The Philippines: Past and Present Volume I Part 35

The next day was bright and clear. We rested until noon, drying out our belongings meanwhile, and then continued our journey, visiting the Igorot settlements on the Agno River and those in southern Lepanto and finally reaching Cervantes, the capital of that sub-province. The Igorots of Benguet and Lepanto received us with the utmost friendliness, and when not in danger of breaking our necks by falling over the edges of the wretched trails, we greatly enjoyed our trip.

At Cervantes we were met by a delegation of Bontoc Igorots, who begged us to visit their country, and we were just preparing to do so when we received a telegram recalling us to Manila to be present at the inauguration of Mr. Taft as civil governor. During our absence the commission had established provincial governments in Rizal, Cavite and Nueva Ecija. Mr. Taft was inaugurated on July 4, 1901. Thenceforth he exercised control over the provinces where civil government had been established, while the military governor continued in charge of each of the remaining provinces until it was duly organized and transferred to civil control.

In August, 1901, the commission sailed on a tour of the remaining northern provinces, visiting La Union, Ilocos Sur, Abra, Ilocos Norte, Cagayan, Isabela and Zambales in the order named, and establishing a government in each. On the trip to Abra those members of the commission not previously accustomed to roughing it in the islands were given a novel experience, for we went up the Abra River on bamboo rafts. However, a veritable ship of state had been prepared for Governor Taft, and no one suffered any great discomfort.

At Vigan, the capital of Ilocos, we narrowly escaped drowning in the surf when returning to our steamer. For a time our good _viray_ [466]

with some twenty oarsmen was unable to make headway through the rolling waves. It broached to, nearly filled with water, and struck the bottom heavily several times. Some of the men quit rowing and began to pray, whereupon General J. F. Bell, who was sitting in the stern, rose to his feet, and shouted at them until they became more afraid of him than of the sea, and pulled for dear life until we were out of danger. Upon arrival at the ship we watched with interest the progress of other boats through the surf, and were alarmed to see the men in one madly divesting themselves of their clothing. When it finally came alongside its occupants made flying leaps for the gangway, and we discovered that a great hole had been knocked in its bottom, and that raincoats, ordinary coats, and trousers had been jammed into this opening in order to keep the rapidly sinking craft afloat for a few moments.

In the Cagayan valley we had a taste of real tropical heat. Never have I seen a man suffer more than did Mr. Taft at Ilagan on the day when we established a provincial government for Isabela, and the night that followed still lingers in my memory. The air was suffocating. My bed was in a corner. I dragged it out between a window and a door and threw both wide open. Still I could not sleep. Slipping off my pajamas, I seated myself on the broad window sill. The heat was intolerable. I poured water over myself and resumed my seat in the window. The water would not evaporate. I sat there until morning, as I could not endure the heat lying down.

Such conditions are unknown throughout the greater part of the archipelago, where cool sea breezes temper the heat at all times. In the Cagayan valley an immense plain is bordered by ranges of high mountains to the east and the west. They seem to shut off both monsoons to a considerable extent, and there very trying heat is by no means unusual.

On September 1, 1901, the first day of the second year of actual service of the commission, a complete central civil government was established. Commissioner Wright was appointed secretary of commerce and police; Commissioner Ide, secretary of finance and justice; Commissioner Moses, secretary of public instruction, and I myself secretary of the interior. The commission was strengthened by the addition of three Filipino members: Senor Benito Legarda, Senor Jose R. de Luzuriaga, and Dr. T. H. Pardo de Tavera, all of whom were men of exceptional ability and had rendered distinguished service in the establishment of peace and order.

Except for the addition of one more Filipino on July 6, 1908, the organization of the commission has remained unchanged up to the present time, although there have been numerous changes in its personnel. The task which lay before it was to enact a code of laws adapted to the peculiar conditions existing in the Philippines, and this was indeed a herculean undertaking. Its members laboured unremittingly. Governor Taft and General Wright were towers of strength in the early days. The rest of us did what we could, and I, for one, am very proud of the result. Certainly no one can ever claim that the commission was not industrious. Before it finally ceased to be the legislative body of the islands it had pa.s.sed some eighteen hundred acts. Obviously, as it is not my purpose to write an encyclopedia of law, I cannot discuss them in detail, and must content myself with here barely mentioning a few of the more important results obtained, leaving the more detailed discussion of some of them for later chapters.

In general, it may be said that the additional bureaus necessary for the work of the Insular government were created, and given proper powers. Civil government was gradually extended to the entire archipelago. [467] The criminal code was amended and supplemented by the pa.s.sage of new laws. The administration of justice was reorganized and reformed. [468] An efficient native insular police force was organized, and an admirable state of public order brought about. [469] The health service was extended to the provinces, and health conditions were greatly improved throughout the islands. [470]

Baguio was made accessible and became both the summer capital and a health resort for the people of the islands. [471] The scientific work of the government was cordinated, and efficiency and economy in its performance were insured. [472]

Primary and secondary schools were established throughout the islands, supplemented by trade schools, and a normal school at Manila. [473]

Legislation was enacted, and submitted to the President and to Congress, covering the disposition of public lands. [474] The purchase of extensive estates belonging to certain religious orders, and the sale of their holdings therein to tenants, was provided for. [475]

Fairly adequate legislation for the protection and development of the forest resources of the islands was enacted. [476] Means of communication by land and sea were greatly improved, and the development of commerce was thus stimulated. [477]

It is a noteworthy fact that all of these things were done with a per capita taxation of about $2.24!

Another fundamentally important aid to the commercial development of the islands was afforded by a radical reformation of the currency.

The islands under the sovereignty of Spain had their own distinct silver coinage in peso, media peso, peseta and media peseta pieces.

In 1878 the Spanish government, hoping to check the heavy exportation of gold currency from the Philippines, pa.s.sed a law prohibiting the importation of Mexican dollars, but allowed the Mexican dollars then in the islands to continue to circulate as legal tender.

When the American troops arrived, there were in circulation the Spanish-Philippine peso and subsidiary silver coins; Spanish pesos of different mintings; Mexican pesos of different mintings; Hongkong dollars, fractional silver coins from different Chinese countries, and copper coins from nearly every country in the Orient. Although a law had been pa.s.sed prohibiting the introduction of Mexican dollars into the islands, they were being constantly smuggled in. Fluctuations in the price of silver affected the value of the silver coins, and the money in common use was in reality a commodity, worth on any given day what one could get for it. These conditions affected most disastrously the business interests of the islands. Merchants were forced to allow very wide margins in commercial transactions, because they did not know what their goods would actually cost them in local currency upon arrival. The most important business of the local banks was in reality that of exchange brokers and note shavers. They hammered the exchange rate down and bought silver, then boosted the rate skyward and sold.

The American army brought in a large amount of gold, but this did not remain in circulation long, as it was exported by the different business concerns, or h.o.a.rded.

United States silver money had a limited circulation during the early days of American occupation, but it pa.s.sed at less than its true value. An effort was made under the military administration to keep the ratio of exchange at two to one by the purchase from the public of all United States currency offered at that rate to the banks.

For a long time the banks refused to carry private accounts in United States currency, but when it was offered for deposit it was changed into Mexicans with a heavy charge for the transaction, and an account opened in Mexican currency to the credit of the depositor. If the depositor afterward desired to get United States currency, he gave a check for it at the then existing rate of exchange. Such conditions were intolerable, and the commission pa.s.sed an act making it an offence to refuse to accept for deposit the currency of the sovereign power, but this did not remedy the fundamental difficulty. There came a heavy slump in the price of silver. The Insular government lost a very large sum because of the decrease in value of its silver coin.

Mr. Charles A. Conant had been brought from the United States to make a report on the feasibility of providing an American coinage for the islands. He recommended that the unit of value should be a peso, equivalent to fifty cents United States currency. Congress, by an act pa.s.sed July 1, 1902, vested general authority over the coinage in the Philippine government, but the commission decided not to take action until more specific authority could be obtained from Congress, as the proposed reform was radical, and it was very important that the new currency should at the outset command the confidence so essential to its success.

After long discussion, Congress authorized, by an act pa.s.sed March 2, 1903, a new currency system based on a theoretical peso of 12.9 grains of gold 900 fine, equivalent to one-half of a United States gold dollar. The circulating medium was to be the Philippine silver peso, which was to be legal tender for all debts, public and private, and its value was to be maintained on a parity with the theoretical gold peso. For this purpose the creation of a gold standard, or gold reserve fund, was provided for, and this fund was to be maintained and could be used for no other purpose.

Considerable difficulty was experienced in introducing the new currency into the islands. The banks at first failed to give any a.s.sistance to the government. The business men of Manila, and especially the Chinese, discounted the new Philippine peso, because it did not contain as much silver as did the Mexican dollar. They were quickly brought to time, and given to understand where they stood if they discredited the currency of the country.

The Spanish Philippine coins and the Mexican coins in circulation were collected by the treasury and exported to the San Francisco mint, where they were reminted into new coins of the weight and fineness prescribed by law.

The establishment of a gold standard fund to maintain the parity between the gold and silver dollar was quickly effected by the sale of exchange on the United States in accordance with the established law, at a cost estimated to be the same as the transportation of the gold coin itself.

The army, by direction of the secretary of war, ceased to pay in United States money, and its paymasters were given credit at the Insular Treasury, where they obtained the necessary funds in Philippine currency.

The government also authorized, in addition to the coinage of silver, the issuance of paper money in two, five, and ten peso notes. All of the coins and bills were readily interchangeable with the United States coins in common use, the dollar being worth two pesos, the half dollar one peso, the twenty-five cent piece a half peso, the ten-cent piece a peseta, the five-cent piece a media peseta and the cent two centavos.

Unfortunately the silver value of the new peso was such that when the price of silver again rose, its bullion value was greater than its money value, and in consequence coins of this denomination were h.o.a.rded and exported. It proved necessary to prohibit their exportation, and to issue new coins of less bullion value, but this was the only really serious difficulty attending a fundamental reform which put the currency on a sound basis. The original pesos were recoined and a handsome profit made on the transaction.

No one who has not lived in a country where the circulating medium is constantly fluctuating in value can fully appreciate the enormous benefit conferred on the Philippine Islands by this important reform.

Another reform of far-reaching importance was the readjustment of the burden of taxation so that it should bear lightly on the necessities of life, and heavily on its luxuries. This was a complete reversal of the scheme which we found in force, under which wheat flour and kerosene oil paid very heavy import duties while cigars and champagne were lightly taxed.

We imposed export taxes on certain products of the country. Such taxes are objected to by many political economists, but were approved of by the Filipinos, who strongly opposed the imposition of a logical and very necessary personal tax to provide funds for the construction and maintenance of highways and bridges. It is usually wise, when practicable, to obtain funds for necessary governmental purposes by the imposition of taxes which are willingly paid.

Mr. Taft resigned the governorship of the Philippines to become secretary of war, his resignation taking effect January 31, 1904. He had performed a monumental work for the Filipinos, and for humanity at large, during his years of service in the islands, and carried with him the good will of most of the people whom he had so faithfully, efficiently and self-sacrificingly served. He had at one time very gravely impaired his health by hard work, and when the opportunity came to satisfy a lifelong ambition by accepting appointment as a Justice of the Supreme Court of the United States, he had pa.s.sed it by, in order to perform his duty to the people of the Philippine Islands. As secretary of war, and as President of the United States, he availed himself of every opportunity which these high offices afforded to help the Filipinos, and to increase the prosperity of their country. They have had no better friend, and no other friend whom they have ever had has been so useful to them. One more proof of his real greatness is afforded by the fact that to-day, after being reviled by many Filipino politicians whom he befriended, who have succeeded to a large degree in making the common people of the Philippines consider him their enemy, his interest in the people of the Islands is as keen, and his eagerness to help them is as great, as in the early days when they acclaimed him their deliverer.

General Luke E. Wright, a democrat of Memphis, Tennessee, was appointed by President Roosevelt civil governor in Mr. Taft's place. He rendered his country and the Filipinos most distinguished service. It is one thing to build up a great government, with numerous political appointments at one's disposal, and another to stand by and keep it running smoothly and efficiently, when a lot of disappointed politicians, who have seen their last hope of political preferment go a-glimmering, are throwing sand into the bearings of the machine. This latter cla.s.s had begun to plot against Governor Taft before his resignation took effect, but their machinations were rendered fruitless by the wave of regret raised by his coming departure.

They now devoted themselves, with a good deal of success, to injuring Governor Wright, who declined to be dictated to, in the matter of appointments, by the Federal Party, and aroused the ire of many politicians by occasionally telling the Filipinos unpalatable but wholesome and necessary truths relative to their fitness for immediate independence.

General Wright, whose t.i.tle had been changed from governor to governor-general on February 6, 1905, went on leave during the latter part of that year, fully expecting to return and resume his work in the Philippines, but the islands were not to see him again. He resigned, effective April 1, 1906, to become United States Amba.s.sador to j.a.pan. In my opinion, the acceptance of his resignation at this time was one of the gravest mistakes ever made in the Philippine policy of the United States. The islands were deprived of the services of a very able and distinguished man, thoroughly conversant with their needs, who had the courage of his convictions, and whose convictions were thoroughly sound.

Certain Filipino politicians openly boasted that they had secured his removal, and they and their ilk were encouraged to put forth new and pernicious efforts. Had General Wright returned to the islands much of the political unrest from which they have since suffered would have been avoided. He was beloved by his a.s.sociates, who felt a sense of personal loss when they learned that the places which had known him in The Philippines would know him no more.

He was succeeded for the brief period of five and a half months by Judge Henry C. Ide, vice-governor and secretary of finance and justice, who had performed his duties while he was on leave. Judge Ide was a republican, from Vermont. He resigned on September 19, 1906.

He was succeeded by General James F. Smith, a democrat from California, who had come to the islands as a colonel of volunteers, and had won promotion because of his valuable services in the Visayas, and more especially in the island of Negros, where he had earned the good will of the Filipinos by his tact and kindness. Later he had served, unwillingly, as head of the Manila custom house.

He was subsequently made a justice of the supreme court of the Philippines. A lawyer by profession, he had resigned this position with regret to accept appointment, on January 1, 1903, as secretary of public instruction. He did not desire the governor-generalship and made a strong but unsuccessful effort to avoid accepting the position, which he finally took from a sense of duty. He was a good lawyer, with a big heart, and a keen insight into human nature. He thoroughly understood the Filipinos, and he made an excellent governor-general. It was during his term of office that the Philippine Legislature, composed of an upper appointive house, the Philippine Commission, and a lower elective house, the Philippine a.s.sembly, met for the first time on October 16, 1907.

I devote a separate chapter [478] to the Philippine Legislature and its work, so need not discuss it here. Suffice it to say that such success as attended the work of this body during its inaugural, first and special sessions, was very largely due to the tactful influence of Governor-General Smith, who gave the speaker of the a.s.sembly much valuable, friendly counsel, and kept the two houses working in comparative harmony. Having struggled through one session of the legislature, Governor-General Smith felt at liberty to resign. He greatly desired to leave the Philippine government service and return to the practice of his profession. His resignation was reluctantly accepted, about a year after he had tendered it, and he left the service on November 10, 1909.

He was succeeded by Vice-Governor W. Cameron Forbes, a republican from Ma.s.sachusetts, who had accepted appointment as secretary of commerce and police on June 15, 1904. A man of independent means, Mr. Forbes entered the public service only because of the opportunity for greater usefulness which was thus afforded him. He brought to bear on the problems which confronted him as secretary of commerce and police intelligence and ability of a very high order. Wide practical experience in the management of large business interests had admirably fitted him to improve the organization and increase the efficiency of the insular police force, and to mature and carry out plans for bettering means of communication and otherwise facilitating and stimulating the normal, healthful commercial development of the islands. I have devoted several chapters to the discussion of the results accomplished along these lines, [479] and will not attempt here to enumerate them.

Like all of his predecessors, he brought to the office of governor-general mature experience gained on the ground, having been in the service more than five years at the time of his promotion.

As governor-general, he not only retained his keen interest in the large problems which had previously engaged his attention, and laboured unceasingly and most successfully in the performance of the duties of his new office, but took an especial interest in the development of the summer capital, and in the work for the non-Christian peoples of the islands, devoting a much greater amount of time and attention to familiarizing himself with the needs of this portion of the population than had ever previously been given to it by any governor-general. He visited the Moros and the Bukidnons in the south, and the Negritos, the Benguet Igorots, the Lepanto Igorots, the Bontoc Igorots, the Ilongots, the Ifugaos, the Kalingas, and both the wild and the civilized Tingians, in the north, repeatedly inspecting the several sub-provinces of the Mountain Province.

Through his generosity in making proper grounds available, public interest in outdoor sports was greatly stimulated at Manila and at Baguio, while his own partic.i.p.ation in polo, baseball and golf was a good example to Americans and Filipinos alike, in a country where vigorous outdoor exercise is very necessary to the physical development of the young and the preservation of the health of the mature. He was a true friend of the Filipinos, whom he genuinely liked and was always ready to a.s.sist. His personal influence was a powerful factor in the success of the very important work carried on at the Philippine Normal School and the Philippine Training School for Nurses.

During his term of office the prosperity of the islands increased by leaps and bounds, public order became better than ever before in their history, and the efficiency of the civil service reached its maximum. No other governor-general ever drew so heavily on his private means in promoting the public good, and it was the irony of fate that he should have been accused, by certain irresponsible anti-imperialists, of using his public office to promote his private interests. Near the end of his administration grossly and absurdly false charges were made against him on the floor of the House by Representative William A. Jones. As their falsity has been conclusively and finally shown, [480] I will not here lend importance to them by repeating them. No official has ever given any country a cleaner administration than Governor-General Forbes gave the Philippines.

It was his fortune to be in office at the time of the change in the national administration of the United States. After continuing to serve for months with no sign from Washington as to whether his resignation was desired, he was advised by the Chief of the bureau of insular affairs that the appointment of Mr. Francis Burton Harrison, who is a Tammany Hall democrat, as his successor had been sent to the Senate, [481] and three days after its confirmation received a curt request for his resignation to be effected in a week and a day. He was also requested to employ servants for Mr. Harrison. Spaniards who read on the public streets newspapers which printed this message were seen to tear them up and stamp on the pieces! Our Spanish friends are accustomed to expect courtesy in connection with the removal of faithful and efficient public servants.

All other governors-general had taken the oath of office at Manila. Mr. Harrison took it at Washington on September 2, 1913. He is the first American governor of the islands who has entered upon his high duties without previous experience in the country which he is to govern, and he has as yet displayed little inclination to profit by the experience of either Filipino or American administrative insular officials of high rank. It is too soon to discuss any feature of his administration other than his att.i.tude toward the civil service, which I take up elsewhere, [482] and I can only express the hope that when he has gained that knowledge which can come only through personal observation on the ground, he will grow to be a wise, strong, conservative official.

The establishment of civil government in the Philippine Islands under American rule was a gradual evolution up to the time of the a.s.sumption of control by Governor-General Harrison.

I will not attempt to follow in detail all of its successive stages, but in closing this chapter will endeavour briefly to summarize the results obtained up to that time.

The Philippines now have two delegates to the Congress of the United States appointed by the legislature in accordance with the provision of Section 8 of the Act of Congress of July 1, 1902. Both are Filipinos.