JS 1 ini- r ni- eTTH Congress,) HOUSE OF REPKESENTATIVES. (Document Jfth Session. ) ( No. 511. DS 685 .fl25 1922 Copy 1 FILIPINO APPEAL FOR FREEDOM. ^v THE PHILIPPINE PARLIAMENTARY MISSION'S STATEMENT OF ACTUAL CONDITIONS IN THE PHILIPPINE ISLANDS AND A SUMMARY OF PHILIPPINE PROBLEMS. December 18, 1922. — Ordered to be printed. Philippine Parliamentary Mission to the United States, 1922. Hon. Manuel L. Quezon, president of the senate, chairman on the part of the senate. Hon. Sergio Osmena, speaker house of representatives, chairman on the part of the house. Hon. Pedro Guevara, senator, chairman pro tempore on the part of the senate. Hon. Jose G. Generoso, representative, chairman pro tempore on the part of the house. Hon. Antero Soriano, senator, member. Hon. Santiago A. Fonacier, senator, member. Hon. Ceferino de Leon, senator, member. Hon. Teodoro Sandiko, senator, member. Hon. Guillermo F. Pablo, representative, member. Hon. Pedro Abad wSantos, representative, member. Hon. Celestino Gallares, representative, member. Hon. Vicente Llanes, representative, member. Hon. Juan Nolasco, representative, member. Hon. Emilio P. Virata, representative, member. Hon. Proceso Sebastian, representative, member. Hon. Teodoro M. Kalaw, secretary of the interior, honorary member. Hon. Jorge B. Vargas, director of lands, secretary. Prof. Maximo M. Kalaw, dean. College of Liberal Arts, University of the Philippines, chairman of technical advisers. Mr. Wencesko Trinidad, collector of internal revenue, technical adviser. j^ Prof. Jorge Bocobo, dean. College of Law, University of the Philippines, technical adviser. Dr. Antonio G. Sison, professor. College of Medicine and Surgery, University of the Philippines, technical adviser. Mr. Arsenio N. Luz, ex-Philippine commercial agent, New York, technical adviser. 2 riLIPi:N"0 APPEAL FOR FREEDOM. ^ A^^T Dr. Justo Lukban, ex-mayor city of Manila, technical adviser. Mr. Benito Razon, merchant, assistant secretary. Dr. Jose Albert, professor. College of Medicine and Surgery, University of the Philippines, physician. * Mr. Ricardo Summers, clerk of Manila court of first instance, secretary to President Quezon. Mr. Francisco Zamora, private secretary to Speaker Osmena. Mr. Pablo de Guia, bank examiner, disbursing officer. Mr. Carlos P. Romulo, assistant editor, the Philippines Herald, publicity agent. Memorial to the President and Congress of the United States. With the deepest sense of loyalty and confidence in the American people, the Philippine Legislature has decided to send the present parliamentary mission to the United States. The mission brings a message of good will and friendship from the Filipino people to the people of the United States, and is charged to resume the negotia- tions for the independence of the Philippines begun by the first mission sent in 1919. The people of the Philippine Islands yearn to see the fulfillment of their aspirations for national existence. This desire, always strong, has grown with every year. While the great war was on they desisted from active agitation for independence, not because it had become less dear to them, but because they felt the broad issues of freedom and democracy for the world depended upon the out- come of that war, and because their loyalty and affection to the United States bade them lay aside for the moment their own cause for the sake of that which embraced all mankind. Realizing that the war ideals of America were their own, that the struggle for democracy and the rights of smaller peoples was also their own struggle, they placed all the resources of the islands at the disposal of the United States and offered their sons for the battle fields of Europe. As expressed by the then highest American rep- resentative in the Philippines, '^ Every sentiment, every impulse, every hope of the Filipinos was enlisted in the cause of the United Sta,tes.'' the first PHILIPPINE MISSION. With the ending of the war the Filipino people felt that the prin- ciple for which they had contended had triumphed with the triumph of the Allies and the associated powers. With hopes renewed and faith strengthened, they resumed the work for their own cause. Hence, on March 8, 1919, the Philippine Legislature approved what was officially known as the '^Declaration of purposes," which remains to-day an official authoritative pronouncement of the people on what should be their attitude toward, and relations with, the United States. The Philippine Legislature declared that the ''stable government" required in the preamble of the Jones law as the only prerequisite to independence had already been established in the Philippines ; hence ''a full and final exchange of views between the United States of America and the Philippine Islands" was deemed necessary. The time had come for t he fulfillme nt of tlie American pledge. The first JANli4l9g3 OOOUlVlfiHtS DlVisi§N . I— t in- rnffiioimrTr" — ~"— '^^ FILIPINO APPEAL FOR FREEDOM. 3 Philippine mission was asked to '^ convey to the Government of the United States the frankest assurances of the good will, friendship, and gratitude of the Filipino people and to submit with as much respect as confidence the question of Philippine independence with a view to its final settlement.'^ PRESIDENT Wilson's recommendation. When the first mission reached the United States, however, it found the American people and Government still absorbed in their inter- national problems. The President was in Europe negotiating the treaty of Versailles ; but realizing that the fulfillment of the American obligations toward the Philippines could not be dela3^ed any longer, he requested the Secretary of War to receive the mission in his behalf and expressed the belief that the end was almost in sight of the work undertaken in the islands by Americans and Filipinos. Soon thereafter, when the American people and Government had been relieved of many of their pressing international burdens and distractions, the petition of the Philippine Legislature through the Philippine mission received the favorable indorsement of the ad- ministration in Washington. President Wilson, in his message to Congress on December 2, 1920, officially recognized the fulfillment of the only condition required of the Philippines as a prerequisite to a separate national existence — a stable government — and formally recommended the immediate granting of independence. He said: Allow me to call your attention to the^act that the people of the Philippine Islands have succeeded in maintaining a stable government since the last action of the Con- gress in their behalf, and have thus fulfilled the condition set by the Congress as precedent to a consideration of granting independence to the islands. I respectfully submit that this condition precedent having been fulfilled , it is now our liberty and our duty to keep our promise to the people of those islands by granting them the independence which they so honorably covet. This recommendation was made after the highest representative of America in the Philippines, the Governor General, had officially cer- tified both to Congress and to the President of the United States that a stable government had already been established in the islands. everything was ready for fulfillment of promise. It is a fact, therefore, that immediately prior to the coming into power of the present administration the Philippine question was on the eve of solution. The solemn covenant, as the author of the Jones law had called it, between the American and the Filipino peoples was about to be fulfilled. The Philippine Legislature had declared that there was a stable government in the Philippines, and the highest Magistrate of the United States and the American representative in the Philippines concurred in the view. We beg to submit that the last 15 months that have elapsed- since the new administration has assumed office have not altered the situa- tion. The same stable government exists. Contrary to what some may aver, the phrase '^ a stable government" does not convey a vague and indefinite condition. It has a specific and well-established mean- ing. The international relations of the United States for the last century and a half, especially her dealings with the South American countries, bear this statement out. 4 FILIPINO APPEAL FOE FREEDOM. President McKinley, in addressing the Cuban people, defined a stable government as one '^capable of maintaining order and observ- ing its international obligations, insuring peace and tranquillity and the security of its citizens as well as our own." It must be remem- bered that the term ^^ stable government" in the Jones law had been adopted directly from the American promises to the Cuban people. It can not, therefore, but have the same meaning. It is worth noting that recently a similar interpretation has been given to that phrase by the League of Nations. WOOD-FORBES REPORT DOES NOT DENY STABLE GOVERNMENT. No American official, whether of the past or the present adminis- tration, has denied the statement of the Philippine Legislature, the certificate of the Governor General, and the finding of the President of the United States to the effect that we have established the '^stable government" required by the Jones law, in accordance with the interpretation the universal usage has assigned to these words. Even the report of the Wood-Forbes mission, which is unwarrantably severe and critical, does not deny this assertion. Mckinley's and root's definition of stable government. There are apparently in President McKinley's estimate two main elements in a stable government — first, ability to maintain order and insure peace and tranquillity and the security of citizens; second, ability to observe international obSgations. To those two elements Mr. Root in his instructions for the Cuban people added the follow- ing: It must rest upon the peaceful suffrages of the people and must contain constitutional limitations to protect the people from the arbitrary actions of the government. All these elements are to be found in the Philippines to-day. PRESENT PHILIPPINE GOVERNMENT SATISFIED ALL CONDITIONS. It is admitted by the Wood-Forbes mission that order has been properly maintained and that our insular police or constabulary has proved itself to be dependable and thoroughly efficient" (p. 23 of the report) . The tranquillity and security of the citizens are not jeopardized. ^^They are naturally an orderly and law-abiding people" (p. 19), said the report. As to obligations for international life, the Wood-Forbes mission recognizes that there are people in our service that would do credit to any government. ^' We find that the legislative chambers are conducted with dignity and decorum and are composed of repre- sentative men" (p. 45), observed the Wood-Forbes report. The Filipino people are by nature and tradition hospitable and courteous to foreigners. There has been no antiforeign agitation or outbreak. The business of foreigners has been amply protected and will continue to be so protected under an independent Philip- pines. During the short-lived Philippine Republic prisoners of war were treated according to the law of nations, and there was security for foreigners. FILIPINO APPEAL FOE FEEEDOM. O ORDERLY ELECTIONS. The insular, provincial, and municipal governments of the Philip- pines rest on the free and peaceful suffrage of the people. The people elect members of the insular legislature, provincial governors, mem- bers of the provincial boards, municipal presidents, and members of the municipal councils. Speaking of the elections of 1919, the report said : Interest in the elections was widespread and election day passed without any serious disturbances. There was a general, quiet acceptance by the minority of the results of the popular vote * * * (p. 42). The elections held a few days ago, though vigorously contested, have again demonstrated the capacity of the Filipino people for the orderly exercise of popular franchise. CONSTITUTIONAL GUARANTIE S . The structure and workings of our government also conform to the standard defined by Mr. Root in that it is ^'subject to the limitations and safeguards which the experience of a constitutional government has shown to be necessary to the preservation of individual rights." The Filipino people fought for such constitutional safeguards during the Spanish regime. A modern bill of rights was inserted in the constitution of the Philippine Republic. Our present constitutional limitations and safeguards have been in operation since 1900, when President McKinley, in his instructions to the second Philippine Commission, set down as inviolable rules the fundamental provisions of the American Bill of Rights. These provisions, with slight modi- fication, were later included in the organic act of 1902, and again set forth in the Jones law of 1916. For more than 20 years, therefore, the Philippine government has been subject to constitutional prac- tices. They are embedded in the political life of the people, and no matter what political change ma}^ occur in the Philippines they will find no material alteration. An impartial judiciary is there to enforce them. COMPETENT JUDICIARY. ''The supreme court," said the Wood-Forbes report, ''has the respect and confidence of the Filij)ino people" (p. 24). The courts of first instance, now mostly presided over by Filipinos ever since 1914, have maintained a standard which, in general, compares favor- ably with the State courts of the Union. From August 31, 1911, to September 1, 1913, during the last two years of Governor Forbes's administration, only 25.1 per cent of the decisions appealed from these courts were reversed by the supreme court. From March 3, 1919, to March 4, 1921, another period of two years with Filipinos in control, the percentage of reversals was decreased to 20.8 per cent. The number of cases disposed of by the courts of first instance from 1906 to 1913, inclusive, was as much as 82,528. The total number of cases, disposed of for the same length of time, with Filipinos in control (1914 to 1921, inclusive), was 117,357, or an increase of 34,829, or 42 per cent. b FILIPINO APPEAL FOR FREEDOM. GENERAL PROGRESS. The last eight years, in which the Filipinos have been given a larger control of governmental affairs, have also seen a notable increase of the agencies of social and political progress, such as schools, roads, public buildings, hospitals, etc. In 1913, when the Filipino people had even less share in the government than they have now, there were enrolled in the public schools 440,050 pupils; in 1921 there were nearly a million (943,422). In 1913 there were only 2,934 public schools; in 1920 there were 5,944. In 1913 there were 2,171 kilometers of first-class roads in operation; in 1921 the figure was 4,698.8, in addition to about 5,000 kilometers of second-class roads. In 1913 there were no dispensaries where the poor could be given medical treatment; in 1921 there were over 800. In 1913 the appropriation for medical aid to the poor was 1Pl,548,317.25; in 1921 the sum was ^3,153,828. Social and economic progress has also been tremendous during this period. In 1913 there were hardly a dozen women's clubs; in 1921 there were 342 in active work. In 1913 the volume of Philippine commerce was only ^202,171,484; in 1920 it swelled to ^601,124,276. The cultivated area in 1913 was 2,361,483 hectares, as compared with 3,276,942 hectares in 1920 — 238.7 per cent increase. The present conditions in the Philippines, even as alleged in the Wood-Forbes report, compare favorably with those existing in many nations whose right to national sovereignty is not open to the least question. These are incontrovertible facts which no impartial witness can deny. COMPLETE AND ABSOLUTE INDEPENDENCE DESIRED. The present parliamentary mission in which all political parties of the Philippine Islands are represented — the two wings of the Nationalist Party, on the one hand, and the Democrata Party on the other — has been sent by the Philippine Legislature to ask for immediate, complete, and absolute independence of the Philippines. This desire is not born of ingratitude toward the United States nor does it show lack of appreciation of the risks and dangers of inter- national life. It is the logical outcome of more than 20 years of patient labors jointly undertaken by the Americans and Filipinos. The Filipino people^ firmly believe that the time has come when this question should be settled once for all. Further delay in the fulfillment of America's pledge contained in the Jones law will only result in injury to the best interests of both peoples. THE FAVORABLE INTERNATIONAL SITUATION. . Three years ago the impression of the members of the first Philip- pine mission was that the main objection in the minds of many .Americans to the immediate independence of the Philippines was the danger of foreign aggression. While this is entuely outside of the question as to whether we have complied with the requirements of the Jones law, it ma}' not be amiss to call the attention of those Americans to the great change in international affairs which has taken place since the visit of the last mission. FILIPINO APPEAL FOR FEEIiDOM. / THE WASHINGTON CONFERENCE. Wholesome relationship has especially been established in the Pacific area. The recent Washington conference has cleared away many doubts and misgivings. Surely, after that conference has been hailed the world over as a solid foundation for international peace, the United States can not, without showing lack of faith in her own work, now say that she will not grant independence to the Philippines for fear of foreign hostile designs. In the words of the President of the United States, that conference was called — to provide some means whereby just, thoughtful, righteous peoples, who are not seeking to seize something which does not belong to them, can Ua^o peaceably together and eliminate cause of conflict. While the Filipino people realize that the international situation is not a necessary part of the condition prescribed in the Jones law as a prerequisite to independence, they crave the distinction of becom- ing the first nation to take advantage of the new order of things brought about by the Washington conference. IRELAND, EGYPT, AND INDIA. To the favorable international atmosphere may be added the fact that the first of colonial powers is already reversing her former policies. She has granted recognition of freedom and equahty to Eeoj)les hitherto held as subjects and vassals. Egypt has regained er independence. The Irish people have been asked to enter into an agreement with England, looking to the establishment of a free State. Liberal institutions are now being established in India. TRIUMPH OF AMERICAN IDEALS. We see in all these events the gradual triumph of American ideals, especially of that fundamental American principle that declared that governments derive their just powers from the consent of the gov- erned. Hence we come to Arnerica in the full expectation that the United States can do no less than other nations have done to their dependen- cies; that she can not now refrain from practicing those principles which were initiated by her and followed by her sister nations; that she can not now refuse specific realization of those purposes and ideals, which found eloquent expression in her spokesmen both in times of war and in times of peaceful reconstruction; and that she will make the Filipino people a determining factor in the relationship that should exist between the United States and the only unincorporated and ' subject country now under the American flag. MISSION HAS FULL POWERS. We therefore submit our case with faith and confidence, frankly and without evasion. It is the case of the Filipino people whom in fact and in law we represent, for certainly under the present circum- stances no other agency can speak or act with as much authority on 8 FILIPINO APPEAL POR FEEEDOM. what the Filipino people want or on Philippine conditions in general as their duly accredited representatives. That is the very essence of representative government. THE TIME FOR INDEPENDENCE IS THE PRESENT. We reiterate that the present is the time for the United States com- pletely to discharge its obligations to the Philippines. The Filipino people have fulfilled their part in the covenant with America. Their relations with the United States are of the most cordial and friendly nature. If the independence of the Philippines could now be secured as an amicable agreement between the two peoples, nay, even as an act of magnanimity on the part of a sovereign power, how much would that mean for the peace of the world ! How much more would that add to the prestige of the United States when she again appears before the world as a champion of democracy and human liberty ! Very respectfully, Manuel L. Quezon, chairman on the part of the senate; Senators Pedro Guevara, Antero Soriano, Ceferino de Leon, Santiago Fonacier, Teodoro Sandiko. Sergio Osmena, chairman on the part of the house of representa- tives; Representatives Jose G. Generoso, Guillermo F. Pablo, Celestino Gallares, Vicente Llanes, Juan Nolasco, Emilio P. Virata, Proceso Sebastian, Pedro Abad Santos. Teodoro M. Kalaw, honorary member; Jorge B. Vargas, secretary of the mission. Maximo M. Kalaw, technical adviser; Wenceslao Trinidad, technical adviser; Jorge Bocobo, technical adviser; Antonio G. Sison, technical adviser; Arsenio N. Luz, technical adviser; Justo Lukban, technical adviser. ACTUAL CONDITIONS IN THE PHILIPPINES. I. General Data and Progress of the Philippines (1914-1921). AREA. There are 7,083 islands, ranging in size from the islet inhabited only by tropical birds to Luzon, with its million of people. The total land area of the Philippine Archipelago is 114,400 square miles. This is in excess of the combined areas of the States of New York, New Jersey, Pennsylvania, and Delaware. It is 7,000 square miles less than the area of Great Britain. Luzon has 40,814 square miles; Mindanao has 36,906 square miles. Next in order are Samar, Negros, Palawan, Panay, Mindoro, Leyte, Cebu, Bohol, and Masbate. CLIMATE. The Philippine Islands have a mildly tropical climate. The nights are cool, and sunstrokes are unknown. The temperature record for the past 30 years shows an average of 80°. In April, May, and June, the hot months, the mean average is between 83° and 84°. In November, December, January, and February, the cool months. FILIPINO APPEAL. FOE FREEDOM. ' 9 the mean average is between 77° and 79°. Baguio City, a summer resort, has a mean average maximum of 80° and a minimum of 53°. The recorded death rate per 1,000 whites in Manila for 1917 was 8.8 as compared with 16.5 for New York, 15 for San Francisco, 14 for Chicago, 18 for Glasgow, and 22 for Belfast. POPULATION. The total population of the Philippines, according to the census of 1918, is 10,314,310, of which 10,250,273 are Filipinos. Out of this 9,381,357 are Christians and 932,953 are non-Christians of all varieties — Mohammedans, 372,464; Buddhists, 740; Pagans, 402,790; and the rest belonging to other religions. The following is the classification according to citizenship : Filipino 10, 250, 273 Chinese 43, 802 Japanese 7, 806 American 5, 774 Spanish 3, 945 Enghsh : 1, 140 German 286 French 182 Swiss 125 Others 977 Total 10, 314, 310 POLITICAL SUBDIVISION. The Philippine Islands are divided into 1,289 municipalities and municipal districts, which compose 48 Provinces, 11 special Prov- inces, and 2 chartered cities. LITERACY. Literacy in the Philippine Islands in 1918 was 49.2 per cent of population over 10 years of age; in Spain in 1910, 40.7 per cent; in Porto Rico in 1910, 35.5 per cent; in Siam in 1915, 11.7 per cent; and in British India in 1911, 5.9 per cent. Persons with academic degrees in the Philippine Islands, 9,428, or 2.9 per thousand. Male population of voting age, 2,061,753. Of this 53.3 per cent are qualified to vote according to the organic law. GOVERNMENTAL REFORMS SINCE 1913. (a) Abolishment of the appointive commissioners or upper house of the Philippine Legislature. (b) Reorganization of the executive departments, providing for appearance of cabinet members in legislature, regrouping bureaus and ofiices along scientific lines, and unifying their responsibilities. (c) Establishment of a budgejb system ahead of the United States. (d) More autonomy granted Provinces and municipalities. PRESENT GOVERNMENT. All expenses of the Philippine Government are borne by the Filipino people. The passage of the Jones Act by Congress in August, 1916, gave the Filipinos a very large share in their own government. With the 10 • FILIPINO APPEAL FOR FREEDOM. exception of the offices of Governor General, vice governor, and insular auditor, all of the important executive and administrative offices in the islands are in the hands of native Filipinos. All mem- bers of both branches of the legislature are Filipinos, as are also the provincial and municipal officials. There has been established in the Philippines a stable government of, by, and for the Filipinos, a condition precedent to the granting of their independence. The time for America to fulffil its pledge has already come, and that time is now. JUDICIARY. The official records of the Supreme Court of the Philippines demonstrate that during the last two years preceding Filipino autonomy 25.1 per cent of the appealed decisions of the lower courts were reversed by the Supreme Court of the Philippines, while during the last two years of Filipino control of the government the reversals were only 20.8 per cent, or nearly one-fourth less, erroneous decisions under Filipino self-government than before that time. In 1913 there were 12,000 pending cases disposed of, while in 1921 the number rose to 16,000, or an increase of one-third. From 1907 to 1913, for a period of seven years before Filipino autonomy, the average yearly number of decrees of titles to land issued by the Philippine courts was only 1,935, while from 1914 to 1920, seven years of Filipino seK-government, the average yearly number was 12,396, or an increase of six times. EDUCATION. Education in the Philippines under Spanish system began with the early Spanish settlers. The University of Santo Tomas, in Manila, having to-day an attendance of over 700 students, is a quarter of a century older than Harvard. During the seven years preceding the appointment of a majority of Filipinos on the commission (1907-1913) 1P45,859,000 were spent for public education; in 1914-1920, ^78,094,000 were spent. In 1913 there were only 2,934 public schools; in 1920 there were 5,944. In 1913 there were only 440,050 punils; in 1921 there were nearly 1,000,000. ^ SOCIAL WELFARE. (a) The appropriation for medical aid to the poor in 1913 was ^1,548,317; in 1921 the sum was ^3,053,828. (b) In 1913 there were no dispensaries where the poor could be given medical treatment; in 1921 there were over 800. (c) In 1913 there were hardly 12 women's clubs; in 1921 there were 342. ROADS, In 1913 there were only 2,171.6 kilometers of first-class roads, 2,034.3 kilometers of second-class roads, and 3,118.3 of third-class roads in operation; in 1921 there were 5,066.2 kilometers of first-class roads, 2,044.8 kilometers of second-class roads, and 3,036.6 of third- class roads. (1 kilometer equals five-eighths of a mile.) FILIPINO APPEAL FOR FREEDOM. 11: AGRICULTURE. The total number of farms is 1,925,276, and 96 per cent of them are owned by the Fihpinos. Ninety-one per cent of the m*ban property (consisting of houses and lands) is owned by Filipinos. The cultivated area in 1920 was 3,276,942 hectares, as compared with 2,361,483 in 1913, or 38.7 per cent increase. COMMERCE. In 1913 the total foreign commerce was only ^202,171,484; in 1920 the sum was ^601,124,278. In 1913 the imports from the United States were about 50 per cent of the total imports of the Philippine Islands. Since that time gradual increase was recorded to the extent that in 1920 our imports from the United States repre- sent 70 per cent of the total imports. REAL PROPERTY. Since 1913 the number of parcels of taxable property in the regular provinces has an increase of 1,700,000, or more than 100 per cent mcrease. The volume of real properties subject to taxation has also an increase of over ^800,000,000, or about 280 per cent increase. II. Brief Historical Introduction. PRE-SPANISH PHILIPPINES. It is difficult to know the actual conditions of the Philippines with- out some reference to her past. The pre-Spanish history of the Phil- ippines is still shrouded in mystery. However, there are several outstanding facts which prove that while the islands might have been a part at some time or other of some Indian or Malayan empires, their connections were slight. They retained a great deal of the qualities of independent communities. One American investigator. Prof. Austin Craig, of the University of the Philippines, claims that a veritable native imperial family reigned in the islands before their discovery by Magellan in 1521, and that the first Spanish colonizers simply destroyed all records of such Philippine dynasty so as to facili- tate the conquest of the archipelago. THE PHILIPPINE REPUBLIC. Filipino dissatisfaction with Spanish misrule was shown by more than a hundred revolutions which, according to the same American professor, occurred in the Philippines during the Spanish regime. We may mention the most important of them, the revolt of 1896-1898. The last part of that revolution was held under the very eyes and with the help of American officials. It extended throughout the entire Philippines, having wrested from Spanish hands practically every foot 01 Philippine territory except Manila, which was in the hands of the Americans. It set up the first republic in the Far East based on a constitutional government. The Philippine republic has mer- ited the commendation of such prominent Republicans as the late Senator Hoar and John Barrett, ex-director of the Pan American Union. 12 ruiprN^o appeal fob fbeedom. The end of the republic was brought about by the Filipino-American war, which lasted for three years. It was, naturally, a one-sided struggle, but it was a struggle which showed the firmness and the desire of the Filipino people for an independent existence. They wanted an independent republic. Had the Filipino people received assurances that America would ultimately free them, the war would have been avoided. INDEPENDENCE ASPIRATIONS. s Defeated, the Filipino people laid down their arms determined that what they had failed to gain in war they would secure through the justice, magnanimity, and square dealing of the American people. They then began their campaign for independence with peaceful means. They accepted American government, anxious to prove to the American people not only their political capacity but their untir- ing desire to be free. At first the independence movement was not an organized one, because in the early years of American occupation a law had been passed by the Philippine Commission which prac- tically prohibited all agitation for independence. The only political party which could very well exist under these conditions was the Federal Party, which advocated statehood and permanent annexation to the United States. This party, however, soon saw the unpopu- larity of its stand, for it could not find supporters either in the Philip- pines or in the United States, and so as soon as conditions permitted the advocacy of separation it left out the statehood plan and advo- cated independence after a period of preparation. In the meanwhile a strong independence party had been formed called the Nacionalista Party, and at the first national election to the Philippine Assembly in 1907 this party won popular favor. If there was any doubt as to the attitude of the Filipino people on independence this was dispelled by the action of the Philippine Assembly, the first national representative body to be convoked fol- lowing American occupation. At the end of the first session this representative body unanimously ratified the closing address of Speaker Osmena on the question of independence. The speaker, in part, had said: Permit me, gentlemen of the chamber, to declare solemnly before God and before the world, upon my conscience as a deputy and representative of my compatriots, and under my responsibility as president of this chamber, that we believe the people desire independence, and that we believe ourselves capable of leading an orderly existence, efficient both in internal and external affairs, as a member of the free and civilized nations. By virtue of the Philippine bill passed by Congress in 1902 the Philippine Assembly was allowed to send a representative to Wash- ington to voice the aspirations of the Filipino people. In 1907 the Hon. Pablo Ocampo was sent to Washington as Resident Commis- sioner, who, in pursuance of the mandate of the assembly, advocated the independence of the Philippines. His successors, especially the Hon. Manuel I.. Quezon, who was Resident Commissioner froni 1909 to 1916, continued with vigor the campaign for independence in the United States. FILIPINO APPEAL FOR FREEDOM. 13 liARLY AMERICAN POLICY TOWARD THE PHILIPPINES. America, on the other hand, soon announced a poHcy of attraction. She adopted the poHcy of extending step by step the governmental powers to the Fihpino people. President McKinley, the man most responsible for the acquisition of the Philippines, said in the very beginning of American occupation: The Philippines are ours, not to exploit but to develop, to civilize, to educate, to train in the science of self-government. In his instructions to the first Philippine Commission on the 20th of January, 1899, he expressed the hope that the commissioners would be received as bearers of ^Hhe richest blessings of a liberating rather than a conquering nation. " Doctor Schurman, president of the first Philippine Coromission, construed the American policy to mean — Ever increasing liberty and self-government * * * and it is the nature of such continuously expanding liberty to issue in independence. President Taft, while civil governor of the Philippine Islands, on the 17th of December, 1903, said: From the beginning to the end of the state papers which were circulated in these islands as authoritative expressions of the Executive the motto that "the Philippines, are for the Filipino and that the Government of the United States is here for the purpose of preserving the Philippines for the Filipinos, " for their benefit, for their elevation, for their civilization, again and again appear * * *, Whether an autonomy or independence or quasi independence shall ultimately follow in these islands ought to depend solely on the question: Is it best for the Filipino people and their welfare? When Mr. Taft was Secretary of War in April, 1904, in the course of a speech upon the Philippines he said : When they — the Filipinos — have learned the principles of successful popular self- government from a gradually enlarged experience therein we can discuss the question whether independence is what they desire and grant it or whether they prefer the retention of a closer association with the country which, by its guidance, has unselfishly led them on to better conditions. In 1908, after the Philippine Assembly had been opened, President Roosevelt, in his message to Congress, said : I trust that within a generation the time will arrive when the Filipinos can decide for themselves whether it is well for them to become independent or to continue under the protection of a strong and .disinterested power, able to guarantee to the islands order at home and protection from foreign invasion. President Wilson, in a message to the Filipino people delivered by Governor Harrison in Manila October 6, 1913, said: We regard ourselves as trustees acting not for the advantage of the United States, but for the benefit of the people of the Philippine Islands. Every step we take will be taken with a view to the ultimate independence of the islands and as a preparation for that independence. And in his message to Congress on December 2, 1913, the President said: By their counsel and experience rather than by our own we shall learn how best to serve them and how soon it will be possible and wise to withdraw our super\ision. THE JONES LAW AND ITS PROMISE. In 1911 the Democratic Party, which had advocated independ- ence, secured control of the American House of Representatives, and the following year the chairman of the Committee on Insular 14 FILIPIKO APPEAL FOR FREEDOM. Affairs, Congressmen William Atkinson Jones, reported a bill pro- viding for a qualified independence within eight years and for com- plete independence in 1921. In 1914 a bill was passed by the House of Representatives providing for independence as soon as a stable government could be established in the islands. The bill, however,, was crowded out of the calendar in the Senate and failed to be passed- The independence movement was constantly gaining ground, and two years afterwards, in February, 1916, when Congress again took up the Philippine question, the Senate passed the so-called Clarke amendment, which would grant the Philippines independence within four years, although the time might be extended upon the advice of the President to Congress. It was contended in the House of Repre- sentatives, however, that it would be unT\dse to set a definite date for independence, for nobody knew what the situation would be at the time. What the House did was simply to repass the Jones bill it had passed in 1914. The Senate receded from its position and passed the House bill, which thus became the formal pledge of the American people to the Filipino people. The title of the Jones law is ''An act 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." The declaration of purpose is con- tained in the following preamble: Whereas it was ne\'Ter the intention of the people of the United States in the incip- iency of the War with Spain to make it a war of conquest or for territorial aggrandize- ment; and ^^^lereas it is, as it has always been, the purpose of the people of the United States to withdraw their sovereignty over the Philippine Islands and to recognize their independence as soon as a stable government can be established therein; and Whereas, for the speedy accomplishment of such purpose, it is desirable to place in the hands of the people of the Philippines as large a control of their domestic affairs as can be given them without in the meantime impairing the exercise of the rights of sovereignty by the people of the United States in order that by the use and exercise of popular franchise and governmental powers they may be the better prepare ' to- fully assume the responsibilities and enjoy all the pri^dleges of complete independ- ence: Therefore * ^ *. The Jones law was received by the Filipino people as the real pledge of the American people, for the other statements of American Presidents were mere executive opinion not necessarily binding on the United States. The Jones law has become a virtual constitutional compact between the American and Filipino peoples, by means of which the Filipinos have accepted a temporary government under American sovereignty ,. subject to the conditions: First, that it shall be autonomous, or chiefly in the hands of Filipinos; second, that American sovereignty shall not now be impaired; and, third, that it shall be only prepara- tory to a complete independence, such independence to be granted '•'when a stable government can be established in the islands." It is, to quote the words of its author, the late Congressman Jones, " the everlasting covenant of a great and generous people, speaking through their accredited representatives, that the}^ (the Filipinos) shall in due time enjoy the incomparable blessings of liberty and freedom." FILIPINO COOPERATION DUEING THE WAR. After the passage of the Jones law the FiHpino people began the establishment of the stable government demanded by Congress FILIPINO APPEAL FOR FREEDOM. 16 as prerequisite to the granting of independence. Shortl}^ afterwards the United States entered the war and immediately all agitation for independence ceased. It was deemed that an independence campaign during the war might embarrass the United States. The Filipinos responded to the confidence reposed in them by the Government of the United States by themselves offering the service of 25,000 men. The Filipino people contributed a submarine and a destroyer to the fleet of the United States, and 6,000 of their men served in the United States Navy as volunteers. Four thousand Filipinos in Hawaii, who could have claimed exemption from the draft under the citizenship clause of the draft law, insisted on being enrolled under the Stars and Stripes. With the limited resources of the Philippines, poor as the Filipino people are, compared with the United States, with the aid of American residents in the islands, they gave half a million dollars to Red Cross funds and subscribed nearly $20,000,000 for Liberty bonds. The Philippine allotment to the third Liberty loan was only S3, 000, 000, but $4,625,000 was sub- scribed. The allotment to the Fourth Liberty loan was $6,000,000, but $12,123,000 was subscribed. ''No other American territory," said Governor General Harrison, ''has been more loyal to the United States than the Philippines." Upon the ending of hostilities in Europe the final adjustment of the Philippine independence question became the topic of political discussion in the Philippines. It was thought that the time had come, now that the United States had ended its war mth Germany , to take up the Philippine question for its final definite solution. THE DECLARATION OF PURPOSES. On March 17, 1919, the Philippine Legislature passed the "Decla- ration of purposes," which officially stated the attitude of the Filipino people on this vital problem. It was the authoritative voice of the Filipino people addressing the United States and the world. What the Filipino people said in this declaration of purposes was, briefly, that the time had come for the final and definite adjustment of the independence question. They reiterated their firm belief in the good faith of the American people in extending the blessings of self-government and holding out generous promises of independence. They referred to the Jones law as a veritable pact or covenant entered into between the American and Filipino peoples whereby the United States promised to recognize the independence of the Philippines as soon as a stable government should be established in the Philippines. They then solemnly stated that they had already performed their part of the covenant with America, that there is now a stable government in the Philippines satisfying the conditions of stability required by the United States of other countries, and that therefore it was now for the American people to perform their part of the covenant. The declaration of purposes read: The Philippine question has reached such a stage that a full and final exchange of views between the United States of America and the Philippine Islands has become necessaiy. We need not repeat the declarations respecting the national aspirations of the Filipino people. Such declarations have been made" from time to time in the most fi-ank and solemn manner by the constitutional representatives of the Philippine nation and are a matter of permanent record in public documents covering more 16 FILrPINO APPEAL FOR FREEDOM. than a decade of persistent efforts, particularly during the last three years. America, on her part, has been sufficiently explicit in her purposes from the beginning of her occupation of the Philippines. * * * In applying the principles enunciated in documents and utterances on the Philip- pines to the conditions now existing in the islands, the Independence Commission will find the following facts: That there exists at present in the Philippine Islands the conditions of order and government which America has for nearly a century and a half required in all cases in which she has recognized the independence of a country or the establishment of a new government, not even excepting the case of General Huerta's government in • Mexico, which she refused to recognize because it was stained with blood and founded on intrigue, violence, and crime. That there exist likewise in the Philippines all the conditions of stability and guaranties for law and order that Cuba had to establish to the satisfaction of America in order to obtain her independence, or to preserve it, during the mihtarv occupation of 1898-1903 and during the intervention of 1906-1909, respectively. That the "preparation for independence" and the "stable government" required by President Wilson and the Congress of the United States, respectively, contain no new requisite not included in any of the cases above cited. That these prerequisites for Philippine independence are the same as those \irtually or expressly established by the Republican administrations that preceded President Wilson's administration. Therefore, so far as it is humanly possible to judge and say, we can see only >one aim for the Independence Commission, independence; and we can give only one instruction, to get it. Thus America, in adding another glory to her banner by establishing the first really democratic republic in the east, will apply a second time, generously and freely, the same measure of humanity and justice that she applied in the case of Cuba. The representative of the American Government in the Phihp pines who supervised the establishment of the Government under the Jones law, Governor General Harrison, has concurred in the claim of the Philippine Legislature as to a stable government. He reported to Congress through the joint committees which heard the Philippine mission that there was abeady in the Philippine Islands the stable Government demanded by Congress, namely, '^ a government elected by the suffrages of the people, which is supported by the people, which is capable of maintaining order and of fulfilling its interna- tional obligations." President Wilson in his farewell message to Congress officially cer- tified that the Filipino people have already performed the condition imposed upon them as a prerequisite to independence and recom- mended the immediate granting of independence. THE REPUBLICAN PARTY AND THE JONES LAW. The coming of the Eepublican Party does not alter the constitu- tional position of the Filipino people. The Republican Party is just as much responsible for the present independence policy as the Democratic Party. T^Tiile the Jones law was passed during a Democratic administra- tion, the fundamental policy it sets forth — the establishment of a stable government as a prerequisite to independence — is eminently a national policy. It was the condition imposed by American Presidents upon the struggling peoples of South America. It was the policy of Presidents Grant and McKinley. It was President Grant who as early as 1875 expressed the idea that as soon as the Cuban people had set up a stable government their independence would be recognized. This policy was supported by President McKinley. When he urged Congress to declare war on Spain to liberate Cuba he definitely stated that as soon as the Cuban people FILIPINO APPEAL FOR FREEDOM. 17 had established in the island ''a stable government, capable of main- taining order and observing its international obligations, insuring peace and tranquilHty and the security of the citizens as well as our own/' Cuban independence would be recognized. The Cuban people were told by the Secretary of War, Mr. Root, through the military governor, Gen. Leonard Wood, to establish '^ a stable, orderly, and free government"; and as soon as this was done, as soon as the Cuban people had elected its officers and established a govern- ment capable of maintaining order and fulfilling international obli- gations, then it was declared that there was a stable government in Cuba and American sovereignty was withdrawn. The Democrats simply adopted the Republican policy for the recognition of Cuban independence and applied it to the Philippines. The phrase ^^ stable government" was first used in the Democratic platform in 1900 drafted by Mr. Bryan. That platform read, in part, as follows: We favor an immediate declaration of the Nation's purpose to give the Filipinos, first, a stable government; second, independence; and, third, protection from outside interference. Mr. Bryan confessed that he just borrowed that policjr from the Republican record in Cuba, and in accepting the nomination for the Presidency he declared that if elected he would recommend to Con- gress the establishment of a stable form of government in the islands, just as we are now establishing a stable form of government in Cuba," and the granting of independence ''to the Filipinos, as we have promised to give independence to the Cubans." That policy has been carried in practically every Democratic platform since 1900 until it was, with the help of the Republicans themselves, as we have seen, inserted in the Jones law in 1916. ^ The Filipino people, on the other hand, remain firm in their de- cisive attitude on the Philippine question. All political parties are committed to the immediate, complete, and absolute independence of the Philippines. The declaration of purposes has been ratified by every subsequent legislature, and hence it continues to be the great independence charter of the people. It is the guide of the present Philippine Parliamentary Mission. THE GOVERNMENTAL STEPS TAKEN. In obedience to the administrative policy extending governmental powers to the people, liberal steps were taken from time to time. At first municipal governments were established in the islands; then came provincial governments. The Filipinos were also given initial participation in the central government with the appointment of Filipino members in the commission and in the supreme court. In 1907 an elective assembly was convened to participate in lawmaking. With the coming of the Democratic Party into power, this policy of extending self-government was more rapidly pursued. In October, 1913, President Wilson appointed a majority of Filipinos on the commission. With the control of the Filipinos in the two branches of the legislature, the upper house having both legislative and ex- ecutive duties, a substantial amount of autonomy may be said to have been established in the Philippine Islands. H. Doc. 511, 67-4 2 18 FILIPINO APPEAL POR FREEDOM. After three years of experiment with a FiHpino-controlled legisla- ture, another more decisive step was taken in the direction of self- government. This was the enactment of the Jones law, often called ''the Philippine autonomy act," in 1916. The Jones law is the cul- mination of the different steps taken by the American Government from the time of President McKinley, when he enunciated the policy of teaching the Filipinos the science of self-government. It gave the Filipinos an elective senate, thus completing their control of legisla- tion, subject to the Governor General's veto power. It also author- ized the Philippine Legislature to reorganize all the executive de- partments, with the result that to-day all the political offices, with the exception of the Governor General and the Vice Governor, are in the hands of the Filipinos. But the Jones law, as we have seen, did not only extend in a very large measure the autonomy of the Filipinos but also contains in its preamble the solemn promise of independence. The following statement of conditions chiefly relates to the period covering the years 1914 to 1921, inclusive, in which the direction of governmental affairs was chiefly left to the Filipinos: III. Governmental Eeforms. (A) THE abolishment OF THE COMMISSION. When the American Government decided for the first time to try the experiment of colonial government in the Philippine Islands, they had no light to guide them save the experience of those European nations which had colonies in far eastern Asia. Ignorant of the Philippine conditions, the American statesmen at first thought that the problem of governing the islands was similar to the task of the European powers in governing their neighbors — Java, the Malay States, and India. Their first idea was, therefore, to study the colonial systems of these countries. One of the first public documents printed by the American Congress in 1899, accompanying the treaty of Paris, was devoted to the study of the colonial systems of the Orient for their ap>plication in the Philippines. But upon a closer observation of Philippine conditions they found that the principles of European colonization would not work in the islands not only because American aims were more altruistic but because political conditions were entirely different. Koughly, colonial government in our neigh- boring countries is based on the existence of native rulers, rajahs or princes, whose authority has been for centuries recognized by the natives themselves. Apparently and ceremoniously the native princes still rule, but in reality it is their respective European '' advisers " or '' resident generals " who are the actual rulers. Instead of establishing a new form of government, abolishing the rajahs and native rulers, the Dutch and the English simply improved the native institutions, using these same rulers as instrumentalities through which to impose their own will. Now these conditions do not exist, and have not existed in the Philippines for more than 200 years. The greatest political service of Spain to the Philippines was the abolishment of this native system of government and the extinction of royal or princely families. The establishment of Christianity in the islands sowed the first seeds of equality and democracy, and the centuries of Spanish domination FILIPINO APPEAL FOR FREEDOM. 19 completely effaced from the Christian population all blood and family distinction. Upon the commg of the Americans the Philippines had at least a system of local government by suffrage, however defective and limited in practice it was. The work of propaganda for reforms in Spain had brought to the front national leaders, recognized by all the Christian Filipinos not for their princel}^ blood, for they had none, , but for their unquestioned ability. The leadership and martyrdom V of oiu- national hero, Jose Rizal, was a proof that the Filipinos could look at some one man as a national guide and inspiration. They had long discarded the tribal conception of social organization. The establishment of a Philippine Republic and the subsequent war mth the United States made it even more apparent that the people could establish a national government after the occidental type. It was for these reasons that the American statesmen who had been studying the goverimaental forms of Java and the Malay States desisted from their original idea of applying this type of government in the Philippines. There was a potential democracy in the islands. Without belittling what America has done for the Pliilippines, there is no getting awa}^ from the fact that the progress toward democracy in the Philippines has been due mainly to the materials that America found there. This made America's task a great deal easier. That was why even the early military governors of the Philippines found no difficulty in continuing to a large extent the municipal government of the islands, giving it a larger autonomy. The first local elections in the Philippines took place under the supervision of military officers. After the extension of municipal autonomy came the establishment of provincial government under a board composed of an elective governor and two other provincial officials appointed by the Governor General. Following the popular demand, the provincial government was again changed, and com- plete provincial autonomy was given under a provincial board totally elected by the people. The Congress of the United States, in passing the organic act of 1902, decided to call a national assembly in 1907 to participate in the national la^anaking. Being the only repre- sentative governmental organ, this assembly became the exponent of the ideals and aspirations of the Filipino people. It typified all the ideals of the people, and every step toward a more liberal form of government was advocated and fought for by that body. It insisted that, being the popular body, it should initiate all appro- priation bills. It also fought for the control of the Resident Com- missioners in the United States. The law provided that the two representatives in Washington should be elected by the two houses, but inasmuch as the intention was to send representatives of the Filipino people and not of the administration and because the upper house was controlled by Americans the assembly argued that it should have the final say as to the choice of these men. There were continuous conflicts on other governmental matters between the lower houses and the appointive commission. Deadlocks were constant on the appropriation bills, the representatives of the people being solidly opposed to the financial policies of the American- controlled upper house. The provision in the law to the effect that in case of such deadlocks the total sum of the previous appropria- tion law would, upon the advice of the Governor General, be con- 20 FILIPrN'O APPEAL FOB FBEEDOM. sidered appropriated for the ensuing year left the popular chamber with very little financial power. Add to this the fact that the upper house, or the Philippine Commission, had exclusive jurisdic- tion over the non-Christian parts of the archipelago, almost one- thu'd of the total area of the islands, and we may know just how much power the assembly had. The government then established, the mixture of a representative institution and an irresponsible executive and administration, was hence very unsatisfactory. That type of government has failed wherever it has been established. It failed in the early English colonies, where, as in the Philippines, the lower house became the stronghold of the people and the 2:overnor and his coimcil the representatives of the Crown. It failed in Canada, where because of threatened separation from the mother country the system had to be completely aboHshed and a respon- sible government established, a govermnent wherein not only the lower house is subject to the people's caU but also one in which the chief executive merely acts as a passive and ceremonial figure, leaving all governmental affairs in the hands of a select body, the cabinet, responsible to the people or their representatives. The defect of the system, noticeable even after a majoritv of Filipinos had been given control of the upper house, was one of the reasons which led the Congress of the United States in 1916 to enact the Jones law, abolishing the commission and establishing the senate in its stead, and giving the Philippine Legislature power to reor- ganize the executive departments. (b) the eeorganizateon of the executive departments. There were several reasons why the reorganization of the executive departments was imperative. In the first place, the Jones law author- izes such reorganization, and it was necessary to ratify in the statute books of the Phihppines the new executive power granted to Filipinos to make the departmental secretaries responsible to the legislature. In the second place, it was urgent that there be a more logical and scientific regrouping of bureaus and offices. This need had long been felt even before the passage of the Jones law, and for that purpose the emergency board provided in the Philippines appropriation law of 1915 was authorized to act as an efficiency board ''to investigate and analyze as minutely as possible the organization of the bureaus of the insular government for the purpose of determining the utihty of each of them, the possibihty of their improvement by ehminating all duplication of work * * * and in general indicating such changes in the direction and organization of the bureaus as will tend to sim- plify the system of work followed and result in economy and in- creased efficiency." In the third place, it was necessary to provide for a harmonious action and cooperation between the executive heads and the legislature. -.Ind, in the fomth place, it was felt that the new department heads should have more authority and power over the offices and bureaus imder them. These were on the whole the problems which were met by the re- organization act. The reorganization act, as finally passed (act No. 2666, as amended by act No. 2803 and incorporated as Chapter V in the administrative code) provides several means whereby the responsibility of the execu- FILIPINO APPEAL FOE FREEDOM. 21 tive heads to the legislature can be effected. The secretaries of de- partments, excepting the secretary of public instruction, are ap- pointed at the beginning of each legislature and with the consent of the Philippine Senate instead of for good behavior as before. This, by inference, means that the executive heads are to be appointed after each triennial election, and that they are to be chosen in obedi- ence to the popular will as expressed in such election. Members of the legislature can become at the same time cabinet heads. It is true, however, that because of the provision of the Jones law prohibiting members of the legislature from occupying positions created by them, no cabinet post was open to a member of the legislature except the secretaryship of the interior, and this was later filled by a senator; but in the subsequent elections all the cabinet posts, if deemed neces- sary,, could be filled by legislative members. Secretaries of depart- ments may be called by either of the two houses of the legislature for the purpose of reporting on matters pertaining to their departments. The importance of this should not be overlooked. As expressed by Senator Palma, this provision ^'may not look like very much on paper, but in reality it signifies a great deal. The department heads will not only have to give the information required of them, but being often subjected to minute interrogation they will have to explain and defend their official acts. If the houses can demand of them that they give an account of their official acts, they are responsible to the houses, though ultimately responsible to the Governor General." Acts 222 and 1407 of the Philippine Commission, which were responsible for the organization of the executive departments up to 1916, left a great deal to be desired in the way of a logical and scien- tific arrangement of bureaus. The departments, as created by the first act, were denominated the department of the interior, depart- ment of commerce and police, department of finance and justice, and department of public instruction. Senator Palma said : The mere mention of the names given to these departments shows that organization to be theoretically defective. No country in the ci\dlized world has organized a de- partment of commerce and police, because commerce and police involve completely contrary and antagonistic ideas. The commerce is essentially pacific, while the police is essentially warlike. Nor is it good logic to join finance and justice, because, as the chaii'man of the select committee which has had this bill under examination said very well yesterday, finance and justice do not imply homogeneous ideas nor do they include identical fimctions: on the contrary, our experience leads us to af&rm that the jurist does not always have a thorough knowledge of finance, but that in the ma- jority of cases lawyers are the poorest financiers of the world, at least so far as the management of theii' own interests is concerned. Act No. 1407 reorganized the departments and bureaus and offices of the govern- ment, abolishing certain bureaus and offices and creating others in their stead. This organization was not better than the pre^^.ous one, because under it bureaus whose actiiT-ties were very dissimilar were kept in the same department. In the department of the interior the bureau of health remained side by side with that of lands, and the bureau of agiiculture with that of quarantine service. In the depart- ment of commerce and police the constabulary continued side by side with the bureau of public works, and the bureau of posts together with that of port works. The de- partment of finance and justice still performed its legal functions at the same time as the work of collecting customs dues and internal-revenue taxes. The department of public instruction continued to solve educational problems and have charge at the same time of the bureaus of supply and printing, a rare combination, indeed. In the reorganization of the departments the plan of the efficiency board was chiefly followed. Instead of the old four departments, there were to be six departments, to correspond to ''the six principal 22 FILIPINO APPEAL FOR FREEDOM. purposes which a fairly well-organized government has to accom- plish/' to wit: (1) The political direction of the various local administrative units, such as depart- ments, pro"\dncial and municipal governments, and special governments (the depart- ment of the interior); (2) The guardianship of the State over the mental development and physical welfare of the citizens (the department of public instruction); (3) The collection of the public revenues and administration of the finances and business of the government (the department of finance) ; (4) The enforcement of the law and maintenance of order and safeguarding of the citizens and their rights (the department of justice); (5) The guardianship in connection with the preservation of the natural resources and the development of its som'ces of wealth (the department of agriculture and natural resoiu'ces); and (6) The carrying out of such work and services as can not be performed by private citizens, conducive to the common welfare and public prosperity (the department of commerce and communications). We have stated that the fourth reason for the reorganization was to give greater control and power to the department heads. Hereto- fore each bureau was almost a department by itself. It used to send its estimates directly to the legislature, through the executive secre- tary, and the department head had almost nothing to do with it. It had great power of making regulations. The control of the depart- ment head was very slight. The reorganization act, therefore, as amended by act No. 2803 (sec. 79-c of the Administrative Code), provides that the department head shall have direct control, direc- tion, and supervision over all bureaus and offices under his jurisdic- tion, and may, any provision of existing law to the contrary not- withstanding, repeal or modify the decisions of the chiefs of said bureaus or offices when advisable in the public interest. Even in the matters of appointment and removal and the enact- ment of regulations the department head has been given control. He has the power '^to promulgate all rules, regulations, orders, circulars, memorandums, and other instructions^' for the ^^ proper working and harmonious and efficient administration of each and all of the offices and dependencies of his department." Chiefs of bureaus can pro- mulgate circulars of information or instructions only upon authoriza- tion by the department head. The department head also, upon the recommendation of the chief of the bureau or office, has the power to appoint all subordinate officers and employees whose appointment is not expressly vested by law in the Governor General. He may remove or punish them, except as especially provided otherwise in accordance with the civil service law. The department head also may change the distribution of the employees or subordinates among the several bureaus and offices. Under the former executive organization the Governor General was a department secretary himself and had under his control the executive bureau, besides the bureau of audits and the bureau of civil service. Under the new law the executive bureau was trans- ferred to the department of the interior, with the provision that the foreign correspondence and the giving of passports would be retained in the Governor General's office. All executive functions of the PhiUppine government, as provided by the Jones law, are subject to the supervision and control of the Governor General, and it was through liberal interpretation on the part of Governor Harrison that a great deal of the control and super- FILIPINO APPEAL FOR FKEEDOM. 23 vision of the department was delegated to the other department heads. Section 74 of the Administrative Code as amended states, after a repetition of the Governor's ultimate and supreme executive power, that " the departments are established for the proper distribu- tion of the work of the executive, for the performance of the functions expressly assigned to them by law, and in order that each branch of the administration may have a chief responsible for its direction and policy. Each department secretary shall assume the burden and responsibility of all activities of the government under his control and supervision." There is in each department an undersecretary to aid the secretary of the department in the performance of his duties. The under- secretary holds his office during good behavior, for unlike the secre- taryship there is no provision for a periodic renewal. He performs the duties of the secretary in the latter's absence. Upon the inability of both the secretary and the undersecretary to act, the Governor General may temporarily designate a secretary or undersecretary of another department to perform the duties. Besides the six regular departments of the government for adminis- trative purposes, there are four other officials who have depart- mental authority over the ofiices under them. They are the Governor General, who has departmental authority over the bureau of audits, the bureau of civil service, and over all other offices and branches of the service not assigned by law to any department; the president of the senate and speaker of the house of representatives, who are department heads for the ofiicers and employees of the senate and house, respectively; and the chief justice of the supreme court, who is the department head of employees in the supreme court. The following are the bureaus and offices under their corresponding departments : Office of the Governor General: Bureau of audits, bureau of civil service, Philippine National Guard. Department of the interior: Bureau of non-Christian tribes, Philippine General Hospital, board of pharmaceutical examiners and inspectors, boards of medical, dental, and optical examiners, board of examiners for nurses, executive bureau, Philippine Constabulary, commissioner of public welfare, cities of Manila and Baguio. Department of public instruction: Bureau of education, Philip- pine health service, bureau of quarantine service. Department of finance: Bureau of customs, bureau of internal revenue, bureau of the treasury, mint of the Philippine Islands, bureau of printing. Department of justice: Bureau of justice, courts of first instance and inferior courts, general land registration office, public utility commission, Philippine Library and Museum, bureau of prisons. Department of agriculture and natural resources: Bureau of agri- culture, agricultural colonies, bureau of forestry, bureau of lands, bureau of science, weather bureau. Department of commerce and communications: Bureau of public works, bureau of posts, bureau of supply, bureau of commerce and mdustry, bureau of labor, bureau of coast and geodetic surve}^. The heads of the six departments constitute the cabinet. For- merly, by an executive order of the Governor General it acted as his advisory board. It met once a week for the discussion of depart- 24 FILIPINO APPEAL. FOR FREEDOM. mental measures. With the creation, however, of the comicil of state the cabinet as a miit ceased to act as an advisory body of the Governor General. (C) THE COUNCIL OF STATE. The intent and spirit of the Jones law is to grant the Filipino people the largest amount of self-government compatible with American sovereignty and to create a government in which the '^ counsel and experience" of the people will play the greater part. Now, what are the means or instrumentalities by means of which the Fihpinos as a people can exercise that power of self-government and can give their ^^ counsel" in the government of their country? Heretofore, when there was only one governmental organ respon- sible to the Filipinos, the Philippine Assembly, everybody looked to this organization as the faithful exponent of the ideals and aspirations of the Fihpino people. It represented the national ^'counsel" of the people. Its speaker was considered the most prominent Filipino official, for he exhibited the double representation of his district and of the entire assembly. The Filipino people looked to the speaker for the success or failure of any part they were taking in the govern- ment. Under the Jones law two other factors or instrumentalities of government were given to the Filipinos : To the lower elective house was added an elective senate, and the Phihppine Legislature was given the power to reorganize the executive departments, with the exception of the department of public instruction. This latter pro- vision has been interpreted as meaning that henceforward all the heads of departments should be Filipinos with the exception of the secretary of pubhc instruction. If the new autonomy meant any- thing, it was that these three organs of government — the lower house, the upper house, and the Filipino executive heads — should be respon- sible mainly to the Filipino people instead of to the President of the United States. The fundamental defect of the Jones law is the absence of respon- sible and undivided leadership in these three organs of government and the lack of one single body which can properly represent and effectively carry out the '^counsel" of the nation. Five years ago, upon the passage of the Jones law, attention was directed to that urgent need. The Filipino elements in the government composed of the secretaries of departments and the houses of the legislature must have a coordinate understanding, a common leadership. There, was first an idea to place party leadership outside the legis- lative chambers. It was also felt that the important executive posi- tions should now be filled by responsible leaders. A movement was therefore started to make the secretaryship of the interior the posi- tion of leadership of all the three organs of government granted to the Filipinos. In a caucus of the majority members of both houses, held on December 22, 1916, a resolution was passed urging Speaker Osmena to leave the speakership and accept the secretaryship of the interior. Speaker Osmena, after mature deliberation, declined the secretary- ship of the interior in a long memorandum submitted to the caucus of the majority members of the two houses on January 3, 1917. He said that he was ''entirely in accord with the principle of a united FILIPINO APPEAL FOR FREEDOM. 25 and responsible leadership, " but that under the then existing circum- stances he feared that the leadership should not be in the executive department. The problem of an open and responsible leadership thus remained unsolved. To solve it and to have a definite body which could advise him on matters of importance, with the acquiescence and support of Filipino elements in the government, the Governor General decided to create a council of state. He first announced his desire in his mes- sage of October 16, 1918, when he said that he was ''now ready to establish a council of state to include the authorized spokesmen of the two houses of the legislature in addition to the members of the cabi- net to advise the Governor General on matters of public importance." An executive order was subsequently issued to that effect, and the members of the cabinet and the presiding officers of both houses were appointed members of the council of state ''to aid and advise the Governor General on public matters." In a sense, however, the council of state was not a new creation. Ever since the establishment of civil government here there has always been some sort of a coimcil of state in the Philippines. It is not meant that there have been bodies in the past with the name of "council of state," but that the principle underlying the present council of state has always been foUowed by American Governors General. Our governors have always endeavored, in their government of the Philippines, to secure the advice of the most representative Filipinos that they could get. That was the reason back of Governor Taft's preliminary steps when he called into power three prominent Filipinos, Doctor Tavera, Mr. Legarda, and Mr. Luzuriaga, the leaders of the only political party in existence — the Federal Party — and had them appointed to the commission. Governor Taft began the practice of consulting the Filipinos whom he thought represented the best opinion of the people of the Philippine Islands. This practice was inspired by President McKinley, who always told the American people that American sovereignity was acceptable to and in accord- ance with the wishes and aspirations of the great masses of the Filipino people. What the leaders of the Federal Party were at that time to the civil governor the present leaders of the Nacionalista Party, as represented in the council of state, are to the Governor General, with only two incidental differences. The leaders of the Federal Party were not elected by the people, directly or indirectly, and their power was also smaller. Because these Federal leaders were not elected by the people it was not certain that their advice and counsel was approved by the people. As it turned out, in the first national election of 1907 the Filipino people repudiated them and elected a majority of the opposing party to power; but save for these incidental differences the principle back of the practice of securing the counsel of prominent Filipinos in the government of the Philippines was one and the same. It is the same principle underlying the present council of state. The usefulness of the council of state as a coordinating and advisory body is recognized by the present Governor General (Gen. Leonard Wood), who immediately upon his inauguration publicly stated that there would be no change in the council of state, and has since been meeting the council as frequently and regularly as his predecessor. 26 filipino appeal for freedom. (d) our budget system. Nearly all struggles for constitutional government have centered on the control of the public purse. It was the greatest issue in the strug- gle between King John and the English barons. As a result of the struggle the Magna Charta provided that '^no scutage (tenant's tax) or aid (contribution) shall be imposed except by the common council of the nation." In the American Revolution the battle cry was that taxation without representation is tyranny. That voice was re- echoed in France when in 1789 the people's control over the revenue was declared to be one of the '^prerogative laws of the State." The Philippine bill of 1902 provided that all appropriations must be made by law. (Sec. 5, par. 15.) This apparently gave the Philippine Assembly, established in 1907, coequal power with the Philippine Com- mission on money matters. But such was not the fact. The other provision, that in case of a deadlock on an appropriation bill the entire sum appropriated the year before shall be considered as appropriated for the ensuing year (sec. 7, par. 3), gave the Governor General al- most dictatorial power in fiscal matters. He could create offices in defiance of the opposition of the representatives of the people and could dispose in whatever way he wished of all the money of the gov- ernment so long as the entire sum did not exceed the sum previously appropriated. Thus, while other popular legislative bodies had the distinction of commanding and controlling all money bills, serving thereby as a great check upon the executive, the Philippine Assembly was deprived of tliis function and was, as a result, a considerably weaker body than most legislative assemblies. Under the circumstances the budget system could not have been established. There was no executive responsible, or who could be made responsible, to the Philippine branch of the legislature and to whom the preparation of the budget could be intrusted. Nay, it was even more advantageous for the Filipino people to demand one principle of the congressional system — the initiation of all money bills in the lower house. This demand, after a long struggle with the commission, was gained, although with no great advantage, for there being constant deadlocks between the two houses on appropria- tion bills, the fiscal power remained practically in the hands of the Governor General. That there was a lack of a systematized plan in our previous finan- cial system can be easily seen in the number and nature of appropria- tion bills annually passed by the Philippine Commission and the Philippine Legislature. From April 3, 1915, to March 16, 1916, for instance, 37 acts were passed carrying a total appropriation of over 38,000,000 pesos. These acts showed a lack of systematized group- ings of objects for the easy comprehension of the public or the legis- lature. The procedure followed in the submission and preparation of estimates was similar to the American Federal practice. Thirty days before the opening of the regular session each bureau chief sent to the executive secretary a statement of the receipts and expendi- tures of his bureau or office during the year and an estimate of the receipts and necessary expenditures thereof for the ensuing fiscal year. Like the Secretary of the Treasury of the United States, the executive secretary simply compiled these estimates and sent them FILIPINO APPEAL FOR FREEDOM. 27 to the legislature. He had no power of revision or coordination. There was no executive responsible for the fiscal plan of the govern- ment. Bills appropriating money were considered on their indi- vidual merits and not on a well-defined fiscal plan for the entire country. Such, in brief, was the system of government finance in vogue prior to the enactment of the Jones law. The coming of the Jones law did not immediately solve the problem. The law did not provide for a budgetary system, and there were some who doubted whether it could be made possible under its provisions. Section 21 of the Jones law states that " the Governor General shall submit to the Philippine Legislature within 10 days of the opening of each regular session a budget of receipts and expenditures, which shall be the basis of the annual appropriation bill. This provision and the fact that the Governor General still retained, according to law, supreme executive power created in the minds of some the doubt as to whether the executive could be intrusted with the framing of the budget. The establishment, however, of a cabinet largely respon- sible to the legislature overcame the objection. But there was another difficulty. Under section 21 of the Jones law, it is the Governor General who is to submit a ''budget of re- ceipts and expenditures." Should he and not the cabinet draft the budget? In the former case the legislature might not be willing to give up its prerogative of preparing financial measures. Again the Governor General came to the rescue and, following the generous spirit of the Jones law, delegated the formulation of the budget first to the cabinet and later to the council of state. The old practice of having bureau chiefs prepare and submit estimates was changed. Their estimates must now go to the department secretary and then to the department of finance for revision. The Governor General in a message sends the budget as prepared by the council of state to the legislature for approval, amendment, or rejection. Before the preparation of the budget, a general line of policy is first agreed upon by the council of state. Once the general policy is decided, a circular is sent in July to all offices and bureaus request- ing them to send in their estimates, which should include the prob- able receipts and the proposed expenditures for the coming jesLT. These estimates are made under the supervision and control of the department heads, who have the power to cut down or add items. These different estimates are then submitted by the department heads to the secretary of finance, not later than August 20 of every year. The main work of the department of finance is to coordinate the different departmental estimates in accordance with the general plan agreed upon at the council meeting. It often happens that a certain item submitted by a departmental head is already duplicated by another item from a different department. Any conflict between a departmental head and the secretary of finance is submitted to the council of state for decision. The final budget is approved at the meeting of the council. Once the budget is definitely approved by the council of state the Governor General submits it with a message to the legislature. The message is read by the secretary of finance in a joint session of the legrislature. 28 FILIPrKTO APPEAL FOR FREEDOM. The lower house, by agreement with the upper, is the first one to take up the budget. It sets a date for the appearance of the secretary of finance to explain the details of the budget and to answer all ques- tions propounded by the members. This appearance usually lasts a number of days, and full opportunity is given the members, especially those of the minority party, to discuss the several items of the bill. To explain further the details of the budget, the individual depart- mental secretaries may be called, although this is not often done, the secretary of finance generally assuming responsibility for the whole budget. It is the accepted rule in the discussion of the budget that the legislature may diminish the estimates but may not increase them. Once the budget is approved in principle, it is sent to the committee on appropriations, with instructions to draft the appropriation bill in accordance with the budget. This committee again examines the different items of the budget and then frames and submits its appro- priation bill. The committee generally follows the instructions of the House and suggests in its bill onh^ those changes that are absolutely necessary. When the appropriation bill is approved by the house it is sent to the senate where the secretary of finance again appears to explain the different items contained therein. The financial plan of the council of state does not cover all the proposed financial activities of the government. It usually leaves a surplus for the legislature to appropriate the way it pleases. This takes the form of new ventures and activities. The totality of the English budgetary principle is not, therefore, as yet followed, whereby all requests for money must come from the executive. But a long and decisive step has already been taken toward financial reform. The system also requires that all money received from whatever source must be paid into the treasury by the collecting officer, and no disbursement of public funds can be made without specific au- thorit}^ of the legislature. In carrying out this principle and for the purpose of recording accurately the actual cost of each unit of the govermnent, a departure has been made from the established account- ing methods. Intergovernmental payments for special services rendered must be entered in the accoimts as receipts on the part of the receiving bureau and as expenses on the part of the bureau making the disbursements. To make the budget system sufficiently elastic to meet changing conditions, an emergency board, of which the secretary of finance is the chairman, two members of the legislature, the insular auditor, and the attorney general as members, was created. In the general appropriation act this board is given a substantial' amount \vith which to suppl}' the additional funds that the various units of the government may need for purposes authorized by the appropriation. As an additional safeguard against possible abuse of power, the actions of the emergency board do not become operative until the approval of the Governor General, and of the presidents of both houses has been secured. IV. Public Order. It was one of the conditions for the establishment of the Philippine Assembly in 1907 that there be complete peace and that the Governor General certify that fact to the President of the United States. Gov- ernor General Smith did certify the fact that there was complete peace riLrlPINO APPEAL. FOR FREEDOM. 29 that year, and thus facihtated the estabhshment of the Phihppine Assembly. From that year peace has continued up to the present. It suffered no alteration either during the economic crisis or amidst the hardships of the World War. Every official report from 1907 to the present has testified to the peace and order that obtains and has always obtained in the Philippines. Thus the first requisite of a stable government has been accompHshed. Two institutions are charged with the keeping of public order and they are the municipal ponce and the insular pohce, or the con- stabulary. The municipal poUce are supported by municipal funds, but is subject to the supervision of the rhilippine Constabulary in so far as its organization and discipline are concerned. The spirit of peace and order is so well cemented in the Phihppines that there are municipalities which have no more than 3, 5, or 7 policemen each. The Philippine Constabulary is the insular police which helps the municipal police in cases of necessity and when the municipal authori- ties so require. There are about 6,000 constabulary soldiers. The constabulary also helps the bureaus of the government in the fur- therance of their work, such as in enforcing quarantine measures, controlling diseases, keeping prisoners, etc. As to the efficiency and success of the constabulary, the report of the Wood-Forbes Mission itself might be quoted. It admits that it is ^^ dependable and thoroughly efficient.^' It should, moreover, be noted that during the first years of its establishment the constabulary was the subject of criticism on the part of the public. It has to-day secured the support not only of the ofiacials of the government, but also of the people. As in other branches of the government, Fili- pinization has been established and there is to-day fewer and fewer American officers as the following figures will show : Num- ber of Ameri- can officers. Nimi- ber of FiU- pino officers. Total num- ber of officers. Num- ber of I enlisted : men. Nmn- ber of Ameri- can officers. Num- ber of enlisted men. 1901 180 186 334 315 304 278 260 236 258 276 247 3 7 11 14 15 20 57 83 59 50 75 183 193 345 329 319 298 317 319 317 326 322 5,000 .5; 317 ! 6,000 6,729 6.852 4:773 4,778 4,723 4,267 4,067 4.159 1912 268 54 ! 322 58 I 326 90 329 131 1 341 123 1 317 250 j 3.56 304 347 323 348 358 375 362 ! 378 i 1 4,283 4 621 1902 1913 ■^fiS 1903 1914 1 239 1915 ! 210 1916 1 194 1917 ; 106 1918 1 43 1919 1 25 1920 1 17 1921 i 14 4' 793 1904 5 002 1905. . . 5 105 1903 5^505 5 348 1907 190S 5,597 5,817 5 968 1909....: 1910 1911 It will be noted that the oflSlcial personnel continued on the increase up to and including 1903 at which time it was reduced by 6. The greatest number of American officers, 334, was obtained in 1903. Since that year the Filipino oflS.cers have been gradually on the increase and the American officers on the decrease. At the close of the calendar year 1921, the American officers numbered 14 and the Filipino officers nimabered 362, 30 filipi:n^o appeal fob freedom. V. The Civil Service. From the beginning of American occupation it has been the policy to give all positions m the government to Filipinos whenever there are competent persons to fill them. This policy was laid down by President McKinley when he instructed the second Philippine Commission — That in all cases the municipal officers, who administer the local affairs of the people, are to be selected by the people, and that wherever officers of more extended jurisdiction are to be selected in any way, natives of the islands are to be preferred, and if they can be found competent and willing to perform the duties, they are to receive the offices in preference to any others. This instruction of President McKinley has been placed on the statute books of the Philippines and is still the law to-day. The appointing officers are enjoined to prefer, first, citizens of the Philip- pines, and, second, honorably discharged soldiers, sailors, and marines of the United States. While that was the law and has been the law since American occupation, there were times when the Filipino people thought that it was not being carried out as the strict letter and spirit demanded. From 1907 and 1908 up to 1913, there was very little Filipinization in the Philippine civil service. In 1913 there were actually more Americans in the civil service than in 1907 and 1908. Many of these Americans filled mere clerical positions which could very well have been held by qualified Filipinos. From 1913, however, Fili- pinization grew with the arrival of Governor General Francis Burton Harrison. It has continued growing up to the present. The propor- tion of Filipinos to Americans during the period 1914-1921 is shown in the following list : Number of— Percentage. Year. Ameri- cans. Filipinos. Total. Ameri- cans. Filipinos. 1914 2,148 1,935 1,730 1,310 948 760 582 614 7,2«3 7,881 8,725 9,859 10, 866 12, 047 9,451 9,816 10,455 11,169 11,814 12.897 23 20 17 12 8 6 4 4 77 1915 . . . 80 1916 83 1917 88 1918... 92 1919 94 1920... . 12,651 1 13,143 13,240 1 13.854 96 1921 96 ' President McKinle3^'s policy has been followed to the letter with no detriment to public service, in fact with the same if not greater effi- ciency which kept pace with the growth of Government activities and the general progress of the country. The discussion of the various government bureaus which follows will amply prove this statement. VI. Administration of Justice. From 1914 to 1921 justice was impartially administered in the Philippines. The judiciary was free from political, family, or other improper influences. Delay in the final decision of cases was no worse than in the United States. The selection of judges and prose- cuting attorneys was at least as carefully done as in the preceding years. FILIPINO APPEAL FOR FREEDOM. 31 It is admitted on all hands that the Supreme Court of the Philip- pine Islands, ( whose members are appointed by the President of the United States, by and with the advice and consent of the Senate, a majority of them being Americans, is above all influence, enjoys the confidence of the people, and is composed of men learned in the law and of exceptional talents. The Wood-Forbes mission says of the supreme court : The supreme court has the respect and confidence of the Philippine people. This being so, we believe that the best way to ascertain whether or not the courts of first instance during the new regime have rightly and impartially administered justice is to compare the percentage of appealed decisions affirmed and reversed by the supreme court in the two periods — before and after 1914. If the decision of a court of first instance is affirmed by the highest court in the islands, after a review of the case, such affirmance utterly destroys all claims of mistake, ignorance, partiality, political or family influence, or other improper motive. The data in the following table, compiled from records in the office of the clerk of the supreme court, are full of interest : Decisions appealed from.. Total. Affirmed. Reversed. Modified. Period. Num- ber. Per cent. Num- ber. Per cent. Num- ber. Per cent. Aug. 31, 19n-Sept. 1, 1913 Mar. 3, 1919-Mar. 4, 1921 1,454 1,782 910 1,194 62.5 67.0 365 372 25.1 20.8 179 216 12.2 12.1 To understand the above figures it should be noted : (1) That Sep- tember 1, 1913, and March 4, 1921, are the dates when the resignation of Governors General W. Cameron Forbes and Francis Burton Har- rison took effect, respectively; (2) that for the purpose of comparison only the supreme court decisions during the last two years of each administration can be given, because a period of one to four years elapses between the decision of the courts of first instance and that of the supreme court. The figures in the above table show that there was a larger per- centage of decisions affirmed and a smaller percentage of decisions reversed by the supreme court during the time when the Filipino people enjoyed substantial autonomy than before that period. This fact indicates that the administration of justice has been considerably improved with the Filipinos in greater control. With regard to the alleged delay in the administration of justice, the number of pending cases is not so large as is believed in some quarters. According to the 1921 report of the Attorney General, there were 26,664 cases pending in the courts of fu'st instance on December 31, 1921. Of these pending cases, 6,108 were probate and 2,707 land registration, which, as everyone knows, are necessarily cumbersome and complicated. Said report also states that in the supreme court there were pending decision 306 cases and 914 cases docketed but not submitted for decision. Therefore, in both the first instance and supreme courts, there were all in all only 27,884 cases. No figures are available as to the cases pending in the justices of the peace courts on December 31, 1921. However, the report of the 32 FILIPINO APPEAL FOR FREEDOM. secretary of justice for 1920 shows that 8,046 cases were pending in the justice of the peace courts on December 31, 1920. , The following show the number of cases disposed of by the courts of first instance each year from 1906 to 1921, inclusive: of. 1914 13,404 1915 15,052 1916 14,560 1917 14,987 1918 13,213 1919 12,667 1920 16,600 1921 16,874 1906 7,410 1907 6,834 1908 7,777 1909 10,447 1910 9,745 1911 12, 630 1912 12,928 1913 14,797 Total 82,568 Total.. 117,357 The above figures show that the number of cases disposed of by the courts of first instance for the eight years, 1906 to 1913, inclusive, was as large as 82,568. The total number of cases disposed of for the same length of time (1914-1921, inclusive) under the new regime was even greater, 117,357, or an increase of 34,789, or 42 per cent. The average number of cases disposed of each year during the first period was 10,321, while in the second period (1914-1921) the average was 14,669, or 42 per cent. This increase is the more striking when it is remembered that the abolition of the court of land registration took place during the second period and the adjudication of land titles under the Torrens system was transferred to the courts of first in- stance. The law's delay is a traditional problem the world over. The above number of pending cases does not therefore constitute an evil peculiar to the Philippines nor is it due to Filipino fault. Even in the United States the people are confronted with the same problem. Viscount Bryce, sp)eaking of the administration of justice in the United States, says in his recent work. Modern Democracy (Vol. II, p. 88) : * * * Nevertheless even if things are less bad than the causes at work might have made them, clear it is that the incompetence of judges does in many States in- volve immense waste to litigants through appeals and other delays, and through the uncertainty into which the law is broguht by decisions in inferior courts likely to be reversed on appeal. Though the administration of civil justice leaves much to be desired, that of crim- inal justice is far worse. There are few States, perhaps only two or three outside New England — New Jersey is one — where it is either prompt or efficient. All through the rest of the country, South and West, trials are of inordinate length, and when the ver- dict has been given, months or years may elapse before the sentence can be carried into effect. Many offenders escape whom everybody knows to be guilty, and the de- terrent effect of punishment is correspondingly reduced. In a speech at the annual banquet of the American Bar Association in the summer of 1921, at Cincinnati, Mr. C. A. Severance, president of the association, said: When the Chief Justice told us, as he did the other da^^, that the state of the courts was such that a bill proposing that we have 18 additional judges in the Federal courts had been prepared, and should be passed because of the necessity that exists, he told us nothing we did not already know. The congestion of the Federal courts has become such that it is almost a public scandal. (See Journal of the American Bar Association, November, 1921, p. 612.) The Hon. Henry D. Clayton, judge of Federal district court, Alabama, says: One of the contributing and patent causes of the law's delay which lies in the power of the legislative department to remedy is the fact that in manv States and in some of FILIPINO APPEAL FOR FREEDOM. 33 the Federal districtsjthere is not the sufficient judicial force to dispose of the present litigation and that which is constantly increasing as the country grows in population and develops in commerce and industry. Besides, the courts are constantly having to deal with much new legislation, amendatory and original; consequently there is fi'om this source increased litigation, invohing interpretation and application of statutes, resulting in the accumulation of cases. Because of all these facts and other similar things court dockets become congested and all cases can not be reached for trial until after undue delay in some of them. (See Journal of the American Bar Association, January, 1922, p. 45.^ The Hod. William H. Taft, Chief Justice of the United States, said, in an address at the 1921 meeting of the American Bar Associa- tion at Cincinnati: The congestion which exists in many of the districts of the United States — and it has been growing because of the gradual enlargement of the jurisdiction of the courts under the enactment by Congress of laws which are the exercise of its heretofore dormant powers — has been greatly added to by the adoption of the eighteenth amend- ment and the passage of the Volstead law. Something must be done, therefore, to give to the Federal courts a judicial force that can grapple these an-ears and end them. The Attorney General has been much impressed with the great increase in business in the courts, and has recommended to the President and to Congress the adoption of a law which, it seems to me, will much facilitate the dispatch of business in the courts of the United States. (See Journal of the American Bar Association, September, 1921.1 Mr. Edwin W. Sims, of the Chicago bar, says in an article in the Journal of the American Bar Association. November, 1921: On April 1, 1920, 135 persons pre^iously indicted for murder were awaiting trial in Chicago. In 1,904 cases the accused were at liberty on bond. In the majority of cases so much time had elapsed since indictment that Avitnesses had disappeared, e\idence had been lost, and successful prosecution made most difficult. * * * Chap was indicted for murder March 4, 1911. and released on 810,000 bonds. In compiling its report on continuances, the Chicago Crimes Commission ran across the case, and in December, 1919, eight and one-half years after the crime was committed, the defendant was placed on trial. (See Journal of the American Bar Association, ?sovember, 1921, pp. 598-599. i The foregoing goes to show that in the United States no less than in the Philippines there is need of action to relieve the present con- gestion of cases. As for the Philippines, the legislature on February 14, 1921. created seven new positions of auxiliary judges of the courts of first instance. In discussing the law's delay in the Philippines we should never overlook the fact that there are certain unavoidable causes which in large measure prevent the prompt administration of justice. These causes are not found in the United States. They are: (1) The in- terpretation of testimony from the vernacular to Spanish: (2) judges in the Philippines are judges not only of law but also of fact: (3) the law in the Philippines is in a formative condition; and (4) the re- moteness of many municipalities from the provincial capitals, together with the difficulty of transportation. As to the first factor, almost all witnesses testify in the PhiHppine dialects. The questions are in Spanish or English, so they are in- terpreted to the local dialect. The answers, which are in the local dialect, are then translated into Spanish for the purposes of record. The translation in both cases takes up at least as much time as the original questions and answers, and often much time is lost in the dis- cussion of the proper interpretation. With regard to the second cause of delay, there is no trial by jury in the Philippines. Hence, the judge decides rot only the questions of law involved but also the issues of fact. It is thus that the task H. Doc. 511. 67-4 ^3 34 FILIPINO APPEAL FOR PREEDOM. of one judge and a jury in America is performed b}^ one man in the Philippines. The third factor, that the law is in a formative condition, arises from the blending in the Philippines of the Spanish civil law and the Anglo-American common law. Our laws of procedure and evidence are derived from American sources, while our civil law, much of our commercial law, and most of our penal law are Spanish. This has created many difficulties in the application of the law in a given case, because (a) the imderlying principles and the actual working of American procedure and evidence are new in the Philippines, and {h) frequently it is hard to determine how far the new legislation has affected the old law, for the new code of civil procedure in many respects touches upon substantive law, and, further, every lawyer knows that the questions of the right and the remedy are inseparably bound up together. Moreover, our constitutional law and administra- tive law, as well as our laws on marriage, corporations, negotiable instruments, insolvency, salvage, insurance, chattel mortgage, and many crimes are American in origin, and many Filipino judges and lawyers, who are generally Spanish speaking, meet with difficulties in studying and applying American authorities and cases. The fourth cause of delay is the remoteness of many municipalities from provincial capitals, together with the difficulty of transportation. This makes it extremely hard for witnesses to appear before the courts, and many cases have to be continued when one or more witnesses can not go to the provincial capital. The selection of judges has been at least as careful under the new regime as before. Most of the Filipino judges of first instance, ap- pointed during the Philippine Commission regime before 1913, were members of or had sympathies for the Federal, later Progresista Party. It is true also that a majority of the appointees to the first instance bench since 1913 belong to or had sympathies for the Na- cionalista Party, but this is because the great bulk of the members of the bar were Nacionalistas, and there was a very limited number of attorneys to choose from who were of the Democrata Party. It can not be said that the legal knowledge of the judges selected since 1913 is lower than that of those appointed before that year. As a matter of fact, before 1913 many judges of first instance were ap- pointed who had neither training in the local law nor practiced law in the Philippines, whereas the appointees since 1913 had schooling and practice in Philippine laws. As to the independence of the judiciary, it must be stated that formerly the Governor General had power under the law to remove any judge of the court of first instance at pleasure. This power was abolished under the new regime, so that to-day no judge of the court of first instance can be removed by the Governor GeneraP' unless suf- ficient cause shall exist, in the judgment of the supreme court," after such judge has been heard in his own defense. Needless to say this new law has placed the judges beyond the influence of the chief executive. There are no proofs that the present provincial fiscals, or prosecut- ing attorneys, are less efficient than those before 1913. On the con- trary, the greater number of criminal cases filed and disposed of from 1914 to 1921 would seem to indicate that the service of the prosecut- ing attorneys has been improved. It is to be noted also that before 1913 several persons who had not taken or had failed in the Philippine FILIPINO APPEAL FOR FREEDOM. 35 bar examinations were appointed prosecuting attorneys — a practice which was discontinued during the time of more Filipino control of the government. Inasmuch as most of the justices of the peace are not lawyers, there is much room for reform in the organization of the justice of the peace courts. However, the qualifications of Philippine justices of the peace compare favorably with those of other countries. The adminis- trative code provides in section 207 that ''no person shall be eligible to appointment as justice of the peace or auxiliary justice unless he shall be (1) at least 23 years of age; (2) a citizen of the Philippine Islands or of the United States; (3) of good moral character; and (4) admitted by the supreme court to practice law, or be a person who has at least finished the course of legal study in a recognized school, or shall have passed the civil-service examination for clerk of court, or an examination to be held in each Province before a board com- posed of the judge of the court of first instance, the provincial fiscal, and a practicing lawyer appointed by the judge, under rules and regu- lations to be prescribed by the attorney general, with the approval of the secretary of finance and justice." A plan is now being studied in the Philippines looking toward the consolidation of several towns into one district, to be under the jurisdiction of one justice of the peace, who shall be a lawyer. VII. Administration of Public Lands. In no other bureau is the growth of Government activities so mani- fest as in the bureau of lands. LAND TITLES. Homesteads. — During the last eight years, from 1914 to 1921, the number of homestead applications received, as well as the number of applications acted upon (canceled, approved, approved canceled, and patented), has considerably increased, as compared with the figures for the eight years previous to 1914; that is to say, from 1906 to 1913. The following table wiU bear out the above statement: Homestead applications. Year. Re- ceived. ! 1 Can- celed. Ap- proved proved can- celed. Pat- ented. Total acted upon. Pend- 1 ing. i Total num- ber.i Aver- age num- ber.2 1906 1,543 2,643 2,023 1 463 2,210 2,995 3,706 4,962 131 172 307 610 679 718 1,450 1,755 332 889 1,495 858 1,129 1,445 1,941 2,014 i t 23 2 5 60 74 410 i" 1 27 106 467 1,067 1,825 1,470 1,814 2,224 3,492 4,285 ! 1,404 2,992 3,236 3,233 3,640 4,532 4,921 6,524 1907 1908 1909 1910 1911 1912 1913 Total 21,445 • 16,644 2 080 5 1914 5,552 7,466 8,198 8,922 8,259 7,026 9,561 6,672 2,198 2,188 2,061 2,206 2,297 2,772 1,511 905 3, 164 3,434 3,369 4,998 4,315 3, 765 2,467 1,510 303 454 304 449 771 871 411 479 160 515 192 322 309 326 739 835 5,825 6,591 5,926 7,975 7,692 7,734 5, 128 3,729 7,017 9,315 12,387 14,554 16,972 18,332 24,326 29,062 1915 1916 1917 1918 1919 1920 1921 Total 62,656 50,600 6,325 1 Total number of applications acted upon for 8 years. 2 Average number of applications acted upon each year for 8 years. 36 riLipnsro appeal fok freedom. The foregoing table shows that the total number of homestead applications received for eight years, from 1906 to 1913, was 21,445, and that the number for the following eight years, from 1914 to 1921, the period of Filipino self-government, was 62,656, or an increase of 41,211, or 192 per cent, for the second period. It will also be seen from the above table that the total number of applications acted upon for eight years, from 1906 to 1913, was 16,644, while the number for 1914^ to 1921, eight vears also, was 50,600, or an increase of 33,956 (about 200 per centj for the second period, which was the time of Filipino autonomy. It will be seen likewise that the average number of applications acted upon each year for eight years, from 1906 to 1913, was 2,080.5, while the num- ber for 1914 to 1921, also eight years, was 6,325, or an increase of over 200 per cent for the second period. It is also to be noted that the number of applications patented in 1913 was 106, which was increased to 739, or six times, in 1920, and to 835, or seven times, in 1921. SALES. The following table shows the number of applications for sale of public land received, acted upon, and pending each year from 1906 to 1921, a period of 16 years: Sales applications. FIRST PERIOD, 1906-1913. Year. Re- ceived. Ap- proved proved can- celed. ■ Can- celed. Pat- ented. Total acted upon. Pend- ing. Total num- ber.i Aver- age num- ber.2 1906 72 76 41 58 63 164 220 353 7 11 21 27 52 46 1 i" 8 14 49 65 17 28 48 85 207 2" 3 4 21 66 85 28 49 77 141 265 92 104 60 90 104 193 277 385 1907 1908 1909 1910 1911 1912 1913 Total 1,047 732 91.5 1 1 SECOND PERK )D, 1914^ -1921. 1914 337 431 354 683 716 732 1,025 573 79 104 115 137 185 145 43 34 1 10 10 24 17 14 10 17 184 133 156 283 387 361 128 99 4 7 1 3 14 1 5 15 268 254 282 447 603 421 186 165 460 664 757 1,044 1,205 1,445 2,309 2,766 1915 1916 . 1917 1918 1919 1920 1921 Total 4,851 i i ,2,626 328 i i 1 Total number of applications acted upon for 8 years. 2 Average number of applications acted upon each year for 8 years. From the above table we know that the total number of sale appli- cations received during the eight years from 1906 to 1913 was 1,047, compared with 4,851 for the next eight years from 1914 to 1921. There is, therefore, an increase of 3,804, or 364 per cent, during sAcond Deriod. FILIPINO APPEAL FOR FREEDOM. 37 We likewise see that from 1906 to 1913, eight years, the number of sale applications acted upon was only 732, while the number for 1914 to 1921, eight years also, was 2,626, which was an increase of 1,894, or 258 per cent, over the first period. The average number of sale applications acted upon each year was 91.5 for 1906-1913 and 328 for 1914-1921. LEASES. The following table gives the number of lease applications received, contracts executed, contracts executed void, and applications can- celed from 1906 to 1921, 16 years: Lease applications. FIRST PERIOD, 1906-1913. Year. re- exe- . ^^.% ceived. 1 cuted. j ^^^d! i 1 Appli- cation can- celed. Total appli- cations acted upon. Pend- ing. Total num- ber.i Aver- age num- ber.2 1906 7 40 10 42 75 105 146 160 211 221 1907 8 7 11 23 55 67 80 8 12 16 25 59 69 86 1908 45 46 66 73 120 96 5 5 2 4 2 '.'.'.'.'.'.'.'. 1909 1910 1911 1912 1913 Total.... 493 275 3.43 SECOND PERIOD, 1914-1921. 1914 98 78 103 166 317 237 332 137 8 11 5 39 29 I 7 66 52 47 136 92 119 105 194 1 74 i Si 177 127 131 i 112 201 245 261 313 306 508 620 842 778 1915 1 1 2 6 3 1 1916. . 1917 1918.. 1919 .V. 1920 1921 ! Total 1,468 1 j 937 117 1 1 Total number of applications acted upon for 8 years. - Average number of applications acted upon each year for 8 years. We learn from the foregoing table that the total number of lease applications received from 1906 to 1913, eight years, was 493, while from 1914 to 1921 the number was 1,468. There was, therefore, an increase of 975, or 197 per cent, for the second period. This table also shows that during the period of 1906 to 1913, eight years, the number of lease applications acted upon was only 275, while the number was 937 for 1914-1921, which means an increase of 662, or 240 per cent, for the second period. The average number of lease applications acted upon each vear was 34.3 for 1906 to 1913, and 117 for 1914-1921. 38 FILIPINO APPEAL FOR FREEDOM. FREE PATENTS. The follomng table gives the number of free patent applications received and acted upon (canceled and patented) as well as the number of patents canceled from 1906 to 1921: Free patent applications. FIRST PERIOD, 1903-1913. Year. Re- ceived. Can- celed. Pat- ented. Pat- ents can- celed. Total acted upon. Pend- ing. Total num- ber.' Aver- age num- ber.2 1906 3,320 7,173 2,577 2,449 360 611 544 369 207 478 529 307 360 611 544 369 343 673 889 777 3,289 9.851 11,884 13,964 13,621 12,958 12,067 11,290 1907 1908 1909 1910 133 191 358 465 3 4 I 1911 8 1912 1913 Total 15,417 3,405 1,147 14 4,566 1 4 566 571 SECOND PERIOD, 1914-1921. 1914 1,191 1,375 1,137 1,819 1,203 562 670 767 338 97 102 523 1,906 2,117 861 2,003 2,219 758 776 661 1,169 955 11,620 10, 992 9,910 10, 971 11,398 11,299 10.800 10,612 1915 1916 1917 280 475 1918 518 258 1919 355 308! 98 i 1,071 1 68 887 1920 1921. Total 8,724 1,856 7,543 9,402 9,402 1,175 1 Total number of applications acted upon for 8 years. 2 Average number of applications acted upon for 8 years. The above table shows that the number of free patent applications received from 1906 to 1913 was 15,417, while from 1914 to 1921 the number was 8,724, or a decrease of 6,693, or 76 per cent for the second period. The number of applications canceled from 1906 to 1913 was 3,405, while the number for 1914-1921 was 1,856, or a decrease of 1,547, or 82 per cent for the second period. The number of ap- plications patented for the first period (1906-1913) was only 1,147, compared ^vith 7,543 for the second period, or an increase of almost six times for 1914-1921. The total number of applications acted upon for the period of 1906-1913 was 4,566, while from 1914-1921 the number was 9,402, or an increase of 4,836, or 105 per cent for the second period. The average number of free patent applications acted upon each year for the first period was 571, while in the second period the number was 1,175. It appears from the foregoing table on isolated surveys that the average number of parcels surveyed in six years, from 1908 to 1913, was 6,168 annually, and the average yearly number for eight years, from 1914 to 1921, was 9,807, or an increase of 42 per cent for the last eight years. Taking the average for the last six years, 1916 to 1921, the yearly average of parcels surveyed was 9,813, while, as already stated, the average for 1908-1913, was 6,168, or an increase of 42 per cent for 1916-1921, the last six years of Filipinization of the service. The above figures further show the increased efiiciency of the bureau of lands during the period of Filipinization of that bureau. FILIPINO APPEAL FOR FREEDOM. 39 ADJUDICATION OF LAND TITLES. Cases disposed of: The number of land-registration cases disposed of (title confirmed, title denied, and application dismissed) has in- creased from 1914 to 1920, seven years, compared with the seven years from 1907 to 1913, as shown by the following table: Land-registration cases disposed of ( Torrens system). Year. Con- firmed. Denied. Dis- missed. Total act- ed upon. Total for 7 years. Average yearly. 1907 689 767 1,019 885 1,374 830 807 19 29 50 30 49 24 32 75 35 86 80 226 61 37 783 831 1,155 995 1,649 915 876 1908 1909. . 1910 1911 1912 1913 Total 7,204 1,029 1914 366 747 999 982 928 992 1,002 1,857 14 26 20 25 25 13 9 14 19 19 28 66 32 31 34 34 399 792 1,047 1,073 985 1,036 1,045 1,905 19141 1915 1916 1917 1918. 1919 1920 Total 8,282 1,183 1 New fiscal year. It will be seen that the total number of cases disposed of for the first seven years from 1907 to 1913 was 7,204, while the total number of cases disposed of for the second seven years from 1914 to 1920 was 8,282, or an increase of 1,078, or 14 per cent for the second period. The average number of cases disposed of each year from 1907 to 1913 was 1,029, while from 1914 to 1920 the average yearly number was 1,183. The court of land registration ceased to exist on July 1, 1914, and its work was transferred to the courts of first instance. The total number of cases disposed of from 1915 to 1920, inclusive (six years), was 7,091, as compared with 6,421 for six years, also from 1908 to 1913, inclusive, or an increase of 670, or over 10 per cent for the 1915-1920 period. DECREES OF TITLE ISSUED. The following table shows the number of decrees of title issued from 1906 to 1920: Decrees of title issued. Year. Number Number of decrees, of parcels. Year. Number of decrees. Number of parcels. 1907 598 1 728 729 1,057 896 1,255 707 1 1,178 1,888 i 3,080 1,434 ! 2,575 7,297 1 9,169 1914 3,956 1,249 5,786 37,762 10,198 13,538 14,288 5,873 1908 1915 2,795 1909 19161 7,094 1910 1917 , 40,779 1911 1918 11.503 1912 1919 15, 465 1913 1920 16,093 Total Total 13,549 1 19,042 1,935 1 2,720 1 86,777 : 99.(302 Yearly average Yearly average . . . 12,397 I 14.229 40 FILIPINO APPEAL FOB. FREEDOM. The total number of decrees of title issued for 1907 to 1913 (seven years), as shown above, was 13,549, while from 1914 to 1920 (also seven years), the* total number was 86,777, or an increase of 73,228, or 541 per cent for the latter period. The average number of decrees of title issued each year from 1907 to 1913 (seven years) was 1,935, while the average from 1914 to 1920 was 12,397. As above stated, the Court of Land Registration was abolished on July 1, 1914. The total number of decrees of title issued from 1908 to 1913, inclusive (six years), was 12,951, affecting 18,314 parcels^ while the number of decrees of title issued during the years from 1915 to 1920, inclusive, was 82,821, affecting 93,729 parcels. In other words, for the second period, after the abolition of the Court of Land Registration there was an increase of 69,870 decrees, or 516 per cent increase, and 75,415 parcels, or 411 per cent increase. VIII. Education. It is conceded by all that the greatest reform established since American occupation is the public-school system. The support the Filipino people have given to public schools can not be gainsaid even by the most bitter critic of Philippine accomplishments. The first bill passed by the Philippine Assembly in 1907 was the appropriation of IPl, 000,000 for the building of rural schools. Since 1913 up to 1921, the growth and progress of the public schools as compared with a similar period prior to that time is simply enormous. The progress in education is manifested also in the recent census of 1918, which gives 49.2 per cent as the literacy of the population over 10 years of age. This is considerably greater than the figure given by the previous census. Figures speak naturally louder than words. We shall, therefore, confme our observations to the authentic figures which will follow. PROGRESS OF PUBLIC SCHOOLS. Number of pupils.— The enrollment of pupils in the public schools below the University of the Philippines from the school year 1908-9 to 1920-21 is as follows: Year. Enroll- ment. Increase over pre- vious year. Average yearly in- crease in 5 years. Number. Per cent. Number. Per cent. 1908-9 570, 502 587,317 610, 493 529, 665 440, 050 621,114 621,114 638, 548 675,997 671,398 681,588 791,628 943, 422 83,826 16,815 23, 176 1 80, 828 189,615 180,980 17 2.5 3.9 1 13.2 116.9 41 1909-10 1910-11 1911-12.. 1912-13 19,325 1 1.3 1913-14 1914-15 1915-16 17,434 37,450 1 4, 599 10, 190 110,036 151, 796 2.8 5.8 .67 1.5 J6 19 1916-17 1917-18 > 1918-19 1919-20 1920-21 61, 174 8.3 Decrease. FILIPINO APPEAL FOE FREEDOM. 41 In 1908-9 the enrollment was 570,502, which decreased to 440,050 in 1912-13 and increased to 943,422 in 1920-21, or more than twice as large as in 1912-13. The great increase in enrollment in the public schools during the last five school years of Filipino autonomy (1916- 17 to 1920-21), as compared with the five school years from 1908-9 to 1912-13, is seen from the above table. The average yearly decrease from 1908-9 to 1912-13, the last five years before Filipino autonomy, was 9,325, or 1.3 per cent, turned into average annual increase during' the last five years of Philippine self-government (1916-17 to 1920-21) of 61,174, or 8.3 per cent. The average enrollment each year during the five-year period (1908-9 to 1912-13) was 547,611, while the number was 752,606 for the five years from 1916-17 to 1920-21, or an increase of 37 per cent during the latter period. Number of schools.— The following table shows the number of public schools from 1909 to 1920: Number of schools. Year. Primary. Inter- mediate. Second- ary. Total. Increase ■\^ous over pre- year. Average yearly in- crease. Number. Per cent. Number. Per cent. 1909 . 4,194 4,295 4,121 3,364 2, 595 3,913 3,837 4,143 4,288 4,276 4,412 5,280 193 198 245 283 296 278 309 351 368 423 501 614 37 38 38 38 43 44 41 44 46 48 50 50 4,324 4,431 4,404 3,685 2,934 4,235 4,187 4,538 ■4,702 4,747 4,963 5,944 493 107 127 1719 1751 1,301 148 351 164 45 116 981 11 2 116* 121 40 1 1 8 4 1 2 20 1181 416 1910 1911 1 4.8 1912 . 1913 1914 1915 1916 1917 10.6 1918 1919 1920 1 Decrease. The number of schools rose from 2,934 in 1913 to 5,944 in 1920, or an increase of 102 per cent. The average annual decrease of schools from 1909 to 1913 (five years preceding Filipino autonomy) was 181, or 4.8 per cent, while the average yearly increase from 1914 to 1920 (no figures being available for 1921) was 416. Number of teachers. — The number of teachers has also increased, as shown in the following table: Year. Number of Filipino teachers. Number of American teachers. Total. Year. Num.ber of FiUpino teachers. Number of American teachers. Total. 1909 8,774 9,007 9,086 8,360 7,671 9,462 825 732 683 664 658 612 9,599 9,732 9,769 9,024 8,329 10, 074 1915 9,845 10,963 12,303 13, 227 .538 506 477 406 10,383 11,469 1910... 1916 1911 1917 12,780 1912 1918 13,633 1913 1919 14,433 ! 374 17, 575 341 14,807 1914 1920 17, 916 1 42 FILIPIN^O APPEAL FOR FREEDOM. It will be seen from the above table that the number of Filipino teachers rose from 7,671 in 1913 to 17,575 in 1920, which means an increase of 9,904, or 129 per cent. The number of American teachers dropped from 658 in 1913 to 341 in 1920. Amount of money spent for schools. — There has likewise been a constant increase in the amount spent in education. The following table shows the amount spent from 1907 to 1920: Expenditures fo7' education {in thousands of pesos). Year. Insular. Pro- vincial. Munici- pal. Volun- tary contri- bution. Total. Increase over previous years. Average yearly increase in 7 years. Amount. Per cent. Amount. Per cent. 1907 3,112 3,498 3,924 5,412 3,998 4,254 4,471 4,590 4,905 4,708 5,177 6,068 10, 188 12,802 217 228 285 209 208 277 386 473 443 464 431 716 468 450 1,508 1,672 2,134 2,516 2,325 2,211 2,456 2,303 2,165 2,395 3,615 4,099 3,716 4,368 (^) (1) (1) 0) (1) 174 199 344 375 352 479 617 683 800 4,837 5,399 6,343 8,137 6,715 6,916 7,512 7,710 7,888 7,919 9,702 11,500 14,955 18,420 151 562 944 1,794 2 1,422 201 797 198 178 31 1,783 1,798 3,455 31,165 3 11 17 28 2 17 3 12 2.6 2 .4 23 18 31 23 1908 1909 1910 1911 1912 1913 6,551 8 1914 1915 1916 1917 1918 1919 1920 11,155 14 1 No data available. It will be seen that the total amount spent for public education for seven, years from 1907 to 1913 was ^45,859,000, while the amount spent for seven years from 1914 to 1920 was 1P78, 094,000, which means an increase of ^32,234,000, or 70 per cent, over the first period. The average amount spent each year during the first period (1907-1913) was ^6, 55 1,400, while the average amount spent each year for the second period (1914-1920 Filipino autonomy) was ^11,155,000. The cost per student based on total expenditures and the average daily attendance for all schools in 1908 was ^18.26; in 1914, 1P16.52, and in 1920, ^28.97. The per- capita cost of education was ^0.50 in 1903, 1P0.59 in 1907, ^0.79 in 1914, and 1P1.81 in 1920. In 1918, under Filipino self-government, the Philippine Legisla- ture in Act No. 2782, voted ^30,705,824 for the extension of free elementary instructioXi, to be spent in five years, this amount being the largest ever set aside. The director of education in his 1920 report has the following to say on this measure of the legislature: Of the P=30,705,824 carried in Act 2782 for the extension of elementary education, there was available for expenditure dming 1919 the sum of ^=735,000; during 1920, the sum of ^3,919,000; and there will be available for expenditure during 1921 the sum of F6,305,400, during 1922 the sum of F8,710,440, and diu:ing 1923 the sum of Fll,035,984. The F3, 919, 000 which became available for expenditure during 1920 was dis- tributed as aid to the Provinces and to the municipalities for the opening of new elementary schools, for the maintenance of elementary schools already established, and for the opening of new classes in elementary schools already established. Nearly 65 per cent of this sum was spent for the opening of new schools and for the opening of new classes in old schools. riLIPINO APPEAL FOR FREEDOM. 43 Through the extension program it has been planned to double the enrollment in the public elementary schools, to effect larger increases in the salaries of municipal teachers, and to abolish the collection of tuition fees in intermediate schools — all of this to be done during the five-year period from January 1, 1919, to December 31, 1923. The inaugiu'ation of the extension program has given such great impetus to the growth of the public schools and has given such great encouragement to the people who are most vitally interested in the growth of these schools that, in spite of the fact that only about 15 per cent of the total sum appropriated in Act 2782 was avail- able for expenditure during 1919 and 1920 (the first two years of the five-year period mentioned above), surprising results have been attained, among the most important of which are: The opening of 1,713 new primary schools; the opening of 226 new intermediate schools; the employment of 6,302 additional primary and intermediate teachers; the abolition of the collection of tuition fees in intermediate schools; an increase in the annual enrollment in the primary and intermediate grades of 261,768 pupils; a large increase in the number of primary and intermediate school buildings; an increase of 52 per cent in the average monthly salary paid municipal teachers. Permanent school buildings. — The number of permanent school buildings constructed up to 1913 was 624, which number rose to 1,046 in 1920. In other words, during the seven years (1914-1920) of the Filipino autonomy, 67 per cent more permanent buildings were erected than during the 12 years from 1902 to 1913. Salaries of Filipino teachers. — The following table shows the gradual increase in the salaries of municipal and insular Filipino teachers from 1909 to 1920: Salaries of Filipino teachers. Year. Municipal teacher. Insular teacher. Year. Municipal teacher. Insular teacher. 1909 17.83 18.29 18.55 19.93 21.25 43.97 44.66 45.15 49.88 50.31 1914 21.34 22.05 22.88 23.98 25.72 30.65 37.86 50.77 1910. . 1915 56.32 1911 1916 55.88 1912 1917.. 56. 58 1913 1918 59.75 1919 65. 83 1920 . . 71.76 Average yearly in- crease .... Average yearly in- crease .85 1..58 2.75 3.49 It will be seen that the average yearly increase in four years, from 1909 to 1913, was ^0.85 for municipal teachers and ^1.58 for insular teachers, while the average yearly increase in six years, from 1914 to 1920, was ^2.75 for municipal teachers and ^3.49 for insular teachers. It will be observed also that while the increase from 1909 to 1913 was ^3.42 for municipal and ^6.34 for insular teachers, the raise from 1916 to 1920 was ^14.98 for municipal and ^15.88 for insular teachers. Attainments of Filipino teachers. — During Filipino autonomy the attainments of Filipino teachers were considerably improved, as shown in the following table: Percentages of intermediate graduates or tetter. School year: 1909-10 25. 16 1912-13 50. 22 1916-17 85. 80 1919-20 95. 87 44 FILIPIXO APPEAL FOR FREEDOM. The aboye data are taken from the thirteenth and twenty-first annual reports of the director of education, on pages 48 and 14, respectively. They show that the qualities of our public-school teachers were improved nearly 100 per cent during Filipino autonomy. Efficiency of teaching. — Centralization, with authority vested in technical men, is in large measure responsible for the efficiency of the public-school system in the Philippines. Leading educators in the United States praise the Philippine system and are suggesting its adoption in the United States. Teachers are trained both before and during their service. Educa- tional training is given by the College of Education of the University of the Philippines, the Philippine Normal School, the normal schools in Albay, Cebu, Ilocos Norte, Iloilo, and Pangasinan, and normal courses in five provincial high schools. As to the training of teachers while in the service Dr. Luther B. Bewley, director of education, says in his annual report for 1921: Since the demand for trained teachers in our schools is so much greater than the supply, there is only one thing for us to do. and that is to employ each year large numbers of teachers without professional training, with the idea of giving them the necessary training in the service. We have been confronted with this problem so long that we have been able, after years of effort, to develop facilities for the training of teachers in the service that will compare favorably with the same facilities of most other school systems of the world. Among the facilities or agencies that we now have for the training of teachers in the 8er\T.ce are vacation assemblies, summer schools, normal institutes, model classes, super \ision, reading courses, teachers' meetings, and teacher pensionadoships. The teachers' vacation assembly in Baguio and the teachers' vacation assembly in Manila are always looked upon by public-school teachers all over the islands as two of the foremost of the educational events of the year. THE UNIVERSITY OF THE PHILIPPINES. Attendance. — ^The rapid growth of the University of the Philippines- is shown by the following table on attendance: Academic year attendance. 1917-18 3,289 1918-19 :^, 336 1919-20 3,441 1920-21 3. 878 1921-22 4, 718 1911-12 1, 400 1912-13 1,398 1913-14 1, 502 1914-15 2,075 1915-16 2, 398 1916-17 2,975 ' We believe there are few, if any, State universities in America that have grown so fast in such a short time as the University of the Philippines. In 10 years the attendance rose from 1,400 in 1911-12 to 4,718 in 1921-22, or an increase of 237 per cent. Degrees granted. — The following table shows the number of degrees; granted by the University of the Philippines: FILIPINO APPEAL FOE FREEDOM. Degrees granted by the University of the Philippines. 45 Degree. 1911 1912 1913 1 1914 1915 1 1916 1917 1 1918 1919 19201 1 1921 1922 TolaL B. A 4 16 12 49 83 103 126 208 162 226 3 '"q 1 3 3 2 15 ...„ 2 ..... ..... 1 28 1 1 2 2 892 Ph. B 10 ........... 1 2 9 6 B S in Com 61 B. S. in Govt 2 B S. in Lib. Sc 4 B S 3 '"2 1 ""2" .. |.. . 2 1 1 1 10 M. A ::::::::: 4 2 1 ..... 14 M. S 8 Sc. D 1 1 H.S.T.C B S. in Ed ; 1 10 2 15 6 29 9 1 16 36 13 62 19 61 30 35 15 249 94 M. A. in Ed 1 1 B. Agr 2 4 5 11 19 9 11 1 7 1 5 30 32 31 45 215 Master Farmer 1 B. S. in Agr 1 1 1 1 • 2 5 1 1 1 2 2 3 7 4 9 2 24 1 63 M. S. in Agr. 12 2 8 B. S. in Mec. Eng 1 I 5 7 1 15 2 14 32 13 M. S. inMech. Eng. .... 1 1 B. S.inC.E M. S. in C. E .......... 3 I 5 29 3 1 7 29 2 5 2 3 23 2 4 "2 19 15 1 8 17 50 11 D. V.M LL B 5 18 2 35 4 20 50 241 LL. M 4 LL. D. 1 . 1 1 1 9 1 22 I 4 M. D 3 9 8 16 5 23 24 28 25 8 2 25 197 B. S. Jr 8 B S. in Forestry i 2 Graduate in Pharmacy 8 4 19 12 22 13 8 86 24 28 5 52 B S in Pharmacy 2 4 5 5 4 2 I 1 2 2 I 1 3 26 12 12 Doctor of Public Health * " '1 1 1 1 Total 11 31 51 106 177 190 262 263 336 435 262 293 2,417 The two preceding tables show that, considering the limited re- sources at its disposal, the University of the Philippines is meeting the demands upon it as satisfactorily as could be reasonably expected. Faculty. — The following table shows the membership of the faculty of the University of the Philippines : Rank. Ameri- cans. FiU- pinos. Total. Deans ... 2 35 9 11 11 4 19 4 3 18 13 8 42 95 25 9 Directors 5 53 Professor'al lecturers . . . 22 19 53 Instructors . . 99 Lecttu"ers 44 Total. ... 96 208 304 The foregoing table shows that there are 141 per cent as many Americans as Filipinos holding the highest ranks (professor and associate professor). The president of the university is an American. The university has always done its utmost to secure the services of American professors of high standing in the United States, but, due to insufficient funds, the university could not in many cases compete with the American universities. However, the American professors now in the university are, on the whole, highly capable, and their study of the local field in their respective lines has rendered them particularly useful as teachers and researchers. 46 FILIPINO APPEAL FOR FREEDOM. IX. Sanitation. The sanitation of the Tropics is always a difficult thing. The Orient is behind the West in her sanitation. But any impartial observer will see that the period of greater Filipino control has meant a greater progress in sanitation to the Philippines. In this case^ again, we shall not be content with glittering generalities, but will get down to actual facts. ORGANIZATION. From 1909 to 1913 there were more Americans in the higher grades of the service. Up to 1913 the chiefs of hospitals were all Americans, with the exception of that of Butuan. Of 17 medical inspectors but 2 were Filipinos, the rest Americans. There were 9 junior medical inspectors, all Filipinos, and 27 district health officers, 5 of whom were Americans. Till 1914 there were 11 Provinces organized into sanitary divisions, with a total of 54 divisions, 6 Provinces into municipal health dis- tricts, and 21 Provinces into boards of health. In 1921 all the Provinces, including those of the Department of Mindanao and Sulu, were organized into sanitary divisions, totaling 307 in all and embracing 639 municipalities, of which 46 sanitary divisions correspond to Mindanao and Sulu. Up to 1914 there were only 91 physicians employed as municipal health officers and 205 sanitary inspectors. At the beginning of 1920 there were 333 physicians employed by the Philippine Health Service, of which 219 physicians were munici- pal health officers and 503 sanitary inspectors and nurses, excluding those employed by the Provinces and municipalities. Between 1909 and 1914 no health officer had any other means of transportation for inspection trips than the ordinary transportation peculiar to each Province. At present 10 Provinces have automobiles for the exclusive use of the district health officers and their employees. These automobiles are sometimes used for transporting sick people to hospitals and are ready at all times for emergency calls and immediate investigation of suspected cases of dangerous communicable diseases. Till 1914 the only source of information of morbidit}^ and mortality in the Provinces was the statistics kept in the quarterly reports. At present a daily telephone report of the number of deaths occur- ring during the previous 24 hours is checked with the normal rate for each town, and any increase is immediately investigated in order that the proper sanitary measures may be taken without delay. This is one of the boons brought about by the implantation of the auto- matic health control. LABORATORIES. Up to 1914 Bulacan was the only Province which had an estab- lished laboratory. In 1920 there were 21 provincial laboratories, excluding those in Mindanao and Sulu. These laboratories are under the control of the district health officers. FILIPINO APPEAL FOR FREEDOM. 47 MEDICAL RELIEF. There is about one physician to each 10,000 inhabitants in the Philippines, and it would be absurd to expect that such a small number could attend to a greater number of births and deaths. It can not, however, be denied that this number has been increasing every year, with the graduates coming from our two colleges propor- tionately with the number of inhabitants. Thus, for instance, in the Provinces in the year 1910 the number of decedents with medical attendance was 3.88 per cent of the total number of deaths, 4.91 per cent in 1914, 6.77 per cent in 1917, 6.47 per cent in 1918, 6.56 per cent in 1919, and 7.78 per cent in 1920. The increase, although slight, was steady during the years just mentioned. In the city of Manila, where the proportion of practicing physicians to the population is larger, the number of deaths with medical attendance was, therefore, larger, being over 50 per cent of the total number of deaths for the last five years. The same thing may be said with regard to the proportion of births attended by physicians. In this connection mention ought to be made of the fact that a large number of births and deaths are reported as having had no medical attendance, although they may have really had, for the simple reason that many physicians are not inclined to extend a death certificate, unless they have given assistance to the very end, although they may have attended the deceased at the beginning of his ailment. The same is true in the Provinces to a more or less extent. As a further proof that medical assistance, compared with that of recent years, has increased we may cite the large number of hospi- tals and dispensaries established not only in the different Provinces but also in villages and barrios, to which the sick go for treatment. In 1914 the number of our dispensaries was 60. These dispensaries were increased to 784 in 1919, and to this number 155 more have to be added as having been established in 1920. With reference to the total number of persons who have attended the dispensaries and hospitals in the Provinces, we may say that their number has increased in proportion to the number of dispensaries established. The total number of patients treated in the hospitals or rural dispensaries for the last five years aggregate 1,621,650, distributed as follows: 158,709 in 1917, 500,052 in 1918, 332,555 in 1919, 349,768 in 1920, and 280,576 in 1921, which, compared v/ith the number of patients treated in the few dispensaries in 1914, which was only 11,596, show a notable progress in the matter of medical assistance bestowed upon the community in recent years. With these figures and this information, we do not pretend to show that a large proportion of the Filipino people are at present enjoying adequate medical service, but we do want to demonstrate that in recent years greater atten- tion has been bestowed upon these activities, filling up the want noted in past years, by increasing the number of hospitals and dis- pensaries commensurate to the means at command of the Philip- pine Health Service. Up to 1914 there were 60 public free dispensaries, in which 11,596 patients were treated. In 1919 there were 784 dispensaries, in which 228,923 patients were treated. During 1920, 155 more dispensaries were established in the Provinces. Up to 1914 there were two insular and six provincial hospitals. ■48 FILIPINO APPEAL FOR FREEDOM. In 1920 there were nine insular hospitals, excluding the Phihppine General Hospital and the Southern Islands Hospital, which are at present administered under the secretaryship of the Department of the Interior, eight hospitals in the Department of Mindanao and Sulu, and three provincial hospitals. INFANT WELFARE. Only one organization existed prior to 1909. In 1915 infant-welfare work was inaugurated as a means to forestall the high infant mortality, and since then there have been established 615 institutions, including women's clubs, puericulture centers, maternity homes, gotas de leche, dispensaries, and baby contests. DISPOSAL OF EXCRETA. As late as 1909 very few private houses outside of the city of Manila had water-closets. The system in general use was the so-called surface type. At the end of 1919 there were 140,565 Antipolo closets, both public and private, and 5,169 septic tanks. Of the Antipolo closets, 1,798 were available for public use. WATER SUPPLIES. Only 100 artesian wells and 1 gravity water system (Manila) furnished safe drinking water in 1909. At the end of 1919, the city of Manila included, there were 2,547 artesian wells and 51 gravity systems furnishing safe, potable water to a population of about 2,600,000. LEGISLATION. The most salient feature of the laws enacted by the legislature relative to public health during the period 1913-1921 is their con- structive character. In response to the growing activities of the health service the appro- priation has been augmented from year to year, as may be gleaned irom the following figures. They represent the insular, provincial, and municipal appropriations available for the Philippine health service, including tiie different sums allotted to fit from time to time by the emergency board : Philippine health service appropriations. 1916 Fl, 303, 488. 77 1917. 1918. 1919. 1920. 1921. 1,253,656.08 2,014,230.80 2,827,536.00 3,453,828.00 3,053.828.00 1909... n, 524, 530. 36 1910 1,851,324.18 1911 1,994,730.33 1912 1, 892, 353. 78 1913 2,224,103.75 1914 1, 456, 358. 90 1915... 1,466,460.87 It should be noted, however, that prior to 1915 the Philippine General Hospital was under the administrative supervision of the director of health and its maintenance therefore included in the general appropriation of the bureau of health. Barring this item out, the appropriation for 1921 represents about three times that for 1913. FILIPINO APPEAL FOR FREEDOM. 49 In 1915 the old bureau of health was reorganized, coming into •existence as the Philippine health service. The council of hygiene was created with the purpose of advising and assisting the director of health in the administration of the Philippine health service, and the procedure to secure funds for health purposes in the provinces was provided for, thus placing it out of the whims of local politics. MORTALITY AND NATALITY. The average death rate for the period of 1914-1919 was 28.62 per 1,000 population, while that of the previous six years (1908-1913) was 32.28, showing a decrease of over 4 per thousand, in spite of the epidemics of smallpox, influenza, and cholera during the former period. In the provinces the average mortality rate was 27 per 1,000 for the period of 1914-1919, and 26.19 for 1908-1913. There was an increase of less than 1 unit, due possibly to the occurrence of three extensive and serious epidemics that swept the islands during 1918 and 1919, viz, influenza, cholera, and smallpox, which diseases caused a combined mortality of about 107,787 during 1918 alone. Undoubtedly a more complete death registration brought about by the improvement in the provincial health organization was partly to account for the frightful number of deaths. The following comparative table represents the total number of deaths which occurred in the city of Manila and in the provinces in accordance with the report submitted to the director of health. Comparing the total number of reported deaths during those last years, caused by said four diseases, it is evident that in all and in each of said diseases, mortality has notably diminished from 1918. Comparative table of deaths caused by preventable diseases in Manila and Provinces. Total niimber of deaths. Years. Typhoid. Malaria. Beriberi. Tubercu- losis. 191S 4,395 3,810 2,652 41,014 37,956 26,660 12,597 12,387 12,509 29,318 1919 . 29,653 25,239 1920 INFANT MORTALITY In spite of repeated epidemics it is gratifying to say that the infant mortality has greatly decreased from 425.95 during the period of 1908-1913 to 329.48 for the period 1914-1919 in Manila, due chiefly to the efforts of the service with the cooperation of private institutions. In this connection it is worthy of note that the rate for 1920 — 213.02 — was the lowest ever attained in Manila. The main factors that have influenced this remarkable decrease of infant mortality rate were the campaign against infantile beriberi, the enactment of a law for the preparation of tiqui-tiqui extract, the organization of public health nursing division, which has lately extended its activities to the H. Doc, 511, 67-4 4 50 FILIPINO APPEAL. FOE FREEDOM. Provinces, and the establishment of women's clubs, puericulture centers, maternity homes, etc. A further decrease in the future in the light of actual experience may confidently be expected. In the Provinces the infant mortality rate has gone parallel with the curve of general mortality, for the reasons already given. The aver- ages are 177.95 for the period of 1908-1913 and 186.28 for 1914-1918. The natality in the Philippine Islands has run quite a puzzling curve^ especially in Manila. Birth rates have been steadily decreasing, both in Manila and in the Provinces, during several years past. The average birth rate during the six-year period of 1914-1919 was 33.59 for Manila and 38.46 for the Provinces as against the average for the period 1908-1913 of 36.97 for Manila and 39.93 per 1,000 population for the Provinces. We sincerel}^ confess that no satisfactory reason could be given to explain this decrease in the natality in the Philippine Islands. In order to make a more thorough investigation as to the causes of this decrease a longer period of time would be necessary to have a compre- hensive view of the matter. If we examine and compare the curves of rates for Manila and the Provinces, we have to admit the existence of a common factor that has influenced both. May it perhaps be explained by the effects of the World War ? COMMUNICABLE DISEASES. In regard to communicable diseases, the service has not yet passed through the stage of epidemic eradication. Much work has already been done along this Ime from the American occupation to the pres- ent time, but it must be understood that in dealing with the control of communicable diseases, many of which are endemic in the Philip- pine Islands, the time that has elapsed is so short as to expect to put them under complete control. Moreover, an important factor, which should not be lost sight of, in the control of these diseases is its constructive feature, and this, it should be said, has hardly been started, when waves of epidemic outbreaks again appear, keeping the activities of the service within the limit of more eradication and limiting its efforts to active epidemic campaign. The eradication of epidemics is a problem depending upon many complex factors, which, although slowly, are nevertheless being steadily eliminated. Plague has been completely eradicated. The last case of plague in human being was registered in 1914. The rat campaign is, however, being continued, and since 1915 not a single rat was found positive for plague bacilli. Smallpox and cholera had been under control for a good number of years, but due perhaps to the conditions brought about by the World War and influenced by the dreadful epidemics of influenza serious outbreaks of these diseases occurred during 1918 and 1919. Vaccina- tions against these diseases have since been performed in the whole Philippine Islands^3, 523,749 vaccinations against smallpox and 200,619 vaccinations against cholera — with the gratifying result that but very few cases and deaths were registered in both Manila and the Provinces. The typhoid fever problem has now entered the prosodemic stage — well determined contact infection — and the question of its complete FILIPINO APPEAL FOR FREEDOM. 51. eradication will largely depend upon the extension of hygienic educa- tion and the improvement in general sanitation. Typhoid vaccination has been pushed during the past year, making it compulsory for all contacts, food handlers, and food vendors. In connection with this campaign other measures, such as the finding of carriers, the improve- ment of water supply, t]^e establishment of good sewage disposal have been given impetus. During 1920, 18,938 vaccinations against typhoid were performed. DYSENTERY, DIPHTHERIA, AND LEPROSY. Cases and deaths are decreasing, in general, although there was a slight increase in Manila from 10 deaths to 11 per 10,000 popula- tion. Two types of dysentery are responsible for this number of cases and deaths, but the increase, according to a partial investiga- tion, was due mostly to the bacillary type, the amebic being on the decrease on account of the improvement achieved along sanitary lines in provincial towns. Cases and deaths from diphtheria have been steadily decreasing. The campaign for searching for and isolating of carriers, started since 1914, has brought about this satisfactory result. Leprosy is one of the diseases that has received more attention from the health authorities and the powers that be during recent years. Segregation has undoubtedly been instrumental in the relative de- crease of the number of lepers found. The modern treatment of lep- rosy has been studied and tried with promising results, and on account of its importance will be discussed separately in this memorandum. INFLUENZA AND TUBERCULOSIS. The endemic wave of influenza reached the islands at the end of the second quarter, 1918. This wave, however, lasted scarcely two months, to reappear and decimate the population during the last quarter of the year. This disease alone has doubled the general death rate for the year 1918 and contributed to a large extent to increasing the number of deaths from several diseases, especially respiratory. Cases and deaths from tuberculosis have also gone up, especially after the influenza epidemic. But it is just to say that the service has not paid much attention to it, the campaign bein^ largely in the hands of the Antituberculosis Society, a private institution which is, in great part, supported by the government. In general, the figures for these communicable diseases, with the ex- ception of diphtheria, plague, and leprosy, have gone up. But this increase is merely apparent, as the same is mostly due to the improve- ment in reporting cases and deaths which resulted from the enforce- ment of regulations for compulsory notification. TREATMENT OF LEPROSY. A committee for the investigation and treatment of leprosy was created on May 3, 1920, consisting of the following members : Two medical officers of this service, one of whom was appointed chairman. One bacterioloo:ist from the bureau of science. 52 FILIPINO APPEAL FOR FREEDOM. One chemist from the bureau of science. Three professors from the medical faculty of the University of the Philippines. The preliminary report of this committee has been most encourag- ing. The legislature was requested to appropriate the sum of 1P600,- 000 in order to give adequate treatment for one year to 5,000 segre- gated lepers, but in view of the depleted state of the insular treasury it was reduced to ^100,000. It is interesting to cite at this juncture one of the conclusions of the committee on leprosy investigation in its preliminary report : In ^iew of the * * * results obtained , it is certain that there are at hand new methods of treatment which in the short time that we have used them have caused remarkable alleviation of the symptoms of this disease, and which, if used systemati- cally over longer periods, will probably produce permanent ciues in a greater percentage of cases treated than any of the methods heretofore available. X. Local Administration. There are five political units in the Philippines for the purpose of local administration, namely, Provinces (which are divided into regular and special), subprovinces, chartered cities, municipalities, and municipal districts. The regular Provinces are those governed by the general provincial law and are wholly self-supporting and enjoy complete representative government. The special Provinces are those organized by special acts and are neither wholly self-sup- porting nor enjoying entirely a representative government, their status being only temporary to become sooner or later regular Provinces. A subprovince is a political subdivision within a regular Province, directly administered by a subprovincial governor on account of its geographical situation. The chartered cities are those governed by special charters on account of their special conditions, like Manila and Baguio. The regular municipalities are those gov- erned by the general municipal law; and the municipal districts are those political units which, for some reason or other, can not main- tain themselves as regular municipalities. There are 37 regular Provinces and 2 special Provinces under the executive bureau, and 9 special Provinces under the bureau of non- Christian tribes, 2 subprovinces, 2 chartered cities, 889 municipali- ties, and about 400 municipal districts. The regular Provinces were formerly governed by a provincial board composed ot one elective governor and two appointive mem- bers, all 01 which are now elective. The special Provinces were formerly governed by a provincial board composed of one appointed provincial governor and two appointed members. Now, 7 out of 11 of our special Provinces elect their provincial governors and third members. The subprovinces are governed by the provincial board of the corresponding main Province but, as stated above, are being administered through their own subprovincial governors. The gov- ernment of the city of Manila is vested in a mayor appointed by the Governor General and a municipal board elected by the people of the city. The municipal board, which is the legislative body for the city, consists of 10 members, including the chairman. The government of the city of Baguio is vested in a mayor, a vice mayor, and three other members, two of them elected by the people. These five persons constitute the city council. There is also an advisory riLIPINO APPEAL FOR FEEEDOM. 53 council composed of five Igorotes presided over by the mayor or other member of the city council, whose duty is to make suggestions and recommendations to the city council in matters of general interest. The Governor General appoints the mayor and vice mayor and one member of the city council and all the members of the advisory council. The regular municipal government is vested in a president, a vice president, and a council, all elected by the people. The gov- ernment of the municipal districts is also vested in a president, a vice president, and a council, all appointed b}^ the provincial governor of the Province. Practically all the officials and subordinate employees of these differ- ent kinds of our local governments, whether appointed or elected, are Filipinos, and practically all the responsible officials in our local gov- ernments are elected by the people. We can, therefore, safely say that the people or their authorized representatives govern our Prov- inces and municipalities. Our provincial and municipal governments are acting under specific powers granted them by the legislature. They have also what we call a general welfare clause authority granted them by law, but they can only act under this authority with the supervision of the department of the interior. The principal aim of the administration is to give our provincial and municiprl governments as great a local autonomy as compatible with the existing laws. Formerly, Provinces, municipalities, and chartered cities were under the administrative supervision and control of the Governor General, but after the reorganization act all our local gov- ernments were transferred to the department of the interior, acting through the executive bureau or the bureau of non-Christian tribes, as the case may be. But neither the department of the interior nor the executive bureau intervenes by means of executive requirement, except in rare instances, as such policy has been found to work cur- tailment on the autonomy of our Provinces and municipalities. Ac- cordingly, our Provinces and municipalities are not subject to inter- vention by the central government so long as they confine themselves within the province of theh legal powers. Acting within these powers our Provinces and municipalities are self-governing communities, petty commonwealths. Neither the department of the interior nor the executive bureau intervenes on then* own initiative in the acts, resolutions, etc., of the municipalities, and the executive bui'eau takes cognizance of questions involving such acts and resolutions only when appeal is taken pursuant to the provisions of the administrative code, in which case only the point of legality or illegality of an act or reso- lution concerned is decided. When a protest is filed by a person or persons affected, the bureau passes upon the protest and, if found to be well founded, makes the necessary and proper suggestion to the provincial board, which invariabl}' takes action accordingly. As a rule, the question of the convenience or wisdom of a measm^e is left primarily for the municipality to decide, and the central government does not interfere unless there is a clear abuse of authority or wanton or capricious exercise thereof. This is also true of administrative charges formulated against mu- nicipal officials. Although the executive bureau, with the approval of the secretary of the interior, is empowered to conduct special investi- gation of charges formulated against municipal officials, it has never 54 riLIPIN^O APPEAL FOR FREEDOM. made use of such power except in rare instances where the interest of justice and good government so require. The investigation and pun- ishment of municipal officials are thus left entirely in the hands of their ov^'n immediate chiefs. Comparing the number and result of administrative cases for 1909- 1913 vrith those for 1914-1920, we give the following comparative tables : Officials. Number of cases. Number officials found guilty. Officials. Niunber of cases. Number officials fotmd guilty. 1909-1913. 5 929 i 671 1 1914-1920. 2 660 Mumcit)al 419 Total Total 934 676 662 420 The above table shows that from the year 1909 to 1913, inclusive, ^Ye years, there were accused o provincial officials and 929 municipal officials, of whom all of the former and 671 of the latter were found guilty. On the other hand, from the years 1914 to 1920, inclusive (seven years) , there were accused only 2 provincial officials and 660 municipal officials, of whom only 1 of the former and 419 of the latter were found guilty. This result is most gratifying. It shows a con- stant improvement in our municipal administration, a better realiza- tion on the part of our municipal officials of the responsibilities con- tracted by them with their constituents — the people whose sovereign will has exalted them to position and power. It is gratifying to note that this policy of granting greater autonomy to our local Provinces and municipalities is productive of good results. Our provincial and municipal officials now more than ever appear to understand the responsibilities they have assumed and their adminis- tration has been characterized as a rule by initiative, prompt action, and devoted interest in the weKare of the community. Rarely have they adopted ordinances and measures which could not stand the test of propriety. Some of their, acts have been found beyond the sphere of their powers, defective in form, but these cases were few, and whenever found to occur investigation showed that the error has been committed with the wholesome intention of serving public interest, not for any selfish or personal end. The chief sources of revenue of Provinces and municipalities are the cedula tax, the percentage of the internal-revenue taxes accruing to them, the land tax, the fees for cattle, registration, and the munici- pal licenses and rents and profits derived from the municipal utilities, privileges, and properties. The policy with reference to taxation is to permit Provinces and municipalities to increase local taxes, especially those proceeds intended for education, sanitation, and permanent public improvements. One of the most significant and substantial results obtained from the extension of popular control over our local governments and the Filipinization and local autonomy policies observed during the past years is the remarkable improvement of the finances of our Provinces and municipalities notwithstanding the difficulties encountered due FILIPINO APPEAL. FOR FEEEDOM. 65 to the economic crisis of recent years. Some facts about this improve- ment of our local finances should be known: During the period of 1914-1920 a general revision of assessment of real properties was conducted in all Provinces in accordance with the law. From this assessment we find an increase of 1,703,449 in the number of lots of taxable real property on December 31, 1920, as compared with the number of taxable property on September 30, 1913. This in- crease is about 100 per cent. Likewise the value of real properties subject to taxation for the periods ending on the dates above men- tioned has increased, the increase valuation being jP822,985,360, or about 280 per cent. The increase, of course, means increased revenue from the real property tax source for our local governments. The collection of local taxes by provincial treasurers and their depu- ties has also shown a remarkable degree of improvement since the time of our autonomous government. In the exercise of their supervisory function the department of the interior and the executive bureau have been suggesting ordinances imposing taxes. Local governments in almost all cases have accepted the department's suggestion and the result is quite remarkable. A study of the revenues of the Provinces and municipalities during 1914-1920 as compared with the period 1909-1913 shows an increase of 1,090 per cent, the average per- centage of yearly increase being 155.5 per cent. Some concrete figures about the market collections in our Provinces and municipalities should also be known. During the years 1909- 1913 the market collections of the Provinces under the executive bureau were 1P3,964,810.81, or an average per annum of 1^792,962.17, while during the period of 1914-1920 our market collections in the Provinces and municipalities reached the total of ^7,940,370.62, or an average per annum of ^1,154,732.78. Notwithstanding the fact that the revenue collections in our Prov- inces and municipalities have been greatly and remarkably increased every year, the amount of money collected has proved to be insuffi- cient to cover the financing of the whole program of intellectual and moral development and to meet other growing needs of these com- munities. To remove this difficulty, it has been found necessary to give our Provinces and municipalities greater autonomy in the impo- sition of local taxes. In fact, there is already a bill submitted to our legislature in this respect, and we hope that the same will become law in an immediate future. The program of improvements most heartily accepted by our local officials is the establishment of more schools and school buildings, market buildings, roads and bridges, artesian wells, waterwork sys- tems, electric-light plants, municipal presidencias, provincial capitols, etc. This program is so extensive, and so intense is the people's desire for its execution, and at the same time the funds in the govern- ment's treasm*y so insufficient, that it has been found necessary in almost all the Provinces of the archipelago either to solicit voluntary contributions from the people in money and other effects or materials, or to ask for loans from the central government, payable by install- ments. Another fact which is worthy of mention here is the dissemination of English as the only recognized language in all official correspond- ence in oiu" Provinces and municipalities. From the very beginning of American government in the islands the policy has been to make 56 FILIPINO APPEAL FOR FREEDOM. the English language the common and official language in the^ Philippines. Such desire found expression in an act passed by the Philippine Commission in 1904 making the English language the official language of all courts and their records, beginning 1906 (this period, however, was extended by later acts of legislature), and in the executive order of the Governor General of August 8, 1912, requiring all the officials, and employees of the government, except the courts, to use whenever possible the English language in writing their correspondence, and the provincial boards and municipal councils in their minutes and in their correspondence. There is, however, a proviso in said executive order to the effect that where it is not practicable to carry this polic}^ into effect the offices concerned should inform the executive bureau,, whose chief is empowered to modify the rule in such case. It is,. indeed, very gratifying to note that from 1914 to 1920 only 28 requests for exceptions from the provincial boards and 54 from the municipal councils were made to the executive bureau for permission to continue the use of the Spanish language in their minutes and in their official correspondence. It is no exaggeration to say that now almost all provincial boards and municipal councils have adopted and are now using the English language with success. XI. Labor. The last administration, being in closer touch with the people,, has naturally shown a much deeper regard for those affairs which directly touch the life of the people. The interest of the govern- ment in a more harmonious relationship between labor and capital- is a proof to this fact. Upon native initiative, a bureau of labor has been established for the promotion of better relations between capital and labor. It urges legislation for the improvement of the condition of the laborers. It compiles data on labor conditions and is empowered to inspect shops, factories, and other industrial and commercial establishments which employ labor. Another important work of the bureau of labor is to settle differ- ences between employers and labor unions. The bureau acts as an arbitrator in questions affecting them in order to avoid strikes or to settle strikes which have been called by laborers. Under its auspices committees on conciliation and arbitration are often appointed. The decision of the committee in order to be binding must be approved by at least two members of the representatives of each party. The committee can also appoint an arbiter, whose decision shall be com- pulsory on both sides. The bureau of labor is empowered through its attorney to bring suits gratuitously for poor laborers when their attempts at peaceful and amicable settlements prove futile. It also maintains employ- ment agencies where those who need work may apply, and superin- tends the interprovincial migration of laborers. The activities of the bureau before and after 1914 are shown in the comparative figures contained in the following tables: FILIPIlSrO APPEAL FOR FREEDOM. 57- Comparative statement of the important activities of the bureau of labor from the middle of the year 1909 {year of creation) up to 1921, inclusive. Strikes and other industrial disputes. Adjustment. Status. Causes of conflicts. Year. Number. Workers involved. With ad-' ,„^^_, vantage I ^^amst to worker, ^o'^ker. Unionist. Non- unionist. Wages. All other causes. 1909-10 13 11 3,105 222 4,488 2,880 1 7 6 8 3 15 8 5 2 5 3 3 5 14 8 10 1911 5 16 1912 4 6. 1913 4 3 Total . . 49 10,695 32 17 34 15 30 19^ 1914 10 iJ 50 84 67 68 35 1,017 4 fi 6 4 A 13 37 50 50 48 22 4 1915 .336 ■ 8 i 31 6 1 5 1916 4,485 1 7 10 i 7 10 3 1 13 22 9 4 1917 5,842 16,289 . 4,150 11, 139 19,782 40 62 43 51 13 10 22 24 17 22 47 83 54 46 26 13 1918 34 1919 17 1920 20 1921 13 Total 342 63,040 228 114 1 275 67 237 105. Conflicts betiveen rnasters and servants and employers and workpeople regarding the payment of wages, etc. Claims and com- plaints. Num- ber of claim- ants. Causes. Adjustment. Amount. Year. Wages. All other causes. In favor of worker. Against worker. Can- celed or dis- missed. i Total involved. 1909-10 1911 23 37 199 299 53 138 890 800 7 34 182 292 16 3 17 7 7 17 118 215 16 14 40 23 6' 41 61 n59.55 F405.89 511.03 1 6,206.70 2,009.23 2,792.14 7,918.96 7,168.20 r565. 44 6,717.73 1912 4,801.37 15,087.16 1913 Total 558 1,881 515 43 28 126 69 37 51 56 66 105 357 374 266 273 212 95 178 247 344 93 108 .337 396 ""■3.52' 180 10,598.77 16,572.93 6,931.09 ; 8,817.93 9.107.87 i 18,273 79 6,662.44 24,517.22 6,503.20 1 14,471.72 2,494.58 1 25,981.28 6,282.63 1 12,048.08 23.626.04 ! 12,048.85 24,277.66 ! 22,079.87 27,171.70 1914 1915 1916 1917 1918 1919 1920 1921 753 795 527 597 327 2.392 2 478 3 605 1,264 795 940 1,041 .337 455 619 775 725 669 458 560 276 336 326 500 42 133 1254 33 52 1139 1145 1205 15,749.02 27,381.66 31,179.6& 20,974.92' 28,475.8& 18,330.71 35,674.8» 46,357.53 Total.... 4,474 6,226 3.850 538 1,989 1,003 1.265 85,885.51 ! 138, 238. 74 224, 124. 25 1 Dismissed included. 2 75 and 86 claims were pending in 1919 and 1920, respectively, but were subsequently acted upon in the year folio-wing. 3 ,56 claims were pending at the close of 1921 . 58 FILIPINO APPEAL FOR FREEDOM. Labor accidents. Number of accidents. Victims. Indem- nified. Not indem- nified. Year. Degree of incapaci- tation. Fatal. Total. Amount collected as in- demnity. Tempo- rary. Per- petual. 1909-10 123 168 170 178 105 149 147 133 18 59 56 45 123 210 215 190 13 82 161 116 110 128 54 74 $1,821.17 3,383.08 5,238.23 5, 538. 23 1911 2 12 12 1912 1913 . Total 639 534 26 178 738 372 366 15,980.71 1914 267 323 301 349 193 393 460 306 213 283 262 279 252 385 387 246 18 12 8 30 38 60 56 72 58 51 42 109 111 291 351 342 367 341 427 551 374 220 209 244 285 158 1250 282 250 113 100 98 82 183 1143 269 124 8,307.22 9,817.92 8,696.27 6,713.41 7, 579. 25 1915 1916 1917 1918 1919 8, 743. 76 1920 55 17 11,516.99 1921 18,284.08 Total 2,592 2,307 178 559 3,044 1,890 1,112 79,658.90 1 These figures refer to cases of accidents, close of 1921. The cases of 31 victims were still pending fo rsolution at the Number oj home seekers and contracted laborers, including members of Jamilies, recruited by the bureau of labor since its creation up to December 31, 1921. Home seekers and contracted laborers, including members of families: 1909-10 126 1911 3, 390 1912 2, 244 1913 5, 799 Total 11,559 1914 4, 028 1915 1, 085 1916 2, 019 1917 4, 442 1918 7, 919 1919 3, Oil 1920 (this number includes home seekers indirectly recruited by the bu- reau of labor) 16, 281 1921 (recruitment for home seekers was suspended by the middle of June, 1921, due to the retrenchment policy of the government) 3, 168 Total 41,953 FILIPINO APPEAL FOR FREEDOM. Registration and 'placements of workers. 59 Year. Registered. Placed. Percentage 1909-10 1,864 2,204 5,612 5,631 . 973 1,334 2,598 2,501 52.2 1911 60.5 1912 . . 46.3 1913 44.4 Total- 15,311 7,406 48.37 1914 4,473 3,076 5,304 7,058 5,992 3,S34 4,497 3,785 3,145 2,971 4,103 5,385 5,735 3,403 3,416 3,028 70.3 1915 96.6 1916 77.4 1917 76.3 191'^ 95.7 1919 88.8 1920 75.9 1921 80.4 Total. . 37,997 31,187 82.7 Note. — The above figures comprise the number of persons of different trades registered and placed by the agencies of the bureau of labor, \\T.th the exception of contracted laborers and homeseekers; a detailed statement of the same appears in another table. Movement of Filipino laborers to and from the Territory of Haivaii. Year. Emigrants to Hawaii Emigrants returnin g to the PhiUppines. Total. Men. Women. Minors. Total. Men. i Women, j Minors. 1915 2,150 2,214 2,598 2,761 3,797 3,4.54 6,814 1,777 1,877 2,191 2, 030 3,181 3,042 5,748 180 157 178 284 319 225 628 193 180 229 447 297 187 438 347 465 733 841 948 1,281 2,705 260 342 568 645 677 1,093 1, 953 1 40 ! 47 1916 64 59 1917 72 93 1918 65 131 1919 104 167 1920 75 113 1921 249 i 503 Total 23, 788 19. 846 1.971 1.971 7, 320 5, .538 669 1 113 Note. — The data on emigrants corresponding to the period of time from 1909 to 1914 were not classified as to sex and class, inasmuch as this acti^'ity came under the jurisdiction of the bureau of labor in 1915 by %'irtue of act 2486. The approximate munber of emigrants to Hawaii was 19,059 in the above period of time. No data are available of the mmiber of emigrants who have retm-ned to the Pbihpptnes from 1909 to 1912. The number of emigrants who have returned to the islands from 1913 to 1914 is 159. From the year 1914 to 1921 the bureau of labor has recruited and sent to different places of the archipelago 41,953 laborers and home seekers, and has given employment to 31,187 men and women of dif- ferent trades. The effect of this campaign has been, of course, the dissemination in the mind of the laboring class of the necessity of moving from the congested places of the island to thinly populated and uncultivated regions. This gives them an inducement to cultivate the soil and become small landow^ners. In order to attain the best possible results in the campaign of the bureau relative to the intermigration of laborers, committees of propa- ganda have been organized in different points of these islands. These committees cooperate with recruiting agents in convincing the people of the benefits of intermigration, and encouraging them to stay in their own country rather than go abroad in the expectation of high wages. Actually there are 1,868 committees of propaganda with a member- ship of 11,612. 60 riLiPi:N'o appeal pok freedom. XII. Social Progress. (a), women's activities. The first woman's organization of a nonsectarian character to gain considerable prestige and recognition in this country is the Woman's Club of Manila. It was organized in 1910 by prominent ladies of Manila at the initiative of Mrs. Carrie Chapman Catt. Since its or- ganization this club has always been a cosmopolitan one, and its mem- bership list has always contained the names of prominent ladies in the city — Americans, English, French, Filipino, and others. Through its various committees the club succeeded in establishing four day nurseries in the city of Manila; in getting put up the flower market, formerly located at the foot of the Bridge of Spain, but now in the botanical gardens; in getting an industrial teacher for the insane women at San Lazaro, and a teacher for the women prisoners atBilibid. The club also contributed much toward the success of the Liberty loan campaigns in the islands, and helped greatly in Red Cross work during the war. During the most critical moment of the World War, the Woman's Club of Manila, through its civic committee, conducted an island-wide campaign in home gardening and poultry raising. This was in the year 1916 and it marked the beginning of the organization of branch wo- man's clubs in dift'erent parts of the islands. At that time one or two women's organizations were in existence in some of the more pro- gressive Provinces, but the interest of the women was only local. For the purpose of giving proper instructions to the women about organizing clubs several interested members of the Woman's Club of Manila went out to the Provinces to lead the organization. The names of Mesdames Wrentmore, Levant, Brown, Westerhouse, Pond, Kalaw, Apacible, Calderon, Agcaoili, Morente, Vamenta, Delgado, and the Misses Barreto, Fernandez, Almeda, Lopez, and Wrentmore (now Mrs. Francis B. Harrison), will always be remembered in connection with the arduous trips made to the Provinces to get the provincial women interested and to appeal to their patriotism. At that time the sole aim was to help win the war by working in the Philippines for a more stable supply of food products for local consumption. Incident- ally, work in connection with the Liberty loan campaigns and the Red Cross drive were carried on as a part of the task of the women. The provincial women responded splendidly to the appeal made to them. It was surprising to note how quickly clubs sprung up in to^vns where women never ventured out to do anything of the kind before. In less than six months many women's clubs were organized. By the end of the year 1918, 190 clubs were in good working order, re- porting splendid work in home gardening and poultry and hog raising, and working harmoniously with the government officials in civic mat- ters of interest to the country in general and their town in particular. vSince 1918 the growth of the clubs in the Provinces has been very steady and encouraging, until to-day there are 342 woman's clubs established from far-north Cagayan to southern Jolo. And the Filipino women by doing this have stepped out from their old shell of seclusion and taken up their responsibilities side by side with the men, and hand in hand with their sisters in the most progressive countries of the world. FILIPINO APPEAL FOR FREEDOM. 61 In the year 1921, at the convention held in Manila, these clubs de- cided to federate, and we now have the National Federation of Wo- man's Clubs of the Philippines. The federation holds an annual con- vention at which delegates from the various woman's clubs in the islands come to attend. It is primarily a charitable organization, taking no part in religion or politics. Since the close of the war the work of the clubs has extended to a mder field of action. Food production continues to be one of its activities, for with better and a more varied diet, there will be stronger mothers and, consequently, stronger babies and children. The principal activity, which appeals to the club women generally, is the work in connection with the infant mortality campaign. With the conveniences of the law recently passed providing for insular aid to all charitable organizations desiring to carry on permanent work in child- welfare work, the interest of the women has become more keen. Women's clubs are trying their best to raise funds for their work. The most progressive ones have started to do work of their own accord, and already dispensaries and health centers have been estab- lished in the bigger towns. Besides these two activities, the clubs take up the problem of civic betterment in their localities. Schools and playgrounds have been established through the initiative of some clubs; streets and parks have been widened and made more attractive: and markets and other public conveniences have always received attention from inter- ested club women. But the most salient result of club work in this country is the educational influence it is bearing upon the Filipino woman. It is the ardent expectation of every club woman in the Philippines to work ultimately for a better standard of living, especially among the laboring class, in order to give their children a fair start in life b}^ giving them a good home. The clubs will continue to carry on the work they have started as enumerated in the foregoing paragraphs. The present program of work, as outlined and discussed at the last convention, is as follows: 1. Infant mortality work — in correlation with the plans of the public welfare commissioner. 2. Sanitation and town improvement. 3. Food production. One encouraging feature of club work in this country is that it is attracting the sympathy of the government, a case which is not true, in a financial sense, in other countries. The clubs here work in coordination with the different branches of the government which have something to do with their activities. Such are the bureau of agriculture in the food-production campaign and the bureau of health in sanitation and town improvement. These two government insti- tutions help the clubs by giving advice and suggestions and instructing their field employees to help the clubs as much as possible. The financial aid of the government to deserving clubs is given through the public welfare commissioner's office. The public welfare commissioner is taking an unselfish interest in those clubs doing creditable work and always extends insular aid to them upon proper application to carry on activities dealing with child-welfare work. 62 FILIPINO APPEAL FOE. FREEDOM. A group of clubs in one of the Provinces made a petition, indorsed by the federation, requesting the Governor General to set aside a day to be known as mother's day in the Philippines. This petition was favorably acted upon, and the Governor General has proclaimed the first Monday of December of every year as mother's day in the Philippines. The clubs are also petitioning their legislators to pass a law pro- viding for the establishment of a proper juvenile court in the city. This petition has been presented for the third time at the last session of the legislature and favorably recommended by the Governor Gen- eral in his message, but no action was taken on it. The clubs will continue to petition for it until they get it established. Another petition which has created quite a stir among our legis- lators is the one asking for the complete abolition of cockpits in the islands, cockfighting being known as the national sport of the Filipino people. In its place athletic games are recommended as a better sport. This petition was headed by several of the representatives and senators and a bill was presented in both houses of the legislature. Both bills were killed after a deliberate discussion in both houses. There are at present 342 women's clubs in the Philippines in good working order. Added to these are a number of junior clubs, which have for members girls ranging from 12 to 18 years of age. From 18 up the women are admitted as regular members of women's clubs. There are approximately 12,000 women enrolled as members in the various women's clubs. A good majority of them (about two-thirds) understand and speak English, and they conduct their meetings and write their communications in English. The rest use Spanish or the native dialect at their meetings and write their communications in Spanish. Club work in the Philippines is still in its early stage, but it is growing fast. With the impetus given the club women they have succeeded in accomplishing the liUle that they could do for the betterment of their country. Outside help is, in a general way, not lacking. The women's clubs expect to achieve their present plan of activities and, incidentally, strive to work along some other line of activities that may demand their attention from time to time. The federation will continue to org:anize more clubs and extend its work all over the islands. It will also continue to work for better laws for women and children, and especially for working women. (b) public welfare work. The present state of charity work in the Philippines had its histori- cal beginning during the early part of Spanish occupation, when the Catholic Church first distributed alms to the poor. The large endow- ments of this church, together with the revenue from its vast estates and the contributions of individuals, enabled it to carry on all the charitable work it undertook. The funds thus collected were used for various purposes — support of church activities and religious orders; alms for the poor; doweries for poor Spanish girls, Filipino and Mes- tizo women; contributions to hospital and prison funds. The church is still promoting and supporting the good enterprises it started and is inspiring the establishment of similar work all over the islands. FILIPINO APPEAL FOR FREEDOM. 63 With the advent of the American regime, and the consequent seda- ration of the church from the state, many new welfare organizations were estabhshed. In va^rious parts of the islands the Protestant mis- sions founded hospitals, schools, and asylums, which have become great factors in promoting modern welfare work. Other private or- ganizations, such as the Anti-Tuberculosis Society, ''La Liga Nacional Filipina para la Proteccion de la Primera Infancia," the '^Gota de Leche," and the Woman's Club of Manila were created to work side by side with the religious organizations in solving the many pressing social problems that have developed with progress and civilization. In the early days of the American occupation the government had so much reconstruction work to do that it had no time to devote to the promotion and support of charitable work. Welfare organizations were established, only to fail because of lack of funds. The govern- ment gave a few deserving institutions financial assistance, but fixed no rules and regulations regarding the expenditures of money thus allotted. Once a stable government was established the legislature turned its attention to the improvement of social conditions. The development of modern social work in the Philippines has been slow but nevertheless progressive. The Jones law, which created the new organic act of the Philippine Islands, curtailed many of the activities of the sectarian welfare in- stitutions which received financial support from the government by providing in part as follows : ''No public money or proj)erty shall ever be appropriated, applied^ donated, or used, directly or indirectly, for the use, benefit, or support of any sect, church, denomination, sectarian institution, or system of religion, or for the use, benefit, or support of any priest, preacher, minister, or other religious teacher or dignitary as such.^' The immediate effect was the creation of many nonreligious welfare organizations, several of which are now functioning in Manila and in various parts of the islands. Recognizing the need of coordinated work among the private and public welfare agencies, the legislature on February 5, 1915, created the public welfare board. This board acted as the government agency for controlling the disbursement of public charity funds to semiprivate institutions like the Anti-Tuberculosis Society, "Gota de Leche," and the Woman's Club. On February 23, 1916, an act was passed by the legislature appro- priating ^1,000,000 for the protection of early infancy and the estab- lishment of branches of the "Gota de Leche." Local organizations were granted aid from this fund as much as what they raised. It may be stated that at this period the government had definitely decided to undertake the campaign against infant mortality. In 1917 the government established an orphanage for destitute and dependent children from all over the islands. The activity of the institution was further regulated by the enactment of act 2815. The orphanage since its foundation has been managed according to the most modern methods and principles. On February 18, 1918, the public welfare board membership was reduced to five and its administrative control was placed under the department of the interior. The administration of the million-peso funds for the protection of early infancy and the establishment of "64 FILIPINO APPEAL FOR FREEDOM. maternity and child-welfare centers were also placed under the control of the Secretary of the Interior on March 22, 1920. Later these ac- tivities were all grouped together by act 2988, enacted February 24, 1921, into one office — the office of the public welfare commissioner — which started operation on May 1, 1921. The aims of the office can be summarized as follows : To promote all work directed toward the early reduction of infant mortality in the Philippines by employing adequate means for this purpose and for carrying out other activities intended to bring about the general welfare of the community, especially that which concerns children. The office of the public welfare commissioner has laid out definite plans for the reduction of* infant mortality in the islands. ^. 1. It plans to train an efficient corps of maternity and child- welfare workers, who will be ready to respond to calls from all parts of the islands : (a) By giving instructions in case work to its medical and social service members of its staff in community organization, coordination of social forces, organizations, and management of medical and child- welfare centers. (b) By imparting the same knowledge to cooperating physicians, nurses, midwives, and other child-welfare workers outside of the office. (c) By supervising and advising existing maternity and child- welfare agencies or institutions, in order to make their work come up to a certain standard. 2. It plans to coordinate all child-welfare activities, like those of the Philippine health service, of the Philippines chapter, American Red Cross, of the Federation of Woman's Clubs, of the Antitubercu- losis Society, of hospitals and dispensaries, of the Liga Nacional Fili- Eina para la Proteccion de la Primera Infancia, and of the Gota de leche. 3. It plans to call the attention of the public to the need of child- welfare work in the islands and educate them in the method of com- bating infant mortality: (a) By distributing literature and by holding public conferences. (b) By encouraging the establishment of maternity and child- welfare centers by offering financial and technical assistance to deserving institutions or agencies. 4. It plans to make surveys and do research work in the field of child welfare in order to bring to light new problems and to formu- late effective methods of solving them. Following this program during scarcely three months (July 25, 1921) of its existence the office of the commissioner of public wel- fare has undertaken the work of training physicians and nurses who are to carry out the work planned, and who will act as advisers and demonstrators of child-welfare activities. This office renders financial and technical assistance to private or- ganizations. Financial aid is given upon condition that" the institu- tion renders a satisfactory evidence that the administration is effi- ciently run and that certain amount of their funds are derived from private sources. They are also required to submit regularly state- ment of account of their income and expenditures, and their institu- tions are subject to inspection by representatives of the office of the filipijsto appeal for freedom. 65 Commissioner of Public Welfare to observe whether their activities are effectiveh^ and economically performed. (C) PERIODICALS AND LIBRARIES. In 1918 there were 114 newspapers and reviews, of which 45 were newspapers and 69 reviews, distributed thus: In English. 28 In Spanish 27 In natiAT tongues 24 In other hinguages ( 2 Chinese and 1 Japanese) 3 Bilingual (English-Spanish) 14 Bilingual (English-Tagalog) . . . _ 2 Trilingual (English-Spanish-Chinese) 1 Bilingual (Spanish and. native tongue): 5 in Spanish and Visayan: 2 Spanish- Ilocano; 3 Spanish-Tagalog: 1 Spanish-Pangasinan; 1 Spanish-Bicol ; 2 Spanish- Cagayan: 1 Spanish-Moro 15 Total 114 Twenty- two newspapers and reviews in English and 18 in Spanish were published in Manila; 9 of the former (3 in English and 6 in Spanish) were dailies. The total circulation of publications amounted to 276,560 copies, which represents a rate of 1 copy for 34 inhabitants. The following table gives an idea of the results of the census of 1903 compared with that of 1918: English. Spanish Dialect | other languages | Bilingual (English-Spanish) | Biling-ual (English-native tongue). 1903 1918 Trilingual (English-Spamsh- Chinese) BiUngual (Spanish-native tongue). Total Number of copies Niunber of inhabitants per copy . . 1903 41 i 114 68,236 276,560 150 ! 34 The census of 1903 apportioned one copy of some periodical to each 150 inhabitants and the census of 1918 one copy to each 34 inhab- itants. This result is based on the supposition that all readers buy the periodicals read by them, which is not true in the Philip- pines. In a house inhabited by one, two, or more families every- one reads the periodical of only one subscriber. Moreover, residents of a street or a small village read, one after the other, the only peri- odical bought in the locality. There is no barber shop, office, or store where there can not be found at least one or more periodicals at the disposal of the customers. Each is informed of the daily topics by those who read them, and groups of neighbors comment and debate on these topics. If the newspaper or magazine is written in the vernacular, the free reading circle is still greater. The number of copies issued by a publication does not indicate the number of its readers. Although the rate is 34 inhabitants per copy, there is, as a matter of fact, no Filipino, whether or not able to read, who is not informed of current events b}^ the press or has, perhaps, had the benefit of a debate on current topics. H. Doc. 511, 67-1 5 66 riLIPIKO APPEAL EOE EEEEDOM. PUBLIC LIBRARIES. B;^ public libraries are meant those of the insular, provincial, and municipal governments, to which the public has more or less access. The following comparative table shows their existance in the years 1903 and 1918 and a specification of the number of volumes in native tongues, English, Spanish, and other languages: Year. Number of libraries. Number of volimies in native tongues. Number of English volumes. Number of Spanish volumes. Number of | volumes in | other Ian- | Total, guages. 1 1903.. 12 sec 513 4,330 1,067 472, 275 2,421 67, 522 18 1 4,019 32,015 576,142 1918 The difference in the number of libraries shown by the two censuses is striking. In 1903 there were only 12 libraries in the entire archi- pelago. In Manila there was the American circulating library, loimded chiefly for Army people. It has about 10,000 volumes. In 1907 it was merged with the old museum library. Act No. 2572, which provided for the reorganization of the libraries in Manila be- longing to the Government, and created by other acts, among them Act No. 1935, made it possible for the Philippine Library and Museum to report on December 31, 1918, approximately 354,719 volumes in Manila and 3,586 in Iloilo. This librar}^ was so well frequented that notwithstanding the exodus of many readers, on account of the war, its book circulation during 1918, exclusive of that of the legislative reference division, amounted to 114,498 volumes. There is but one public library, strictly speaking, which is the Philippine Library and Museum, but owing to a certain administrative autonomy enjoyed by some branches of the insular government, the libraries of the supreme court, the bureau of justice, the city fiscal' s ofiice, and the bureau of science had to be enumerated separately. The follow- ing is a tabulation of the data pertaining to the same : Native tongues. English. Total i 2, 793 Philippine library and museum | 2, 771 Supreme court Attorney general's office i Office of the fiscal for the city of Manila ' Bureau of science i 22 378, 390 293, 251 11,145 4,726 2,074 67, 194 Spanish. 61, 282 other lan- guages. 30, 641 54, 626 4, 071 1,895 i 108 991 13 26.449 310 3,460 Total. 473, 106 354, 719 13, 148 5,717 2,397 97, 125 The number of English volumes surpasses all others; next come Spanish volumes, and then volumes ^vritten in other languages. The number of volumes written in the native tongues is not even one-half of the number of those written in other languages. This is not the case, however, with the newsj)apers, of which the greatest number is published in Spanish and in the native tongues. The libraries of the supreme court, the attorney general, and the city fiscal's office do not contain a single volume v^Titten in the ver- nacular, and have very few books in other languages. English FILIPINO APPEAL FOR FREEDOM. 67 books make up the bulk of these Hbraries, and Spanish books occupy the second place, owing to the fact that some Spanish laws are still in force in the islands. A similar proportion exists in the Philippine Library and Museum, because of the good Spanish historical works. In the library of the bureau of science the volumes written in other languages are nine times the number of those written in Spanish, since legal and historical Spanish books are of little use in that bureau. There the Spanish books in number occupy only the fourth place; the first, second, and third places are taken by English, German, and French books, respectively. Of the five libraries enumerated in Manila, the Philippine Library and Museum is the most popular. During the year 1918, 93,805 books were read, of which 39,114 were works of fiction and 54,691 miscellaneous books. SEMIPUBLIC LIBRARIES. Semipublic libraries are the libraries of the bureau of education scattered throughout the islands, those of other branches of the in- sular government not enumerated above, and those of religious cor- porations and civic associations. Unlike the public libraries, the semipublic libraries, notwithstanding the fact that the great majority of the books of the bureau of education are books in English, show a greater number of Spanish volumes. This is due to the fact that in Manila alone, out of a total of 325,347 volumes belonging to 65 semipublic libraries, 55,315 volumes belong to religious and similar corporations. Further details about semipublic libraries will be found in the following table : Semipublic libraries {religious corporations). Number of libra- ries. PhiUp- 1 pine English, tongues. Other Spanish. lan- ! guages. Total. Total 11 1,141 5,331 55,315 27,993 89,780 152 500 267 50 100 10 2,209 2 21,991 8,091 2,216 5,570 7,227 3,000 6,500 720 11,990 2,180 2,640 3,350 6,524 584 500 225 36,342 10, 281 Recollect Fathers 4 910 1,300 708 250 850 12 10,720 Augustinian Fathers 14,726 Paulist Fathers 3, 884 7,950 967 College of Trebles. . . The Provinces of Batangas, Bulacan, Cebu, Ilocos Sur, and Iloilo come after Manila in the number of Spanish books. English prevails, however, in 29 Provinces out of the 38 enumerated. The semipublic libraries, therefore, contain a greater number of books written in Spanish, but there is a wider distribution of English books. XIII. Economic Conditions. The Philippine Islands are essentially an agricultural country. The basic element of our economics is therefore the natural resources of the islands. In this respect it is most important to the stability of our economic conditions that our agricultural land should be evenly divided among small landowners. Out of 2.000,000 farms in the Philippines 96 per cent are owned by the Filipinos. Eight million of 68 FILIPINO APPEAL FOR FREEDOM. them live on their farms with houses of their own, independent of any absentee landlord or foreign masters. Of the urban property 91 per cent, consisting of houses and lands, is owned by the Filipinos. Only 9 per cent is in the hands of foreigners. Democracy thrives better where the citizens are owners of the lands and houses wherein they live and out of which they earn their living. AGRICULTURE. The approximate area of the Philippine Islands is 29,629,600 hec- tares, of which 4,563,723 are private land, 18,706,093 public forest, and 6,356,927 public lands available for homeseekers. The area of private land under cultivation in 1920 was 3,276,942 hectares, as com- pared with 2,361,483 in 1913, or 38.7 per cent increase. The value of the six leading products — rice, corn, sugar, hemp, coco- nut, and tobacco — during the last four years has been, in 1917, $122,- 000,000; 1918, $181,000,000; 1919, $229,300,000; and in 1920, $343,500,000. While the Philippines will be for a long time an agricultural coun- try, it is nevertheless true that modern industrialism and commerce are exercising a very strong influence and will eventually make of the Philippines an industrial and commercial as well as an agricultural country. IMPORTS AND EXPORTS. The chief exports of the Philippines are manufactured articles con- stituting 87 per cent, and exports are agricultural products, more or less in raw form, constituting 67.5 per cent. The most important manufactured articles imported during the year 1921 were iron and steel goods, valued at $22,055,000; cotton goods, $18,830,000; food- stuffs, including wheat flour, meat, and dairy products, etc., $21,750,- 000; automobiles and accessories, $4,830,000; mineral oils, $16,- 900,000. The importation of iron and steel and cotton goods has always been on the ascendant, invariably holding the premier position in the import trade. The two items alone constitute about 36 per cent of the total imports in 1921. With the exception of the year 1921, when the foreign trade of the Philippines was greatly affected by the wave of business depression the world over, the importation of other products has shown the same tendency. The most im- portant exports were agricultural products, some of which were partly manufactured and others in raw form. Among these are sugar, valued at $25,000,000; manila hemp, $17,900,000; copra, $13,- 100,000; copra meal, $600,000; maguey, $670,000; and tobacco products, $8,230,000. Recently, however, because of the European war, the Philippines began to export manufactured articles, such as coconut oil, v/hich in 1921 was valued at $16,000,000, and embroid- eries, $5,300,000. The values of imports, exports, and total trade of the Philippine Islands during the years 1917 to 1920, inclusive, were as follows: 1917 1918 1919 1920 Exijorts $95,604,306 65,797,000 $135, 194, 480 98, 599, 200 $113,117,800 118,639,000 $151, 123, 850 149, 438, 280 Balance 29,807,306 36, 595, 280 (5,521,200) 1,685,570 FILIPIlsrO APPEAL FOE FREEDOM. 69 INDUSTRY. The progress attained in the direction of introducing modern equip- ment and means for the carrying out of all lines of activities during the past few years, such as mechanical equipment for the newly estab- lished industries or factories and for agricultural development and transportation facilities, is unparalleled in the history of the country. The growth of the manufacturing establishments is attested by the increase in their number and the value of their products. As com- pared with 1903 the number of manufacturing establishments in 1918 increased 156 per cent and the value of products 754 per cent. The industries which received tremendous impulse during the period of our prosperity were coconut-oil factories, sugar, rice, and sawmills. Em- broidery establishments, which practically did not exist previous to the European war, had a total output of $1,250,000 in 1918, the annual exports reaching as high as $7,810,000 in 1920. In addition to this there are to-day various industries which produce only suffi- cient quantities for local needs. There are also modern iron and steel foundry plants and boat-buildins: establishments in existence, among which are the Atlantic, Gulf & Pacific Co., and the Earnshaws Slip- ways & Co. FOREIGN SHIPPING. The foreign trade of the Philippines since the beginning of American occupation has always been carried on vessels of foreign registry, British vessels securing the greatest portion up to 1917, and the United States vessels substituting British vessels after this year. The total entrances from foreign ports in 1921 numbered 871 with a total tonnage of 2,646,455, as compared with 992 and 2,755,752, respectively, in 1920. The total clearances numbered 887 with a ton- nage of 2,725,469, as compared with 995 and 2,771,214, respectively, during the preceding year. There are 20 vessels of Philippine reg- istry, with a tonnage of 18,250, which plied between Philippine and foreign ports. INTERISLAND SHIPPING. There are at present 162 vessels, with a tonnage of 25,652, and 763 sailing vessels, with a tonnage of 26,657, engaged in the coastwise trade of the Philippines. There are, besides, 1,976 harbor crafts, with a tonnage of 40,220, in operation. For runs of average distance the vessels most generally used are those ranging from 200 to 500 tons net. The larger vessels are used on routes connecting Manila with the other large ports, while smaller vessels are used for shorter routes. There are over 200 interisland ports in the Philippines, the most important of which are Aparri, San Fernando, Iba, Batangas, Cal- bayog, Catbalogan, Dumaguete, Gubat, Lucena, Sorsogon, Legaspi, Tacloban, Tagbilaran, etc., all of which are conveniently accessible from Manila. The total entrances of the ports open to foreign shipping only num- bered 16,734, with a tonnage of 2,541,288, as compared with 17,011 and 2,326,849, respectively, in 1920. 70 FILIPINO APPEAL FOR FREEDOM. COMMERCIAL POSSIBILITIES. With the increased agricultural production and the consequent increase in the wealth of the people it stands to reason that the commerce and industry of the country will mtness a corresponding growth. The Philippines, because of the strategical location of its principal port in the trade routes of the Far East, can serve as a convenient distributing center of foreign merchandise in this section of the world. In common with the other countries, the Philippines is passing through a financial and business depression which hitherto has been unknown in this country. Both the foreign and domestic trade suf- fered a tremendous slump, although it has not been as intense as that suffered by other countries. The Philippine foreign commerce decreased only 32 per cent, while that of the United States decreased about 48 per cent in 1921. Apparently, however, the peak of the depression has already been reached and passed and the time is near when normal conditions shall again prevail. Now is, therefore, the most opportune time to lay plans for the revival and expansion of those activities, commercial and industrial, which have been greatly affected by the crisis, as well as for those undeveloped indus- tries whose products are being extensively consumed in the country, but the raw material of which are produced in these islands and exported and manufactured abroad. The field, for example, in sugar refining is practically untouched. Fish, vegetable, and fruit canning are practically unknown; the production of these, not to speak of the greater production that would doubtless result through the development of the canning industry, would be sufficient to maintain in active operation several large canneries. The fishing industry, both pearl and food fishing, is still practically undeveloped, primitive methods being still generally used. There are several other activities which enterprising capital might profitably develop. All in all, the opportunities, sounder business opportunities, are in prospect, and they are bound to draw enterprising capital to the islands. Large tracts of virgin lands are still untouched by the plow, wide stretches of grassy lands and hillsides are awaiting the tread of live stock and other animals, and in our mountains are treasiu-ed valuable minerals, such as gold, iron, silver, coal, and various other precious stones, all awaiting the magic touch of enter- prise and capital. XIV. Financial Status of t^he Government. Nothing has been so \\ddely misunderstood as the supposed finan- cial collapse of the Philippine government. The Philippine govern- ment to-day as a distinct institution is on as solid a financial basis as any government in the world. It is self-supporting, its taxation is adequate to its needs, the per capita tax of the people is low. In fact, the Wood-Forbes report states that '^the Filipinos bear a smaller burden of taxation than the natives of Great Britain, United States, Japan, Argentina, and Brazil." In spite of the economic crisis, in spite of the financial troubles common the world over, in spite of the reductions in revenues suffered during last year, the present year, 1922, was presented A^th an aggre- FILIPINO APPEAL FOR FREEDOM. 71 gate surplus of approximately $7,000,000 in the central and provin- cial treasuries of the Philippine Islands. Both the central and local governments are on a good, sound financial basis. The following financial statement is self-explanatory: Financial statement of the insular government. 1918 1919 1920 Revenue from taxation F44,559,229.56 3, 163, 181, 53 20,888,353.84 79,340.20 r45,229,969.10 3,706,882.42 30, 417, 127. 55 332,944.13 F53,144,506. 72 Incidental I'eyenue 4,977,79.3.60 40,822,639.41 459, 972. 80 Earnings and other credits Income 68,690,105.13 24,404,683.03 79,686,923.20 35,598,744.53 99,404,912.53 28,543,078.35 Total budget credits 93,094,788.16 57,496,043.63 115,285,667.73 86,742,589.38 127,947,990.88 Expenditure during the year 84. 010. 278. 54 Surplus at the end of the year 35,598 744.53 ! 28 .543.078.35 43 937 712.34 The auditor's accounts for 1921 are not yet closed. Budget of the government of the Philippine Islands for the year 1922. 1922 (estimated). 1921 (estimated). 1920 (actual). RECAPITULATION. Income F53, 051, 435. 00 P96,683,797.12 F76,723 421.65 Revenue from taxation 42,867,320.00 2, 120, 000. 00 18,064,115.00 47,235,557.12 2, 316, 620. 00 47, 131, 620. 00 53,144,506.72 ■ Incidental revenue 4,977,793.60 IS 601 121.33 Earnings and other credits. Current surplus at the beginning of the year 11,964,152.00 27. 576, 552. 49 24,397,265.14 Total available for expenditures 75, 015, 587. 00 124, 260, 349. 61 101,120.686.79 Expenditiues 72,538,593.00 97,557,329.75 73,544,134.30 Expense of revenue collection 1,564,726.00 8,981,853.00 5, 189, 878. 00 4,995,090.00 9,284.643.00 8,818,029.00 8, 740, 857. 00 17,883,667.00 500, 000. 00 2, 000, 000. 00 4.579,850.00 1 708 824. 18 I H'?S 700 8C> Operating expense of commercial and indus- trial imits 9,561,198.99 ! 9.962,919.02 3 713 774 47 i "^ 510 007 47 Public debt General administration 5i080',962.89 1 4,'952,'C90. 59 9,853,790.78 ; 9.663, ,514.65 8,883,188.07 | 8,927,. 541. 70 9 936 029.50 ' 9 48:3 122 35 Protective service Social improvement Economic development Aid to local governments 13,169,246.00 ' is! 446! 137. 63 600 000. 00 1 682 598. 53 Retirement gratuities, act 25S9 Emergencv service 446 512. 87 443 435 48 Outlays and investments 34, 603' 802. 00 11,849^057.06 Current surplus at the end of the year 2, 476, 994. 00 26,703,019.86 27,576,552.49 Deduct 14, 738, 867. 86 Appropriation balances for public works. . 9. 738, 867. 21 5, 000. 000. 65 Cadastral accounts receivable Current unappropriated surplus at the end of the year 11,964,1.52.00 PHILIPPIXE DEBT. The public indebtedness of the Philippine Government has been contracted in pursuance of special acts of the Philippine Commis- sion or, since its creation, of the Philippine Legislature. Such legis- lation has been under the authorit}' of acts of Congress, which from time to time fixed the limit indebtedness of the Philippine Govern- 72 FILIPINO APPEAL FOR FREEDOM. ment or have authorized the contractmg of indebtedness for specific purpose within amounts fixed. By an act of Congress approved July 1, 1902, and act 1034 of the PhiHppine Commission, the Phihppine Government issued $7,000,000 of bonds to purchase the friar lands. By an act of Congress approved February 6, 1905. and acts 1301, 1444, and 1915 of the PhiHppine Commission and Legislature, the Philippine Government contracted between 1905 and 1909 an indebt- edness of $5,000,000 for public works. The total indebtedness of the Philippine Government, therefore, on the passage of the organic act approved August 29, 1916, was $12,000,- 000, including the $7,000,000 indebtedness for the purchase of the friar lands. By the organic act referred to the limit of the public debt of the Philippine Government, exclusive of the friar-land bonds, was fixed at $15,000,000. Thereafter, by act 2615, the Phihppine Govermnent issued $4,000,- 000 of bonds for the purchase of the Manila Railroad Co., and by act 2908 issued in 1920 $6,000,000 of bonds for the improvement of the port of Manila. With the issuance of these $6,000,000 of bonds, the limit of the public debt as fixed by the organic act was reached and there was outstanding, including the $7,000,000 of friar-land bonds, a total indebtedness of $22,000,000. Congress, by the act of July 21, 1921, amended the organic act by increasing the limit of indebtedness to $30,000,000, exclusive of the friar-land bonds. Under authority of an act of the Philippine Legislature there was thereafter issued $10,000,000 of irrigation bonds, and the Philippine Legislature has now authorized, by act 2999, the issuance of $5,000,000 to protect the financial interests of the Government. So that the limit of indebtedness as fixed by the act of July 21, 1921, has now been reached, and the total bonded indebtedness of the Philippine Govern- ment outstanding is $30,000,000, plus the $7,000,000 of friar-land bonds. By an act of Congress approved May 31, 1922, the limit of indebted- ness of the Philippine Government has been fixed at 10 per cent of the aggregate tax valuation of its real property. On the basis of the last assessment, this would fix the limit of indebtedness of the central government at about $74,000,000. The urgent necessity of increasing the limit at this time arises from the fact that the Philippine Government is not in a position to main- tain the parity of its currenc3r with the gold standard fixed b)' law. The Philippine Government had, on October 31, 1921, on deposit with the Philippine National Bank $26,251,607.75, which it is unable to withdrav^^ from the bank or apply to the purposes for which that fund was acquired. How much of this will ultimately be recovered or the dates of recovery can not at this time be stated with certaintv. The deposits with the bank on October 31, 1920, were $45,220,039.^35. Of this amount, $11,457,890 were invested in stock of the bank with a view of strengthening its position. This would mean that in one year the government had withdrawn from the bank $7,510,451.59. The conclusion should not, however, be drawn that a similar amount would be recoA^ered in the next year, for the reason that in the past year a considerable amount in private deposits has been withdrawn from the FILIPINO APPEAL FOE FEEEDOM. 73 bank, on the one hand, and, on the other hand, the bank increased in circulation by $6,700,000. The situation, then, is that the Phihppine Government has on deposit with the Phihppine National Bank $26,000,000. This includes a large part of the currency reserve fund which is used to maintain the parity of the Philippine currenc}' with the gold standard. It includes a part of the proceeds of bond sales for public works and other funds of the Philippine Government, including the funds for general pur- poses. If this money were at this time available the immediate neces- sity of contracting further indebtedness would not appear. This deposit, however, is not in any way available to the government. The amount which the government recovered in the past year it will probably not be able to recover in the present year. The government, therefore, is confronted with the necessity of immediately reducing its expenses below its revenues, which it has attempted to do but which it was unable to do in the radical manner that would be necessary if, in addition to operating the government, the trust funds of the government were to be placed in a legal posi- tion from these savings. The government, therefore, finds itself in the necessity, if it is to perform the dut}^ of maintaining the parity of its currency with the standard fixed by law, and if it is to carry on the absolutely necessary public works, of increasing its indebtedness. GOVERNMENT IN BUSINESS. Economic progress in the Philippine Islands and the pressure of public opinion compelled the Philippine government to organize and engage in certain lines of business of national importance that private initiative and capital had failed to develop. There are now four government-owned enterprises in addition to those which have been always under government direction since the American administra- tion in the Pliilippine Islands — the Philippine National Bank, the Manila Railroad, the National Coal Co., and the National Develop- ment Co. PHILIPPINE NATIONAL BANK. There were in 1915 five banking institutions handling the Philip- pine government's deposits at a low rate of interest. These banks m_ade little or no investment in the islands. They dealt almost ex- clusively with export and import trade. American and Philippine business men in other lines and the farmers practically had no access to them. The Philippine National Bank, much to the displeasure of competitive institutions already in the field, was organized. From a modest beginning the bank grew rapidly during prosperous times. But the depression following the war caught the bank unprepared for such emergencies. Naturally the people of the Philippine Islands deeply regret that the institution could not escape the effects of world-wide financial disturbance. There stands out in bold relief, however, the constructive service the bank has rendered the community, notably the financing of Liberty loans, the handling of the sale of alien property, the financial assistance extended in time of extreme needs to two banks doing business in the Philippine Islands, the financing of sugar centrals and farmers, and the extension of banking facilities to merchants and 74 FILIPINO APPEAL FOR FREEDOM. manufacturers. The Philippine people have always regarded the bank as a necessary means for the economic development of the islands, and therefore they desire to increase, or at least maintain, the institution to carry out the purposes for which it was originally organized. As to the present condition of the bank, the Wood- Forbes mission report says '^* * * the affairs of the bank are in a fair way to be put on a sound footing." MANILA RAILROAD. Government ownership of railroads is a rule in all the neighboring countries of the Philippines with the exception of China, which is now trying to get back the concessions granted to foreign capital. How- ever, the principal motive that impelled the Philippine government to buy the Manila Railroad from the English owners was that the company, in spite of the facilities extended by the government, could no longer operate the line profitably. This failure imposed a heavy burden on the taxpayers in the way of payment for interest on rail- road bonds guaranteed by the government from the early days of American administration. From 1914 to 1916 the aggregate net deficit of the company was about $600,000. Under government management the following re- sults have been obtained: The gain in 1917 was $400,000; in 1918, $130,000; in 1919, $190,000; in 1920, $12,000; and in 1921, $148,000; and the government has not been called upon to pay the bond interest. NATIONAL COAL CO. During the war the coal shortage was one of the great problems the government had to solve. The Philippine Islands are rich in coal fields, but no private capital was invested in their exploitation. The Philippine Legislature therefore chartered the National Coal Co. and supplied it with a capital of $1,700,000. The company is now ready to furnish at least the coal needed by the government, which requires about 120,000 tons, heretofore imported from foreign countries. NATIONAL DEVELOPMENT CO. The company was organized for the purpose of financing isolated enterprises that the government may desire to establish for the general welfare of the country. XV. Elections. The elections in the Philippines have always been an interesting and veritable school of political education. Although, strictly speaking, extensive suffrage was implanted in the Philippines only smce American occupation, the Filipino people have shown during this short period constant and convincing proof of political capacity. The paramount issue in the election of 1907, which inaugurated the Philippine Assembly, was the ultimate status of the Philippines. The question to be decided was whether, upon the surrender of the Filipinos in arms and the establishment of peace under a more liberal and democratic rule, the Filipino people should still aspire and work FELIPINO APPEAL FOR FREEDOM. 75 for their independence. There were two schools of thought at that time; one favored annexation to the United States, or at the most a remote independence, and the other was the immediate independ- ence of the islands. The result of the elections proved that those who advocated immediate independence formed an immense majority of the people, although not yet the entire people. The same issue was presented to the people at all subsequent elections, and every time the advocates of immediate independence gained ground, until, finding that public opinion was against them, the members of the party which advocated annexation or remote independence had to dissolve their party and aligned themselves with those who advo- cated immediate independence. The old annexationists, or federal- ists, were highly educated men of the greatest prestige, but the people disregarded their personal qualities, for they knew that the elections were being held to decide issues and principles, not per- sonalities. Once the question of principles was settled, the peoj)le have always shown practical sense in electing experienced or highly educated men to posts in the national legislature. When the first Philippine Assembly was convened in 1907, it was noticeable that the choice of the people fell upon those who had previously distinguished them- selves as provincial governors and those who because of their academic training could best undertake the legislative work. This is the reason why among members of the lower house there has always been a large proportion of people with academic training or pursuing semipublic activities, such as practicing lawyers and newspaper men. When the elective senate was established six years ago, the people again manifested that sound practical sense by sending to the higher house in preference to others those who had acquired previous legislative experience in the Philippine Assembly. In this way the task of legislation has been given to men of ability and experience. Both in political campaigns and in the deliberation of the legislature popular public opinion always distinguished demagogic from states- manly conduct. The people have always repudiated the destruc- tive factors, with the result noted by friends and foes alike that our legislature has at all times exemplified a sound and judicious sense. As a former Governor General has said, in the Philippine Legislature ''graft, jobbery, logrolling, cheap politics, selfish localism, cynical opportunism, and hyprocrisy have been practically unknown." A spirit of tolerance has characterized election campaigns. Order has been kept in the heat of political struggles. While in other coun- tries the army has often been resorted to for the maintenance of peace, in the Philippines the mere presence of local and insular police has always been sufficient to insure public tranquillity. After the elections in 1919 Acting Governor General Yeater, who had personally followed the various movements of the campaign, gave out the following statement : By taking the election as a whole, I consider it entirely creditable to the Philip- pine people, and I believe that no shortcomings or improper conduct in receiving and delivering the votes will exceed those ordinarily committed in other free countries. We do not, however, mean to insinuate that elections in the Philip- pines have been conducted as angels would conduct such elections-. As in other parts, frauds and other electoral abuses have been com- mitted, but the opposition party and the press got busy denouncing 76 FILIPINO APPEAL FOR FREEDOM. them and the government at once undertook an energetic campaign for clean elections^ prosecuted the culprits, and later on revised the present electoral law. Our electoral law was approved in 1907 by the former Philippine commission composed mostly of Americans. It was later thought that election frauds were committed partly because of the defects of the law, such as the relatively light penalty given to violators, and also because election officers could easily be converted into political instru- ments of the party in power. The revision of the electoral law has been made with the aid of the opposition, and is intended to remedy in so far as possible the deficiencies found in the law and in actual practice. The government is at present using all means necessary to secure clean elections and to enforce the provisions of the electoral law in a way agreeable to all political parties. The total number of electors registered in the election of June 3, 1919, was 717;295 and the votes cast was 672,125, which is a very fine percentage even when compared to the interest in elections shown m other countries. In the elections of 1912, 248,154 voters registered, of which 235,789 voted. Of the number of voters registered in 1919 407,346 possessed educational qualifications, while only 81,916 were educationally qualified in 1912. It should be noted that the Philip- pine voters must have either propert}^ or educational qualifications, so that these figures show the progress of the people in political matters and in education in general during the last few years. For the elec- tions of June of this 3^ear (1922) there were 824,058 voters registered. The minority party has always accepted the decision of the ma- jority, unless it thinks that the election has been vitiated by some illegal act, in which case it takes the matter up with the courts for decision. We have never followed the practice of revolutionary coim- tries where defeated minorities take the law in their own hands or use violence against the triumphant party, or utilize every other means to hinder the working of the government. The following, figures speak for themselves : 1907 1909 1912 451 210 25 1916 1919 Protests registered... . 178 89 ! 26 ! 1 142 51 17 520 341 80 467 Protests disinis'^ed 195 24 In interpreting the foregoing figures it should be noted that there are nearly 900 municipalities in the Philippines, and that ever}" municipality at every general election votes on a senator, a repre- sentative, a governor, two members of the provincial board, a munic- ipal president, a municipal vice president, and from 7 to 18 coun- cilors, depending upon the class of the municipality. Any one of these officials can be made the subject of an electoral protest. The number of protests registered, the number of protests dismissed, and, above all, the number of elections annulled will show" beyond the peradventure of a doubt that the elections in the Philippines have been up to the present a regular and sane agency of repre- sentative democracv. FILIPINO APPEAL FOR FREEDOM. 77 XVI. The Non-Christian People. Tlie non-Christian inhabitants (Mohammedans and Pagans) of the Phihppine Islands are distributed in the nine special organized Prov- inces under the jurisdiction of the so-called bureau of non-Christian tribes, namely, Agusan, Bukidnon, Cotabato, Davao, Lanao, Sulu, and Zamboanga, of the former department of Mindanao and Sulu, and the Mountain Province and Nueva Vizcaya of northern Luzon. The following table shows the area in square kilometers of each of the nine Provinces : Square kilonieters. Agusan 11, 121 Bukidnon 10, 026 Cotabato 24, 916 Davao 19, 389 Lanao 6, 317 Mountain Province 13, 971 Nueva Vizcava 9, 143 Sulu ' 2, 802 Zamboanga 16, 532 The following table shows the present approximate population of Christian and non-Christian peoples as estimated by the governors of the four Provinces : Province. Christian. Moham- medan. Pagan. Total. Percentage of non- Christian. Agusan 41, 592 1,200 21,391 68, 979 7,446 35, 700 li;386 45,325 49, 038 41,707 169, 191 119, 304 1.1. 19 Bukidnon. 4,807 136, 414 5,000 97.12 Cotabato 87.36 Davao 42.18 Although the non-Christian inhabitants of the Philippines are to be fomid not only in Mindanao and Sulu but also in northern Luzon, the Moros of Mindanao and Sulu form the great majority of them and present the greatest problem for the government. We shall there- fore deal mostly with the non-Christian peoples of Mindanao and Sulu. The government of Mindanao and Sulu from 1903 to 1913 was imder the control of the military authorities. In 1914 it was turned over to the civil authorities. During the military period the so-called Moro Province was organized, which comprised practically what is to-day known as Mindanao and Sulu. The most important work of the military period was the pacification of the Provinces and the recognition of American sovereignty. This was the first step before the development of agriculture, industry, commerce, educa- tion, and shipping could be begun. In 1911 a general disarmament was ordered among the Moros, and this order met some resistance in Sulu and Lanao. Hence punitive expeditions by military and con- stabulary authorities had to be undertaken, and skirmishes and bat- tles like those at Mount Da jo and Mount Ba^sak were fought. The work of the military authorities to bring about peace can not be underestimated. They prepared the way for the work of reconstruc- tion, which fell upon the civil authorities in 1914 up to the present time. It would be, however, misleading to say that the militaiy authorities limited their work to the establishment of peace alone. In reality they initiated some of the great activities of government, 78 EILIPINO APPEAL FOR FREEDOM. which were later on continued in gigantic proportion, especially pub- lic works and public education. They established public dispensa- ries even in the most remote parts of the Province. They built roads to connect distant places. The first task oi the civil authorities in 1914 was to establish a departmental government, with almost a free hand in dealing with local affairs. It was subdivided into subprovinces for the purpose of local administration. Later on the department was abolished and the subprovinces were declared Provinces. The}^ were placed, like the regular Provinces, under the direct supervision of the department of the interior through the bureau of non-Christian tribes. Up to very recently all the provincial governors were appointed by the Gov- ernor General, and, together with the secretary- treasurer and a third member elected by the councilors of the municipalities, they form the provincial council of each Province. All the appointed provincial governors except one are Filipinos. In the election held June 6, 1922, four of the seven Provinces of Mindanao and Sulu elected their pro- vincial governors. The representatives and Senators representing the non-Christian parts of the Philippines are also Filipinos. Of these one senator and three representatives profess the Mohammedan religion. The civil government thus established completed the work of bring- ing about peace which was initiated by the military authorities. In 1913 the Sultan of Sulu, who had theretofore enjoyed religious and civil prerogatives, renounced his prerogatives in favor of the govern- ment of the Philippine Islands. Peace and order was firmly estab- lished. The campaign of education and assimilation had begun. Wherever the good offices of the civil government did not have the desired effect the firm hand of the law reached out to enforce order and capture recalcitrants. From January 1,' 1914, to December 31, 1916, the civil government captured 1,024 firearms. The year 1916 may be considered as a historic one in the annals of Mindanao and Sulu, for it marks the complete elimination of all outlaws and the extension of government control to all Mohammedan territory. In 1917 practically every soldier of the Federal Army, except a small detach- ment in Zamboanga, was taken away, and yet the local police was able to maintain order and peace. The progress brought about since the civil administration is indeed great. It would take a big volume to enumerate in detail. For this work the Christian Filipinos have given money and men, so as to civilize their non-Christian brothers and bring them up to their own level. Hundreds of thousands of pesos taken from the Christian pockets have been yearly sent to Min- danao and Sulu. On the other hand, the non-Christian people have shown their appreciation of the benefits that are being extended to them by their Christian brothers. At the present time the relations between Christian and non-Christian are most cordial. National sen- timent in that part of the Philippines is almost as strong as in the Christian Provinces. We shall cite a few figures showing the progress realized in the non- Christian part of Mindanao and Sulu since control was given to the Christian Fihpinos. Under the designation of "Public instruction" the following table shows the number of schools in operation by year, the number of teachers, and the enrollment from 1914 to 1921. FILIPINO APPEAL FOR FREEDOM. 79 Year. Number of schools in opera- tion. Number of teachers. Enroll- ment. Year. Number of schools in opera- tion. Number of teachers. Enroll- ment. 1914 157 311 373 613 14,800 16,019 25, 167 1918 372 468 606 690 772 1,049 1,261 1,452 32,438 41, 179 53,096 61, 187 1915 180 1919 1916 ! (1) 1917 292 1920 . . 1921 No data available. The following comparative table shows the progress of the schools in Mindanao-Sulu covering the period from the year 1913 to 1921. Attention is invited to the fact that enrollment in 1913 almost entirely represented Christians, while the great increase noted in 1921 represents Mohammedan and pagan children: Annual enrollment. Number of schools. Numhcr of teachers. Province. March, 1913. December, 1921. March, 1913. December, 1921. March, 1913. December, 1921. Agusan Bukidnon Cotabato Davao Lanao Sulu 3,461 1,488 425 2,079 1,104 1,044 2,916 8,462 7,162 9,667 7,820 7,004 9,342 11,730 34 23 5 20 9 10 28 89 82 5 130 70 69 116 52 31 11 31 14 14 46 188 151 250 194 174 198 297 Total 12,617 61, 187 129 690 199 1 452 An important phase of the work of public instruction in Mindanao- Sulu is the compulsory school attendance for boys and girls which was initiated some time ago. At first the old Mohammedan head- men and panditas openly pronounced themselves in opposition to the attendance of their children in government schools, considering this measure as a violation of the agreement into which the govern- ment had entered with them with respect to their religion, habits, and customs. Through the tact of school authorities and coopera- tion of provincial and municipal and other interested authorities, those difficulties have been solved to the extent of bringing about entirely satisfactory results. The table given above speaks more eloquently than words can in this respect. In agriculture special attention has been paid to the cultivation of food products. Agricultural colonies have been established in Cota- bato so as to unite Christian and Mohammedan Filipinos and to increase the production of rice and other food products. The following comparative table shows in a comprehensive form the typical activities of the colonies as to the production of food supply: Total area imder cultivation (Ha) Palay planted (Ha) Com planted (Ha) Coconuts planted Palay harvested ( Cavan) Corn harvested (Cavan) Peanuts planted (Ha) Camotes planted (Ha) Nvunber of colonists including men, women, and children 1915 1917 1919 1920 2,616 2,563 2,262.2 2, 269. 12 1,616 1,037 509 533. 83 1,134 898 1, 173. 1 1, 312. 98 13,232 7,003 4,2.31 6,441 20, 715 11,439 2,626.28 1,035.5 8,417 6,924 6,449.36 14,298.22 30 15 11.3 31.35 57 22 42.16 48.33 5,044 5,402 5,632 5,632 1921 2,073.05 531. 35 1, 181. &4 21, 190 3, 787. 20 10, 856. 36 14.90 17.22 6,012 80 FILIPINO APPEAL FOR FREEDOM. It will be noted from the above that the number of hectares culti- vated for the crops has decreased. This difference is due to the disappointment brought about by the failure to realize bigger har- vests caused by floods and locusts. On the other hand, there is a notable increase in the output for rice and corn. Another important result worthy of being stated is the success at- tained in the partial relief of densely populated Provinces like Cebu and Ilocos Provinces. The sparsely populated and potentially wealthy Province of Cotabato. where the colonists are located, the surplus population of those Provinces have found Cotabato to be an excellent place, where they may realize their ambitions for owner- ship of land and more ample rewards for their labor. In the branch of permanent improvements and public works we can say that good roads and trails, potable water supplies, port im- provements and landing facilities, construction of telephones, and construction of public buildings have received special attention. The following table shows the strides made in this regard, notwith- standing the inadequacy of local revenues and insufficient insular aid: Year. First class. Second class. Third class. Trails. Tele- phones. 1914 Kilometers. None. Kilometers. 90 Kilometers. 199 285.2 340. 3 2, 327. 7 209. 5 220 257. 2 Kilometers. 2,400 2,437 2,515 (^) 1,898.3 2; 075. 7 2, 000 1,442.7 Kilometers 0) 1915 65.9 i 114.9 (1) 1916 94.9 143. 5 143. 5 154 87.2 184.5 234.7 190 141.4 567 1917 (1) 1918 (^) 1919 1,381.6 1920 1,381.6 1921 1,381.6 1 No data available. In the health service there has been made the most gratifying advance by the establishment of new hospitals and field dispensary stations, the former under the immediate charge of qualified physi- cians and surgeons and the latter in charge of graduate nurses or practicantes. Government hospitals are now in operation at the provincial capitals of Agusan, Cotabato, Davao, Mountain Province, Lanao, Sulu, and Zamboanga. At dispensaries in public schools at points where no field dispensaries are located the teachers are instructed in the use of and supplied with medicines, supplies, etc., which may safely be intrusted to them for use in relieving ailments, physical ills, and injuries, which, in the absence of skilled medical and surgical assistance, they should undertake to relieve. While Mohammedans and pagans were at first suspicious and unwilling to enter hospitals for medical or surgical treatment, this attitude has rapidly changed to one of popular acceptance and appreciation of hospital facilities, even to the surprising degree that women of good families now seek admission. In this connection it may be stated that medical officers, trained nurses, and practicantes have gone to the most remote places and localities in the performance of their duties, and ordinarily without guards or companions. Dispensaries have been and are being established, conducted successfully by graduate nurses and practicantes at many points away from Army garrisons or constabulary stations. In no instance has the public- FILIPINO APPEAL FOR FREEDOM. 81 health personnel been subjected to violence, or even threats, from the people among whom they work. Mohammedan and pagan com- munities have voluntarily contributed labor and materials of local production for the estabhshment of dispensary stations. The importance and value of the work of the public-health per- sonnel during the past few 3?-ears can not be exaggerated when viewed not only from the standpoint of medical and surgical relief but from all other significant points, and especially that of the establishment of amicable contact and control by the government over the Mohammedan and pagan communities. To combat and so far as possible eradicate the prevalence of water- borne diseases, such as dysentery, typhoid, malaria, etc., special attention has been directed to the improvem.ent of water supplies. There were in 1914, 47 dispensaries in operation, 55 in 1915, 86 in 1916, 108 in 1917, 88 in 1918, and 103 in 1919, 1920, and 1921. XVII. The Filipinos as Legislators. BRIEF CRITICAL STUDY OF THE LAW^S PASSED BY THE PHILIPPINE LEGISLATURE SINCE ITS ESTABLISHMENT IN 1907. The Philippine Legislature began its life with the inauguration of the Philippine Assembly on October 16, 1907. Hitherto all legis- lative powers in the Philippines were in the hands of the Philippine Commission, the members of which were appointed by the President of the LTnited States with the consent of the American Senate. With the inauguration of the Philippine Assembly the Philippine Commis- sion became the upper house and the Philippine Assembly the lower house of the Philippine Legislature. The legislature was given com- plete legislative povv^ers over the parts of the Philippines inhabited by the Christian peoples. The other parts of the Philippines, or those inhabited by the Moros and other non-Christian peoples, remained under the exclusive legislative control of the Philippine Commission until 1916, when, with the passage of the Jones law, the Philippine Legislature secured control over all Philippine territories. In the study of the laws passed by the Philippine Legislature we have for convenience divided the 14 years of legislative life into three periods. The first period extends from October 16, 1907, to October 16, 1913. During this time there were still a majority of Americans in the upper house, while the Philippine Assembly was entirely in the hands of the Filipinos. The second period extends from October 16, 1913, to October 16, 1916. During this time the Filipinos had already a majority in the upper house, or Philippine Commission; hence they had a decisive voice in legislation. The members of the Philippine Commission, however, continued to be appointed by the President of the United States and were not elected by the people. The third period comprises all the time since the enactment of the Jones law, from October 16, 1916, to October, 1921. Legislation at this period has been in the hands of an elected Philippine Legislature, composed of the senate and house of representatives. For the purposes of classifying the laws the following topics have been used: (1) Public instruction; (2) development of agriculture and natural resources ; (3) promotion of commerce and industry; (4) public H. Doc. 511, 67-4 6 82 FILIPII^O APPEAL FOE PREEDOM. health; (5) charity and pubHc welfare; (6) finance (dealing \vith appro- priations for the support of the government or matters connected with bonds) ; (7) administration (dealing with reforms and changes in the administration of the government) ; (8) private law (dealing generally wath amendments to the civil code, penal code, etc.) ; (9) judicial reforms (including reforms of judicial proceedings) ; (10) labor; (11) franchises (charters given to private persons and corpora- tions) ; (12) mercantile regulations (dealing mth regulations of cor- porations, firms, etc.); (13) public works and improvements; (14) miscellaneous laws The following table shows the laws passed during the three periods of legislation classified under the foregoing topics ; Table of laws passed by the Philippine Legislature since October 16, 1907 , to March, 1921. Period. 1 .2 1 1! 1 . fa o is 3 Is 1 1 '3 1 > o 2 la 1 o (A t. 1 o 3 1 Pk < o Ph Oft ^ < ^ iA § P4 i ^ First period 61 38 13 ?,0 13 58 175 13 26 18 5 14 21 49 524 Second period 22 36 16 18 4 45 116 6 18 21 5 8 22 24 363 Third period 14 27 12 17 6 46 78 6 13 41 9 8 27 304 Total . 101 41 55 j 23 149 371 25 57 80 10 31 51 100 1,191 FIRST PERIOD. [October 16, 1907 to October 16, 1913.] Public instruction : The first period is notable for the support that the legislature gave to education. The first act passed by the Phil- ippine Legislature was an educational measure of the highest import. It provided for an appropriation of ^1,000,000 for the construction of schools in the barrios. It was during this period also that the University of the Philippines was founded (act 1870).^ Development of agriculture and natural resources : Notable among the acts passed during this period for the development of agriculture and natural resources are; Act 1865, establishing an agricultural bank and appropriating the sum of ^1,000,000 for its capital; act 1827, 1 other educational measui-es were: Act No. 1813, authorizing the Governor General to convey, under certain conditions and restrictions, insular property to Provinces and municipalities of the Philippines to be used for public-school purposes; act No. 1829, providing for popular civico-educational lectures in the municipalities, and principally in the barrios of the Philippines; act No. 1849, providing for the estab- lishment of a public Ubrary to be known as "The Phihppine PubUc Library," making suitable appro- priations therefor; act No. 1857, authorizing the creation of special classes of superior instruction for municipal teachers and appropriating the sum of F50,000 for the purpose; act No. 1858, amending section 40 of act No. 82 and providing for special training for teaching; act No. 1866, appropriating the sum of P75,000 for salaries of teachers in barrio schools when estabhshed under certain conditions; act No. 1871, making available for expenditure during the fiscal year 1909 and thereafter the balance remaining from funds appropriated by act No. 1632 for examinations for scholarships in the Philippine Medical School; act No. 1907, providing for the appropriation of the sum of F2,000 out of the insular funds to assist the munici- pality of Imus, Province of Cavite, in the construction of a bioilding for an intermediate school; act No. 1914, amending act No. 1801, entitled "An act providing for an appropriation of !P1,000,000 for the con- struction of barrio schools," by reducing the required school attendance and providing that buildings shall be erected under rules and regulations prescribed by the secretary of public instruction; act No. 1918, amending act No. 74, by making women eUgible as members of the local school board and providing that two positions at least shall be held by women; act No. 1924, extending the benefits of act No. 1857 to male and female teachers of municipalities and townships inhabited by Christian tribes in Mindoro and Palawan and in the subclasses for training in nursing in the Philippine Normal School, and appro- priating the sum of F20,000 for such purpose; act No. 1935, providing for the consolidation of aU libraries belonging to any branch of the Philippine insular government for the creation of the Phihppine Library, and for the maintenance and regulation of the same; act No. 1938, authorizing the appointment of certain high-schoolstudentsasgovernment pupils while pursuing a course of training for teaching, and author- izing expenditures for such pupils from funds designated by section 26 of act No. 1761, as amended. FILIPINO APPEAL FOR FREEDOM. 83 appropriating the sum of ^100,000 to be expended in the discretion oi the bureau of agriculture, under the supervision of the secretary of the interior, for the purpose of combating and exterminating cattle diseases in the islands; act 2226, establishing agricultural stations; and act 2229 for the improvement of the cultivation of tobacco. Promotion of commerce and industries: No great legislation has been enacted for commerce and industry. The last two periods paid greater attention to this subject. One interesting law that was passed was act 1838, granting a prize of jP 15,000 to the inventor of an incombustible roof to substitute nip a and creating a technical board to pass upon the conditions of the invention. Act 2216 created a commission to secure, organize, and make an exhibit of Philippine products, manufactures, arts, ethnology, and education at the Panama-Pacific International Exposition. Public health: The problem of infant mortality has always puzzled the mind of our legislators, and so an act (2116) was passed creating a committee to investigate the causes of excessive infant mortality in the Philippine Islands and the measures to be adopted to decrease it. Charity and public welfare: From the beginning the government has always been obliged to set aside yearly funds to succor sufferers from calamities like typhoon. Act 2199 was among the first of such laws passed by the Philippine Legislature. Miscellaneous acts: Among the miscellaneous acts are those which tend to honor the memory of Filipino heroes and patriots. This tendency has become noticeable ever since the participation of the Filipinos in the legislature. Thus, during this first period act 2262 was passed appropriating ^50,000 for the Jose Rizal School Building in Calamba. SECOND PERIOD. [Oct. 16, 1913, to Oct. 16, 1916.] Help to non-Christian peoples: The second period comprises the time when the Filipinos controlled a majority of the Philippine Com- mission. Philippine autonomy properly began at this time. This period is noted for the tremendous help that the legislature gave to the non-Christian tribes. Act 2531 passed by the Philippine Legis- lature under date of October 26, 1915, gave great impetus to educa- tional work in the non-Christian Provinces. This act appropriated the sum of ^1,000,000 for expenses of the bureau of education necessary for the construction, establishment, organization, and operation of additional free insular primary schools in the territory inhabited by Mohammedans or other non-Christian Filipinos, and to make the necessary provisions for normal training of teachers for said primary schools. This fund was allotted in proportion to the school population and was used for the purchase of sites, construction of buildings, purchase of equipment, and for current expenses, such as salaries and supplies. Other laws passed for the promotion of the non-Christian peoples and the establishment of friendly relations between Christians and Mohammedans are acts 2396, 2406, 2413, 2417, 2522, 2539, 2545, 2658, 2662, and 2664. Agriculture: This period has produced several notable laws designed to solve our perplexing agricultural problems. Foremost among these measures is act 2508, which created the rural credit associations in the municipalities for the purpose of financing indi- 84 FILIPINO APPEAL FOR FEEEDOM. vidual agriculturists, especially the small farmers. Heretofore the farmers had all been at the mercy of the local usurers, as the city banks loaned money only to the big farmers. The administration of rural credit associations, however, has not been an easy matter. So far many of the local associations have not been able to collect sufficient capital to start the work. They have to secure the assistance of the Philippine National Bank. In spite of this difficulty, the growth of rural credit associations in the Philippines has been tremendous. The first rural credit association was created on October 19, 1916. There were, in 1920, over 500 associations distributed throughout the islands. Other acts of interest to agriculture are acts 2573, providing for the mutual insurance of work animals; act 2583, directing the provin- cial governments to establish and maintain agricultural nurseries, and act 2497, setting aside a fund to be devoted to the improvement of breeds of work animals. Commerce and industry : This period has produced some important laws dealing with commerce and industry. One of them was the in- fant industry act (No. 2596) designed to promote and encourage the agricultural, commercial, and industrial interests of the Philippines. The government would guarantee a certain amount of interest for a period of years to all infant industries satisfying the conditions of the act: act 2598 established a coconut product board to encourage improvement of coconut products. During the period also was passed the law which provides for gov- ernment grading of fiber (act 2426), which has been the subject of so much comment recently. Another law of constructive tendencies is act 2429, which revised the insurance laws and local insurance busi- ness in the Philippines. Heretofore the insurance companies, mostly foreign owned, engaged in business under the laws of their mother country, to the detriment of the Filipino people. Finance and taxation: The greatest achievement of this period in finance was the establishment of the Philippine National Bank (act 2612). Before its establishment Filipino business men and manu- facturers could not compete with their rivals for lack of credit. The big farmers of the Philippines were also in need of a bank where they could get money for the development of their big farms. The growth of the capital and resources of the National Bank from 1916 to the present shows the tremendous amount of business that the bank is doing. In the field of progressive taxation the Philippines made an advance with the enactment of act 2601 to tax inheritances and legacies. Public instruction: This period has not been as rich in legislation for public instruction as the first one. An act worthy af note, how- ever, on this subject is act 2482 authorizing the provincial and munic- ipal governments to set aside funds for pensionados to study in the University of the Philippines. Labor : The Philippines had not very many labor problems at this time. The only big labor question that we had was the exodus of laborers to Hawaii which often results in great hardships for laborers. Upon finding Hawaii unsatisfactory they would want to come back, but could not for lack of means. They also complained of bad treat- ment by recruiting agencies. To remedy this evil, act 2486 was passed requiring labor recruiting officers to deposit a certain sum of money FILIPINO APPEAL FOR FREEDO?*!. 85 before they can begin business and to provide adequately for the safe return of laborers to the Philippines at the expiration of their •contract. THIRD PERIOD. [October 16, 1916, to March, 1921.] This period presents very many important laws worthy of thorough study. Unusual times called for unusual measures. America's entry in Europe, the economic consequences of the war, the unprecedented prosperity in 1917, 1918, and 1919, all contributed to the enactment ■of bold measures, social, economic, and political. Public instruction : It had long been found by experts on education that our school facilities could not adequately meet the demand of all the children for education. It is true that the Philippine Legislature had been liberal in the appropriation acts and other special laws. We have noticed that the first law passed by the Philippine Legislature was an act appropriating ^1,000,000 for the establishment oi schools in the barrios. To further the cause of education the Philippine ^Legislature, by Act 2782, appropriated ^30,000,000 to defray the expenses of a five-year school program calculated to accommodate in the schools all Filipino children who may desire to attend them. This is a monumental act which elicited the praise of friends and foes .alike of Philippine autonomy. The charter of the University of the Philippines was amended, giving the alumni and faculty members representation in the board of regents i(Act 2759) . Agriculture and natural resources — The government development companies: The movement, begun diu*ing the second period of our legislation, of allowing the government to venture in economic activities which for lack of private capital had hitherto remained dormant, was continued. The government was committed in favor of the policy of nationalizing and controlling industries when public welfare demanded such a step. This is the main purpose in establishing the five development companies. The greatest development company established by the government is that created by Act 2849, called the National Development Co., with an authorized capital of ^50,000,000. It is empowered to engage in an}' commercial, industrial, or agricultural enterprise necessary to the economic development of the country and its public welfare. The stock of the company is controlled, as in other government companies, by a committee of three, composed ■of the Governor General, the president of the senate, and the speaker of the house of representatives. Other development companies which have been established by law, some of which have not yet begun to function, are the National Cement Co. (2855), the National Coal Co. (2705), the National Iron Co. (2862), and the National Petroleum Co. (2814). At the time when increased food production was necessary Act 2723 was passed. Under this act the secretary of agriculture and natural resources was to determine, after consulting the opinion of the munic- ipal council concerned, what agricultural food products was most adaptable to each community; then all efforts to stimulate the production of that food product would be exerted. An appropriation 86 FILIPINO APPEAL FOR FREEDOM. of ^500,000 was made for this purpose. The following year further appropriation for this purpose was made. Another act that is worthy of mentioning, indicative of the trend of the government to help agricultiu*e, is Act 2696, which appropriated ^35,000 for the purchase and installation of two machines which would develop the maguey industry. Commerce and industry: This period saw the creation of a separate bureau for the development of commerce and industry by Act 2728, This is the bureau of commerce and industry. This period also marked an attempt, though not a fruitful one, to establish a merchant marine. Act 2754 authorized the secretary of commerce and com- munications, with the concurrence of the Governor General, the president of the senate, and the speaker of the house of representa- tives, to organize a merchant marine which will engage in the trans- portation of products from and into the Philippines. The govern- ment is actually engaged in trade in those portions of the country inhabited by non-Christian peoples. Act 2660 deals with the de- velopment of trading stations in the Department of Mindanao and Sulu to facilitate the intercourse and exchange of merchandise between the Moros and Christians. Public health: Aside from the annual appropriation for public health, other measures have been passed for the improvement of sanitary conditions. Act 2695 provides for the isolation of prisoners infected with tuberculosis; act 2653 appropriated ^39,000 for hos- pitals in the Department of Mindanao and Sulu to combat diseases; acts 2740 and 2744 appropriated money for the manufacture of ''tiki- tiki" and for its gratuitous distribution among the indigent classes as a means of combating infantile beriberi. Charity and public welfare: It has been found convenient for the government to supervise the work of charity and public welfare. The public welfare board was first created by act 2510 as amended by act 2745. Act 2988, however, abolished it, and established in its stead a commissioner of public welfare with much enlarged powers. An office is maintained in Manila for the conduct of business for the investigation of social conditions and for the dissemination of valu- able sociological information. Social centers and other agencies are to be established and maintained throughout the islands. The money appropriated by the legislature for the protection of infants is dis- tributed by this office. Act 2761 appropriated ^50,000 for medicine to be distributed free of charge at public dispensaries. Following the former practice, the legislature appropriated by act 2854, ^300,000 for the relief of the poor sufferers from fires, typhoons, earthquakes, and other public calamities. Finance: Act 2894 grants authority to Provinces, municipalities, and chartered cities to incur indebtedness and issue bonds for public improvements under certain conditions. The recent measures pe- titioning the increase of the bonded indebtedness of the Philippme government have already been answered by Congress by allowing such an increase. Act 2931 provides for the issuance of bonds by the government of the Philippines in such sum as Congress may authorize for the establishment of irrigation systems in the Philippine Islands. Administration — the reorganization act: The most important ad- ministrative measure passed since 1907 v/as act 2666, which reorgan- FILIPINO APPEAL FOE FREEDOM. 87 ized our executive departments. This is taken up fully in Chapter Another administrative change worthy of mention was made by act 2878, which abolished the government of the Department of Mindanao and Sulu as a special political division. At present there are only two kinds of Provinces — regular Provinces and special Prov- inces. All the non-Christian Provinces are under the same category. This works for unification of administration. Formerly the Depart- ment of Mindanao and Sulu formed one separate, self-governing entity and the special Provinces of Luzon formed another type of adminis- trative unit. Private law: The first attempt at establishing divorce in the Philip- pines was made by act 2716. It provides, however, that before a divorce can be obtained one of the parties must have been found guilty of adultery by a competent tribunal. Judicial reforms: The most noteworthy act under this heading is that which reorganized the courts of first instance and provides for an automatic exchange of places by lot between the judges of the courts of first instance belonging to the same rank. Every Rve years the judges are to be convened and those of the same class are to exchange places. (Act 2941.) Another act postponed the exclusive use of English as the sole official language of the courts until 1930. (Act 2830.) Labor: At this period the Philippines were beginning to have their labor troubles, and act 2865 authorized the Governor General to ap- point a committee to investigate controversies between the owners and tenants of large estates. Mercantile regulations: One law passed during this period which has been objected to by foreign communities like the Chinese is act 2972, which would prohibit the writing of account books in Chinese and which imposes penalty for its violation. Public works : Public works are taken up in the annual appropria- tions for public works, but a law worthy of note is act 2940, providing for the issuing of bonds by the government of the Philippines in the amount of $10,000,000 for the purpose of providing funds for public works. The militia : Act 2715, providing for the establishment of the Philip- pine militia, was j)assed in 1917. Its initial purpose was to help the United States during the Great War. The militia is divided into two classes : First, the regularly enlisted militia, known as the national guard; and, second, the reserve militia, composed of those who were not in active service. The Governor Gen- eral is the commander in chief of all the militia. There is a militia commission established to advise him as to the permanent organiza- tion, equipment and government of the national guard and the reserve militia. The militia commission is composed of the secretary of the interior, the president of both houses of the Philippine Legislature or their representatives, the secretary of finance, the secretary of justice, and two other members appointed by the Governor General. Franchises : It will be worthy of note that franchises have multiplied during this period, a fact which shows great economic activity. Dur- ing this time 41 franchises have been granted by the legislature. There were only 18 in the first period and 21 in the second period. Memorials and recognitions of merit: It is proper to create a sepa- rate subheading for those acts of the Philippine Legislature which 88 FILIPINO APPEAL FOR FREEDOM. honored the memory of people who have rendered service to the Filipino people or gave recognition to those who are still living but who are illustrious by the magnitude of the work th^t they have done. Act No. 2795 appropriated ^60,000 for the erection of a mausoleum to. perpetuate the memory of the late Hon. William Atkinson Jones, the author of the Jones law. Act 2810 authorized the creation of a com- mission to take charge of the preliminary work for the celebration of the fourth centennial of the discovery of the Philippines by Magellan. Act 2918 authorized the payment of special remuneration to Frank W. Carpenter for his work in Mindanao and Sulu. Similarly life pen- sions were given to Gen. Emilio Aguinaldo, former President of the Philippine Republic, and the late Cayetano Arellano, chief justice of the supreme court. (Acts 2922 and 2909, respectively.) National ideals: Act 2928 is replete with memories of the past, for it revived the old flag of the Republic and made it an ofiicial flag of the government of the Philippines. Act 2933 provides for a standing, appropriation of ^1,000,000 every 3^ear for the commission of inde- pendence. OUR LEGISLATIVE RECORD. We do not contend for a moment that the legislature has made no mistakes. It has made mistakes, undoubtedly. But so has every law-making body in the world. And when it comes down to the real issue as to whether it has served the country with the highest of serv- ice and public weKare, our legislature can well bear the scrutiny of the most hostile critics. It has produced a record of which any legis- lative body of the world might well be proud. XVIII. General Conclusions. An impartial reading of the mission's memorial to the President as well as of the statement of conditions, will, we believe, inevitably lead to the following conclusions: 1. A stable government has already been established in the Philip- pines. Therefore, the only prerequisite established by the Congress of the United States as a condition precedent to the granting of inde- pendence is fulfilled by the people of the Philippine Islands. The granting of the independence is the next logical immediate step. 2. From 1914 to 1921, with the Filipino people in greater control of their government, more rapid progress has been made and greater improvements effected in all Philippine activities — social, economic, and governmental — than in any other similar period in Philippine history. Therefore, the mere mention of backward steps and of taking away powers and prerogatives already enjoyed by the Filipino people is politically unwarranted and indefensively absurd. 3. During this period (1914 to 1921) the political capacity of the people has been tried and has met every acid test. In 1921 the Philippine government was more scientifically and efficiently organ- ized than in any other period in Philippine history. A successful reorganization of the executive departments had been effected. A budget system had been established. Increased activities and greater results were obtained from all the bureaus of the government, including the bureaus of education, justice, and lands and the Philip- pine Health Service. FILIPINO APPEAL FOR FREEDOM. 89 4. The Filipino desire for independence is not born of ingratitude toward the United States, but is the natural sequence of nearly a quarter of a century of joint American and Filipino efforts in the most successful experiment in democracy ever attempted in the Tropics. 5. A further delay in the recognition of Philippine independence after so many years of patient labor and constant struggle will be prejudicial to the best interests of both the American and Filipino peoples. 6. The granting of independence at this time mil be a strong factor for international peace. If the independence of the Philippines could now be secured as an amicable agree- ment between the two peoples, nay, even as an act of magnanimity on the part of a sov- ereign power, how much would that mean for the peace of the world! How much more would that add to the prestige of the United States when she again appears before the world as a champion of democracy and human liberty! XIX. Appendix. INSTRUCTIONS OF THE COMMISSION OF INDEPENDENCE TO THB PHILIPPINE PARLIAMENTARY MISSION. Gentlemen, in compliance with a resolution of the Philippine Legis- lature, the commission of independence is sending you to the United States to continue the work already begun for independence and to obtain from the people and Government of the United States the im- mediate recognition of the absolute and complete independence of our country. A resolution to this effect has been approved by the com- mission of independence, and is attached hereto. The mission shall bring before the President and Congress of the United States this just deruand of the Filipino people. The sacred promise made by the American people to grant us our independence as soon as a stable government could be established in our country should be without delay complied with. The Fihpino people have not only demonstrated their capacity to establish a stable government but, in fact, such a government has already been established and has been functioning for a long time. Knowing as we do America's sj love for liberty and justice, and her respect for her given word, we are confident that our voice will no longer be ignored. It is not our purpose, neither is it the purpose of the Filipino people, to obtain independence by halves or independence which IS not consecrated to the principle that the Fihpino people shall be free to solve their domestic questions and determine their external relations. The necessity of discussing what guaranties should be established to insure the stability of the existence of an independent Philippine government seems to have vanished as a result of changes in inter- national relations and the salutary effects of the disarmament con- ference, especially the ratification of the so-called four-power treaty relative to the problems of thie Pacific. Neither is it any longer necessary to dwell upon the progress of our country under the administration of Filipinos in accordance with the government authorized by the Jones law, because this progress has been in a great measure recognized in the report of the special H. Doc. 511, 67-4 7 90 FILIPINO APPEAL. FOR FREEDOM. mission sent to these islands last March by President Harding. There are reasons, however, why we should question certain parts of the report of that special mission, especially those which refer to the stability of the present Philippine government. The second independence mission should be fully informed of the effects the extensive publicity given to that report has made upon American public opinion in general and upon their Government officials. It shall be the special care of the mission in the event that public opinion in America has been unfavorably impressed by the report to give out truthful and actual facts and describe the actual condi- tions in the islands as well as the satisfactory results obtained under the present government, together with the bright prospects which the future holds for the establishment of a government completely and absolutely independent. This second mission may consider itself fully authorized to organize and reorganize itself in the form that it may deem convenient, and, taking into account unforeseen difficulties and unfavorable circum- stances, it is also authorized to detail, if it so deems convenient after the immediate work of the mission is accomplished, a portion of the delegation to remain in America to organize new publicity agencies or to extend those already in existence. The independence commission is aware of the enormous and various difficulties which will probably confront the work of the second mission to the United States. It is also aware of the com- plexity of the problem the mission has to solve and the circumstances it will have to contend with in order to obtain positive results. The commission hopes and is confident that the second mission will know how to meet whatever difficulties may arise and will be equal to the occasion, sparing no efforts or time to achieve success. But if after having exhausted all the means within its power and com- mand it fails to attain the object for which it has been sent or if in the course of its negotiations new aspects or questions present them- selves which the mission does not deem within its province to solve and decide, it shall make a report and recommendation to this commission in order that new or additional instructions may be sent. The declaration of purposes and the instructions to the first Philippine mission of 1919 shall be taken as the principal guide for the work of the second mission. In complying, however, with those instructions as well as with the present the second mission shall consider itself authorized freely to act without embarrassment and in consonance with the spirit rather than the letter of said instruc- tions and declaration of purposes, since the primordial object which actuates us in this great campaign is to secure the absolute, complete, and immediate independence of the Philippines. o i LIBRARY OF CONGRESS ^ 027 531 557 6 LIBRARY OF CONGRESS 027 531 557 6 •