines was wholly in use in the schools as they are at present conducted and that any effort to increase the number of schools and teachers without obtaining a supply of teach ers from the outside would result in the employment of persons as teachers who would be probably more harmful than beneficial. The zeal for education that has been so often remarked by visitors to the Philippines is unabated. The willingness of the people of the idands to expend their money for schools is still marked. There has been satisfactory progress in the schools, both in the nnmber of buildings and teachers and in the number of pupils at tending, but a material increase in the number of schools or the nnmber of pupils would only be jnstified in case the number of tencl:ers from the United States could be correspondingly increased. I nm convinced that any effort to economize in the number of com petent American teachers is a mistake and that steady prcgress de mands that the nnmber of American teachers be not decreased from the maximum of the past five years. This would not mean failure to employ such Filipino teachel's as become available. A fair measure of pi'ogress would mean the em ployment of all available competent Filipino teachers. THE ENGLISH LANGUAGE. One of the difficult questions to answer definitely is that as to the progress of the English language among the people of the islands. That the progress is great and that the English language is to-day more generally understood in the islands than any language in which there exists a general literature or in which any large part of the business of the world is conducted is undoubted. It would appear that the English language is more generally understood throughout the archipelago than the Spanish language. It is also true that a traveler in the islands can, with a knowledge of the English language only. communicate with people in all parts of the archipelago much moie readily than can a native Filipino who speaks only his native dialect, and relatively few Filipinos have ever been able to speak a native dialect other than their own. The doubtful point is as to the thousands of children who after a few years quit the schools to live and labor in households where the elders speak only the native dialect. Do they retain their E1wlish and progress in it, or do they gra4ually lose the little English they have acquired at the schools1 I received quite positive answers S. Doc. '.H2, 64-1--2

PAGE 12

10 THE GOVERNMENT OF THE PHILIPPINE ISLANDS. to this question; they were not all alike, but the weight of opinion was favorable to progress. That there could remain among the observant with opportunities to judge an element of doubt indicates the necessity of action which would remove this question from the field of uncertainty. The immense majority of the children are of this class and if the resuJt of teaching them English is simply to enable them with some personal effort to become literates in their native dialect there is a great waste of effort. There is still discussed from time to time among intelligent per sons interested in education the question whether it would not be better in the first two or three grades of the public schools to teach in the native dialect. One view is that in this way a child going to school would ac
PAGE 13

THE GOVERNMENT OF THE PHILIPPINE ISLANDS, 11 is consistent with proper administration and the maintenance of the present nttitude of the United States in the government of the islands, be given a pref erenC'e in employment. * The general question was taken up with the Governor General anrl the hen11s of
PAGE 14

12 THE GOVERNMENT OF THE PHILIPPINE ISLANDS. be corrected. It would be particularly fortunate if this unwritten lnw could be departed from by this insular administration, which hns in so mnrked n degree the confidence of the Filipino people that it could mnke such a change without arousing a feeling that it was a backward step. Certain other features of Filipinization are referred to under the head, "The ci vii service." THE CIVIL SERVICE. From its organization the Philippine government has striYen to establish an efficient civil service based upon merit. The progress of the service from its origin is well and fully set forth in the annual reports of the bureau of civil service. I found the civil service of the government efficient and the civil service law and regulations being strictly enforced. I found, how eYer, among the American employees in the civil service a degree of unrest, to explain which requires a review of certain conditions affecting Americans in that service. In organizing the central government it was at first difficult to utilize a large number of Filipinos, for the reason that they were lacking in knowledge of American methods of administration and were ignorant of the English language. Salaries were fixed having in mind, not the employment of Filipinos living at their homes, but Americans "ho, in mcst instances, had to qe brought from the United States or who contemplated returning to the United States. This necessarily made_ an expensive civil service in a country that c011ld ill afford it. Unfortunately, in fixing the salaries of government officers the comm:ssion failed to recognize the difference between Americans and Filipinos, and such Filipinos as were appointed to the more respons!ble posi.tions under the government-and many were so appointed even in the early days-were given salaries altogether ont of proportion to what they would command in nongover:Iimental occupations. It is probable thrrt this was done, in the first instance, in a desire to attract the good will of Filipinos toward the govern ment. It was early recognized as an error, but it is an error of the kind that is difficult to correct. It was the announced policy of the commission to replace Ameri cans in the Philippine civil service by Filipinos as rapidly as Fili pinos competent to take the places could be developed. During this process it became apparent that if the schedule of salaries was to continue as established for American employees, when the service :::honld be Filipinized the government of the Philippine Islands would be the most extravagant in the world. This fact was pointed out in so many words by Governor General Smith in 1907. The correction of the difficulty was, in part, left to the judgment of btireau chiefs, and in certain cases it was corrected to the limit of their authority; that is, in the lower clerical positions. As Ameri can employees left such positions Filipinos undertaking the work were, in some cases, placed in a lower grade. While this still re sulted in giving the Filipino a larger salary than his service would command in the open market, it had, when done, the effect of bring ing about a slight reduction of expense.

PAGE 15

THE GOVERNMENT OF THE PHILIPPINE ISLANDS. 13 This method o"f correcting the evil administratively exposed the bureau chief to the criticism that he was hostile to Filipinos in that he was adopting a policy to-ward them not sanctioned by legislative recognition of the widely different conditions affecting Americans and Filipinos in the Philippines. The bureau chief found also that replacing an American by a Filipino did not bring with it the reason able economy that it should, while it generally brought increased labor in supervision or decreased efficiency or both. The net result was neither fair prcgress in Filipinizaticn nor economy. On the other hand, there was with governmental develop ment normally an increase in expenditures for salaries which outran the increase in revenues. In 1905, when the cost of the civil sen~ice of the government had become excessiver a board was convened to make recommendations looking to econcmy and efficiency, and, as a result of the report of this board, the number of employees in the civil service was reduced from 3,307 Americans and 4~023 Filipinos on Jan nary 1, 190:5, to 2,616 Americans and 3,902 Filipinos on January 1, 1907. With reference to the effect of this on the American personnel, the director of civil service in his report for 1906 said: It mtrnt be stated with regret that there has been no change in the tendency for the best qualified employees to resign after from two to five years of service. 'l'he method that was adopted in reorganizing the Government service nrnl re
PAGE 16

14 THE GOVERNMENT OF THE PHILIPPINE ISLANDS. which it deemed necessary to bring the cost of the civil service of the Government within its resources. In so far as it affected the Ameri can personnel the legislature took the identical action taken by the commission in 1905. As a result of the appropriation bill of 1913-14 and executive action, the number of Americans in the service was reduced from 2,623 on January 1, 1913, to 1,978 on December 31, 1914, while the number of bureaus was reduced from 25 to 22. While the reduction in the total of Americans employed from 1913 to 1915 was approximately the same as in 1905-1907 the number leav ing the service from 1913 to 1915 was far less, as fewer Americans were given original appointments between 1913 and 1915. I noted on my visit in 1915 the same feeling of uncertainty among many efficient employees as to their tenure of office" reported by the director of civil service in 1906. It is thns noted that similar conditions in two cases brought about similar results. In my opinion in both cases the same errors were committed, first, in providing for reduction of salaries in positions that required the services of highly efficient Americans; second, in 11ot openlv making a proper diffe1ence in salaries between residents of the Philippine Islands and residents of the United States holding similar positions; and. third, in not making it equally clear that while for some time it would be necessary to fill certain subordinate places with Americans, it was rather desirable than otherwise that these positions should be vacated at the end of contractual periods. It is in recognition of the hardship of the present situation on American officials a.nd employees of the Philippine Government that I earnestly recommend or renew the recommendation made in 1907 for the passage by the Philippine Legislature of the appended bill for retirement of certain employees of the Philippine Government. It will be noted that the benefits of the bill are extended only to those empl0vees or officials who receive an annual salary of $3,000 or more. This would indicate the view of the government on the question of permanency of employment and would be a notice to nonresident employees receiving less salary and who were not in line to be promoted to positions carrying a higher salary than $3,000 that their service with the Philippine government was on a con tractual basis, and that their permanency in that service was not regarded as being to the interest of the government; while, on the ether hand, its provisions should be attractive to those Americans whom it was desired to retain more or less permanently in the service. This would remove the constant feeling of uncertainty existing among American employees and which is emphasized at such times as retrenchment or efforts at reform bring about more than the usual number of changes in the personnel. This unrest among American employees of the government has been constant since the establishment of American government in the Philippines. For the 10 years endin~ June 30, 1913, the average annual number of .ti. meri<-ans ]Paving the service was 646. For the two years since, ending Jnne 30,_ 1915, the average an1:1ual numb~r was. 569. The number of Americans newly appointed m the service durmg the last two years was far less than' in any similar previous period. It has been sometimes said with apparent reason that the salaries fixed for Americans employed in the Philippine civil service were too

PAGE 17

THE GOVERNMENT OF THE PHILIPPINE ISLANDS. 15 high. Experience with the service does not show that this was the case, as the service was continually losing its best American em ployees by their voluntary withdrawal from the Islands. The director of civil service, in his report for 1907, commenting on this, ~hl: It is n matter of regret to report that the percentage of withdrawals from the service of competent nn!l clesirnhle men has been greater during the past Jenr or two than theretofore, while there have been fewer separations of the ineompetent aml Ull(]esirnhle. On .January 1, 1907, there were 2,616 Americans ha\ing regular a1111ointment in the service. During the fiscal year ernled .Tune 30, 1DD7, HI)jll'Oximately 500 Americans resigner], about double the number with drawing from the sen-iee !luring the preceding fiscal year. Of the 500 over 100 were univel'sit) or college graduates, including scientists, civil engineers, sur Yeror:-;, physicians, teachers, nm! subordinate officials, ns against 40 university or eollege gnuluntes for the 11receding year. Of the remaining 400 a consider nhle number were 1ri-mlnate::; of high or normal schools. The loss to the Gov ernment of these trnine
PAGE 18

16 THE GOVEHNMENT OF THE PHILIPPINE ISLANDS. The improvement of the water supply by the boring of artesian wells has been continued, and the number of such wells is being steadily increased. During my visit a well-boring outfit was just beginning an artesian. well at the settlement of the Datu Piang np the Cotabato River in Mindanao, which illustrates to what remote points this ":Ork has extended. The following municipalities have water systems: Manila, Cebu, Vigan, Zamboanga: Siquijor, Mambajao, Boac, Coron, Tagbilaran, Sariaya, J olo, and Romblon. The initial work on a much-needed improved system at Zarnboanga was under way during my visit. I was present at the inauguration of the new system at Vigan. AGRICULTURE. It is apparent that the progress of agriculture in the islands has not kept pace with progress in other directions, notablv in the public improvements, education, and sanitation. The beautiful highways that have been built at large expense and which require annually a considerable amount for their maintenance have not been accom panied by the development in agriculture and the consequent traffic over the highways which ordinarily accompanies such co:1stn1ef on. It would be difficult, if not impossible, to justify the beautiful roacb in the Philippine Islands on economic ground3 alone. If their con ~:truction is justified, it must be, for the present, on the ground of educational benefits and usefulness in the maintenance of law and order. Agricnlture being the principal and almost exclusive rnurce of wealth of the people, its backwardness requires more than a passi.11,g word. It is clue in the first place to the extreme depression resulting from ~years of war and insurrection prior to the establishment of ou" ernment in the islands, and to the conservati ,e nature of the people: and, in the second, to the fact that the government had not interested itself in agriculture in the intensive way that it had taken up ednc:1tion and sanitation. Recently the government has displayed greater activity in this di rection, and there seems at present to be a more widesnread i,1terest in the development of agriculture. During my visit there ,,ns held in Manila a congress of agriculturists. There were nearlv 600 dele gates in attendance, representing practically all sect:ons of the nrchi pelago and every phase of agriculture. This was the first congress of the kind in the history of the islands. The opinion was general that mnch good would come therefrom. Following, as it did, the otganization of insular nrn nicipal and provincial agricultural societies throughout the islands rmder the stimulus of the bureau of agriculture, it betokens awaken ing interest in the power of cooperation. Within the past two years the legislatu:-e has passed important acts for the special benefit of agricultnre in the ic;l ancls; notably, till act providing for inspection, grad=ng and baling of man:lfl. hemp; and a sugar central act, providing g::>vernment aicl in tlw establishment of sugar centrals.

PAGE 19

THE GOVERNMENT OF THE PH:I-Ll.1:'PfNJ!,--ISI::.A~DS: 17 It is customary in discussing the backwardness of agriculture to lay great stress on the loss of work animals by rinderpest and on the frequent destruction of crops bv locusts. I have no desire to minimize these plagues, yet I am confident that to a great extent the actual loss from these causes is largely due to the unsatisfactory condition of agricultural labor. The same activity and cooperation of farm labor essential to any form of successful agriculture would practically nullify the ravages of these pests. "'Vithou~ such activity and cooperation, even in the absence of the pests, agncultural progress would lag. The _eradication of rinderpest has probably required a greater expend1tme of money than all other work of the bureau of agri culture combined. In order to show fully the effort made, the false hopes of success raised only to be disappointed, and how groundless is the complaint that recent changes in methods of handling the disease were threat ening disaster, I append quotations from the annual reports of the commission from 1905 to 1913, inclusive, on this subject. The abundance of carabao in the fields now makes it no longer possible to ascribe agricultural depression to disease of work animals. The locusts are still bad. It would seem that they would, unless destroyed by natural causes, continue so until more general culti vation destroys their breeding places. Meantime, intelligent co operation in fighting them would greatly reduce their ravages. I saw locusts in considerable number in six widely separated places on my visit. There was widespread commendation of the work being directed personally by the assistant director of agricul ture in combatting them. I append extracts from the reports of the Governor General for 1912 and 1913, from which it will be seen that the locust conditions are unfortunately normal. AGRICULTURAL COLONIES. I visited the American colony at Momungan. It is situated on the road between Camps Overton and Keithley in Mindanao at a dis tance of abont 6 miles from Camp Overton and at an elevation of about 1,300 feet above the sea. While the road is a mountain road, auto trucks make the trip from Overton, on the seacoast, to Momun gan in about 50 minutes. I found there 56 Americans with Filipino families-52 white men and 4 negroes. The colony is in a district inhabited by peaceful Moros engaged in agriculture, who may be employed as laborers, as the colonists are in position to use additional labor. The land selected for the colonists is in a beautiful rolling country traversed by the River Agus, as well as by the highw~y joining Overton ~nd K_eithley. At the time of my visit the colomsts had been established m theH' homes about one year, and the result of one year's work was re markable. They had an average of ab~ut 16 acres of land per family in cultivation. They were har_vestmg ~orn, ~eans, sweet po tatoes, and peanuts, and they h3;d no difficulty m findmg ma~kets for these. The houses of the colomsts were comfortable and smtable to the climate, and were 1!-otably better than those of. Filipinos of the S. Doc.242,64-1--3

PAGE 20

18 THE GOVEHNMENT 0]' THE PHILIPPINE ISLANDS, tenant class throughout the archipelago. There was no indication of fiissatisfaction among the colonists, and if they continue to be satis fied there seems no reason why the experiment should not be a success. There is considerable travel along the road traversing the colony, so that the colony is not isolated. The colony receives the sympa thetic attention of the governor of the Province, Col. Gilsheuser, of the constabulary, and is assisted in so far as possible by the com manding officers of the two scout posts at Overton and Keithley. lt is probable that no better site could have been selected in the l?hilippine Islands or this very interesting experiment. The inception of this colony is not without interest. In February, 1913, the Philippine Legislature appropriated a fund of 400,000 J!M?SOS, lm6wn as the Rice colonization and plantation fund," to be used for the establishment and operation o:f colonies and plantations on public lands, and by executive order No. 29, March 10, 1913, Gov. Forbes appointed a committee o:f three to carry the provisions of that act into effect. It seems that this act had contemplated the locating of Filipino families, taken from those district where there was a congestion of population, in districts where there was a lack of population and an abundance o:f land suitable to rice and other eereals. Later, however, owing to the enforcement in the Philippine Islands ilf the act of Congress of August 24, 1912, providing for the dis charge of civilian employees of the Quartermaster's Corps and their :replacement by an enlisted personnel, many men who had been for :t long time in the islands as Army employees and who were un willing to enlist under the provisions of this act were discharged. At the same time, owing to necessary retrenchment, a number of men who had similarly been for years in the employ of the government 0f the Philippine Islands were discharged. These men were given opportunities to return to the States, and were, in general, treated Jiberally -in the matter of final payments on discharge, but there were among them a number o:f men who had married Filipino women -~nd who were unwilling to leave their wives and :families, and who, believing that such families would be unhappy under conditions in f!he United States, elected to remain in the islands. The heads o:f these :families being without employment, the idea wasconceived o:f taking advantage o:f act No. 2254, referred to, and ef locating these families in a suitable place in the islands. Gov ernor General Harrison, on April 2, 1914, appointed a board to in vestigate and report upon a suitable location for the establishment o:f an additional agricultural colony in which such of these people as were o:f good character and gave hope of success in an agricultural ife could be located. This board selected the site at Momungan. Suitable lands were :rurveyed and set aside, in order that each head o:f a family might :llllke up a homestead, and other lands were reserved in order that tile homestead might be enlarged. One can readily appreciate the doubts of the success o:f a sociological and agricultural experiment of this nature. One year after the establishment o:f the colony, liowever, conditions were such as to remove most o:f these doubts. It is proposed to place this colony under the administrative super~ision o:f the Bureau of Agriculture.

PAGE 21

THE GOVERNMENT OFTltE PRILfP:PINEtSLANDS. 19 I visited also the Moro and Filipino colonies established on the Cotabato River. These colonies are under the administrative super vision of the department of Mindanao and 8ulu and are receiving constant attention from the governor of that department, as well as from the governor of the Province in which they are located. In these colonies were approximately 1,000 families, divided: equally between Christian Filipinos, recruited largely from the over crowded Province of Cebu, and Moros of the immediate vicinity. Generally speaking, the Christians and Moros alternated. The de tails of the operations of these colonies are reported on by the gov ernor of the department of Mindanao and Sulu. The experiment of having Moros and Christian Filipinos live amicably in the same neighborhood is so far a success, and will continue to be a success if the supervision continues as sympathetic as it has been under Gov. Carpenter, the department governor, and Gov. Bryant, the governor of the Province of Cotabato. The agricultural progress is, however, beset with difficulties. The land is flat bottom land covered by a dense growth of cogon grass. The sanitary difficulties would seem to be considerable. It is dif ficult to rid the country of mosquitoes and is difficult to bring into subjection the very heavy tropical growth of grass. Ordinarily, work of this kind would require a greater capital than that which the government can give to these colonists, and it-requires a union of effort over a very considerable territory. It is fair to say, however, that the people in the colonies are not discouraged and that those who have supervision over them are enthusiastic. The Filipino-Moro colonies experiment has great importance, in that it runs counter to two heretofore rather generally accepted theories: First, that the antn.gonism between the Moro and Christian Filipino was such that they could not live together in peace; and, second, that the rural Filipino was so without ambition that he could not be colonized even to_ better his condition. Gov. Carpenter is in a fair way to demonstrate the baselessness of both of these proposi tions if he has not already done so. ROADS. The road development in the islands is marked. Perhaps no country on earth is so fully equipped with good roads in proportion to its material wealth as the Philippine Islands. The road construc tion is being continued, and there is no disposition on the part of the people to object to road making. As one intelligent member of the legislature said to me, "We li_ke to build roads because the money is spent in the islands. The labor is employed here and the material is purchased here." This, of course, would not justify, ordinarily, the construction of roads, but it seems to be the line of thought which has been pursued in constructing a good many of the roads where there is little traffic to justify the building, either present or prospec~ tive. Unless there is an early development of agriculture, the mainte nance of the present good-ro~ds system will 'become a heavy burden on the people. It is fortunate that the' outlook for agricult11re is more favorable than in the past.

PAGE 22

2 THE GOVERNMENT OF THE PHILIPPINE ISLANDS, RAILROADS. I personally inspecied all the lines of the Manila Railroad Co., except the branch to Cabanatuan and the section in Albay, and all of the Philippine Railway Co.'s lines in Panay and Cebu. I found these lines in every respect in first-class condition, well suited to the general conditions of the community served by them. Just as it has been noted that highway deYelopment has not been followed by the agricultural development along the route which might have been :mticipated, it is noted that the railroads, particu larly in Panay, have not been accompanied by that deYelopment which one might expect to follow the construction of a railroad through such fertile territory. PRISONS. So far as practicable, I visited the prisons at the several points touched by me and carefully inspected the San Ramon Prison in the Province of Zamboanga. There is probably no better equipped prison in the world and none better suited to its purposes than this prison, which has some 400 inmates. The one unfavorable feature is that with the beautiful, well-cultivated land and fine coconut plantation it is no~ self-supporting. The superintendent believes that it will soon be self-supporting. The large central prison at Bilibid I visited, but did not inspect further than to see that the high standard which has been established at this prison in the past was maintained. Prisons in the Philippine Islands compare favorably with the prisons anywhere in the United States. POLITICAL CONDITIONS. There are in the Philippines three principal political parties: the Nacionalista Party, which is the majority party; the Progresista Party ; and the third party, which is an offshoot of the N acionalista Party. At present all of these parties favor, with certain modifications, the Jones bill, as it is known, or the bill to declare the purpose of the people of the United States as to the future political status of the people of the Philippine Islands, and to provide a more autonomous government for those islands." This bill passed the House of Rep resentatives and was considered by the Senate Committee on the Philippines, but not passed at the last session of Congress. The Nacionalista (or majority) Party seem unequivocally for the bill with the expressed hope that it may be amended in certain ways, but passed without amendment rather than not passed. The position of the Progresista Party seems to be that stated by the president of that party in articles criticizing the bill published in the organ of the party in the city of Manila. He said: At this point I wish to say that I do not desire that the Bill, .Jones, No. 2" should completely fail, my only desire, as well as that of many Filipinos, a~ I understand, being that the bill should be amended in such a manner that it shall constitute a t1:ue step toward the establishment of. a lo<;al government responsible to the Filipino people, not to the Governor Ge1ieral, the President, the Secretary of ,var, or the Bureau of Insular Affairs, especially in those

PAGE 23

THE GOVERNMENT OF THE PHILIPPINE ISLANDS. 21 subjects in which the international responsibility of the United States is not in any way affected. Only thus may we succeed in ending the agitations of a political character that have disturbed the country for so many years, making possible a truly stable government accepted by all or by the majority of the Filipinos, if not as the "summum" of their aspirations, at least as a step that must lead us irrevocably, sooner or later, to the realization of our national ideals. The third party advocates the passage of the Jones bill, with the preamble so modified as to provide a fixed date for the independence of the islands. These parties are apparently, numerically in the order given, with the Nacionalista Party, embracing apparently a large majority of the people. While not an organized party, there are certain Filipinos neg ligible in number, who do not favor any bill which contemplates the separation of the islands. from the United States. The Americans in the islands seemed almost unanimously to favor the administrative features of the Jones bill, but a majority seemed to be unfavorable to the preamble. Generally speaking, all who had studied the bill so as to under stand fairly well its provisions seemed to favor the bill as it was, or favored it with a desire that the preamble should be omitted, and that appointments by the Governor General should be effective with out the confirmation of the senate created by the bill. It is doubtful if there are any perrnns in the Philippines who con sider political questions who do not feel that there should be some legislation along the general lines of that proposed. Certainly I ~eceived no intimation that there were such during my visit to the islands. The reason for this was quite evident to those who have followed conditions in the islands during the past eight or ten years. The opin ion is practically unanimous that the form of government established in the islands, with an appointive commission as the upper house of the legislature, an elective assembly for the lower house, and with the commission, or upper house, given exclusive legislative authority over one-third of the territory of the archipelago, was no longer workable. The disagreements 'between the two houses had assumed an almost irreconcilable form. This was displayed in the failure for three years of the legislature to agree on a budget, the most important legislation committed to it. That the failure of the government in its legislative branch was not more apparent was due almost entirely to the personal affection of the Filipinos for Gov. Forbes, then Gov ernor General. This feeling which enabled Gov. Forbes to obtain the passage of many bills through the lower house of the legislature was manifested at the time in many ways, and I can testify that it remains now that Gov. Forbes is no longer in the islands. Notwith &tanding this feeling, however, the Filipino opinion is that the form of government had outlived its usefulness, and this opinion is shared by practically all Americans in too islands, even by those who ad vanced the idea that it should have been remedied by the abolition of the popular assembly. It may at first glance appear that the -form of government is now operating smoothly, since, under Governor General Harrison, the an nual appropriation bills have been passed and other bills advocated by

PAGE 24

22 THE GOV:ERNMEKT OF THE PHILIPPINE ISLANDS the Governor General have received attention and, in general, !Jeen enacted. This conclusion, however, would be erroneous. At present there is what might be called a modus vivendi simply because both the upper and lower houses of the legislature are looking forward to the passage of a new organic act to take theplace of the present government act which has deYeloped to that point where further progress is impracticable. How long this moclu,'3 vi-uendi would con tinue it is impossible to say, but every consideration of prndence urges the passage of a bill which more clearly defines the power to be given to the expression of Filipino public opinion in matters of legislation and the extent to which such power is to be limited by the relation of the islands to the United States. There is, however, another and an important respect in which the form of government of the islands is defective and which no local good will can correct. To-day the revenues of the central government are almost wholly derived from customs and internal revenues. Legislation of Con gress has withdrawn from the local government power effectually to legislate in respect of either of these taxes. The local government may not borrow without the express authorization of Congress. The great wealth of the local government is in the public lands and mines and the local government is without power to enact lawE' which would bring about the development of these lands and mines. For thirteen consecutive years the Philippine Commission urged amendment of the public land laws without receiving the attention of Congress. For five years the commission begged authority to borrow money for needed public works in vain. Briefly, the local government has been and is without authority to reg11late its income, to avail itself of its credit, or to utilize its wealth. As a consequence, a highly efficient government with im mense potential wealth is continually checked in its progress. And to-day, while admiring the beautiful roads of the islands, one is inclined to the thought that their construction was economically without justification because of the lack of agricultural development following their construction. We see the government and the people freely spending money for roads, but without authority to take the necessary steps to develop the territory through which the roads passed. While I have given above the public views of the political parties of the islands, I am convinced that no serious part of the Filipino people desires separation from the United States at this time, and that the serious people of the islands are wholly without belief that they can foresee clearly the day they would desire this separation. Nevertheless, there is likewise no doubt that all Filipinos look for ward, with varying degrees of hopefulness, to the time when they can take over the full responsibility of their own government, and they desire a recognition of this hope by the United States. Finally, Filipino public opjnion in the islands is more favorable to the United States to-day than it has been at any time in the past. This is doubtless, in part, progressive. It is inspired, in part, by their belief that an earnest effort has been made to give them all the participation in the government which in their own interests could

PAGE 25

THE GOVERNMENT OP THE PI-lILIPPfXE ISLANDS. 23 now be given, and, in great part, by the more general belief in the purely benevolent intentions of the United States toward the islands. We have reached that point in our progress where there must be given to the government of the Philippines that power granted by the pending bill or we shall soon see retrogression in the great workss of sanitation, education, and material progress. Not the least wonderful feature of the work in the Philippines is that it was accomplished by a government in the islands whose natural resources were so without its control. One hesitates evea. to speculate on what would have been the progress in the Philippines had the act of 1902 given these powers to the Philippine Commissio1.1.. ECONOMIC CONDITIONS. In studying economic conditions in the PhilippiM Islands it. is necessary to have in mind a few factors that are ahnornm1 r.1:rl tend to explain apparent contradictions in reports of conditions. While the Philippine government is self-supporting, 1:he 1Tnited States Government sends annually to the isl'ands npproximati>ly $12,000,000 for disbursements therein in connection priwipnlly with the Army and Navy. The total of the taxes collected in the Philip pine Islands per annum is approximately $18,000,, 100. The totat exports approximate $48,000,000 per annum, differing but slightly with the total imports. The total circulation in the islands is ap proximately $26,000,000. From the foregoing, it is apparent that the governmental activities in the islands, as compared to private activities, are far beyond. anything that we are accustomed to see in the States, and when we consider the large proportion, a,veraging about 20 per cent, of the entire revenue of the islands, expended in permanent public wor~ we can see to what an extent business in the Philippines is based on the expenditures of Federal and Philippine Government funds and how out of proportion these expenditures are to the expenditurE$ based on the one great source of wealth of the islands, agriculture. This has been the case to such an extent that government retrench inent is followed by the cry of hard times on the part of merchants, even though agriculture, on which practically all of. the people de pend for a livelihood, is fairly prosperous. With the development of agriculture this condition shol1ld disappear. The exports from the islands should be many times as great as they have ever beell and there seems now a promise that,this will be the case in the near future, particularly if the local government is placed in a position to utilize its resources and credit. Ewternal trade.-The European war has greatly increased the transportation rates to and from the islands. It has interfered with the usual markets. At one time there were serious fears that the normal sources of such rice, coal, and fresh beef as were imported would be cut off. Fortunately this was satisfactorily adjusted. The market for copra is still, however, interfered with, and ac cordingly the price is depressed. This is one of the principal exports of the islands. The tobacco market is similarly affected. Sugar, on the other hand, profited.

PAGE 26

i4 THE GOVERNMENT OF THE PHILIPPINE ISLANDS. Notwithstanding the effects of the war, the total exports for 1914 were exceeded but once in the 10-year period. Conditions affecting exports likewise affected imports. The total for the year 1914 was exceeded by three years of the 10-year period. The total foreign trade for the year was exceeded in 2 of the 10 years ending in 1914. So far, therefore, as the foreign trade is concerned, conditions, with the exception of those depending directly on shipping, indicate normal progress. Statistics of foreign trade for 1915, to include the time of my stay in the islands, were of the same general nature as those of 1914. Internal trade.-"'\Vith reference to the internal trade, the tax col lections on the business of merchants, manufacturers, and common carriers for 1914 would indicate that the total of the internal busi ness in the islands had been exceeded but once in the preceding period of 10 years. This shows a very satisfactory interior condition, con sidering the handicaps of business as the result of the European war. Unfortunately the effect of the war was not equally distributed in all localities and on all occupations. The Manila Railroad Co., which under its concession is required to carry on railroad construc tion in several places in the islands, dependent, as it is, on British capital, was compelled to curtail very much its program. The copra and hemp Provinces were also depressed. On the other hand, there was every indication of increased pros perity in the sugar industry and in those places, such -as Iloilo, which depended upon that industry. The presence in the Philippine Islands of three of the four American members of the Philippine Commission who resigned in 1913 engaged in business bears testimony to the hopefulness of economic conditions in the islands, the more so in that of the members of the Philippine Commission who had left the service prior to that time no one had engaged in any profession or business in the islands. Industrial.-! visited, in so far as possible, the principal manu facturing plants. I inspected three of the largest cigar factories. While this was one of the industries that had been unfavorably affected by the war, the plants were working in full force and there was every indication of prosperi.ty. Incidentally these factories are large, comfortable buildings, sanitary in all details, and under the constant inspection of the bur~au of health. I visited the sugar central at San Carlos in Occidental Negros, and the central of the Calamba,. Sugar Estates Co. on the Calamba :friar estate. I found conditions at both of these places encouraging. These arc two of the three largest modern centrals in the islands. During my stay in the islands the insular board appointed for that purpose had determined on the erection of a Government-assisted t:entral at Isabela in Oriental Negros. and an invitation for bids on its construction was issued. It would seem that the success of this central is unquestioned, as it is to be built in one of the best sugar sections of the islands where the necessary cane is assured. During my stay in the islands the cement mill at Binangonan, near Manila, began operations. There has been talk for a number of years in the Philippines of establishing cement mills, but this is the first practical step taken. The mill was established on purely Filipino initiative and with Philippine capital.

PAGE 27

THE GOVERNMENT OF THE PHILIPPINE ISLANDS. 25 I inspected on the island of Mactan in the Province of Cebu the plant under construction by the Visayan Refining Co. This will be by far the largest manufacturing plant in the islands outside of the city of Manila. The work of construction was progressing rapidly and the manager of the plant expected that it would be ready for business by January 1, 1916. Judging by the very en couraging success of the similar plant in Manila of the Vegetable Oil Co., this plant should be a success and will mean a great deal to the islands. It should be noted that the export of coconut oil from the islands has increased from a total of $40 in 1912 to a total of $2,619,183 in 1914. This increase is due entirely to the mill of the Vegetable Oil Co. in Manila. I visited the gold-mining section of Masbate, where several mills are located, and I inspected the largest of these-that of the Colo rado Mining Co. This company employs about 700 men and is operating to its full capacity. Shortly after my departure this com pany declared a dividend of 10 per cent, which indicates the confi dence of its managers. Household industries.-! spent two days in the small mountain town of Lucban. This town is known for its delightful climate and for the manufacture of hats from the buri palm. These hats are similar to the Panama hat of commerce. Hat making is here a household industry, and it was very noticeable that practically every woman and child appearing at the windows had in their hands a hat on which they were working. These hats have been heretofore, in the greater part, sold to dealers for export to Italy and Germanv. The war had interfered to some extent' with the normal demancl. This, however, creates only temporary difficulty, as the hats will find a ready and perhaps better market in the United States. I under stood that the prices had been depressed a little, but the supply never equals the full demand. Other household industries, such as the manufacture of mats, baskets, pottery, embroidery, lace, etc., and the varions Philippine cloths, were all progressing along normal lines. Broadly speaking, the condition of industrial and commercial industries in the Philippine Islands is normal and is pa.rticularly fortunate in being so during this period of general disturbance. AgricuUure.-This has been discussed generally elsewhere. As, however, agriculture is almost the exclusive source of wealth in the islands, one must understand that without development in agricul ture it is idle to anticipate more than spasmodic development in in dustrial or commercial lines. Unfortunately the agricultural devel opment has been slow. In the production of rice and sugar we have never exceeded the most prosperous years of Spanish control of the islands, and many of the Provinces bear evidence to-day of not being so productive as they have been in years prior to the insurrection in the Philippines. In other words, these Provinces have never re covered. Too much of the commerce of the Philippine Islands has been predicated on large governmental expenditures and expendi tures for the Army and Navy in the islands and, with retrenchment on the part of the government and the removal of troops from the islands or from one section to another, there has been a tendency to complain of hard times. S.Doc.242,64-1-4

PAGE 28

26 '.I'HE GOVERNMENT OF THE PHILIPPINE ISLANDS, Unfortunately the part of the community most affected by these changes has been the American business element. In Iloilo during my visit there was evidence of such prosperity as there had not been in Iloilo within the memory of man, and yet some of the American business people there were depressed because their business had to so large an extent been contingent on the continued presence there of the garrison of American troops, which had been removed. Labor.-On the Manila Railroad and the Philippine Railway, with the exception of a few directing positions and higher technical positions, such a8 civil engineer, all the operations are carried on by Filipinos, who, m addition to the laborers of the road, are the station agents, conductors, locomotive engineers, and constitute the principal clerical force. Some. of the mechanics are Chinese or Japanese. A similar condition exists in the Manila Electric Railroad & Light Co. The railroad managers are thoroughly pleased with Filipino labor, and, in fact, the impression is general that more satisfactory labor could not be gotten in any country for these pu:cposes. In the sugar mills, shipbuilding, and other industrial plants the same condition exists. On the steamships engaged in interisland traffic, governmental and otherwise, the sailors, subordinate, and, in some cases, the principal officers are Filipinos. Expression is gen eral that they are very satisfactory. However, Filipino labor must in its great part be employed in agriculture. Unfortunately, this seems the point at which the Fili pino laborer is weakest. This is witnessed by the general condition of agriculture in the islands, and is the general complaint of land owners and those who employ labor directly or who have Filipino tenants. There seems no doubt that this is due mainly to inherited conditions and to the unsatisfactory relation of agricultural em ployers and landowners to their laborers and tenants. It is ob served that in such properties as the San Carlos Milling Co. and the Calamba Estates Co. there is little or no trouble with labor. The trouble seems to be where the old conditions continue and these are the general conditions, such estates as those mentioned being excep tional. "When I visited on Masbate the mine and mills of the Colorado Mining Co. I found there employed nearly '700 Filipinos. Most of these men had been agricultural laborers who had been transferred to this employment. Col. McCoy, the president and manager of the company, who was with me at the time of my visit, expressed the greatest satisfaction with Filipino labor. He explained that the men in starting were, in general, irregular in their appearance for work; that during the month the average man would work from 10 to 15 days. He authorized a bonus to those men who worked over 24 days a month and now the bonus has become practically a part of the monthly pay, as practically the entire force works more than 24 days a month. The Filipino, when satisfactorily employed, continues indefinitely with his employer. On the Manila Railroad there are employees of all grades who have been with the company since the date of its be ginning operations in 1888. I saw laborers on the right of way who were pointed out to me by the president of the railroad as having been so employed, and I saw their first Filipino locomotive engineer, who was still employed on the railroad. These were indicative of a

PAGE 29

THE GOVERNMENT OF THE PHILIPPINE ISLANDS. 2 7 general condition, and the laborers employed on the railroads out side of Manila were, in general, men who had been agricultural la borers. It seems clear that to stimulate agriculture in the Philippine Islands it is necessary to bring about a more satisfactory condition of the luborer; that is, the lahorer must perform more work and.he must perform it in the belief that he is going to be benefited by it. It is not easy to change the customs of ages, and it is not desirable to make revolutionary changes. It is probable that if there were scattered throughout the islands, as there might well be, large estates under modern management, the conditions would be corrected thereby, and possibly it is the only way in which they could be cor rected; but it would seem to be the duty of the agricultural bureau of the Philippines and of the labor bureau to investigate carefully conditions of the employment of agricultural labor and to suggest a gradual modification of existing conditions, so as to induce the laborer to work more and the employer to give him a larger benefit from the product of his labor. When due allowance has been made for the various pests that have followed war and insurrection in the Philippines and for the recur rence of droughts unprovided against by irrigation and the visits of typhoons, against which there is no provision, the lack of progress in the Philippine Islands in agriculture still requires further explanation. That the Philippine Commission from its organization appre ciated the necessity of developing agriculture is apparent from its reports and is within the personal knowledge of those who have observed the working of that body. The difficulty seems to haYe been that the recommendations frequently made by the commission as to the public lands of the islands, an early recommendation as to immigration and similar recommendations which would have brought about results beneficial to agriculture, were unheeded. This brought with it a natural discouragement and the energy which should have been devoted preferentially to agriculture was devoted, in large part, to the development of those things which it was within the power of the local government to develop without assistance from Congress. The backward state of agriculture in the Philippine Islands, more than anything else, points to the compelling necessity of granting to the local government in the Philippine Islands greater authority than it has had heretofore. GOVERNMENT FINANCES. Oentral.-Unless one has clearly in mind the very large portion of the expenditures of the Philippine government that haYe been made for permanent public improvements, one would get the impression that since the end of the fiscal year 1910 (June 30, 1910) the financial condition of the Philippine government had grown steadily worse. If, however, one gives proper value to the public works constructed and now in beneficial use, the resulting condition becomes one of only temporary difficulty, to be justified or not, according to one's judgment of the timeliness and value of the work accomplished.

PAGE 30

28 THE GOVERNMENT OF THE PHILIPPINE ISLANDS. In the three fiscal years 1908, 1909, and 1910 there was expended for pnblic works, from the proceeds of bond sales, $2,150,000, and from revenue funds, $3,800,000. In the fiscal years 1911, 1912, and 1913 there was, on the other hand, expended for public works, from the proceeds of bond sales, $500,00, and from revenues, $8,280,000. The natural result of this was that, notwithstanding there was in each of these latter years an excess of revenue over expenditures, other than for public improvement, the payment from the current revenues of such large amounts for public improvements had the effect of materially reducing the net working surplus of the govern ment, so that a working surplus of approximately $9,500,000 on June 30, 1910, had been reduced to $7,100,000 on June 30, 1913. This reduction of the net working surplus resulted from carrying on a uniformly heavy plan of permanent improvements in the belief that the improvements were necessary to the progress of the islands, anticipating authority from Congress to cover the expenditures in part by an issue of bonds. The bond issue was not authorized. As a result of this, the unappropriated surplus of the government was reduced below what had previously been considered a safe amount. Even to maintain the working surplus at the amount stated it was necessary to make aYailable funds that had been theretofore ear marked for other purposes. In practice this had very much the effect of making liquid certain assets of the government and prevented, to the extent availed of, the further obtaining of funds from those sources. This of itself would have been the source of no difficulty had the program of public works been at that time completed. Such, how ever, was not the case, and it became necessary to suspend the large expenditures or public works, the only alternative being the con tracting of a floating indebtedness, which has never been necessary in our government of the Philippine Islands. The difficulty was emphasized in the last half of the year 1913 by a material decrease in revenue, due largely to the abolition by the tariff act of 1913 of the export tax in the Philippines. As a result of these two conditions the net working surplus was reduced on December 30, 1913, to $5,600,000, of which but $250,000 was in cash available for appropriation. The financial operations of the central government or 1914 were, briefly, in round numbers: Net income ________________________________________ $10,400,000 Liquidations of assets of the government___________ 1, 000, 000 ----$11,400,000 Governmental expenses ---------------------------8, 000, 000 Fixed charges_____________________________________ 800,000 8,800,000 Excess of revenues over governmental expenditures________ 2,600,000 But during the year $1,300,000 was expended on permanent im provements and $2,700,000 was given in aid to local governments. This would indicate a deficiency in revenues for the year of $1,400,000. It will be observed that this deficiency. is created largely by assistance given to the local governments, provincial and mu nicipal. It is evident that the government could not continue expenditures in excess of its revenues, even though the expenditures are or public

PAGE 31

THE GOVERNMENT OF 'rHE _PHILIPPINE ISLANDS. 29 improvements which become permanent assets, or for assistance to the provinces and municipalities. Therefore at the session of the legislature in 1914-15 additional internal-revenue taxes were im posed. By the provisions of the act these taxes were imposed for the fiscal year 1915. The fiscal and calendar years in the Philippine Islands are now identical. The imposition of these additional taxes is in a fair way to make the re~enues of the government for the current year exceed the expenditures for all purposes. The additional taxes, however, being only for the year 1915, it is necessary to make some provision to prevent a future excess of expenditures over revenues, and it is expected that a new internal revenue law will be enacted at the present session of the Philippine legislature. The constantly increasing amount advanced by the central govern ment to the provinces and municipalities is indicative of a condition which calls for correction. Either taxation should be revised, in order that the provinces and municipalities shall be self-supporting, or certain of the expenditures now classed as provincial and munici pal should be taken over by the central government. Public opinion in the Islands, as elsewhere, seems to favor the first alternative; that is, a readjustment of taxation so as to make the provinces and munici palities self-supporting without.giving up any of their present func tions. It is altogether probable that this view will lead to a certain loss of efficiency, which will perhaps be the price paid by the local govern ments for the satisfaction of expending their own funds rather than permitting them to be expended by. the central government. There is no doubt that the work can be done more economically by the cen tral government. The total bonded indebtedness of the Philippine government is: i ReI Amount. deemDue. able. -------------Landpurchasebonds,4percent .............................................. 87,000,000 1914 1934 Public works and improvement bonds, 4 per cent............................. 2,500,000 1915 1935 Public works and improvement bonds, 4 per cent............................. 1,000,000 1916 1936 Public works and improvement bonds, 4 per cent............................. 1,500,000 1919 1939 The balance in the sinking fund for the payment of the land-pur chase bonds on December 31, 1914, was $1,927,980.59. The balance in the sinking fund for the payment of the public works and im provement bonds was on that date $855,832.58. There is no other indebtedness of the Philippine government. The government, however, has under its contracts with the Manila Railroad Co. and with the Philippine Railway Co. a contingent liability to advance the interest on certain 4 per cent interest guaran teed bonds of these companies in case the companies should be un able from their income to pay this interest. Under this contingent liability the government had advanced on the 31st of December, 1914, a total of $1,317,448.50, practically all of which was on account of the Philippine Railway Co. The Manila Railroad Co. has gen erally earned the interest on its interest-gna.ranteed bonds.

PAGE 32

30 THE GOVERNMENT OF THE PHILIPPINE ISLANDS. The amount advanced by the government under these contracts becomes an indebtedness of the railroads to the government, payable at the end of the period for which the interest is guaranteed, about 1937. In practice this guarantee has the effect of requiring the gov ernment to advance in payment of interest approximately $250,000 a year. This amount is gradually decreasing. However commendable the program of public-work construction may be, I am of the opinion that there should be a marked decrease in the construction of nonproductive public works, and that expendi tures in the near future should be directed more largely to increas ing the agricultural output of the islands. To maintain in their present excellent state the highways of the islands requires an annual expenditure of approximately $1,000,000, and as the mileage of these roads is increased the cost of maintenance is also increased. This becomes in its nature a fixed charge. Fortunately, the road~ have been constructed very largely from revenue. Therefore, there 1s very little in the way of bonded indebtedness due to the roads. The main tenance charge, however, is a very large charge against the total gov~rnment revenues which approximate $18,000,000 per annum. Provinces.-The total indebtedness of the Provinces of the Philip pine Islands is approximately $1,900,000. This indebtedness is to the msular, or central, government which has from time to time made loans to the Provinces from fnncls subject to its control. No Prov ince has issued bonds or has outstanding public indebtedness. The total provincial revenues approximate $3,500,000. There has been a disposition to increase the expense of the provincial govern ments without increasing their revenues. This has necessitated an increasing amount of assistance from the central government. The legislature is now considering the question of readjusting revenues, as heretofore stated, in order that this continual assistance from a central government may be avoided. City of llfanila.-The revenues of the city of Manila are approxi mately $1,500,000 per annum, which is supplemented by $625,000 contributed bv the central government, and for the past two vears the expenditt1.res and fixed charges have slightly exceeded this amount. The city of Manila has a bonded indebtedness of $4,000,000, which becomes due $1,000,000 in 1935, $2,000,000 in 1937, and $1,000,000 in 1938. On December 31, 1914, there was a sinking fund of $310,000. Municipalities.-The total income of all the municipalities and townships and settlements of the Philippine Islands is approximately $3,750,000 per annum, which is slightly in excess of their expenditures other than for public works. Loans to the municipalities, other than the city of Manila, have been made from time to time from funds controlled by the insular government. A consideration of the foregoing statements and of the large ex penditures for public improvements made from revenues show that the finances of the Philippine Government are in good condition. Such difficulties .as have occurred have been temporary and almost entirely due to the lack of control which the insular government has over its borrowing power. This has had, with the natural disad

PAGE 33

TIIE GOVERNMENT OF TH])) PHILIPPINE ISLANDS. 31 vantages, the great advantage of preventing a large public indebted ness of the islands. The temptation to contract large indebtedness in connection with the public works which have been executed in the islands and those which are deemed essential to further progress would have been, it is believed, too great for the local government to have withstood. It is belived, however, that a sufficient check would have been the requirement of the approval of the President prior to contracting indebtedness rather than the necessity of obtaining affirmative legis lation from Congress. It is thought that nonproductive public works should be proceeded with cautiously, pending a development of the producing capacity of the islands. The latter is the great necessity at this time and should precede further heavv expenditures on other public works. THE CITY OF MANILA. The city of Manila is fast becoming, if it is not already, the most beautiful of the larger commercial cities of the Far East. In addition to being the capital of the islands, it is the chief com mercial port and business center. It is the location also of the larger industrial plants. While the islands are widespread, Manila is the recognized center. There has been at times, and is at present, a tendency in the extreme southern islands to make Singapore the commercial Mecca rather than Manila. In the interest of the com 0 munity of the islands an effort should be and has been made to overcome this. Manila, being the seat of the central government, owes a great deal of the recent improvement to that fact. A great deal of the recent work has been done directly by the central gov ernment, and ir.. the natural order of things a great deal more will be done in future. Furthermore, the city of Manila is assisted an nually by a very co1.1siderable appropriation, now fixed at not to exceed $625,000 per annum, which goes to the maintenance of the government of the city. By act No. 183, enacted by the Philippine Commission July 31, 1901, a charter was granted to the city of Manila. This charter vested the government in a municipal board consisting of three mem bers to be appointed by the Governor General, by and with the con sent of the Philippine Commission, and to be removed in the same manner, and it prescribed the duties of the several members of the board. This was later modified in some respects, and finally, by act No. 1869 of the Philippine Legislature, passed June 18, 1908, the government was vested in a municipal board consisting of six members, three to be appointed by the Governor General, by and with the consent of the commission, and to be removed in the same manner, an ex officio member-the city engineer-and two members to be elected from the city of Manila. This modification has in practice proven detrimental to the in terilsts of the city. A return should be made to the former smaller board and to the principle on which the original law was based, which recognized Manila as a city of the Philippine Islands rather than a city of those who reside therein. Local politics should not enter into the managament of a city which is alike the seat of the govern ment and the principal industrial and 'commercial center of the en tire islands.

PAGE 34

32 1'HE GOVERNMENT OF THE. PHILIPPINE ISLANDS. The local population 0 Manila has its representation in the as sembly and has never been without its representation on the ap pointive commission, or upper house. The situation created by the addition 0 the elected members to the board is such that a transfer 0 the capital from Manila is seriously considered by leading Filipinos. This would be no remedy, in so much as Manila would continue to be the principal port and the industrial center 0 the islands. The organic act 0 the Philippine Islands should provide that the government 0 the capital city 0 the islands should be vested in a board consisting 0 three members, to be appointed by the Governor General 0 the islands. THE DEPARTMENT OF MINDANAO AND SULU. Probably the most important office under the Philippine Commis sion to-day is that 0 governor 0 the Department of Mindanao and Sulu. This department includes seven Provinces, about one-third 0 the area 0 the Philippine Islands, practically all 0 the Mohammedan and about one-third 0 the pagan population 0 the islands; together with a considerable Christian population. Because 0 the turbulent nature 0 its inhabitants it had, under the Spanish administration and under ours until December, 1913, been treated largely as a military problem. Gen. Pershing. the last military officer holding the office 0 governor 0 the Moro Province, became convinced that with his departure conditions would be ripe to establish in that region a purely civil government. This view was adopted, and on his departure in December, 1913, Governor General Harrison appointed, to succeed him as governor, Frank W. Carpenter. This selection was made with due a.ppre ciation of the delicacy and difficulty of the task imposed on the new goYernor, whose entry on his duties was practically coincident with the withdrawal of all American troops from that region. It was elt that the most difficult task was imposed on the man who by experience was best qualified to undertake it. Mr. Carpenter had or years, as assistant executive secretary and executive secretary, been most intimately associated with the Filipino people. He lrnd won their confidence and affection. My visit to his department satisfied me that his selection had been a wise one. Customs inherited through ages may not be for gotten in a few months, and it is perhaps too much to expect'that the turbulent Moros have become for all times men of peace. There was certainly no indication of disorder at the time of my Yisit. There wns not only a spirit o-f friendliness displayed by the Moros to Americans, but to the young Filipinos-men and women-whom Gov. Carpenter was introducing in his school and sanitary work among the Moros and pagans there was extended a welcome apparently from the heart. Too much can not be said in praise of the fine spirit of these young Christian Filipinos who had begun this work in Mindanao and ,Tolo. I nm not s11re that they were not moved somewhat by the desire to show that the Christian Filipino and the Moro were not antagonistic and that the peculiar hostility of the Moro to the Filipino, so much talked of, was a myth.

PAGE 35

THE GOVERNMENT OF THE PHILIPPINE ISLANDS. 33 whatever the motive, a dreary task is being undertaken with a fine spirit and with most remarkable success. Gov. Carpenter's annual report, to be published as a part of the Annual Report of the Philippine Commission for .1914 (Reports of the War Department for 1915, vol. 3), is a relation of a striking piece of work well done. Conditions, as I found them, verify, as well as two years' time permits of its verification, the wisdom of Gen. Pershing's recommendation of a civil government in the Moro Province and of Gov. Harrison's selection of the civil governor. THE GOVERNMENT OF THE PHILIPPINE ISLANDS. One hears in the Philippine Islands criticism of the insular gov ernment. I heard such criticism while there. It is evident, though, that much of the criticism which we see published in the United States is not heard in the islands by those who have intimate knowl edge of the affairs of the government there. Such criticisms are, in ~reat part, reserved for those who are ignorant of conditions in the islands, present and past. In general, the criticisms, in so far as definite grounds therefor could be obtained and in so far as they affected the executive depart ments of the government, were without basis or trivial in character. I heard no criticism whatever in the islands affecting the integrity of any official of the government. Minor employees have from time to time been discovered as defaulters and guilty of dishonest prac tices. In the early days of the organization of the Philippine gov ernment the number of such offenders was quite large, due to the necessity of selecting employees from those available and without the careful investigation of their character under rules which the commission adopted and applied as soon as practicable. Thereafter, as the result of an improved civil service, the number of defalcations and irregularities was greatly reduced, and this favorable condition has continued. The detection of crimes of this kind is largely the result of the constant inspections by the auditor's office, and the auditor's office in the islands to-day leaves nothing to be desired. The bureaus of the government have at their heads men long in the civil service of the Philippine government. Notwithstanding the loss of some excellent men as the result of retrenchment and vol untary resignations, the bureaus of the Philippine _go~ernm~nt had never had at their heads men of as long average service m the ISlands. The bureau of customs and of internal reven110, the two bureaus from which the government receives its principal revenues, are., as at present organized, highly efficient, and no bureau of the government 1s headed by an inexperienced or inefficient man. The governing boards in the Provinces and municipalities a1-.;3 elective and display a varying degree of efficiency. I examined more closely the Province of Tayabas and the municipality of Lucban. Knowing the impqssibility of examining all or a large number, I took the Province of Tayabas as typical, and I selected the munici pality of Lu_cban becau~e it was remote from rai!road and t~avc ersed by no improved highway. I found cond1t10ns m the Pronnee and in this municipality to be highly creditable to the local officials.

PAGE 36

34 THE GOVEHKMENT OF THE PHILIPPINE ISLANDS. These officials took the greatest pains to show me and to explain to me every detail of local administration. They were apparently proud of what they were doing, and their pride was justified by conditions. One of the most agreeable impressions of my travels in the islands was the kindly feeling of the Filipino people toward Americans and the warm feeling of personal regard they evinced for those Ameri cans who were working with them in the government service. I found this feeling generally throughout all the Provinces and municipalities visited by me. This is a condition which reflects credit alike on the American officials and on the people among whom they work. In closing, I can quote, as fully applicable to conditions as they exist in the islands to-day, what Secretary Dickinson said in his report of 1910 : I am satisfied ancl I believe that anyone who makes a careful study of the personnel of the Philippine government will feel that the United States has just reason to be proud of the government it has established in the Philippine Islands. The high motives which prompted Governor General Harrison's acceptance of his office have guided his conduct thereof. He has labored unceasingly, and as a result of these labors he has gained the admiration and respect of the people of the islands. As a consequence, the excellent state of law and order prevailing in the Christian prov inces of the Philippine Islands is beLter assured than it has been at any time in the past, while the penetration of schools and sanitary work in the portions of the islands inhabited by the wild people and Moros, particularly the latter, is beyond the most sanguine expecta tions of two years ago The unfortunate condition existing in the legislature which re sulted in a failure for three years to pass the annual appropriation bill and the failure to provide revenues by necessary taxation has been replaced by a spirit of good will and cooperation between the two houses. Appropriation bills have been passed promptly, and additional taxes have been imposed to meet the heavy public work expenditures which the legislature does not wish to suspend. The legislative treatment of the Moros and other non-Christian inhabitants not repFesented in the legislature has been more liberal than at any time in the past. Very respectfully, Hon. LINDLEY M. GARRISON, Secretary of War. FRANK McINTYRE, Ohief of Bureau.

PAGE 37

APPENDIXES. 85

PAGE 39

1015 Tuly August APPENDIX A. ITINERARY OF GEN. McINTYRE. 31. Manila. l. l\fanila. 2. l\lnnila. 3. l\'Ianila. 4. l\Ianila. ti. l\fanila. 0. By rail to Batangas and Pagbilao ; by highway to Atimonan and return. 7. By rail to end of line, walking 3 miles to southern line, thence to Hontlagua by rail, returning to Lucena, Tayabas Province. 8. Lucena, thence to Lucban via Tayalms. 0. Lucllan. 10. Manila; night of 10th, at Los Banos. 11. Manila. 12. Left Manila for l\fangalden; thence by automobile to Baguio via Benguet Road. 13. Baguio, leaving in afternoon, via Naguilian Road, for Bauan and San Fernando. 14. Arrived Vigan, via San Fernando and Tagudin. lfi. Vigan, attending inauguration of waterworks system. lG. Left for Laoga, Ilocos Norte, returning to Vigan same evening. l 7. Left Vigan, arriving Manila morning of the 18th via Bauan. 1S. Left Manila 11 p. m. for southern trip. 19. At sea. 20. ArriYed Capiz, going by Philippine Railway to Iloilo and leaving there at midnight. 21. Arrived San Carlos, Negros; visited plant of San Carlos Sugar Central and left in afternoon for Camp Overton. 22. Arrived Camp OYerton, proceeded in automobile to Dansalan, Yia Overton-Keithley Road, passing through Camp Keithley. Crossed Lake Lanno in launch to Tampanan, returning Dan salan; thence to Camp Overton en route to Jolo. 23. Arrived San Ramon Penal Farm and inspected prison, leaving in evening for .Jolo. 24. Jolo. Automobile trip across island to l\faimbung and Indana, leaving at noon en route to Cotabato. 25. ArriYed at mouth of Cotabato River and proceeded up river, stop ping at Cotabato town and Dulauan. 26. ArriYed at Fort Pikit, visited fort, proceeded down river, making several stops. 27. Arrived Zamboanga. 28. Left Zamboanga for Cebu. 29. Arrived Cebu. 30. Cebu. 31. Cehu. September 1. Arrived Aroroy, inspected Colorado Mining Co. mine and mills, en route to Manila. 2. Arrived Manila. 3. Manila and vicinity. 4. Manila and vicinity. 5. Manila and vicinity. 6. Manila and vicinity. 7. Manila and vicinity. 8. Manila and vicinity. 9. Sailed from Manila. October 11. Arrived San Francisco. 37

PAGE 40

38 THE GOVERNMENT OF THE. PHILIPPINE ISLANDS, APPENDIX B. EXTRACTS FROM THE REPORTS OF THE PHILIPPINE COMMISSION ON THE SUBJECT OF RINDERPEST, 1905 TO 1913, INCLUSI ITE. [Extract from report of Gov. Gen. Luke E. Wright, Nov. 1, 1905 (Philippine Commission Ileport, l!J05, pt. 1, p. 84).] The rinderpest and other diseases which afl1icted .the carabao, horses, and cattle have been practically exterminated, and while the people still need more work cattle than they have, the supply is slowly but steadily increasing. '1.'he insular government, through its hoar
PAGE 41

THE GOVERNMENT OF THE PHit.IPPINE ISLANDS. 39 would be enormous, for the reason that the immunity conferred is only tem porary, and after two or three months rinderpest is likely to reappear in the very herds where it has been checked. If permanent results are to be secure
PAGE 42

40 THE GOVERNMENT OF THE. PHILIPPINE ISLANPS, wlwre the disease ha1n C'. Worcester. SPCrr-tnrv of t"e inte1irir. Sept. 1, 1006 (Report of t!:e Philippine Commission, 1006, pt. 2, pp. 48-40).] Under the provisions of act No. 1407, the veterinary corps was transferrecl from the bureau of health to the bureau of agric-ulture on October 19, 1905, aml in the latter bureau a clivision of animal industry was established, which inclu
PAGE 43

THE GOVERNMENT OF THE .PHILIPPINE ISLANDS: 41 given locality, and there would seem to he no good reason why it mny not ulti mately be eliminated as n serious cause of death among cuttle in the Philip pines. CONTROL OF INFECTIYE DTSEASES. [Extract from report of W. C. Welborn, dirrctor of n~ricnlture, Aug. 10, 1006 (Report of Philippine Commission, pt. 2, pp. 17-J-177) .] ,vhen the veterinary work wns taken over from the bonrcl of health a severe outbreak of rinclerpest prevaile:1 in the beet-sugar growing section of Occi dental Negros, where it hucl caused serious losses among the cnrnbnos and cat tle of that Province. 'l'here was a S:!Urcity of nntirinclerpest serum at that time which materially hinclered the work of inoculation. The simultmwous methocl was being nsecl ,Yith apparently good success. In a few instance,; a high rate of mortality was encounterecl, which provecl to be cine to complications of surrn ancl hemonhngic septicemin. 'l'Us rnucle it necessary to suspend the use of the simultaneous methocl before the outbreak was fnlly uncler control, but by the use of serum in nm! uronnll the infecter! centers, the tfo;e::i.se was well under control by the end of Decernter. 'l'he only other outbreak of im portance which prevailed at that time was in the Province of Z::tmbules. Simul taneous inoculation \\'flS usecl there with good success. S:l fur as known only a few scattered cases occurred in wide!~ i-eparnte:1 districts cluring the five monthifollowing .January 1, the ririncipal Provinces affectetl being i\lisnmis, Occiclental Negros, Albay, nncl Bohol. i\Iost of the smaller outbreaks were readily suppressed by serum inoculations given to the affeetecl am! exposetl animals arnl those in the immediate vicinity. Quarantine measures we;c en forced as far as practicable, but in the absence of any general Jaw making veterinary sanitary meai-ures compulsory, reliance hat! to be placed principally in provincial and mnnici11nl officers. The gO\ernors, vroyincial and municipal boards, pres:clentes, and local officers of the bureau of health haye renderecl n1luable assistance in locating infected centers and su11pressing infectiYe dis:mses. During the eight montl.ls coyerecl by this report 5.780 cattle and carnbaos hnYe been inoculated, and 24.5, or 4.23 per cent, of the.se died subsequently from rinder11est. From the statistics inailnble, the exact nmnber of animnls suffering from the disease at the time of inoculation can not be c1eterminecl. but prac tically all of the deaths were among animals receiYing serum as a curathe agent. In most cnse3 wtere tl.Je animals were not sick or did not derelop the disease in one or two dn:rs r.fter the inoculation tlle serum vrotectell them against a fatnl attack. HoweYer, it should not be oYerlooked thut in inocu lating nnimals in these islnuds by either metl.Jocl n great rnnuy of these animals are likely to be immune from 11reyious outbrenks of rinder11est. 'l'herefore we should be careful not to claim credit for rnYiug all the animals inocu lated that fail to contract the disease. In Germany n few ye 1rs ago it was reported that inoculntion with virulent blood wns abandoned be~ause losses were as high as 25 11er cent. and becnpse it spread tlle disense. Of our inoculations 4,961 head receiYed sernm only, with 152, or 3.08 per cent. subsequent deaths; 685 receiYed sinmltnneons inoculations. with 80. or 11.60 per cent, subsequent deaths; 134 head receiled Yiruleut blood following about 10 days after the serum inoculation, and of these 13, or 0.6 per cent, died subsequently of rinderpest. In considering these figures it should be remembereil thnt n much larger num ber of animals were inoculated with serum only than by either the simnltnne ous or deferred methods; that the bulk of the animals receiYing sernm only were neYer exposed to the disease; aud tlrnt nil of those receil'ing simultaneous or deferred inoculation are giYen u cubic centimeter or more of Yiruleut blood, which produces n genuine cnse of riuderrest, nncl ,yould in most cases 11r0Ye fatal but for the serum 11receding or nccom1mnyiug the blood girnn. On the othei hand, all animals suffering from the disense nt the time of inoculation are included in those receil'ing serum only, and it is among these thnt the hein-iest death rate occurs; while all animals giYen simultaneous or deferred inocula tions nre judged to be free from rinderpest at the time tile Yirulent blood is administered. It has been obsenecl that animals suffering from surrn, hemorrhagic ser1ticemi11, foot-and-mouth dii;-ense. or Texas fe,er die readily from rinclerpest contrncted either by natural infection or virulent-blood inocu lation simultaneously with any of them. As the first three frequently exist in communities where riuderpest has appeared, it becomes imprncticuble to give

PAGE 44

42 THE GOVERNMEN'.r OF THE PHILIPPINE ISLANDS. any form of virulent-blood inoculation without first eliminating all of these dise,ses as complications. This is ,ery difficult in the cases of surra and hem orrhngic septicemin. Texas fever is of no importance with native cattle. as tlley nre geuernlly immune to it, but has been a serious complication in imported nonimnnme cnttle, es11ecially from the Northern States and southern Australia. Tlle Yirulent blood tnken from natiYe animals to inoculate the imported cattle 11gainst rinderpest precipitates a case of Texas fever soon after the rinderpest reaction has occurred. The principal advantages of the serum method of inoculation are that it is. easily and quickly administered by any person of ordinary intelligence after a little experience. An inoculator can cover a large territory in a short time; it irn1x1rts a h~mporary immunity which usually protects the animals until an outbreak can be su11pressed; it meets with popular favor, which is essential; it cnn not produce death and may be given indiscriminately to animals suffering from the 11is1ase, exposexposecl without fear of <'Ontracting rinderpest; they are not nearly so liable to cnrry the infection ns nonimrnune animals; they may serve as a barrier against the sprca(l of the disease where a large number of immune animals exist in a community. ~ome of the clisndvantages of these two methods are the high rate of mor tality which follows the inoculations; they are purely prophylactic and can be usec1 only with noninfected animals; can not he practiced with safety where other infective diseases exist as complications; slow and tedious of administra tion. requiring the services of a skillerl veterinarian; both methods are more expensive for a given number of animals than the surum method, and if an attempt were made to immunize all the bovine animals of the islands the cost would become prohibitive; they are not in favor among the people and would have to he enforced by legal processes; danger of further spreading the disease, ns each animal receiving virulent blood carries the infection and must be kept in f(lmrantine until fully recovered. rncler the cornlitions which prevail in these islands the surum method prom ises best results for general use. The simultaneous method may be used to advantage where the country is densely settled and the animals concentrated in large numbers, provided no complicating diseases prevail at the time of inocu lation. 'l'he deferred method is practical only with small herds of valuable animals, such ns imported dairy cattle, and where complications might follow the simultaneous method. [Extract from report of Dean C. Worc~ster, secretary of the interior, Oct. 28, 1.907 (Report of the Philippine Commission, 1907, pt. 2, p. 52).] The ener,rdes of the rlivision of animal industry have been largely directed toward holding in check this disease, which has appeared nt one time or an other during the year in the majority of the Provinces. The policy nt pres ent pursued is to combat it at all points where it appears by the use of serum only. This practice has the a1lvantage that it immediately checks the disease in any given locality, is not attended with any loss due to the inoculation, and even results in the cure of a very large percentage of the animals diseased at the time of inoculation. It is, of course, very popular with cuttle owners. The drawback is that the immunity produced is of a temporary nature, and after two or three months animals which have received only serum inocula tion become again susceptible to rinrlerpest, although if attacked they suffer less severely than do those which have not been immunized. 'l.'he simultaneous method of inoculation in which blood from a diseased animal and serum are administered at the same time, confers permanent im umnity, and can be effected with a v0.ry low percentage of loss, if the animals

PAGE 45

THE GOVERNMENT OF THE PHILIPPINE ISLANDS. 43 inoculated are not suffering from surra and are properly cared for while under going treatment. The neglect of owners who sometimes even leave them with out
PAGE 46

44 THE GOVERNMENT OF THE PHILIPPINE ISLANDS, BUREAU OF AGRICULTURE. [Extrnct from report of Denn C. Worcester, secr(tnry of the interior, Oct. 20, 1900 (Report of the Philippine Commission, pp. 118-110).] Sitppres8ion of animnl diseases.-Beyond doubt the most important work of the bureau of agriculture during the past year has been that for the comhn.ting of dangerous comnrnnicuble diseases of domestic animals. In my last annual report the fact was mentioned that the ti1le of public sentiment had turned in the matter of inoculation against rinclerpest, and that the demands for serum and veterinarians were comiequently far in excess of the availnble sup11ly. Every effort has been made during the year to meet the difficulty thus created. The completion of the serum laboratory and of the large new stables at the Alabang stock farm, and the provision of increased facilities for the manu facture of serum at the bureau of science, have resulted in quadrupling the output of antirinclerpest serum. All the veterinarians who could be securetl at the salaries authorized by law for our service were brought to the islands. The director of agriculture was instructed that he mm,t meet all demands for assistance, so far as the men and serum at his disposal would allow, an
PAGE 47

THE GOVERNMENT OF THE PHILIPPINE ISLANDS. 45 output will be augmented as rapidly .as possible, but it should be remembered that veterinarians after arrival must of necessity spend a large amount of time in becoming familiar with the language and with the peculiarities and prejudices of the people; must gain experience in dealing with rinderpest, which they almost invariably lack; an!l must learn to travel rapidly and economically before they reach anything like their highest efficiency ; while the presence of ,villl deer which become infected with rinderpest, and of course can not be quarantined, the general indisposition of the Filipino people to protect themselves or their neighbors by the imposition of any local quarantine measures other than those put into effect by the director of agriculture, and other serious obstacles combine(!, prevent, and will for a time continue to prevent, the achievement of the imme!liate and complete success in the eradica tion of rinderpest, ,vhich, under more favoruble circumstances, might be obtainable. During the year 22.285 carabaos arnl 6,469 cattle were inoculated against rinderpest, while 3,322 carabaos and 312 cattle were reinoculated. Only 639 caralmos and 158 cattle are known to have died after inoculation. Thi-s, too, in spite of the fact that many of the animals inoculated were badly 1liseused at the time the serum was administered, and of the further fact that the im munizing power of the serum was allowetl to fall off materially towaru the close of the year. [Extract from report of NClWton W. Gilbert, secretary of public instrnction, Oct. 1, 1010 (lteport of the Philippine Commission, 1010, pp. 183-184). J During the year the efforts of the bureau have been concentrated chiefly vpon the fight against animal disease, and at its close the situation showed no little improvement. li'ifteen Provinces and 204 municipalities were at one time or another during the year reported us having been freed from rinclerpest. ln many instances, however, the freedom lusted only a few clays, the disease again making its appearance and, upon its extermination, the Province or municipalit) being again reporte1l clean. It will be seen, therefore, that these figures contain no few duplications. At the close of the year rinderpest was revorted in ]2 Provinees and 25 municipalities, and unfortunately these are scattered throughout the archipelago, so that the infection is still wide ~prea!l. The most serious outbreaks occurred in Batangas ancl Occidental Negros, and the most gratifying work of tlle year was !lone in the former P1ovince, where the disease now seems to have been almost entirely e1aclicated. If it were possible properly to quarantine this Province, there would be little likelihood of another serious outbreak. Conditions in Occidental Negros have also been much improvetl. ,vith the increase in the price of sugar an!l the con sequent cultivation of a large amount of land which had heretofore been lying fallow, large numbers of aninrnls have been imported into this Province and it is of great importance that rimlerpest should not be permitted to get beyon1l our control there. During the year more than 10,000 animals were reporteu as suffering with rin!lerpest and almost 8,000 as having clieu. Some 63,000 inocnlntions of antirind011)est serum were mude. The veterinary cor11s has been increase(!. On July 1, 1909, 21 veterinarians were on 1luty. During the year 4 resigned and 1 visited the United States on leave, "bile 25 new appointees arrived and entered upon their duties, making nn average of 39 veterinarians on duty tluoughout the year. In addition, 8 agricnltural inspectors and G American and 56 Filipino inoculators "ere en gage<] in the "ork. It has been found difficult to secure skilled veterinarians; the ,;nlaries which we arc able to pay are not sufficiently large to attract con siderable numbers of these men in the Unite1l Stutes, anu unfortunately among the Filipinos there are no veterinarians. The College of Veterinary Science was opened this year with a view to training Filipinos for tllis work. The cnrollment, howmer, is, as has been said, very small. Ten thousand one hundred antl forty-five liters of antirinderpest serum were pro
PAGE 48

46 THE GOVERNMENT OF THE PHILIPPINE ISLANDS, and officials to the work. I think the general temper is greatly improved, however, and the improvement will continue as the importance of the work and the sincerity of the government become more generally understood. Valuable assistance in this respect has been given by the Governor General, who. has, by suspension or removal from office, awakened several apathetic officials to a full realization of their duty. To the suppression of an outbreak of tlisease an effective quarantine is essen tial. In this work the municipal police have proved quite inefficient, and in so far as has been possible they have been replaced by detachments from the constabulary. The servires of the latter have been most satisfactory, but de creased app1opriations for that organization have led to a reduction in its forces, and we are unable to obtain these men in anything like sufficient num bers. If the bureau of agriculture is to do effective work in suppressing animal disease, it must be able to call in the services of the constabulary to a far larger extent than has ever before been possible. [Extract from report of Gov. Gen. W. Cameron Forbes, Nov. 7, 1911 (Report of the Philip pine Commission, 1911, p. 20).] At the beginning of the last fiscal year, after 10 years of continuous effort to control rinrlerpest, more than half the Provinces were still infer.ted and no noticeable gain had been made. In view of these facts a com1)lete change in the system was made, the use of the rinderpest serum was discontinued, the desultory work throughout the Provinces was made a secondary part of the work, and a large number of employees of the bureau of agriculture were con centrated in the Province of Pangasinan. Maj. Gen. J. Franklin Bell, com manding the Philippine Division of the United States Army, by detailing over 1,200 Philippine Scouts to maintain a quarantine between Pangasinan and the adjoining Provinces, made possible the success of the scheme which tlepenclecl on cleaning one particular part of the infected territory, keeping this part free from reinfection, and gradually pushing the line of clean territory farther and farther. Starting from the eastern part of Pangasinan, practically the whole Province has been cleaned by this system, and a similar successful campaign has been carried on in the island of Siquijor, which is now entirely free from rinuerpest. The intention is to go over the whole country by this method, arid, it is hope(], within a few years to rid the entire archipelago of this disease. [Extract from report of W. Cameron Forbes, acting secretary of public Instruction, Nov. 6, 1011 (Report of the Philippine Commission, 1911, pp. 170-171).] During the past year the chief efforts of the bureau have been given to the rinderpest campaign-about 50 per cent of the entire funds of the bureau devoted to this purpose and the veterinary corps largely increm:ietl. At the beginning of the fiscal year 1911 there were on duty 41 veterinarians, 6 Amer ican live-stock inspectors, and 56 Filipino live-stock ins1)ectors. On June 30, 1911, there were 47 veterinarians, 1 veterinary pathologist, 1 veterinary ento mologist, 56 American live-stock inspectors, and approximately 300 Filipino live-stock inspectors. The following quotation gives an idea of the rinuerpest situation in the fiscal year 1910: "Fifteen Provinces and 204 municipalities were at one time or another during the year re1)orted as having been freed from rinil.erpest. In muny instances, however, the freedom lasted only a few days, the disease again making its appeamnce. and upon its extermination the Province or municipality being again reportea clean." After some rears of scattered work of this sort, it became evident that no great advance was being made and that some change in method was necessary. In July, 1910, Dr. A. R. Ward, of the University of California, was appointed chief veterinarian and undertook the organization of a systematic campaign against the rirnlerpest. After exhnusti\e investiimtion the conclusion was reache(I that under the conditions existing in the Philippines, the use of anti rinderpest serum was impracticable, and it was discontinued. Following the discontinuance of the use of se.rum, the effort to control rinderpest was cen tered upon the object of keeping animals separated from one another and upon detecting the diseased animals, so that they might be placed under restraint in corrals. It also became evident that with the forces available it wns impossible to combnt the rinderpest in all parts of the islands at the same time. It was, therefore, decided to concentrate the total available force of the bureau of agri culture in the Province of Pangasinan, and to call on the constabulary and

PAGE 49

THE GOVERNMENT OF THE PHILIPPINE ISLANDS. 4 7 scouts for any aid which they could give in maintaining the necessary quaran tine. Maj. Gen. J. Franklin Bell, commanding the Philippine Division of the United States Army, appreciating its importance, made possible the work which has so far been done by assigning 1,200 scouts, 41 cavalrymen, and 5 veter inarians for duty with the bureau of agriculture. Owing to the enthusiasm and fine discipline of this force, the bureau of agriculture has been ahle to maintain an effective quarantine over a large part of the Province of Panga sinan, and has gradually succeeded in wiping out rinderpest from the entire eastern portion of the Province and as far west as Lingayan. A similar cam paign was inaugurated in the island of Siquijor, which also has resulted suc cessfully. The difficulty, however, remains that in this country, which is en tirely unfenced, if the strict quarantine, which can only be maintained by a military force, is withdrawn, a single infected animal may enter clean territory and reinfect the entire district, leaving the whole work to be done again. An other great ditliculty en<'ountered in the effort to suppress rinderpest is the fact that, in spite of its .destructive hi,;tory of hundreds of years, the cause of the malady, the methods by which it is carried, the period at which it is most in fective, and the duration of the period of infectivity are still questions to be dPfinitely cletermined. In order to get some light on these problems the r:;erum laboratory at Alabang was converted into a reRearch laboratory, anrl the results obtained, which so far have been largely at variance with the prin<'i ples formerly followed in the Philippine IRlands, have been very r:;uccer:;sfully applied to the work in the fielcl; It was shown from experiments conrlucte<'I at Alabang tlmt the sick animals cease to be dangerous to others Rhortly after the rliag-nostic symptoms are fully develope<'I, and that the most infective pPriod of the disease is in its early stages when the symptoms can not be recogni:r.ed. As it was impossihle, under the conditions prevailing in this country, to rlPter mine what animals had been in contact with the diReasecl animal. in order to slaug-hter them as well as the sick animal, the system of slaughtering, which has been successful in other countries, was, after a short trial, abandoned as impracticable. Rinderpest has shown a tendency to sprearl extensively during the year, esnecially from central Luzon south toward Manila, in the islands of Leyte, Cebu, and Siquijor, and in the Provinces of Oriental Negros, Surigao, Cagayan, and Isabela. The total number of municipalities infected at the close of the year was 81, as compared to 25 reported at the close of the prpvious yPar; but owing to the more effective methorls employed for detecting anrl reporting disease at the end than at the beginning of the fiscal ~-ear, it is impm:sihle to judge anything from these figure,;. However, with the knowledge whi"h has been gained from the experimental work and with the system and effective fighting force which are being daily improved, as a rer:;ult of experienre, it is honerl little by little to erarlicate this worst of cattle diseases from the Philippine Islands. [Extract from report of N~wfon W. Gilh 0 rt, Acflng flnvprnor flenPrn.1. Oct. 1, 1912 (Re port of the Philippine Commission, 1912, pp. 25-26).] Th'! rinrlernest Ritnntion has irnproverl anrl the mrnrnntine noli('v insino:urnted by the bureau of agriculture has been consistently followed throughout the year. After flue conRirleration it had been <'lecirlecl hy the officin.ls in chnrge that only by means of concentrated quarantine coulrl the rinrlerrest Ritnation be relieverl. By concentraterl Qunrnntine is meant n nort QU.rtrantine to pre vent the rliRease entPrine: the iRlanrls from outside nnrl a local ouarantine of infef'te'luction of 47 per cent in the number of municinalitiPs infecterl. from 64 to 34. The number of renorterl i'!eaths of carahno anrl cattle from rimlernest for the ye11r was nnnrn~irnntely 3.000, or one-om1rtpr of 1 per cent of nll the nnimn.ls. while in 1902, 625,000 deaths, or about 43 per cent of the animals existing in the

PAGE 50

48 THE GOVERNMENT OF THE PHILIPPINE ISLANpS, islands, were reported. A quarantine against Indo-China and Hongkong has been maintained throughout the year. Practically every time a shipment was allowed in the islands infection resulted. Cattle from Imlo-China and Hong kong can now be landed only at Manila, after a three months' quarantine. This measure has been deemed necessary in spite of the constant protests of cattle importers. It is thought that the protection of over 1,000,000 animals now in the islands is of greater inuiortance than further importations. [Extract from report of Newton W. Gilbert, secretnry of pulllic instruction, Oct. ll, 1012 (Heport of the Pbilippine Commission, 1012, pp. 230-240).] Rinderpest.-.Animal disease is now a comparatively small factor in the in dustrial econom~' of the islands, but potentially it is a very large factor. During the ~ear only 4,312 new cases of rinderpest were reported among the cattle and carabao, with 2,847 deaths. The census of 1903 states that during the year 1902, 629,176 cattle and carabao clierl of disease, chiefly rimlerpest. The following table shows the known amount of infection at the beginning and end of the year: Week ending~P.W cac;P. I Deaths "rnYince1\fu!]-i_ciBarrios I 1 r:1lihC'-: plrweek. eerwee.<. mf~ct.ea. ir.fecied. mlected. July 1, 1911 ....................................... .. Juno 29, 1912 ........................................ -1-----254 230 li 64 170 23 1Q 11 34 69 1 Cattle and carabno. The comparatively small number of deaths from rinderpest has retanled but little the rapid increase in the herds of carabao anti cattle. Tile per centage of deaths from this source eorn11are(l to births is almost negligible. This does not mean, however, that our work has ended. If the efforts of the government were to any considerable extent relaxerl and the disease allowed to spread, whole Provinces would again be swept clean of their work. animals. The existence of disease also hinders capitalists from investing large sums in cnttle raising in the Philippines, and the chief work of the bureau will not be ended until rinderpest has been completely eradicated from the islands aml all sources of outside infection eliminated. The method followed in combating the disease was the same as last year that is, through strict quarantine-and the satisfactory results seem to justify the belief that this is the only feasible method for making headway against rinderpest. Effective quarantines have been possible through the cooperation of the military authorities. The division commmuler, i\Inj. Gen. J. Franklin Bell, has placed at the disposal of the govemment a, large number of scouts, who have rendered valuable service. On the last day of the year there were on duty in this work 30 officers an
PAGE 51

THE GOVERNMENT OF THE PHILIPPINE ISLANDS. 49 It is only fnir to ~:tntc thnt this tnb!e is not conclma:ive. There is, without doubt, soine uilreported diS<'USl~, particillarly in the northPrn part of !,mmn. From time to time territory m1_jncent to the foothill8 of Br,nguet is infected by animals coniing from the north, although eYery effoi-t is beirig mmle to preYent their introcluction from this territon until the lrnrern hnc; Imel an opportunity to move its force into northern Luzon and stamp out 8Uch disease ::ie: exists 1here. [Extract from r~p01t of NPwton W. Gillwrt. Actino: GovPrnor GPnernl, Sept. 25, 1913 (Report of the Philippine Commission, 1913, p. 23).] The campaign against animnl diseases, of which the most menacing is rimler pe!
PAGE 52

50 THE GOVERNMENT OF THE PHILIPPINE ISLANDS. per centum for eaeh year's active service reudered by him, of the average cur rent pay received annually by him during said period of active service : Pro vided, That the terms of this act shall apply only to employees receiving for ten or more years atthe time of retirement an annual salary of not less than six thousand pesos, or a total salary during his service equivalent thereto : And provided further, That the payments required under this act shall be made froni the treasury of the Philippine Islands or from the Province or municipality paying the salary of the employee at the time of his retirement from the service. APPENDIX D. THE GOVERN~ENT OF THE PHILIPPINE ISLANDS, EXECUTIVE BUREAU. COMMITTEE FOR INVESTIGATING THE CONDUCT OF BUSINESS IN THE BUREAUS AND OFFICES Ol,' THE PHiLIPPINE GOVEHNMJ~NT. EXECUTIVE ORDER } No. 52. MANILA, J,uly 10, 1913. Charles H. Sleeper, director of lands; William T. Nolting, collector of inter nal revenue; John S. Leech, director of printing; and Clifford H. French, assistant auditor, are hereby appointed a committee for the purpose of investi gating the conduct of the business of the various bureaus and offices in the insular government and making report and recommendations on the following points: 1. Any work which was performed by any bureau which was, in their judg ment, unnecessary. 2. Duplication of work. 8. Administrative economies, including the more rapid Filipinization of the service where advisable. The committee will take as a basis tlw report of the organization committee appointed by Executive Order No. 14, series of 1905, will see how far the recommendations of that committee are no-,v being carried out, and will study further the report of that committee and amend the same if, in their judgment, experience has proved the recommendations of said report faulty in any par ticular. All directors and officers of bureaus are directed to assist the committee in any way, give them such information and data as they may require, and such clerical help as may be needed in the conduct of their business. ,vhenever the committee is engaged in examining the bureau of which any member is chief, such niember shall disassociate himself from the committee during the period of the examination of his own bureau. The reduction of customs revenues, past and prospective, and the proposed abolition of all export duties rendered necessary a reduction of the current ex penses of the government. It is believed that all bureaus will benefit if they may have an opportunity of taking advantage of improved methods of other bureaus and thus standardizing what is best in the service. APPENDIX D. "\V. CAMERON FORBES, Governor General. [Extracts from annual reports of I-Ion. Newton \V. Gilbert, Acting Governor General of the Philippines, 1912. l9rn. J From report of 1912 : At the encl of the long dry season great swarms of locusts appeared, especially in the southern islands. The locust question having been brought to the con sideration of the legislature by the Governor General, act No. 2121 was passed providing means for combatting this pest by the appointment of provincial locust boards, by making an appropriation for the fight, and by placing the general management and leadership of it in the hands of the director of agri culture. Provinces requesting assistance from the general government have been furnished funds, and it is believed that the fight has been more successful

PAGE 53

THE GOVERNMENT OF THE PHILIPPINE ISLANDS, 51 than in previous years. It is the opinion of the undersigned, that the plague of locusts can never successfully be handled until methods are found of extermi nating the locusts in their breeding places. From report of 1913 : During the last quarter of the year very severe outbreaks of locusts appeared in eastern and southern Luzon, and at its close 33 out of the 38 Provinces were more or less infested. '.l'he work of destruction in the cultivated areas has been pushed to the utmost and has always, within any given place and time, been carried to success, but in some Provinces the condition is so widespread that it must necessarily be a question of months, if not years, before the uncul tivated tracts are completely cleared of the breeding swarms which there persist and resist all regular measures of control. There has been on the whole an increasing degree of cooperation on the part of the local authorities and the people in the necessary work:, though it sometimes imposes appreciable incon venience or even hardship on the latter. The experiments with bacilli parasitic in the migratory locusts, while very successful in the laboratory, have not so far proved of much practicable value in the field. It is hoped that further research will result in the discovery of a really effective remedy. 0

PAGE 54

,