192 z. 67T 2d G sTsslon 8S } HOUSE OF REPRESENTATIVES {^0^25* CONDITION IN PHILIPPINE ISLANDS OS 685 1922 Copy , REPORT OF THE SPECIAL MISSION TO THE PHILIPPINE ISLANDS TO THE SECRETARY OF WAR ) WASHINGTON GOVERNMENT PRINTING OFFICE 1922 HOUSE CONCURRENT RESOLUTION 47. [Submitted by, Mr. Towner.] Resolved hy the Bouse of Representatives {the Senate concurring), That one hundred thousand copies of the Report of the Special Mis- sion to the Philippine Islands to the Secretary of War, without the map but with the data on the Philippines preceding and accompa- nying such report, be, and the same is hereby, ordered printed as a public document, to be distributed as follows: Sixty-five thousand through the document room of the House, twenty-five thousand through the document room of the Senate, five thousand through the Committee on Insular Affairs of the House, and five thousand through the Committee on Territories and Insular Possessions of the Senate. Passed the House March 17, 1922. Attest: __ _, Wm. Tyler Page, Clerk. Passed the Senate April 20 (calendar day, June 2), 1922. Attest: • George A. Sanderson, Secretary. LIBRARY OF CONGRESS RECEIVED 'JUMrSlMfc POCUMgKT'S PIViaiON ^\^ CONTENTS. \<\^ Page. Composition of the Special Mission . : . 4 Interesting data ' 5 President of the United States, letter from 7 Secretary of War, letter of instructions from 7 Special Mission to the Philippine Islands: Routine of 11 Travel performed by 11 Philippine Islands: History of 12 American occupation of 15 Military period 15 Organization period 15 Construction period 15 Period of Filipinization 16 People of ; 17 Present conditions of people of 20 Justice, administration of . 24 Land titles 26 Prisons 26 Treatment of prisoners 27 Provincial and municipal jails 27 Instruction, public 28 Teachers 29 University of the Philippines 28, 30 Science, Bureau of 31 Health and sanitation 31 Philippine Health Service. 31 Leper colony : 32 Treatment of leprosy 32 Insane, care of.,. 32 Defectives, care of , 33 Economic conditions. 33 Postal Savings Bank 33 Taxe3 33 Trade 34 Finances 35 Taxation 36 Per capita revenues from 36 Revenues 36 Philippine National Bank 38 Public Works 40 Construction 40 Roads 41 Construction 41 Repair 41 Care of 41 Government in business. 42 Elections 42 Legislation 43 Conclusions, general 45 Recommendations 46 Index 17 3 COMPOSITION OF THE SPECIAL MISSION. Maj. Gen. Leonard Wood, Chairman. Hon. W. Cameron Forbes. ATTACHED. Col. Frank R. McCoy, Chief of Staff. Mr. Ray Atherton, Department of State. Lieut. Col. Gordon Johnston. Maj. Edward Bowditch, Jr. Lieut. Commander Stewart F. Bryant. Maj. A. L. P. Johnson. Prof. H. Otley Beyer, University of the Philippines. Capt. Robert C. Candee, Aid-de-camp. First Lieut. Osborne C. Wood, Aid-de-camp 4 INTERESTING DATA ON THE PHILIPPINES. *Population.— Total population, 1903, 7,635,426; 1921,10,956,000; Christian, 9,350,240; Mohammedan, 434,868; Pagan, 540,054; Bud- dhists, 25,568. Foreigners: Americans, 6,931; Spanish, 4,271; Brit- ish, 1,202; Chinese, 55,212; Japanese, 12,636; all others, 2,893. Physical. — Number of islands, approximately, 3,000. Total area, 115,026 square miles. Total area under cultivation, 11,503 square miles (10 per cent), valued at $229,000,000. Total area of forest land of commercial value, 64,800 square miles, 99 per cent of which belongs to the Government. Number of Provinces, 49. Number of municipalities, 829. Estimated total wealth of islands, $5,500,000,000. Educational. — Number of public schools, 6,493. Total enrollment of pupils, including private schools, 1,020,000. Degree of literacy (about), 37 per cent. Having received primary instruction, 35.9 per cent; having received secondary instruction, 0.89 per cent; superior instruction, 0.13 per cent. Number of teachers (of whom 501 are American), 18 ; 134. Number of colleges and universities, 17. Enroll- ment of students in University of the Philippines, 4,130. Number of students attending colleges and schools in the United States, 2,700. Health.— Year. Death rate. Birth rate. Infant death rate. Manila. Provinces. Manila. Provinces. Manila. Provinces. 1904 45.57 22.58 26.47 26.10 18.85 *20.73 33.80 33.25 43.54 40.06 39.34 ♦36. 54 801. 86 322. 46 213. 02 203. 71 1913 147. 55 1920 ♦160. 71 * Estimated. Financial. — Income of Philippine Government, 1920, $40,500,000. Tax per capita, $3.96. Trade with United States (imports and ex- ports), 1903, $17,907,141; 1920, $197,506,041. Persons rendering income-tax returns for 1920, 9,519 (Americans, 1,434; Chinese, 3,123; Filipinos, 3,667). * Estimated, except for 1903. 6 KEPORT SPECIAL MISSION ON INVESTIGATION Newspapers. — Daily newspapers published, 45; total circulation, 131,400. Weekly and other publications, 69; total circulation, 195,700. Suffrage. — Number of votes cast general election 1919, 672,122. Women do not have the suffrage. Languages. — Number of distinct dialects spoken, 87. Number of ethnographic groups or tribes, 43. Roads. — Miles of railroad under operation, 755; miles of roads rated as first class, 2,920. Historical. — About 200-1325 A. D., dependency of various Hindu- Malayan empires in Indo-China, Sumatra, and Borneo; 1325-1405, subject to Javanese empire of Madjapahit; 1405-1440, governed by China (under Ming emperors) ; 1440-1565, Northern Luzon subject to Japan; from Manila south, subject to Mohammedan Borneo; 1565- 1762, subject to Spain through Mexico (paid tribute to Japan 1592- 1623 to avoid invasion by the Shogun Hideyoshi); 1762-1763, seized by England but restored to Spain by the treaty ending the Seven Years War; 1763-1898, subject to Spain (through Mexico until 1821 and to Spain direct after that date); 1898-1921, under American sovereignty; military government, 1898-1900; Philippine Commis- sion, 1900-1907; Philippine Commission (American majority) and Assembly, 1907-1913; Philippine Commission (Filipino majority) and Assembly, 1913-1916; elected Assembly and Senate, under Jones bill, 1916-1921. REPORT OF THE SPECIAL MISSION ON INVESTIGATION TO THE PHILIPPINE ISLANDS. The Secretary of War, Washington, D. O. Sir: We have the honor to submit the following report of the special mission to the Philippine Islands. The purpose and instruc- tions of the mission are set forth in the following letters: The White House, Washington, March 20, 1921. My Dear Mr. Secretary: In the message transmitted to the Congress on the 7th of December, 1920, President Wilson said: ' ' Allow me to call your attention to the fact 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 independ- ence which they so honorably covet. ' ; The suggestion made was not acted upon by that session of Congress. Undoubtedly that nonaction was due to the fact that all of the evidence available to Congress was not of this same tenor. Based, however, as it was, on official reports from the highest authority in the Philippine Islands, as well as on current reports from lesser authorities given the widest circulation in the United States, as well as in the islands, it can not, with propriety, be ignored, nor yet can it, in the face of conflicting evidence from many sources, be accepted as the final word on so important a subject. I have, therefore, selected Gen. Leonard Wood and W. Cameron Forbes to go to the Philippine Islands and to make there a study of the situation and to report thereon, in order that I may have a judgment on which I can base my action and my recommen- dations with a consciousness that I am dealing justly with the Filipino people and pursuing a policy which the American people will sanction and support. I have dis- cussed this subject with you and will ask you to give such instructions as may insure to them every convenience and assistance in their most important undertaking, and to give to them such instructions as will insure a full understanding and a frank report of the problem submitted. Very sincerely, Warren G. Harding. The Secretary of War. War Department, Washington, March 23, 1921. Maj. Gen. Leonard Wood, Chairman Special Mission to the Philippine Islands. Sir: I beg to hand you a copy of a letter from the President briefly giving the object of your mission to the Philippine Islands. I have acquainted the Acting Governor General and the commanding general of the Philippine Department with the_fact of your coming, and have directed them to place 7 8 REPORT SPECIAL MISSION ON INVESTIGATION at your disposal every facility and convenience that may be of assistance to you in your work. It is asserted with positiveness by persons who have had every reasonable oppor- tunity to know the conditions whereof they speak that the Philippine Government is now in a position to warrant its total separation from the United States Govern- ment and that the Filipino people are in a position to continue to operate the Philip- pine Government without aid of any kind from the United States and that the Gov- ernment so conducted would be one in which the American people could take pride because of the assistance heretofore given it. All of this is quite as positively denied by other persons having similar oppor- tunities to study the situation and to know the exact conditions existing in the Philippine Islands. Between these conflicting views you are to render judgment. The decision of the question thus arising is of momentous importance, involving, as it may, the very life of the Filipino people as a people and the reputation and credit of our own country. Even if it were possible hereafter to correct an error now made, it would be difficult to measure the cost of this correction. Every consideration, therefore, urges us, before taking a step of importance in this matter, to satisfy ourselves that we are not acting through emotions, but are acting wisely as the facts present themselves to us after a careful impartial study. I am not unaware that your experience peculiarly fits you and Gov. Forbes for the task that you are undertaking and render detailed instructions superfluous if not embarrassing. Nevertheless, I desire to suggest briefly the doubts which I should like to have cleared up for my personal satisfaction, and these may, in a degree, indicate to you the doubts of others who are interested in the subject but whose minds have been confused by conflicting reports and rumors. There are, naturally, many points of great importance in passing on our future policy with reference to the Philippine Islands about which there is no doubt and with reference to which, therefore, there need be no detailed study. The general characteristics of the Filipino people, their many attractive qualities, their pro- gressive spirit, love of education, and their rapidly developing spirit of nationality are no longer questions. The maintenance of a government, however, in a territory so situated as the Philip- pine Islands involves many problems not dependent entirely on these accepted qualities. In the instructions of Mr. McKinley for the guidance of the commissioners sent to the Philippine Islands in 1900, he said: "In all the forms of government and administrative provisions which they are authorized to prescribe, the commission should bear in mind that the government which they are establishing is designed not for our satisfaction, or for the expression of our theoretical views, but for the happiness, peace, and prosperity of the people of the Philippine Islands, and the measures adopted should be made to conform to their customs, their habits, and even their prejudices, the fullest extent con- sistent with the accomplishment of the indispensable requisites of just and effective government." There is to-day no better guide for a judgment of the adequacy of the Philippine Government as it now exists or as it would exist as an independent government. In passing now on the question of the stability of the existing government in the Philippine Islands if American support should be withdrawn therefrom and of the probability of the permanence of such a government thereafter and the likelihood that such a government would protect the people in their essential rights and privi- leges, the standard should not be one of perfection from our point of view, but the standard outlined in the instructions of Mr. McKinley. TO THE PHILIPPINE ISLANDS. 9 We can not neglect, in considering the question of the maintenance of a govern- ment in the Philippine Islands, the financial condition of the people. A study of the situation must embrace, therefore, a first-hand examination of the financial con- dition of the Philippine Government and of the Filipino people — the present and prospective revenues of the Government and the extent to which these revenues are dependent on the present relation of the islands to the United States. Of even more importance than the economic position of the Government is that of the people. A careful study should be made of the effect on the people of treating their products in the American market as those of a foreign country, as well as, on the other hand, such disadvantages as may, accrue to them as the result of the free entry of American goods in their markets. Passing now from the economic question, attention should be directed to the likelihood of the maintenance of a stable government in the Islands as this likeli- hood may be determined from evidence drawn from the operation of the existing government. It is unnecessary to review the steps in the development of the existing Govern- ment. It is sufficient to say that it is most liberal in its concession of powers to the Filipino people. The legislature to which is given general legislative powers is purely Filipino, both as to its elective members and as to those few appointive mem- bers designated by the Governor General to represent the interests of the non-Christian people of the islands. The judiciary, with the exception of the Supreme Court, is almost exclusively Filipino, the executive officials of the Government in the munici- palities and provinces are exclusively Filipino, and in the central government are largely so, the exceptions being the Governor General and the Vice Governor. But few of the ministerial officers are now American, and of the supreme court the chief justice and three of the eight associate justices have generally been Filipinos. The Government thus constituted is the one to be studied as the basis of judgment. Of the first importance it should be determined whether or not this Government has contributed duly to the happiness, peace, and prosperity of the Filipino people, and the determination of this question must necessarily depend largely on the views of those people. It should be determined whether or not the Government is reasonably free from those underlying causes that result in the destruction of government. Is the government effectively administered; are the officials and employees reasonably faithful to the trust imposed upon them; is justice impartially administered; are the elections con- ducted honestly so that the public will receive expression in the selection of elective officers; are the results of the elections generally acquiesced in by defeated minorities are the civil service laws honestly administered ; and are appointments to office and to employment under the Government made as a result of competency? The effect of extension of powers to Filipinos in their own Government should be carefully scrutinized, and it should be determined whether such extension results in a lowering of the standards of government and whether such lowering, if- it exists, decreases with the experience of the Filipino so charged with responsibility, or if there is a steady relaxation of effort and a more marked deficiency as we recede from the previous standard. The result of Filipinization on the important services of edu- cation, health, public works, and agriculture should be noted and given due weight in a final determination of the problem submitted. In passing on the questions thus presented, it is necessary to avoid comparison with a standard of other countries and other climates and particularly with our own idea of perfection. It should be remembered that our obligations are to all of the people who inhabit the Philippine Islands, and in a particular manner, because of their relative helpless- ness, we are committed to look after the welfare of the backward people of the islands — Christian, Moro, and Pagan. The keeping of our faith to theso people has beei H. Doc. 325, 67-2 2 10 REPORT SPECIAL MISSION ON INVESTIGATION committed to the present Philippine Government. How has this faith thus com- mitted been kept, and what is the outlook for the future? The Filipino people have for ages, due to the fact that the sovereignty of the Philip- pine Islands rested first in Spain and then in the United States, been protected in the ownership of territory and potential wealth out of all proportion to that of their neighbors. It is important to determine whether reasonable plans exist for the utili- zation of these resources by the Filipino people in order that their unused land and resources may not continually be a source of temptation to their less fortunate but probably stronger neighbors, and whether on the withdrawal of a strong sovereignty from these islands these resources woujd remain exclusively available to the Filipino people. Certainly it would be a vain thing to turn the Philippine Islands over to the Filipino people without reasonable assurance that the resources of the islands would remain the heritage of the people of the islands. The pleasing of the Filipinos of this genera- tion would be a minor satisfaction if it were believed that it would result in the bond- age or destruction of the Filipino people for all time hereafter. Your selection by the President for this work is the best assurance of his desire that it should be impartially done, without prejudice, fear, or favor. Likewise it is an assurance that it will be undertaken and carried out with an appreciation and a delicate regard for the feelings of the Filipino people. Whether the result of your investigation may or may not be to the satisfaction of the majority of the Filipino people at this time, I am convinced that, undertaken in the spirit in which it is committed to you and in which you have undertaken it, it can not but be to the future satisfaction of the Filipinos and must, of necessity, result in their permanent well-being and progress. Very sincerely, John W. Weeks, Secretary of War. Arrival. ^he special mission, as above constituted, arrived in Manila on May 4, 1921. Attached to and assisting the mission was a representative of the State Department, secretary of the legation in Peking, who had also served for some years in the embassy in Japan and is generally familiar with international affairs in the Orient; a staff officer of the admiral commanding the Asiatic Fleet who had served some years in the Orient; and Spanish- speaking officers of the Army experienced in Cuban, Philippine, and foreign affairs generally, three of whom had had prior and long service in the islands both in civil and military establishments, in executive and administrative work, and as members of legislative councils. Two of these officers had also accompanied the Harbord mission to the Near East, spondents. coire " During the travels of the, mission throughout the islands they were accompanied by an experienced correspondent of the Associated Press, a special corre- spondent of one of the leading American dailies com- mitted to giving independence to the Philippine people; and, as the representative of the Filipino press, one of the editors of the leading Manila journal who, during the Personnel. TO THE PHILIPPINE ISLANDS. 11 insurrection against Spain and the United States, had been an officer in Aguinaldo's army. The attached members of the mission and the corre- spondents represented a wide variety of opinions. From the moment of its arrival in Manila, the mission received every assistance from the Acting Governor General, the commanding general, the admiral, and their staffs; also from Americans throughout the islands; and from the Philippine people and their political leaders generally, many of whom gave the benefit of advice and suggestions in the most cordial and friendly spirit. Their assistance has been coupled with a sincere and charming hospitality which continued to the last moment of the mission's stay. During these four months in the islands the routine , r Co ?} feren .^ s *S to # m % Manila with all of the mission consisted of periods of about a week in tJS s itie a s nd na " Manila, during which conferences were held with officials of the Central Government, with representative Amer- icans, Filipinos, and foreigners of every walk of life. Investigations were undertaken looking to a thorough analysis of the Government and its activities, followed by periods of from two to four weeks of investigation in the Provinces. During these trips 48 of the 49 Provinces . Provinces vis- into which the islands are divided were visited. The mission has aggregated 11 weeks of travel by sea, auto, horse, and rail, and has held conferences in 449 cities and towns. All parts of the archipelago were visited and a J^ ur fort U y-nine your mission feels it has placed itself in intimate touch y\ t s 1 i f ed and towns with the great mass of the Philippine people — Christian, Moro, and pagan — and with practically all Americans and foreigners domiciled and doing business in the prin- cipal cities and towns of the islands. Too often there has been a marked disinclination on Fr ank state- ment opposing \ the part of individuals, especially Filipinos not in sym-Jg^e^n^ence pathy with immediate or absolute independence, to state their opinion openly, for the reason that they feared loss of standing or persecution if they did so. Their fears were very genuine and, unhappily, there is evidence that their apprehensions were well grounded. When practicable, important administrative investiga- Personal ad- . , , , , . mmistrative in- tions were made, with the knowledge and assistance of vestigations . made. the Acting Governor General and his assistants. The mission and its attached members, however, personally visited administrative and judicial offices, the courts (including justices of the peace), schools, hospitals, jails, 12 KEPORT SPECIAL MISSION ON INVESTIGATION and other public institutions throughout the islands and feel they have completed a thorough and careful survey of the Government, the people, and their institutions. As a result it has been able to form definite conclusions on the general subjects and upon the conduct of the Government. The date of the arrival of the mission at the various towns and cities was made known well in advance, in order that there might be ample time for the preparation cordial reception, of petitions, memorials, and addresses. Almost without exception the officials and people of the regions visited paid great attention to the reception of the mission. The roads and streets were decorated with arches, gener- ally bearing the word " Welcome, " followed by a state- ment that the people desired their independence. dependence. 11 in " ^ ne public assemblies to greet the mission and present addresses and memorials were usually of a size which indicated a keen interest in the question of independence. The people were attentive and quiet, but there was a lack, due in part to racial reserve, of that exuberant enthusi- asm which so often marks the public discussion of ques- tions of national import. speakers from The proportion of speakers representing business and younger genera- • if. 1 A - i n mu • tion. agriculture was relatively small, ihe majority were from the younger generation. HISTORICAL SKETCH. hitherto p always ^ n considering the question of granting independence dependent. t ^ e Philippine Islands, it is of interest to note that they have always been a dependent group under the influence of a stronger power. It is appropriate to re- ja^nSfEmS view briefly their history. Previous to 1400 the islands had been subject to Hindu-Malayan empires in Sumatra, Indo-China, and Borneo ; at that date they ceased to form an integral part of the Javanese Madjapahit Empire. of Mohammedan 11 - Shortly after 1400 Mohammedanism was introduced, but politically the islands were subject to China during the reign of the ambitious Ming emperors. First Caucasians. The first Europeans who visited the Philippines were Portuguese, about 1517, and Spaniards, in 1521. The century preceding the European discovery had been one of the most eventful periods in the history of the islands. In addition to the Chinese attempt at political as well as commercial domination, the Japanese entered the islands in the north and the Mohammedans of Brunei (Borneo) TO THE PHILIPPINE ISLANDS. 13 in the south. At the time the first permanent European colony under Spain was established, in 1565, all of the islands as far north as Manila were subject to Borneo B OT£5? nated by and, it is said, paid tribute equal to about 1 \ liters of gold per annum. While the Japanese and Chinese were also settled in Manila, the strongest Japanese influence was in the north of Luzon, from which they were driven by Japanese driven the Spaniards in 1582 with the conquest of their fortified from Luzon " trading stronghold in the Cagayan Valley. The chief cause of Japanese interest in the islands was Japanese com- their search for rare pottery, gold, and pearls. i6oo. The first permanent Spanish colony was founded in is ^ e ^ n rsts ^I Cebu in 1565, and Manila was conquered in 1570. Span- nilataken - ish records state that in 1600 there were some 25,000 ™?°? ul . ati °^n of ; Manila in 1600. Chinese and 1,500 Japanese in Manila alone, but of these 2,300 Chinese were massacred in the year 1603 by the Spaniards, fearful of their numbers. There were three C] ¥ a || acres of subsequent massacres of Chinese by the Spaniards for the same reason. During the next two decades the coastal iS hS?roi eSpan " regions of almost the entire archipelago were brought under Spanish control, The Spanish government of the Philippines was placed ern *2£}J b gov " under the viceroy of New Spain (Mexico) and all com- munications were through him. A captain general was at the same time military commander and head of the civil government. The main purpose of the Spaniards Sp p £Jif °^cup°a- in the Philippines was the search for treasure, commerce tion * and the spread of Christianity; but they soon discovered that the amount of treasure obtainable in the islands was limited, and, although a constant expense to both the Governments of New Spain and Spain, they were re- tained to spread the Christian religion. In 1592 the wShogun Hideyoshi of Japan demanded Ja £ a e n mands of that the Spanish government of the Philippine Islands pay annual tribute and acknowledge the sovereignty of Japan. The Spanish government was loath to do this, but due to shortage of men and ships and lack of support from New Spain, was forced to acquiesce to the extent of paying tribute, which was actually paid on several TributG - occasions during a period of from 15 to 20 years. Spanish control continued in the Philippines until Isl |P ain controls 1898, although the Portuguese, Dutch, and British tried at various times to overthrow the Spanish power. All these efforts were unsuccessful, though the British cap- tiSdrMSff*" tured Manila and ruled it for three years under Alexander Dalrymple, in the middle of the eighteenth century. 14 REPORT SPECIAL MISSION ON INVESTIGATION iauon C of vS?ous From these various partial conquests of the Philippine racial influences. Islands there remains to-day a strong influence on the native oustoms, language, and religion — the Moham- medan religion, from Indian and Arabic sources, a domi- nant Chinese influence in commerce and trade, Christi- anity, Roman law, and many features of occidental civil- ization from Spanish sources. tr^iStaiSiedf" American control in the Philippines began during the War with Spain, but was not firmly established until 1900. Races. Racially, the mass of the Filipino population is of Malayan stock, though other types are to be found, especially among the 10 per cent of non-Christians. Chinese and Spanish race mixtures are common among the wealthy and better-educated classes, this mixture seeming to strengthen the native stock. The inhabitants of Borneo, Sumatra, Java, Formosa, and, to some meas- ure, Indo-China (the Malay groups) , are racially the most nearly related to the Filipinos. Whatever may be said of Spain's methods (and too much is said without knowledge), the fact remains that she implanted the Christian religion and European ideas Foundations and methods of administration in these islands and laid the foundations which have been of far-reaching value in our work here. From a number of warring tribes, Spain succeeded in welding the Philippine people into a fairly homogeneous group, sufficiently allied in blood and physical characteristics to be capable of becoming a people with distinctive and uniform characteristics. Spain did not, however, seriously undertake to give Language. them a common language, and although most of the more progressive and intelligent people managed to learn Span- ish, no effective effort was made to make it a common language for the different groups, who continue to this day speaking many distinct dialects. There are eight languages in the islands, each of which is used by not less than 500,000 people, and some seventy-odd more which are used by smaller groups. Some differences be- tween these dialects are slight enough so that people using different ones can make themselves understood, but many are so radically different that they are mutually unintelligible, unite J uest statesT^ The United States obtained possession of the islands by 1898, conquest in 1898. The islands were formally transferred to the United States by Spain in the treaty of Paris. TO THE PHILIPPINE ISLANDS. 15 Almost immediately President McKinley announced Tf eaty of Paris. that the Philippine Islands were not to be exploited for the aggrandizement of the American people. The Philippines are ours not to exploit, but to develop, to civilize, to £ in e r i c a n . . , . » Tr rrvl i • • , l P<>llCy in Phllip- educate, to tram in the science of self-government. This is the path pines. which we must follow or be recreant to a mighty trust committed to us. The 23 years of American occupation may be divided Periods of ,'-,,. -, ,. , . - American occu- mto the following four distinct periods : pation. First, the military period, from August 13, 1898, to 18 J£^gp period ' July 1, 1901. During this period the islands were under a military governor and the insurrection against the insurrection. United States, headed by Gen. Aguinaldo, was being suppressed. United States troops went to the Philip- pines in large numbers, and the first problem confronting the Government was the establishment of public order. In spite of the continuance of military operations, m eitestabSshS" substantial beginnings were made in the establishment and maintenance of a civil government, particularly in establishing respect for the authority of the United States; in the opening of schools, in which the first teach- First schools - ers were noncommissioned officers of the Army; in the establishment of the judiciary, and also in the matter of public health and public works. Organization Order No. 58 of 1900 of Gen. Otis laid broad and secure foundations Gen otis - for the establishment of civil government. Second, the organization period, from July 1, 1901, to^f™^ P eriod > October 16, 1907, in which, the sole legislative body of the islands was the Philippine Commission, appointed ky so £ om wisiliive the President of the United States. In this period much body - constructive work was done, the creation of a working government was undertaken, a public school system or- Public sch00ls - ganized, 5,000 schools were opened with 7,671 teachers, \^ and an enrollment of 400,000 children, about one-fifth of the children of school age in the Philippine Islands, a census taken, the judicial system organized and the pro- Judicial sys- cedure adopted, a currency system established, public currency sys- works started on a systematic basis, health service reor- Health service. ganized and put in more effective condition, and in gen- eral the structure of government built on secure founda- tions. Govs. Taft and Wright, members of the original Govs. Taft and . Wright. commission, were the governors responsible for most of this work. Third, the constructive period, from 1907 to 1913. In Third period, r 1907-1913. this period one-half the legislative powers, namely, the lower house, were turned over to a bodv of elected Fili- * ** XT t pinos, known as the Philippine Assembly, the commission iegi S e iaturo. r 16 REPORT SPECIAL MISSION ON INVESTIGATION becoming the upper house, or Senate. This, with the proviso that in case of disagreement between the two bodies as to appropriations the previous appropriation bill should carry over. On three occasions the two houses failed to agree on the appropriation bill and the previous bill was carried over without any great injury accruing Public works. ^ Q ^ public service. During this period a broad and practical public works program was laid down and car- ried out involving the construction of roads, bridges, port improvements, irrigation works, schoolhouses, markets, and other public buildings. Artesian wells were driven. Practical and effective negotiations were entered into for the financing and construction of railroads and for en- Transportation, couraging interisland transportation. Steamship subsi- dies were established, and a large number of lighthouses were built. A comprehensive cadastral survey of the islands was undertaken, and many other constructive enterprises, which met with the cordial appreciation of progress.* ional the Philippine people. In this period the University of the Philippines was founded, also many professional schools, and the policy of the general extension of educa- tion was continued. gradual 1 P part?ci Throughout these three periods the policy was estab- pation in govern- lighed and f ollowed of utilizing Filipinos in the Govern- ment on the general principle of putting them in the less responsible positions — which was proper, as they had little experience — and carefully training them for pro- motion and working them up as rapidly as their efficiency and training proved, through protracted periods, justified. At the end of this period the proportion of Filipinos in the service was 72 per cent, as against 28 per cent Americans. i9i F ™92?. period ' Fourth, the period of Filipinization, 1914 to 1921. The first step taken by the new administration was to control of gov- give the Filipinos a majority of the commission, or upper pinos? nt by Ul " house. The second was the passage of what is now the Jones wu. fundamental law of the islands, known as the Jones bill, Sixty-fourth Congress, Act No. 240, approved August, 191 6. Legislative Under it the Christian and civilized Provinces were per- powers. mi tted to elect a Senate and a House, and the Governor Gen- eral authorized to appoint representatives for the non- Christian portions of the islands, the legislature having legislative control over the whole archipelago. During this period the administration deliberately adopted the policy charged! 051118 dis " °^ S e ^ m S Tl & °f m °st of the Americans in the service, com- petent and otherwise, and made the service so unat- TO THE PHILIPPINE ISLANDS. 17 tractive that very few remained, until at this writing the percentage of Americans in the service is only 4 per cent, 96 per cent being Filipinos. The orderly process of promotion of proved efficiency from the less important positions was changed to a hurried Filipinization, placing r JT^g* nization Filipinos in nearly all of the higher positions. Many, including some of those selected for judges, were chosen apparently without due reference to their training or experience. Great emphasis was laid during this period, particu- larly toward the end, on the extension of education, ad vantages° n in- many new schools of all grades being established and the creased - enrollment in the public schools being brought up to the present high figure of 945,000, or double what it had c ^ d » e m ^J Ue °£ been at the beginning of the period, more children of school age finding an opportunity to go to school than ever before. There are also about 75,000 children in standard private schools, or a total of over 1,020,000 in school. Further progress was made in public works, particu- increase in . . j . . . . public works. larly public buildings, extensive boring of artesian wells, construction of new hospitals, etc. The period was marked, however, by a deterioration . Administration *r . ; # i. . becomes top- in the quality of public service by the creation of top- heav y- heavy personnel, the too frequent placing of influence above efficiency, by the beginning of a political bureau- cracy. In this • period, taxation and expenditures were increased taxa- . ■■ i tion and expendi- very greatly increased. tures. THE PHILIPPINE PEOPLE. The Philippine people possess many fine and attractive t J-^ 1 charac - qualities — dignity and self-respect, as shown by deport- ment, complete absence of beggars, personal neatness and cleanliness, courtesy and consideration to strangers and guests, boundless hospitality, willingness to do favors for those with whom they come in contact, which amounts almost to inability to say "No" to a friend. They are happy and care free to an extent seldom found among other peoples, keen to own their land, strongly attached to their homes and their children, proud of and Domestlcllfe - devoted to their beloved Philippines; they are free from Patriotism, worries arising from international difficulties and respon- sibilities, they are refined in manner, filled with racial pride, light-hearted and inclined to be improvident, as are all people who live in lands where nature does so much H. Doc. 325, 67-2 3 18 REPORT SPECIAL, MISSION ON INVESTIGATION and people require so little. In many positions they have shown marked capacity and have done better than could reasonably be expected of an inexperienced and hffh P %°os?tion! untr i e( i people. There are many holding high positions with credit. j n ^he judicial, executive, and educational departments who would be a credit to any government. They are proud, as they well may be, of the advance they have made since the beginning of American control of the prog°LT edented islands, for it can be safely stated that no people, under the friendly tutelage of another, have made so great a progress in so short a time; for 23 years is but a brief time in the development of a people. Mentality. They possess active minds, their children are bright and precocious and learn rapidly. The whole people have a consuming thirst for education, and, as is com- mon among those who have had little opportunity and ccupations. muc j 1 nar( j W0T k } there is a leaning toward the learned professions or occupations which do not involve severe manual labor, and a tendency to underestimate the im- portance of agriculture and the dignity of labor, and to overestimate the standing given by the learned profes- sions. support U oYpubic Their support and aid in the building up of public education is beyond praise. They have sacrificed much that their children might be able to go to school, and the interests of an entire family are often subordinated to sending the selected member to a higher school or uni- versity. Schoolhouses are often constructed by volun- tary contributions of labor, money, and material. uMducate d p . ini ^' There is a serious lack of educated public opinion, for as yet the Philippine public is not a reading public, and Press. there is a lack of a strong, independent press, although there has been a great advance in this respect during re- cent years, and there are several outstanding independent papers of great local influence. The daily total circula- tion?* 11 ° ircula " tio1 * of all island papers is a little less than 140,000, and in the remote Provinces people still depend largely upon the circulation of news by word of mouth. 8oSie?s inos brave ^e Philippine people are readily led by those who understand them. They make brave soldiers, and under Easily led. good leaders make excellent troops. Due to the lack of a well-informed public opinion they are easily swayed by their leaders, sanitation. As a result of generations of disregard for sanitary measures, they are still rather oriental in their attitude TO THE PHILIPPINE ISLANDS. 19 toward disease and questions of public health and sani- tation. This indifference is being rapidly corrected. The Filipino woman is a strong and dominating in- J he Filipino * do woman. fluence in every home and community; she is modest, loyal, and hardworking, and while not much in evidence she is nevertheless always to be reckoned with. She is the strong conservative influence which keeps together the home, saves the money, and is the foundation of the success of many families. The establishment of large numbers of women's clubs, that concern themselves with women'sciubs. hygiene and other civic matters, is a most encouraging sign of the times. The mass of the Philippine people are and always have industries. been agriculturists or fishermen. They have not in the past been active in commerce, except in small stores principally run by the women, although at the present time they are taking a constantly increasing part in the m JJ^*^^" commercial affairs of the islands. They have, however, a long road to travel before the bulk of the business done in the islands is in their hands, as most of the retail stores, the import and export busi- Americans and ness, financial institutions and corporations are in the Sroi^flnanciai hands of Americans and foreigners, especially Chinese. In many sections the heads of the old families, who Feudal system were almost feudal in the extent and method of control, lsappearmg - still exercise a dominant influence and are able to impose their will upon the people. Happily, as education pro- gresses, this condition is steadily lessening. The people are mostly Roman Catholic, with predomi- Religion. nant Mohammedan groups in the southern islands, and various pagan groups, especially in Luzon, Mindanao, and Palawan. They are naturally an orderly and law-abiding instinctively J J J ° orderly people. people. The numerous languages and dialects, the separation L a <* of soiidar- . ° & ,. . -i • i -i -i i i lty due to 8 eo " oi the people into groups living on the islands, the lack graphical and „ x P • -i • -i , •' -,i- ethnological rea- ol a press oi wide circulation, printed m a common sons, language, have delayed the building up of a common tongue with the resulting spirit of solidarity. They possess marked ability in many fields of effort, an ability which is not as apparent as it would have been had not all the intricacies of a highly organized repre- sentative form of government been imposed upon them with too great rapidity. The Philippine people represent the most advanced representative experiment in the establishment of representative IwEastf 16 ^ 111 20 KEPORT SPECIAL MISSION ON INVESTIGATION government in the East, and in our endeavor to establish it, complete in all its details, we have in many instances, by the rapidity of our procedure, overtaxed the ability of the people to absorb, digest, and make efficient prac- tical use of what it has taken other nations generations to absorb and apply, and in our critical impatience we forget the centuries of struggle through which our own race passed before it attained well-balanced government. PRESENT CONDITIONS. ^present govern- There has been a progressive transfer of government to the people of the islands, and at the present time it is very largely in their hands. So extensive has been the transfer that many fail to realize that there still con- tinues in the islands a decisive American control that American con- assures the maintenance of an orderly government, secure against disturbing influences from within and without. In view of the difficult situation which existed after the insurrection, the difference in language, customs, and in conceptions of citizenship obligation, the prog- Progress since re ss which has been made in the 23 years of American American occu- t , , J pation. occupation is extraordinary. It is a high tribute to Americans and Filipinos alike. The animosities have disappeared and there remains a spirit of confidence toward Ameri- and friendliness for the American people throughout the archipelago. Much has been done, but much re- mains to be done. in R e e ffiSency! ° n While there has been retrogression in the efficiency of most departments of the government during the past few years, we do not feel that the responsibility for this rests solely upon the Filipinos or that they should be unduly blamed for such failures as have occurred, as the spSSbuIties. re " ultimate responsibility for the selection of responsible officers and for the exercise of proper supervision was in the hands of the American Governor General, whose duty it was to exercise due care to appoint competent men at the heads of departments and bureaus, and, above all, to exercise proper supervision over them. cy C not n u?ged. poU " A reversal of policy is not needed now, but time for the Filipinos, under careful but friendly supervision, to absorb and master what is already in their hands. We must remember that the good qualities of the people, their enthusiasm and their determination, can not take the place of experience. TO THE PHILIPPINE ISLANDS. 21 y^We must build up an informed public opinion, B, tl ^^ e ^^ m I stronger spirit of civic responsibility and a better appre- ciation of the obligations of citizenship. In this the island press has a vitally important part to play. The task of building up a truly representative form of gov- ernment is made much easier by the fact that the great bulk of the people are Christians, that they are free from Favorable caste distinctions, that although oriental in blood and birth they are essentially western in religion, form of government and in ideals and aspirations, and that their true sympathies and affiliations lie with the great Christian nations. The influence of our efforts to establish representative flu ^nce e in C orfent self-government in the Philippines extends far beyond goveSeSf self " the Philippines. It reaches every part of the Orient where free institutions and representative government are the dream of the people. The great bulk of the Christian Filipinos have a very Desire for inde- ° . . pendence. natural desire for independence ; most of them desire in- Majority favor dependence under the protection of the United States ; pendence. a very small percentage desire immediate independence age^dSire^epa- with separation from the United States; a very substan- ratlon - tial element is opposed to independence, especially at ^depmdence. t0 [ this time.- The Moros are a unit against independence Moro opinion. and are united for continuance of American control and, in case of separation of the Philippines from the United States, desire their portion of the islands to be retained as American territory under American control. The pagans Pagan and non* and non-Christians, constituting about 10 per cent of the population, are for continued American control. They want peace and security. These the Americans have given them. The Americans in the islands are practically a unit for tU drYn Ca phMp- the continuance of American control. P ine Islands - The people, as a whole, are appreciative of the peace and order which prevail throughout the islands. Many do not understand what independence means, or its re- st^fd^onTnde- sponsibilities. They are living under the best conditions pendence they have ever known. It is not generally realized that the American Government can not be expected to assume responsibility for the results of internal disorders, par- ticularly as they affect the nationals of other powers, the treatment of foreign capital, and external political rela- tions, unless the United States retains a certain measure of control. issue. 22 KEPORT SPECIAL MISSION ON INVESTIGATION Eff s eC co f mmS ^he S rea ^ work which the American commercial popu- ciaii.y and as or *lation and organizations have done in the islands should ganizers. » not be overlooked. It has contributed greatly to the betterment of conditions. They have built up and estab- \ lished business and credit from one end of the islands to the other. They have always been a strong force in the support of law and order, intensely American in senti- ment and, on the whole, a good, stabilizing, and helpful influence. At times they have been impatient, and justly so, with the discouragement of American business efforts, and there have been conditions which have given superficial dis- rise to strained relations between individual Americans and Filipinos, but never resulting in any disturbance of public order, influence for The American and foreign church missions and schools American institu- and charitable associations have done much to improve the spiritual and physical condition of the people, and to build up better relations between the Filipinos and Americans. Red tape. Generally speaking, administrative departments of the Government are top-heavy in personnel and enmeshed Bureaucracy. - m re( j ^ape. There is a vast amount of paper work. The methods of the administration are purely bureaucratic. There is a lack of supervision and personal contact. __ — ' admESationin The g enera l administration of the Philippine Govern- i9i3. ment in 1913, the period of greatest efficiency, was honest, highly efficient, and set a high standard of energy and morality. Inherited tendencies were being largely replaced by American ideals and efficiency throughout the Philippine personnel, but the time and opportunity were both too short to develop experienced leaders and direction in the new English-speaking and American- Leaders aii thinking generation. Both the political and adminis- aSd n S pea*kfng med trative leaders were still Spanish-trained and Spanish- speaking, and many are so to-day. in^ubiSvice? ^ * s tne g enera l opinion among Filipinos, Americans, and foreigners that the public services are now in many particulars relatively inefficient; that there has occurred a slowing down in the dispatch of business, aftd #, distinct relapse toward the standards and administrative habits of former days. This is due in part to bad example, incompetent direction, to political infection of the serv- vision k a n°dinspcc-ices, and above all to lack of competent supervision and inspection. This has been brought about by surrender- ing, or failing to employ, the executive authority of the TO THE PHILIPPINE ISLANDS. 23 Governor General, and has resulted in undue interference and tacit usurpation by the political leaders of the general supervision and control of departments and q^SS^ 01 ^ of bureaus of the government vested by law in the Go vernor eral ' s authority. General, Again, . the legislature has passed laws tending to Pontics in civil demoralize and introduce into the civil service the infection of politics. For example, numerous exemptions from the requirements of the civil service and many provisions for temporary employment. All these defects can and — unless we fail to understand the spirit of the legislature and the leaders — will be corrected in the islands. CONSTABULARY AND PUBLIC ORDER. Public order is maintained principally by the con- stabulary, a force of approximately 5,800 officers and men. This organization has proved itself to be depend- U ium g pairel. tlon able and thoroughly efficient. In discipline, morale, and appearance it still bears the strong impress of the care- fully-selected officers of the United States Army who organized, trained, and developed it. This force, excellent as it is, is designed to meet the police needs of the situation in time of peace. There is no defense in A . ... case of war. no adequate local organization of the Philippine people for defense of the islands against aggression. The Ameri- ti0 n e u°™ me t?a\n can Government should at once take the necessary steps; p,I,imlitia ' to organize, train, and equip such a- force.,- There has been some lowering of standards, due, standards ° lowered through principally to the sudden loss of the bulk of the experi- l0 j>s of American i a • iipi • officers. enced American officers, who left the service to enter the World War, and to the effects of the low rate of pay Reasons, which resulted in many leaving the service; also to the demoralizing, and at times intimidating, effect of political influence, the detached nature of the duties, infrequent inspections, and frequent change of officers. But on the whole this force is a very satisfactory one and is entitled to great credit for its morale, efficiency, and orderly and effective performance of duty. Some years ago a school for constabulary officers was S( ££J stabulary organized and has been in operation with excellent results. No men are now appointed to the constabulary who are not graduates of this school, where they have undergone a careful preparation and training. The quality of the graduates shows what can be accomplished when oppor- tunity for careful training is offered. 24 REPORT SPECIAL MISSION ON" INVESTIGATION Public order. Public order is excellent throughout the islands, with More- disturb- the exception of minor disturbances in the Moro regions, ances. . • n • • due principally to energetic and sometimes overzealous efforts to hasten the placing of Moro children, especially girls, in the public schools, and to the too sudden imposi- tion upon the disarmed Mohammedans of what amounts Mo£ a representa- to an absolute control by Christian Filipinos. It is also ernments!* 1 g ° v " °^ ue m P ai> t t° ^ a ^ ure to give adequate representation in local governments to Moros. ADMINISTRATION OF JUSTICE. various courts Justice is administered in the Philippines by a supreme ofjustice court, numerous courts of first instance, justice of the peace courts, and municipal courts. Filipino att^ The supreme court has the respect and confidence of courts. the Philippine people. The other tribunals do not enjoy an equal degree of confidence. In the lower tribunals, generally speaking, the administration of justice is dence k in f lower unsatisf actory , slow, and halting, and there is a wide- courts spread feeling among the people that political, family, and other influences have undue weight in determining issues, courts under During; the existence of the Philippine Commission, a Commission. • t» t -i -i most serious effort was made to secure the best available men for the bench, without regard to party affiliation, and the men appointed at that time as a rule enjoyed public confidence. In later years, the same care has not been exercised. At present. There are pending in the courts of the islands to-day, Number of in round numbers, approximately 50,000 cases, including cases pending. -, ,. , . >>, some 8,000 probate and guardianship cases. Conditions are growing steadily worse, and with the present per- sonnel and methods the dockets will never be cleared. The condition of the courts of first instance is generally case^ crease in deplorable. The number of cases filed has steadily in- shortage of creased from year to year. The number of judges has not been increased proportionately and is insufficient to dispose of, promptly and efficiently, the great volume of \business that they are called upon to transact. The abolition of the court of land registration imposed a heavy additional burden upon these courts. The judges in too many courts do not realize the necessity of reach- ing early and prompt decisions and are too ready to cicr n ks xperlenced postpone hearings and trials. The clerks of the courts of first instance are too often without the necessary TO THE PHILIPPINE ISLANDS. 25 experience. There is no uniform system of filing records, Lack of system. and in many cases it is difficult for attorneys to secure records promptly. The justice of the peace courts are the weakest point in the judicial establishment. Complaints against these courts are numerous and come from all parts of the archipelago. Because of the remoteness and isolation of many of these tribunals, the want of frequent and effective supervision and inspection, many abuses are perpetrated. A frequent cause of complaint is against extreme action taken under the provisions of Act 2098, which enables of A^t2098 larity employers of labor to prosecute their laborers for breach of contract, and in many cases to hold them against their will, resulting in a kind of legalized peonage. The Peonage. laborers are kept in debt through the advance of money and supplies, and in return for these advances agree to work for definite periods of time and under certain con- ditions. Under the provisions of this act, should they leave before completion of contract they can be arrested and tried for violation of contract and for obtaining money or supplies under false pretenses. During the fiscal year 1918 there was a total of 3,266 cases of this nature, of which 1,456 were convicted. Another common cause of complaint is the initiation confinement in « t ],• • .i , T n ii remote places. oi proceedings resulting in the arrest and confinement at remote places of people who are unable to give bond. This procedure results often in holding of men in con- finement for months before the cases are acted upon by the judge of the court of first instance. The present condition results first, and above all, from causes, the lack of proper inspection and prompt, corrective action where inefficiency and negligence have been shown, from an insufficient number of judges, insufficient pay and no provisions for retirement, and in some instances to lack of careful selection. Investigation also indicates very clearly that more care should be exercised in the selection of the fiscals, or prosecuting attorneys. . The unsatisfactory condition in the administration o^^ci" wme°dy justice can be corrected by the insular authorities. In 4 efects - doing this, it is important to build up a strong public \ opinion in support of a prompt, effective and impartial p £vfments im " administration of justice. Provisions should be made for the retirement of judges of the courts of first instance H. Doc. 325, 67-2 4 J 26 REPORT SPECIAL, MISSION ON INVESTIGATION and the entire administration of justice must be placed outside the scope of political and other improper in- fluences. In brief, the independence and stability of the judiciary must be established. It lies at the foundation of stable government. LAND TITLES. Land titles. The land title situation in the Philippines is a serious one. It should be the policy of the Government to push cadastral sur-f orwar d the cadastral survey, determine titles to land as vey. . . ... quickly as possible, and to facilitate in every possible manner the acquisition of titles by homesteaders. tities portaDCe of Nothing is more conducive to good government than having the people secure in the ownership of their land and possessing titles guaranteed by the Government, as is the practice under the Torrens system. Filipinos have the excellent trait of a strong, inherent desire to own their own land. minfsSati?n. ad * The present unfortunate land title situation is largely- due to an inefficient administration of the land office in '' recent years and to an increase in the number of problems — -^syhich the Government has to handle. Former em- In 1913 the insular government had a thoroughly efficient and trained bureau of lands and an experienced and effective court of land registration. To-day the inefficiency of the bureau of lands is due, in part, to lack of experienced and trained personnel, to inefficient Abolition of management and lack of funds. Delay in obtaining titles court of land. to . J °. registration. is also due to the abolition oi the court 01 land registra- tion and to the transfer of land cases to the overloaded courts of first instance. This has resulted in an increase in the number of abuses by which the poor farmer and homesteader, ignorant of his rights, is forced off his land by his richer and unscrupulous neighbor. The situation tends to serious discontent and must be corrected. Recommenda- An adequate court of land registration should be re- tion - established. PRISONS. Prisons. The insular government maintains Bilibid Prison in Manila, the San Ramon Prison and Penal Colony com- bined near Zamboanga, the Iwahig Penal Colony near Puerto Princesa, on the island of Palawan; the Fort Mills Prison on Corregidor, and a prison at Bontok in the Mountain Province. The total number confined in all these prisons for 1920 was 5,254. TO THE PHILIPPINE ISLANDS. 27 Bilibid is the receiving station and distributing point Bilibid Prison. of all classes of criminals, except those of the Moro and Mountain Provinces, which are held at San Ramon and Bontok, respectively. Bilibid retains convicts which can not be worked outside and about 1,500 employed in industrial work. TREATMENT OF PRISONERS. Prisoners, upon arrival in any of these prisons, are Prison methods. physically examined, treated if found necessary, given a period of training in drill and exercise movements and, if possible, assigned to work for which preference is ex- pressed. The time of confinement in prisons under ^2^°' con * guard is determined by character and length of sentence and expressed desire of prisoner, governed by good con- duct. Incentives are provided for good conduct in addi- tional privileges, gratuities, by additional liberty through classification as " trusties" or penal colonists, and by automatic reduction of the time of sentence by reason of good behavior. Prisoners of excellent conduct who have served one- R ® war ds for good conduct. fifth of their sentence at Bilibid may be sent to Iwahig, where five additional days per month are allowed for good time credit. Also, life sentence is commuted to 30 years in the cases of convicts who are sent to Iwahig, and good behavior counts so that life sentences can be served in about 22 years. Furthermore, at Iwahig, a convict by good conduct may become a settler and receive one- half of what he produces, the land, tools, animals, etc., being provided for him. The Iwahig Penal Colony has a reservation of over C( J^ hi g Penal 100,000 acres on the island of Palawan. It is a partially self-governing community, founded originally somewhat upon the principle of the George Junior Republic. It has a population of about 1,200 colonists, and has proved to be a most successful institution, far advanced in re- formatory methods and results, the number of convicts returned to prison after release from the colony being extremely small. PROVINCIAL AND MUNICIPAL JAILS. Besides the above-mentioned prisons, most of the Provincial jaus. provincial and municipal jails in the islands were care- fully inspected. The provincial jails were generally over- crowded. There are little or no provisions for taking 28 KEPORT SPECIAL MISSION ON INVESTIGATION care of the sick. Marked favoritism is often shown to prisoners with influential friends. The food is generally good and sufficient. The condition of the clothing is fair. The prison guards are poorly trained and poorly disciplined. Municipal jaiis. The municipal jails are, as a general rule, unsatis- factory. They are small, dark, usually poorly venti- lated and unsanitary. The municipal prisoners are poorly fed, poorly clad, and generally poorly cared for. In the great majority of municipal jails no proper pro- vision is made for female prisoners. Delay in trials. It was observed generally throughout the islands that there were a great number of prisoners awaiting trial for unusually long periods. Public desire for education. Growth. PUBLIC INSTRUCTION. The Filipinos are deeply interested in public education. Their enthusiasm, their keenness to secure education for their children is beyond praise. The progressive de- velopment of the school system has been phenomenal. Indeed, enthusiasm has at times outrun prudence, and expansion has taken place so rapidly that efficiency has not been able to keep pace. However, such mistakes as have been made have resulted from enthusiasm in a noble cause — the education of the youth of the islands. The following gives an idea of the progress in this department : Annual enrollment of the public schools. 1898 1902 1907 1914 1920 Pupils 4,504 847 1,914 i 200, 000 746 6,141 479,978 658 7,013 621, 030 341 7,234 935,678 316 American teachers Filipino teachers 20,691 1 Estimated. ] school build- I n 1920 the public owned 4,063 and rented 1,163 school ings. , . . buildings. i92o xpense in ^ e ^°^ expenditures for administration and instruc- universitytion were about $6,869,654.50 for 1920. The university statistics. . ' ' J had, in 1920, an enrollment of 4,130 with a teaching force of 379 professors and assistants. The cost of operation was $755,926.57. tude ren t o w a "d ^ s De ^ ore stated, the self-sacrifice of the parents has education. been great. They have willingly deprived themselves of many necessities in order that they might aid in the voluntary building of schools and properly equip their TO THE PHILIPPINE ISLANDS. 29 children for school attendance. The percentage of the p *£ ™f%\ \ g * n jj population in the schools is about 10 per cent, an excel- schools - lent showing for. a new government (the percentage for the United States for 1918 was 20.13). The amount Expense per child. spent for each pupil per year is $9.50 (the United States annual expenditure is $36.62). The amount per capita ca pi££ ense per for the entire population of the Philippine Islands is $0.86. One of the most difficult problems has been to secure fin^nVteaXers?* efficient teachers. No class of men and women should be selected with more care, for they are charged not only with the routine education of the children, but inevitably have a great influence in forming their ideas of citizen- ship obligation, respect for the law and the authorities, and as these teachers do their work to-day so will the Philippine people of to-morrow be. Too much care can importance of ,r « j • \fL « iJ- £ i i efficient instruc- not be exercised in their selection, lor only men andtion. women of capacity can teach children to think straight and to apply their minds to the problems of life intel- ligently. The exceedingly rapid expansion of the school system tr ^j| teacher?* has made it difficult to secure a sufficient number of well-trained teachers. The great majority of the teach- ta £™{^ ms t ^ c e £ ers in the primary schools are products of the interme- in s staffs - diate schools and have had comparatively little experi- ence in teaching, so that hand in hand with the education of the children has gone the effort to train and build up a competent teaching force. One of the principal objects of the schools is to teach importance of . . English. the children to speak English, so that it may become the language of the people. This is of vital importance, as it will form a bond of union for the numerous and more or less distinct language groups and establish a common medium of communication, which will make for efficiency in government and tend to build up a spirit of solidarity. It will also result in a more widely circulating press and „ Press and pub- . . . . .11° opinion. the creation of an instructed public opinion, which is most important. There is a great shortage of English-speaking teachers, ^jj) ® r ' c a n Many of the Filipino teachers who are instructing in English are themselves far from proficient in it. The force of American teachers is altogether too small and should be increased to approximately 1,000 if instruction in English is to be rapidly and successfully pushed forward. Higher educa- The preparation of the Filipinos to meet the profes- tion provided for. .-.-... n . . sional and scientific requirements of their country and 30 REPORT SPECIAL MISSION ON INVESTIGATION Means to en- j n or j er to secure this number of American teachers, courage Aineri- > # ' can teachers m addition to the present salary a liberal allowance will have to be made for transportation to and from the islands. And as a further measure toward better con- course in En g - ditions for instruction in English arrangements should lish for native . . •-i^ti/»i teachers recom- be made for an intensive course m English lor the native mended. _ . i " teachers during the summer months. The preparation of the Filipinos 1 sional and scientific requirements of for the advancement of general culture are in part pro- th U Phfii Sit Les° fv ^ e( ^ ^ or ky ^ ne University of the Philippines, the high schools, and certain private schools and colleges. At present these institutions are not turning out a sufficient number of graduates to meet the needs of the situation. The University of the Philippines is an insti- tution full of promise, but is not meeting the demands upon it in as satisfactory a manner as could reasonably Further neces- be expected. There is an urgent need of Americans of leans. high standing and capacity for the heads of some depart- ments. A general reorganization is urgently necessary and business management must be put on a sound basis. Medical school. The medical school should be brought to a par with the best in America and the school of tropical medicine should Ree stab iish- be reestablished and placed under the direction of thor- ment of School of 1 , - __. . , , _ Tropical Medi-oughly competent personnel, lhis school, a lew years ago, had attained the highest standing in the East. At othe^coneles de-P resen ^ ** * s no ^ m operation. The college of agriculture, sired - veterinary college, and the college of education should be strengthened and enlarged, to meet the needs of the people. catr o n U provided U " ^ ser i° us effort has been made on the part of teachers and others to impress upon the children the dignity of labor, and we are glad to say that good progress has been made. There is a very general interest and strong devel- opment throughout the school system in the industrial training uturalanc ^ agricultural training adapted to the needs of the peo- ple ; in the manual training for boys and domestic science Athletics an d hygiene for girls. There is a strong interest in ath- letics throughout the public-school system and in the uni- versity. This has received the strong encouragement of the Philippine people. Filipino athletes have on two Achievements occasions won the championship of the Orient in the Far id Btnlctics. Eastern Olympiad, in competition with athletes from Japan and China. TO THE PHILIPPINE ISLANDS. 31 THE BUREAU OF SCIENCE. This was probably the most important single institu- Bureau 01 sci- tion in the Philippines, and for years it rendered vitally important service not only to the Philippine Government in its various departments but also to the world at large, through its scientific research work. It attained a posi- D eterioration tion of great eminence and credit, but on account of the lack of adequate support and adequate personnel it does not occupy the position to-day that it did from 1905 to 1915. Reorganization and the appointment of a person- nel in all respects adequate is imperative. The work of world scope, this institution is of inestimable value to the Philippines and to the world at large. HEALTH AND SANITATION. It can be said, without fear of successful contradiction, m f^cai a ffcmties f that the average Filipino is born, lives, and dies without medical attendance or nursing. There is a great lack of hospitals and dispensaries. The excellent health service Deterioration ,., . , ',-11 i i i • i m health service. which previously existed has become largely inert. Much of the personnel remains, but it has lost the zeal and vigor which formerly characterized it. Appropriations for sanitary work and medicines, etc., Lack of appro- • £ • priations. are msumcient. The statistics of the Philippine health service show increase in P re- , , , , , . . . veritable diseases. that there has been a steady increase in recent years in the number of 'preventable diseases, especially typhoid, malaria, beriberi, and tuberculosis. Before suggestions could be intelligently offered as to remedying this and other shortcomings in health administration, a detailed study would be necessary. It would seem, however, that as a basis for constructive action it is a sound assumption that the health activities and measures for medical relief which are so scattered throughout so many different agencies should be coordinated into one Need of coordi- department and that an endeavor to correct conditions natlon ' should work toward the realization of that object. There is a great shortage of doctors , nurses , and properly shortage of ,. i ~ ■ j j. -i i medical person- trained sanitary personnel. Outside ol the largest towns nei. hospitals are so few and far between that they are a Hospitals. negligible quantity. There are about 930 nurses for a Numbers of nurses to populs - population of ten and one-half million. The number of tion. nurses should be greatly increased. They are most useful as sanitary inspectors and visiting nurses. Where- ever you find good nurses you find lowered infant mor- EA-ect on infant ir. ,. . ,.. mortality. tality and improved sanitary conditions. 32 REPORT SPECIAL MISSION ON INVESTIGATION LEPERS. Leper colony. ^he Philippine Islands have th largest single leper colony in the world. About 5,000 lepers are assembled at Culion. Excellent work has been done here, and the efforts and results are entitled to much credit; but much overcrowding. rema ^ s to De d one> The lepers are too congested. segregation. for There should be a segregation of those who have become negative and of the children who are born free from the disease. At present those whose reaction is negative are living with those who are in the active stage of the disease, and children who are born clean are associating with their leper parents and companions. The establish- n ls el«en5ai co1 " men ^ °f an isolation colony near the main colony is absolutely essential. ti^discoveries 3 " Recent discoveries render it almost certain that a large percentage of lepers can be cured. Although the remedy costs but little, funds have not been made available in age?reated erceilt " sufficient amounts to provide this treatment for more than 10 per cent of the lepers. ne^^nvi^tKds In brief, it can be stated that the original work done in Honolulu has how received confirmation to a degree that fully warrants introducing this treatment on a large scale in the Philippines and abandoning other treatments which have been advocated in the past, as there is every reason to believe that a large percentage of patients would soon recover to a point where they could be paroled. It is obvious that the dictates of humanity demand a very general use of the approved treatment. Furthermore, „3 ^I^L ,2? " the economic advantage of relieving the Government vantages of cure. © © from the care of large numbers of cases would be another desirable outcome. In a short time the money saved on patients discharged would more than provide funds for treating the entire number. INSANE. comm d odatfons ac " The care °^ ^ ne i nsane is medieval. Proper accommoda- tions are entirely lacking. Steps should be taken to provide a proper establishment for the treatment of the insane. The present institution lacks practically every feature which should characterize a hospital for the insane, and possesses many which can be guaranteed to turn those who are balancing between sanity and insanity in of case's. the wrong direction. There are no provisions for the TO THE PHILIPPINE ISLANDS. 33 separation of the violently insane from the incipient and mild cases, and conditions are, from the standpoint of proper treatment, exceedingly bad and should have been corrected long ago. This is a matter which will be presented to the legisla- tempSted!" 1 con " ture at the coming session, and although funds may not be available for the construction of a fitting establishment, steps can be taken to improve greatly present conditions and lay the foundations for the future proper treatment. DEFECTIVES. According to accepted ratios per thousand, there are in Defectlves - the Philippines between 5,000 and 10,000 defective Number ' children, deaf, dumb, or blind. So far the Government has provided for the care of only 65 of these defectives, provitions^orVe- to whom it owes a particular duty. fectives. ECONOMIC CONDITIONS. We are pleased to note and record many evidences of development. 1 ve progressive development in the islands, as indicated by the following significant figures : The postal savings bank was started in 1907, and by say^gfdeposfts 3 . 1 1913 it had 40,000 depositors and $1,411,066.38 in deposits. In 1920 these had reached 107,000 depositors and $3,327,- 217.44 in deposits. The law requires that 1 per cent of the gross business busmessonwhS done in the islands be paid to the Government in the form taxes collected - of taxes. This business was computed to be $200,000,000 a year in 1907, when the tax was first imposed, and had increased to $325,000,000 in 1913. In 1920 it had reached the figure of $863,000,000. For example, the JSSSx^St" number of cigars manufactured had increased from 300,000,000 to 500,000,000. The total resources of com- increase bank mercial banks rose from $15,000,000 in 1906 to $31,000,- resources - 000 in 1913, and are now estimated to be $215,000,000; this, however, includes the impaired resources of the Philippine National Bank without reduction for losses. Money orders sold increased from $8,000,000 in 1913 to ^g^i™ 6 * $17,000,000 in 1920, and postage receipts from $380,000 in 1913 to $780,000 in 1920. Telegraph receipts show a^SnJs 6 . 16 " similar increase. The gross earnings of the Philippine Growth of Phii- t- .. , - . . ippine Railway Railway have risen from $380,000 in 1913 to $750,000 in business. 1920 and the Manila Railroad from $2,400,000 in 1914 Manila r.r. to $5,900,000 in 1920; this latter, however, is partially to 34 REPORT SPECIAL MISSION ON INVESTIGATION be explained by the sharp increase in the mileage and rates. All this development is very gratifying and shows how rapidly the Philippine people respond to improved condi- tions of transportation, finance, public order, and markets, brought about since the American occupation. The ^war P r o s P er - sharpest advances have been made during the war, as was to be expected, as the Filipinos had few additional war burdens placed upon them and were able to take advantage of the great increase in prices, which brought them unexampled prosperity. Present depres- The country is suffering from the general world-wide depression at the present time ; the prices of products have fallen off very sharply, but even this is less acute than in other countries. It should be noted, however, that whatever mistakes have been made here, they have not been sufficient to arrest the steady rate of progress which these figures prove to have taken place. comparative Your mission has had a careful report prepared showing trade statistics. r r- sr & the gross trade of the Philippine Islands. From 1903 to 1909 the figure was almost stationary; 1909 was the year in which the Payne bill was passed, creating free trade between the Philippine Islands and the United Effect of free States. In the first three years of free trade the trade trade. , m J with all countries nearly doubled. Beginning with 1916 the trade went sharply upward until in 1920 it reached the remarkable total of $300,000,000. We have tried to No figures of g e t the figures of tonnage in order to analyze this growth tonnage aA T ail-° to & . . able - in trade and see how much comes from increase in volume and how much is due to increase in price, but have not been able to get these figures. trSewithunited ^ n analysis of the trade shows that a curve indicating states. exports and imports from the United States follows almost the same lines as does that of total trade. Roughly speaking, two-thirds of the business of the country, or $200,000,000, is trade with the United States, and oner third with all other countries. The proportion of gross increase with business done with the United States has been steadily United States. . . J increasing. As the trade with the United States pays no customs duties and the bulk of the increase has been in t«£™,L of n CUS ' that c^ss of trade, the result is that the total revenues of toms revenue. > customs has shown a tendency to fall off, while the cost of collection shows a steady increase. TO THE PHILIPPINE ISLANDS. 35 In case free trade were to be taken from the Philippine tr £^boiished ee Islands, it is probable that the closing of the rich markets ' of the United States to the products of the Philippine Islands would be very sharply felt. While the Philippine Government would receive customs duties on an impor- tant part of their imports that now come in free of duty, it is believed that the first effect would be a very serious 7 blow to trade, < For example, in 1920 nearly $40,000,000 of sugar was exported to the United States, the duty on Export of sugar which would have been 6 or 8 per cent of its value. It is problematical how well Philippine sugar could have stood the handicap of 8 per cent added to the high cost of freight from the Philippines to the United States. The value of cigars exported to the United States was cigars. $10,500,000; the duty on these at the present rate would amount to about $30,000,000, which would practically have closed the markets of the United States to these cigars. There would have been a similar closing of the United States markets to leaf tobacco. The collector of customs estimates that the trade which has grown up in Philippine embroidery now reaches $7,500,000 a year and broidery. n em " would have to pay a duty of $4,500,000. As there is no other market for this product, he believes the industry would be practically ruined. 1 In the main, it is believed that the loss in internal revenue, were the stimulus of free trade to business re- moved, would be greater than would be the increased collections . of customs duties. In this connection it is interesting to note that the increase in internal revenue started when free trade was given and practically offset the drop in customs receipts at the time. Further analysis of the customs shows the principal Export figures, articles exported, measured in value, to have been: 2 Sugar, $49,619,260; hemp, in which the Philippine Islands have a virtual monopoly, $35,862,000; coconut oil, $23,268,886.50; tobacco, $19,927,391; embroideries, $7,811,783.50; and copra, $3,716,870.50. FINANCES. In 1905 the Philippine Government was put on a of B \ 1 ) s j 1 r j^ s p ^ff 1 i | thorough business basis. All services rendered by one 1 c ^y ernment ' branch of the Government to others were paid for, and 1 See among exhibits indorsement, dated Sept. 9, 1921, of the insular collector of customs. 2 These figures are all for 1920 and are taken from the report of the insular collector of customs. 36 BEPOKT SPECIAL MISSION ON INVESTIGATION the books were so kept that the appropriations did not include any interbureau or intergovernmental payments. change in law. The law has since been changed, so that the present cost of government includes items of receipts for services sometimes from other branches of the Government, which makes analysis difficult and exact comparison impossible. keeplng ved b00k * The books are so kept that these amounts can not be ascertained without an analysis of governmental accounts involving prohibitive expense. So that the gross figures intergovem- of receipts and expense are padded on both sides by inter- mental charges. j. i i "U'-u 'j.-l i • j. governmental charges, which are neither real receipts or expenditures, as they are payments by the Government to itself. The accounts should be so kept that these fictitious entries would be eliminated, in order to enable the officers of the Government to get a true picture of government costs. Certain figures, however, stand out so boldly that they • can not. be questioned. The rate of taxation has been increasein tax- sharply advanced. The insular gross revenues from cent' per taxation in 1913, before the Filipinos were given virtual control of their Government, were $12,500,000, as opposed to $28,000,000 in 1920, an increase of 124 per cent. Gov- ernment expenditures show a still greater proportion of Excessive ex- growth. This increase in the general cost of government penditures. ° ... has not been accompanied by a proportionate increase in efficiency; on the contrary, as has been noted elsewhere, there has been a general falling off in efficiency. •* T , a ^oM^n cap " The per capita revenue from taxation has risen from ita 1913-1920 com- ~ ~ pared with other J&1.32 in 1913 to $2.50 in 1920. This compares with the countries. ^^ . . per capita taxation of $23.78 in Great Britain (1914-15), $9.92 in the United States (1914-15), $5.57 in Japan (1915-16), $17.33 in the Argentine Republic (1915), and $7.79 in Brazil (1915) 3 , from which it will be seen that the Filipino bears a smaller burden of taxation than the natives in any of the above cited countries. One reason" the burden of taxation is so light in the Philippine Islands >enso "borne ttfis because the United States has borne all costs of military and naval establishments necessary for the defense of the islands, and other expenses incident to the maintenance of sovereignty, including international, diplomatic, and consular representation. ^ 3 These figures are taken from World Almanac, 1917, and are much heavier since the Great War. Military rnited States, TO THE PHILIPPINE ISLANDS. 37 Of the total revenues of $40,500,000, 4 $28,000,000 is e J£™ ces of rev ' from taxation and $10,500,000 from operating income and commercial and industrial units ; this does not include earnings of the railroad, which the government owns through ownership of the stock. An analysis of revenue derived from taxation shows the o „^ al 5 rsiS0fr6v " ** enue. receipts from internal revenues to be $18,500,000, or two- thirds of the total. This internal-revenue collection is nearly four times as heavy as the collections of 1913. The bonded debt of the Philippine Islands in 1920 was Bonded debt. $22,000,000, for the redemption of which is laid aside nearly $5,000,000, sinking fund, so the net liability is something less than $17,500,000. A comparison with the capf^tKEw debt of other countries demonstrates that the Philippine countries - Islands has a smaller bonded debt than most countries, the per capita being $1.81, compared with $25 in Cuba, $237.07 in the United States, $853 in England, and $1,159 in France. The Dutch East Indies with $1.92, is the nearest, and China next with a little less than double that of the Philippine Islands. 5 It will be seen that the recent Borrowing ca- /^t . . i ty, .,. . pacity of Pnihp- act of Congress increasing the authority of the Philippine P ine islands. Islands to borrow was highly conservative and could be safely further increased without jeopardizing the financial stability of the government. Bonds and notes of the Philippine Islands have been made exempt from federal Government is- \ r . r sues exempt. taxation and are received on deposit as currency reserve. Although not directly guaranteed, it is understood that the credit of the United States Government is behind .implied obliga- tions of the them; this accounts for the high market value of these united states. bonds. In addition to the insular revenues, there are the pro- m uSpaf al rev£ vincial and municipal revenues. These are expended by nues - the provinces and municipalities by vote of their own local authority. An examination of their accounts shows increase in past a similar expansion, the receipts and expenditures having eig years ' increased about 100 per cent in the past eight years. The government expense and cost of materials have increase in ex- shown a tendency to a sharp increase. And it is to be pense noted that a number of new bureaus and offices have New bureaus created. been created. * The census shows "income" of $49,000,000; this, however, is incorrect because analy- sis proves that it includes moneys derived from the sale of bonds. 5 Figures furnished by the insular auditor. 38 REPORT "SPECIAL MISSION ON INVESTIGATION THE PHILIPPINE NATIONAL BANK. compulsory de- The story of the Philippine National Bank is one of the posits by n pal and K cial governments. posits by munici- J - 1 A ciai overnmenS mos ^ unfortunate and darkest pages in Philippine history. This bank was started in 1916, and a law was passed 6 compelling all provincial and municipal governments to deposit all their funds in it; and at the same time arrange- ments were made to transfer from other banks all govern- ment funds there deposited, except trust funds, which were held on deposit in the United States ; later the bank was put into a position to get control of these moneys and reserve funds. The sum of $41,500,000, held for the con- version of currency, was transferred to the Philippine Islands, the bank making a large profit in exchange in Questionable doing so. Much of it was then loaned out to speculative concerns under circumstances which have led to grave doubt as to the good faith of the transactions. Presidents. A man presumed to be experienced in banking was brought from the United States and took the first presi- inexperienced. dency, which he held a short time. An American inex- perienced in banking was then put in charge, and upon his death a Filipino, also without banking experience, Losses. became president. The result of all this has been a series of banking losses, estimated by the insular auditor to reach the severe total of $22,500,000. A partner of Report of ex- Messrs. Haskins & Sells, certified public accountants of per accountants. -^ ew York, after a careful examination of the bank, makes the following comment: Our examination thus far reveals the fact that the bank has been operated during almost the entire period of its existence prior to the appointment of Mr. Wilson as "manager in violation of every principle which prudence, intelligence, or even honesty, dictate. charges pre- As a result of these findings, charges have been filed ferred. . . & ' & . against Gen. Concepcion, a former president of the bank. The Government became alarmed at the seriousness of ingman d brought the situation and secured the services of an experienced states. United banking man from the United States, under whose con- servative guidance the affairs of the bank are in a fair way to be put on a sound footing. But a large part of tio S rl°of accoSnts ^ ne asse ^ s of the bank have been loaned to concerns which probable. ^vsrill be unable to repay for many years — very largely in sugar centrals and coconut-oil factories. These loans were made in excessive amounts during the period of 6 See section 19 of Act No. 2612 of the Philippine Legislature. TO THE PHILIPPINE ISLANDS. 39 boom prices, and minimum precaution in regard to secu- ^^nade uate rity was taken, with the result that the bank has allowed secur ity. its reserves to run down much lower than required by law, is unable to meet its current obligations, has had to ask other banks not to press for the redemption of its notes, can on other and has further had to ask time for the payment of its obligations to many banks in Shanghai representing many countries, a list of which is among the exhibits, to whom it owes large sums of money as a result of losses incurred Losses from -, . . t . , . speculation in ex* in speculation m exchange transactions. change. Among the exhibits will be found a copy of the agree- ment entered into by the insular auditor and these banks for the settlement of these claims. The bank also established branches and agencies Mismanage- ,i T i -.I t>i *t t i i * i * i • i ment of branches. throughout the Philippine Islands, in charge oi which they placed untrained Filipinos, and without exception these branches have been mismanaged. Of the four branches in which examinations have been completed criminal charges have been preferred against the mana- Ensuing crimi- p -i nal charges. gers oi each one. These losses have seriously involved the Philippine Government's Government, and the fact that it has not been able to cr meet its obligations has seriously impaired its credit. We have been informed by representatives of banks in North Borneo and Japan that they have received instruc- tions not to honor the notes or drafts of the Philippine uo?honored bank National Bank. - The currency resources have been depleted, the silver currency and on deposit to redeem the currency has been pledged and used for other purposes. The fund for the maintenance of the parity of gold and silver is involved in these losses, with the result that instead of a metallic and cash basis for the currency, its principal support now is the pledge of the Philippine Government and the confidence on the part of the public that the United States will not permit these things to happen again. The currency is now prac- ^^"^^ tically a fiat currency. In view of good earnings, moderate expenses, inherent f^™dit! ltation wealth, a small public debt, and backed by the credit of the United States, the problem of rehabilitating the credit of the Philippine Islands should be an easy one. The lesson has been a bitter one for the Filipinos and the Appreciation of .. » .t . . , ,, . . j mistake by Fili- gravity oi the mistake is generally appreciated. pinos. One of the functions of the National Bank was to manage Exchange. government exchange. Having transferred all the funds 40 REPORT SPECIAL MISSION ON INVESTIGATION usually available for exchange to Manila, and then loaned the money in such a way that it could not be recovered, the Government had to discontinue selling exchange. The rates ran up as high as 15 per cent, which was equiv- ch?nge S of ex "alent to a depreciation of the Philippine currency to preciated? y de " almost that amount, which has resulted in great hard- ship to the inhabitants of the Philippine Islands, espe- cially those engaged in business. The Philippine Islands, contrary to general belief, have maintained all of the expenses of civil administration since the beginning of American occupation from insular revenues and without assistance from the Treasury of the United States, which has, however, defrayed all the costs of the military and naval establishments and fortifica- tions. The only aid received by the Philippine govern- ment from the United States has been a S3, 000, 000 ap- propriation for famine relief made in 1903. « PUBLIC WORKS. In the matter of public works, your mission has to report both favorably and unfavorably. Large appro- The Government and people of the islands realize the priations. , r r value and necessity of public works, and large appro- priations from current revenues have been made annually for such objects as the construction of roads, bridges, irrigation systems, schoolhouses, markets, port works, and artesian wells, among others. We find, however, increase in cost. an undue increase in the cost of public works, due in many instances to construction by administration in- Loss by meth- stead of by contract; this has necessitated the purchase of equipment ordinarily furnished by the contractors. in^o?k. oration There has also been a deterioration in the quality of vision k of super " ^ ne W0I "k performed in this service. We find also a lack of competent supervision. done°.° d work O n ^ ne °t ner hand, there has been a great deal of ti?n. pable direc * excellent work done. The director, a Filipino, is a man of unusual capacity and foresight, and he impressed the members of the mission most favorably. An important proportion of all revenues of the Gov- iic S wS P ks rtofpub ' ernment are allocated to public works. And in the ab I 1 ^ rcase desir - opinion of this mission this proportion should be in- creased. gation 2 ™ 881111 " 1 * I n the l ast three years there has been notable progress Expenditures, jjj construction of irrigation systems. Sixteen projects have been undertaken, involving an expenditure of TO THE PHILIPPINE ISLANDS. 41 $4,640,158. Many more projects are under considera- F ^^[ 6 devel " tion and are awaiting the availability of funds. The completion of these projects is of the utmost importance and it is an encouraging sign of progress that they have advanced as far as they have. There are now 2,920 miles of roads rated as first class Road mu^ge- in the islands and 7,500 permanent bridges and culverts. Brid ges. The standard, however, of first class roads has been ar ^ oweredstan * lowered and we found many roads rated as first class which are not so. There was an earnest effort made by the Government to hurry through deferred repairs in order to prepare the roads for inspection. During the earlier periods a system of road construe- an^maVntenince tion and maintenance was adopted and consistently IS&peiiods. in followed. All structures on first-class roads were re- inforced concrete and a standard system of road con- struction adopted suited to the traffic. Although the work progressed slowly, it was thoroughly well done, adequate provision being made for constant mainte- nance by a force of laborers. The result was that the Favorable com- •j # parison with road service reached a high degree of perfection, com- other countries - paring favorably with the roads of any other country and much better than most roads in America. The terrific force of the torrential rainfall in the islands made these precautions necessary. We have to record that this system has not been con- deterioration, sistently maintained; the roads are falling into disrepair, some are impassable and the system of maintenance is carried on spasmodically. In certain districts money has been spent for new roads instead of keeping up the st R ^£ con - old ones, which is unwise. We regret to say that a tendency has crept in to revert to the old practice of building bridges and other structures of wood, and a uniform policy of permanent construction has not been . maintained. This practice, in the long run, is poor economy. Heavy trucks have been purchased for carrying pas- ti 1916 to 1921. With an elected House and caiism. Senate, the legislation in this period became increasingly radical in its paternalism and government interference with business. Some constructive legislation was passed, but the general trend was toward injection of politics into administration and encroachment of the legislative on the executive. Legislation affecting finance, banking, and currency has been radical and unwise. m u ?nos isio ia£ Another tendency in recent legislation has been the lated. deliberate effort to take away from the American officers of the Government supervision of the different branches of the Government and put it into the departments con- e^Jfaft trolled by Filipinos. Act 2666 provides that the secre- ?Ini nst Ameri " taries of all departments must be Filipinos. This is dis- criminatory legislation against Americans. The so- called Jones bill provides that the vice governor and secretary of public instruction must be an American, and it further provides that the health duties should be under Evasion of this officer. The Philippine Legislature has endeavored to evade this by transferring the management of all Government hospitals to the department of the interior and by creating and placing in the same department a board of pharmaceutical officers, a board of optical exam- iners, etc. 7 It is to be noted that franchises granted by the Government during this period contain the following clause: "The concession of the privilege mentioned in the preceding section shall not take effect unless the grantee shall accept in writing and make part of this concession the following condition, to wit, 'That the grantee state in writing that it is informed of the message of the President of the United States addressed to the Filipino people and communicated to said people by the Governor General of the Philippine Islands on the sixth day of October, 1913, and of the reply message of the Philippine Assembly made in the name of the Filipino people and approved and sent on October 16, 1913; that said grantee binds itself not to engage in or aid, by means of contributions in cash or otherwise, any propaganda directed against the policy of the Government of the United States outlined in such message of the President and the aspirations of the Filipino people set forth in said reply message of the Philippine Assembly, whether under the pretext of vested interests or under any other pretext, and that said grantee shall further bind itself to exact a similar engagement from its administrators, agents, successors, and assigns."! TO THE PHILIPPINE ISLANDS. 45 The tendency which is found in all legislatures of pass- is £SSa I £Sriod S "" ing the bulk of the legislation in the last two days of the session is noted. By this means, much important legis- lation is passed with a rush. The forms of budget and cu ?n£icy biiis? nd currency appropriation bills are good. GENERAL CONCLUSIONS. We find the people happy, peaceful, and in the main prosperous, and keenly appreciative of the benefits of American rule. We find everywhere among the Christian Filipinos the desire for independence, generally under the protection of the United States. The non-Christians and Americans are for continuance of American control. We find a general failure to appreciate the fact that independence under the protection of another nation is not true independence. We find that the Government is not reasonably free from those underlying causes which result in the destruc- tion of government. We find that a reasonable proportion of officials and employees are men of good character and ability, and reasonably faithful to the trust imposed upon them; but that the efficiency of the public services has fallen off, and that they are now relatively inefficient, due to lack of inspection and to the too rapid transfer of control to officials who have not had the necessary time for proper training. We find that many Filipinos have shown marked capacity for government service and that the young generation is full of promise; that the civil service laws have in the main been honestly administered, but there is a marked deterioration due to the injection of politics. We find there is a disquieting lack of confidence in the administration of justice, to an extent which constitutes a menace to the stability of the government. We find that the people are not organized economically v • nor from the standpoint of national defense to maintain an independent government. We find that the legislative chambers are conducted with dignity and decorum and are composed of repre- sentative men. We feel that the lack of success in certain departments should not be considered as proof of essential incapacity on the part of Filipinos, but rather as indicating lack of experience and opportunity, and especially lack of inspection 46 REPORT SPECIAL MISSION ON* INVESTIGATION We find that questions in regard to confirmation of appointments might at any time arise which would make a deadlock between the Governor General and the Philippine Senate. We feel that with all their many excellent qualities, the experience of the past eight years, during which they have had practical autonomy, has not been such as to justify the people of the United States relinquishing supervision of the Government of the Philippine Islands, withdrawing their army and navy, and leaving the islands a prey to any powerful nation coveting their rich soil and potential commercial advantages. In conclusion we are convinced that it would be a betrayal of the Philippine people, a misfortune to the American people, a distinct step backward in the path of progress, and a discreditable neglect of our national duty were we to withdraw from the islands and terminate our relationship there without giving the Filipinos the best chance possible to have an orderly and permanently stable government. RECOMMENDATIONS. 1. We recommend that the present general status of the Philippine Islands continue until the people have had time to absorb and thoroughly master the powers already in their hands. 2. We recommend that the responsible representative of the United States, the Governor General, have au- thority commensurate with the responsibilities of. his position. In case of failure to secure the necessary cor- rective action by the Philippine Legislature, we recom- mend that Congress declare null and void legislation which has been enacted diminishing, limiting, or dividing the authority granted the Governor General under Act No. 240 of the Sixty-fourth Congress, known as the Jones bill. 3. We recommend that in case of a deadlock between the Governor General and the Philippine Senate in the confirmation of appointments that the President of the United States be authorized to make and render the final decision. 4. We recommend that under no circumstances should the American Government permit to be established in the Philippine Islands a situation which would leave the United States in a position of responsibility without authority. Leonard Wood, Chairman* W. Cameron Forbes. October 8, 1921. INDEX. Page. Achievements in athletics ...... 30 Act 2666 discriminates against Americans 44 Act 2098, unpopularity of 25 Administration : Efficiency of, in 1913 . 22 Inefficiency of 26 Top-heavy . , . 17 Administrative investigations made . 11 Advantage, economic, of leprosy cure 32 Agricultural training , 30 American attitude in Philippines 21 American control '. 20 American control established. 14 American institutions, influence for good of 22 American occupation: Periods of 15 Progress since 20 American policy in Philippines 15 American rule, general appreciation of 45 American teachers: Means to encourage 30 Shortage of 29 Americans: Discharged 16 Effect of, commercially and as organizers 22 First period of legislation under 43 Friendliness toward 20 Further necessity for 30 Americans and foreigners still control financial institutions 19 Americans and Non-Christians in favor of United States control 45 Analysis of revenue , 37 Appointments, in case of deadlock over confirmation of by Senate 46 Appreciation of mistake by Filipinos 39 Appropriations: Lack of 31 • Large for public works 40 Arrival of mission 10 Athletics, achievements in 30 Attitude: Filipino, towards court 24 Parents, toward education 28 Authorities, insular, can remedy defects 25 Authority, usurpation of Governor General's 23 47 48 INDEX. Bank : Page. Large loans with inadequate security for 39 Losses 38 Managers, charges preferred against 38 Mismanagement of branches of 39 Notes of, not honored 39 Officials, ensuing criminal charges against 39 Presidents inexperienced 38 Resources, increase 33 Banking man, trained, brought from United States 38 Bank's accounts, slow liquidation of, probable 38 Banks, call on other 39 Bilibid Prison 27 Bonded debt 37 Per capita, comparison of, with other countries 37 Bonds and notes, Government, tax exempt 37 Borneo, Philippines dominated by 13 Borrowing capacity of Philippine Government 37 Bridges: Construction and maintenance systematized in earlier periods 41 Deterioration of roads and 41 Recent construction of roads and : 41 British occupation of Manila - 13 Budget and currency bills 45 Buildings, school 28 Bureaucracy 22 Bureau of science 31 Deterioration of 31 Bureaus created, new 37 Business: Government in 42 Gross, increase of, on which taxes collected 33 Business basis of Philippine Government in 1905 35 "Caciques " 43 Cadastral survey 26 Capable director of public works 40 Capacity, borrowing, of Philippine Government 37 Cases: Increase in court 24 Pending, number of court 24 Caucasians, first 12 Chambers, legislative, decorous 45 Change in law 36 Change in policy not urged 20 Characteristics, racial -17 Charges : Against bank officials, ensuing criminal 39 Intergovernmental 36 Of election frauds 43 Preferred against bank managers 38 Child, expense of education per 29 Children, number of, enrolled 28 Chinese, massacres of 13 INDEX. 49 Page. Christian Filipinos, independence desired by 45 Cigars 35 Increase, manufactured 33 Circulation of papers small 18 Cities and towns visited, 449 11 Civil government established 15 Civil rights not understood 43 Civil Service: Injection of politics 45 Politics in 23 Clerks, inexperienced 24 Clubs, women's 19 Colleges, enlarging of other, desirable 30 Colony : Iwahig penal 27 Leper 32 Isolation colony essential at 32 Necessity of segregation at 32 Overcrowding of 32 Commerce: Increase in . 34 Japanese, prior to 1600 13 Commission sole legislative body 15 Comparison of per capita taxes with other countries 36 Compulsory deposits by provinces and municipalities 38 .Condition of justice menace to stability 45 Conduct, rewards for good 27 Conference in Manila with all classes and nationalities 11 Confinement: In remote places 25 Term of : 27 Conquest by United States, 1898 14 Constabulary school 23 Constabulary, standards lowered through loss of American officers 23 Constabulary and public order 23 Construction and maintenance of roads and bridges 41 Construction, recent, of roads and bridges 41 Control, American 14 Established 14 Control, complete Spanish 13 Control of Government by Filipinos 16 Coordination, need of, in health service. 31 Cordial reception 12 Correspondents, press 10 Cost of public works, increase in 40 Course in English for native teachers recommended 30 Court of land registration, abolition 26 Courts: Filipino attitude toward 24 Lower, lack of confidence in 24 Courts of justice, various 24 Credit impaired, Government 39 Credit, of Philippine Islands, rehabilitation of 39 50 INDEX. Currency: Page. Depreciated 40 Now fiat 39 System 15 Currency and redemption fund. 39 Currency, budget and, bills 45 Customs revenue, decline of 34 Deadlock over confirmation of appointments by Senate, in case of 46 Debt, bonded 37 Decline of customs revenue 34 Defectives: Inadequate provision for 33 Number of 33 Defects in election laws 42 Defects, insular authorities can remedy 25 Defense, none in case of war 23 Delay in trials 28 Deposits, compulsory, by provinces and municipalities 38 Depression, present 34 Desire for education 28 Desire for independence 21 Deterioration in health service 31 Deterioration in work; loss by methods employed in public works 40 Deterioration of bureau of science 31 Deterioration of roads and bridges 41 Director, capable, of public works 40 Disagreements, superficial 22 Discharged Americans 16 Diseases, preventable, increase in 31 Dissatisfaction with justices of the peace 25 Disturbances, Moro 24 Domestic life 17 Dominant party, elections controlled by 43 Economic advantage of leprosy cure 32 Education: Desire for 28 Enthusiastic public support of 18 Expense of, in 1920 28 Expense of, per capita 29 Expense of, per child 29 Further, advocated 21 Growth of 28 Higher, provided for 30 Industrial, promoted 30 Parents' attitude toward 28 Educational advantages increased 17 Educational progress 16 Effect if free trade abolished 35 Effect of free trade 34 Effect of lack of nurses, etc. , on infant mortality 31 Efficiency: Former 26 Of administration in 1913 22 Retrogression in x 20 INDEX, 51 Page. Election, no disturbances by minority . 42 Election cases, fraudulent, number . . . . 42 Election frauds, charges of 43 Election laws, defects in. 42 Elections : Controlled by dominant party. 43 Family influence in 43 General interest in 42 Personalities versus principles in 43 Embroidery, trade in. 35 English, importance of 29 Establishing teaching staffs, problems of 29 Evasion of Jones bill 44 Exchange : Losses from speculation in 39 Rates of 40 Expenditures : Excessive 36 Increased taxation and 17 Expense : Increase in Government 37 Military, borne by United States 36 Of education in 1920 28 Of education per child 29 Expert accountants, report of 38 Export figures 35 Failures, inexperience and not incapacity to blame for . 45 Family influence in elections 43 Feudal system disappearing 19 Filipinization rushed 17 Filipino attitude toward courts .- 24 Filipino majority, second period of legislation with 43 Filipino woman, the 19 Filipinos : Appreciation of mistake by 39 Brave soldiers 18 Christian, independence desired by 45 Control of Government by 16 Filling positions with high credit 18 Gradual participation in Government 16 Have marked capacity for government 45 Reception by 12 Supervision by, legislated 44 Financial institutions, Americans and foreigners still control 19 First period of legislation under Americans 43 First schools 15 Former efficiency 26 Fourth period, 1914-1921 16 Frauds, election, charges of 43 Fraudulent election cases 42 Free trade : Effect if abolished 35 Effect of 34 52 INDEX. Page. Friendliness toward Americans 20 General appreciation of American rule 45 Good conduct, rewards for 27 Good work done in public works; lack of supervision 40 Government: Civil, established 15 Control of, by Filipinos 16 Credit impaired 39 Expense, increase in : 37 Filipinos gradual participation in 16 Filipinos have marked capacity for 45 In business 42 Involved bookkeeping of 36 Most advanced representative, in Far East 19 . Not free from instability 45 Philippine, business basis of, in 1905 35 Present . 20 Spanish , 13 Government bonds and notes tax exempt 37 Governor General, powers of, to be restored 46 Governor General's authority, usurpation of 23 Govs. Taft and Wright 15 Gross business, increase of, on which taxes collected 33 Growth of education 28 Growth of Philippine Railway business. 33 Health service: Deterioration in 31 Need of coordination in 31 Higher education provided for 30 Hospitals 31 Illiterate voters not safeguarded 43 Improvements, suggested 25 Inadequate Moro representation in local governments 24 Increase in radicalism in legislation, third period 44 Increase in taxation 36 Independence: Desire for 21 Desired by Christian Filipinos 21, 45 Frank statement opposing, difficult to get 11 Interest keen in 12 Issues, lack of understanding on 21 Legislation toward 44 Majority favor protected 21 Not economically or defensively ready for 45 Not justified at present 46 Opposition to 21 Protection not 45 Industrial education promoted 30 Industries 19 Inefficiency of administration 26 Inefficiency of public service 45 Inexperience and not incapacity to blame for failures 45 Inexperienced clerks 24 INDEX. 53 Page. Infant mortality 31 Influence for good of various American institutions 22 Influence in Orient of Philippine Islands self-government far-reaching 21 Insane: Inadequate accommodations for 32 Legislation contemplated for 33 Insane cases, no segregation of 32 Inspection, lack of supervision and, to blame 22 Instability, Government not free from 45 Institutions, various American, influence for good of 22 Instruction, efficient, importance of 29 Insular authorities can remedy defects 25 Insurrection 15 Intergovernmental charges . 36 Investigations made, personal administrative 11 Irrigation, progress in; expenditures; future development 40 Isolation colony essential at leper colony 32 Iwahig penal colony 27 Jails: Municipal 28 Provincial 27 Japan, demands by 13 Japanese commerce, prior to 1600 13 Japanese driven from Luzon 13 Javanese Empire, secession from, 1400 12 Jones bill: Approval of 16 Evasion of 44 Upholding of 46 Judicial system 15 Justice: Condition of, menace to stability 45 Various courts of 24 Justices of the peace, dissatisfaction with 25 Lack of system 25 Land registration, court, abolition 26 Land titles 26 Language - •- 14 Law, change in 36 Laws, election, defects in 42 Leaders still Spanish- trained and Spanish-speaking 22 Legislation : Contemplated for insane 33 Important, hurried 45 New form of 15 Second period of, with Filipino majority 43 Third period, increase in radicalism in 44 Toward independence 44 Under Americans, first period of 43 Legislative body, commission sole 15 Legislative chambers, decorous 45 Legislative powers 16 54 INDEX. Leper colony: Page. Isolation colony essential at 32 Necessity of segregation at 32 Overcrowding of 32 Leprosy, recent curative discoveries for 32 Leprosy cure: Economic advantage of . 32 Introduction of new methods vital in 32 Life, domestic 17 Limited suffrage 42 Liquidation, slow, of bank's accounts probable 38 Loans: Large, with inadequate security for bank 3 9 Questionable... 38 Loss by methods employed in public works; deterioration in work 40 Losses, bank 38 Losses from speculation in exchange 39 Lower courts, lack of confidence in : . .* 24 Luzon, Japanese driven from , 13 Maintenance, construction and, of roads and bridges systematized in earlier periods 41 Managers, banks, charges preferred against 38 Manila: British occupation of 13 Population of, 1600 13 Railroad 33 Taken 13 Massacres of Chinese 13 Medical facilities, shortage of 31 Medical personnel, shortage of 31 Medical school 30 Mentality. 18 Methods, new, introduction of, vital in leprosy cure 32 Mileage, road 41 Military expense borne by United States 36 Military period, 1898-1901 15 Militia, Philippine Islands, recommendation United States train 23 Mismanagement of branches of bank 39 Mohammedanism, introduction of 12 Money-order business, increase 33 Moro disturbances 24 Moro opinion 21 Moro representation inadequate in local governments 24 Mortality, infant, effect on 31 Municipal jails 2S Municipal revenues, provincial and 37 Municipalities, compulsory deposits by provinces and 38 Neglect of roads, lack of organization responsible in some provinces for 42 Non-Christian, Pagan and 21 Non-Christians and Americans in favor of United States control 45 Notes, Government bonds and, tax exempt 37 Notes of bank not honored 39 Nurses, number of, to population 31 INDEX. 55 Occupation: Page. American, periods of 15 British, of Manila '. 13 Progress since American 20 Spanish, purpose of '. 13 Occupations 18 Opinion : Moro 21 Press and public 29 Public, uneducated 18 Opposition to independence . 21 Order, public 24 Orderly people, instinctively 19 Organization unimpaired 23 Otis, Gen 15 Pagan and non-Christian 21 Parents' attitude toward education 28 Paris, treaty of 15 Party dominant, elections controlled by 43 Party in power intrenched 43 Patriotism 17 Peonage 25 People, instinctively orderly 19 Periods of American occupation 15 Personal administrative investigations made 11 Personalities versus principles in elections 43 Personnel 10 Medical, shortage of 31 Philippine Government, business basis of, in 1905 35 Philippine Islands self-government, far-reaching influence in Orient of 21 Philippine Railway business, growth of '. 33 Philippines: Borrowing capacity of 37 Hitherto always dependent 12 University of the 30 Policy, change in, not urged '. 20 Policy in Philippines, American 15 Politics: In civil service 23 Injection of, civil service 45 Population: Effect on, of various racial influences 14 Number of nurses to 31 Of Manila, in 1600 13 Postal savings deposits, increase 33 Powers, legislative 16 Presidents, bank, inexperienced 38 Press 18 Press and public opinion , 29 Press correspondents 10 Preventable diseases, increase in 31 Prison methods 27 Prisons 26 56 INDEX. Progress: Page. Educational 16 Since American occupation 20 Unprecedented 18 Prosperity, war 34 Protected independence, majority favor 21 Protection not independence 45 Provinces and municipalities, compulsory deposits by 38 Provinces visited 11 Provincial and municipal revenues 37 Provincial jails 27 Public opinion uneducated 18 Public order , 24 Constabulary 23 Public schools 15 Public service: Inefficiency of 45 Retrogression in ■ 22 Public works: Capable director of 40 Good work done in; lack of supervision 40 Increase in 17 Increase in cost of 40 Large appropriation for 40 Loss by methods employed in; deterioration in work 40 Support of; increase desired 40 Races 14 Racial characteristics 17 Racial influences, various, effect on population of 14 Radicalism in legislation, third period, increase in 44 Railway business, Philippine, growth of 33 Rates of exchange 40 Reception by Filipinos 12 Reception, cordial 12 Recommendation United States train Philippine Islands militia 23 Red tape 22 Redemption fund, currency and 39 Registration, court of land, abolition 26 Rehabilitation of credit 39 Religions 19 Remote places, confinement in 25 Report of expert accountants 38 Representation, Moro, inadequate in local governments 24 Resources, bank, increase 33 Responsibility, placing of 20 Responsibility without authority, no United States 46 Retrogression in efficiency 20 Retrogression in public service 22 Revenue: Analysis of 37 Customs, decline of , 34 Sources of 37 Revenues: Increase of, past eight years 37 Provincial and municipal 37 INDEX. 57 « Page. Rewards for good conduct 27 Rights, civil, not understood 43 Road mileage 41 Roads : Favorable comparison of, with other countries 41 Lack of organization responsible in some provinces for neglect of 42 Traffic in relation to. 41 Roads and bridges: Construction and maintenance of, systematized in earlier periods 41 Deterioration of 41 Recent construction of 41 Sanitation 18 School: ' Constabulary 23 Medical 30 Of Tropical Medicine, reestablishment of . 30 School buildings 28 Schools : First 15 Percentage of population in 29 Public 15 Science, bureau of, deterioration of 31 Secession from Japanese Empire, 1400 12 Second period, 1901-1907 15 Second period of legislation with Filipino majority 43 Segregation, necessity of, at leper colony 32 Self-government, far-reaching influence in Orient of 21 Senate, deadlock over confirmation of appointments by 46 Separation, small percentage desire absolute 21 Shortage of American teachers 29 Society, patriarchal form of 43 Spain controls islands 13 Spain, foundations laid by 14 Spanish colony, first — Cebu, Manila taken 13 Spanish control, complete 13 Spanish government 13 Spanish occupation, purpose of 13 Speakers from younger generations 12 Stability, condition of justice menace to 45 Standards lowered through loss of American officers 23 Status, present, to continue 46 Suffrage, limited 42 Sugar, export of, 1920 35 Supervision and inspection, lack of, to blame 22 Supervision by Filipinos legislated 44 Supervision, lack of; good work done in public works 40 Survey, cadastral 26 System, lack of 25 Taft and Wright, Govs 15 Tax exempt, Government bonds and notes 37 Taxation: Increase in 36 Increased, and expenditures 17 58 INDEX. Taxes: Page. Comparison of per capita, with other countries 36 Increase of gross business on which collected 36 Per capita, 1913-1920 36 Teachers: American — Means to encourage 30 Shortage of 29 Course in English for native, recommended 30 Problem of finding 29 Well trained, lack of 29 Teaching staffs, problem of establishing 29 Telegraph business, increase 33 Term of confinement , 27 Third period, 1907-1913 15 Third period, increase in radicalism in legislation 44 Titles: Importance of . 26 Land 26 Tonnage, no figures of, available 34 Trade: Free, effect if abolished 35 Free, effect of 34 In embroidery 35 Statistics, comparative 34 With United State, proportion of 34 Traffic in relation to roads 41 Trained bank man brought from United States 38 Transportation 16 Treaty of Paris 15 Trials, delay in 28 Tribute 13 Tropical Medicine, reestablishment of School of , 30 Uneducated, public opinion 18 United States, conquest by, 1898 14 University of the Philippines 30 University statistics 28 Usurpation of Governor General 3 s authority 23 Voters, illiterate, not safeguarded 43 War, no defense in case of 23 War prosperity N 34 Well-trained teachers, lack of 29 Woman, the Filipino 19 Women's clubs 19 Wright. Taft and, Govs 15 Works, public: Capable director of 40 Good work done in; lack of supervision 40. Increase in 17 Increase in cost of 40 Large appropriations for 40 Loss by methods employed in; deterioration in work 40 Support of; increase desirable 40 Younger generation, speakers from 12 o V LIBRARY OF CONGRESS # 027 531 569 2