The Former Philippines thru Foreign Eyes Part 20

[Possibilities of increase.] The causes, to which the increase that has taken place within the last twenty-five or thirty years is chiefly to be attributed, have already been pointed out, and for this reason it would appear that, by adopting the same plan with regard to the fourteen remaining provinces, of which this captaincy-general is composed, hitherto free from the imposition of this tax, an augmentation might be expected, proportionate to the population, their circ.u.mstances, and the greater or lesser taste for c.o.c.k-fights prevailing among their respective inhabitants. At the commencement, no doubt, the rentals would be low, and, of course, the prices at which the licenses were let out, would be equally so; but the experience and profits derivable from this kind of enterprises would not fail soon to excite the compet.i.tion of contractors, and in this way add to the revenue of the government. This is so obvious that I cannot help suspecting attempts have, at some period or other, been made to introduce the establishment of this privilege, in some of the provinces alluded to; at the same time I am persuaded that, owing to the affair not having been viewed in its proper light, seeking on the contrary to obtain an immediate and disproportionate result, the authorities have been too soon disheartened and given up the project without a fair trial. All towns and districts murmur, and, at first object, to taxes, however light they may be; but, at length, if they be not excessive, the people become reconciled to them. The one here proposed is neither of this character, nor can it be deemed odious on account of its novelty. The natives are well aware that their brethren in the other provinces are subject to it, and that in this nothing more is done than rendering the system uniform. I, therefore, see no reason why the establishment of this branch of revenue should not be extended to all the points of the Islands. At the commencement, let it produce what it may, since constancy and time will bring things to the same general level.

[Indian tributes.] The too great condescension and mistaken humanity of the government on the one hand, and the fraud and selfishness of the provincial sub-delegates or collectors, on the other, have concurred to change a contribution, the most simple, into one of the most complicated branches of public administration. The first cause has been owing to a too general acquiescence to receive the amount of tributes in the produce peculiar to each province, instead of money; and the second, because as the above officers are the persons intrusted with the collection, whenever the sale has held out to them any advantage, they have been in the habit of appropriating the several articles to themselves, without allowing any benefit to the treasury. If the prospective sales of the produce appear unfavorable, it is then forwarded on to the king's store in Manila, surcharged with freights, exposed to many risks, and the value greatly diminished by waste and many other causes. No order or regularity being thus observed in this respect, and the sale of the produce transmitted to the king's stores being regulated by the greater or lesser abundance in the general market, and a considerable stock besides left remaining, from one year to another, and eventually spoiled, it is impossible to form any exact estimate of this branch. If to these complicated matters we add the radical vices arising out of the infidelity of the heads of clans (cabezas de barangay), the difficulty of ascertaining the defects of the returns made out by them, the variations annually occurring in the number of those exempted either through age or other legal motives, and above all, the frequently inevitable tardiness with which the district magistrates send in their respective accounts, it will be readily acknowledged, that no department requires more zeal in its administration, and no one is more susceptible of all kinds of frauds, or attended with more difficulties.

[A conservative estimate.] In this state of uncertainty, with regard to this particular branch, I have guided myself by the last general return of tributes, made out in the accountant-general's office, on the best and most recent data, and calculating indistinctly the whole value in money, I have deemed it proper afterwards to make a moderate deduction, on account of the differences above stated, and arising out of the collection of the tributes in kind, the expenses of conveyance, s.h.i.+pwrecks, averages, and other causes already enumerated.

[Fixed charges.] In conformity to this calculation, the total proceeds of this branch of revenue amount to $505,215 from which sum are deducted, in the primitive stages of the accounts, the amount of ecclesiastical stipends, the pay of the troops under the immediate orders of the chief district magistrates in their quality of war-captains, together with all other extraordinary expenses incurred in the provinces by orders of the government, the remainder being afterwards forwarded to the king's treasury. It ought, however, to be observed, that the above aggregated sum is more or less liable to deficiencies, according to the greater or lesser degree of punctuality on the part of the sub-collectors in making up accounts, and the solidity of their respective sureties; the failure of this kind experienced by the revenue being so frequent, that, according to the returns of the accountant-general, those which occurred between the years 1762 and 1809, were no less than $215,765 notwithstanding the great precautions at all times taken to prevent such considerable injuries, by every means compatible with the precarious tenure of property possessed by both princ.i.p.als and sureties in this country. All the above circ.u.mstances being therefore taken into due consideration, and the ordinary and extraordinary discounts made from the total amount of tributes, the real sum remaining, or the net annual proceeds of the above branch, have usually not been rated at more than $190,000 and $200,000; a sum respectively extremely small, and which possibly might be doubled, without the necessity of recurring to any other measure than a standing order for the collecting of the tributes in money, as by this means the variety of expenses and complications above enumerated, would be avoided, and the king's revenue no longer exposed to any other deficiencies than those arising out of the insolvency of the sub-collectors and their sureties, or casual risks, and the trifling charges paid for the conveyance of the money. If in opposition to this it should be alleged that it would be advisable to except some of the provinces from this general rule, owing to the advantages the government might derive from certain tributes being paid in kind, I do not hesitate to answer that I see no reason whatever why this should be done, because, if, for example, any quality of rigging or sail cloth is annually required, it would be easy to obtain it either by early contracts, or by laying in the articles at the current market price. Indeed, all supplies which do not rest on this footing, would be to defraud the natives of the fruits of his industry, and in the final result this would be the same as requiring of him double or triple tribute, contrary to the spirit of the law, which unfortunately is too frequently the case under the existing system.

[Preferability of tribute in money.] Considering this affair in another point of view, it would be easy for me to demonstrate, if it were necessary, the mistaken idea that the native is benefited by receiving in kind the amount of the tribute he has to pay, at the low prices marked in the tariff used as a standard, by showing the extortions and brokerage, if I may so term it, to which the practice gives rise on the part of the district collectors. It will, however, suffice to call the attention of my readers to the smallness of the sum const.i.tuting the ordinary tribute, when reduced to money, in order for them to be convinced that it would be superfluous, as well as hazardous, to attempt to point out how this branch might be rendered more productive to the state and at the same time less burdensome to the contributors, more particularly when the rate a.s.sessed does not exceed ten reals per year, a sum so small, that generally speaking, no family can be found unable to h.o.a.rd it up, if they have any inclination so to do. The prevailing error, however, in this respect, I am confident arises out of a principle very different from the one to which it is usually attributed. The tributary native is, in fact, disposed to pay the quota a.s.signed to him into the hands of the chief of his clan, in money, in preference to kind; because, independent of the small value at which the articles in kind are rated in the tariff, he is then exposed to no expenses, as he now is for the conveyance of his produce and effects; nor is he liable to so many accidents. But as the chief of each clan has to deliver in his forty or fifty tributes to the head magistrate, who is answerable for those of the whole province, it is natural for him to endeavor to make his corresponding payments in some equivalent affording him a profit; at the same time the provincial magistrate, speculating on a larger scale, on the produce arising out of his jurisdiction, seeks to obtain from the government a profitable commutation in kind for that which the original contributor would have preferred paying in money. In order the better to attain his purpose, he a.s.serts, as a pretext, the impossibility of collecting in the tribute under another form, alleging, moreover, the relief the native derives from this mode, whereas, if only duly examined, such a pretence is founded on the avarice, rather than the humanity of the magistrate.

Leaving to one side the defects attributable to the present mode of collection, and considering the tribute as it is in itself, the attentive observer must confess, that in no part of our Indies is this more moderate; and, indeed, it is evident that the laws generally relating to the natives of these Islands seem to distinguish them with a decided predilection above those of the various sections of America.

[Items in tribute.] The tribute in its origin was only eight reals per family; but the necessity of providing for the increased expenses of the government gave rise to this rate being afterwards raised to ten. The Sangley mestizos pay double tribute, and the Sangleys contribute at the rate of $6 per head. Besides this, all pay a yearly sum, applicable to the funds belonging to the community, and the above two casts pay three reals more, as a church rate, and under the name of the Sanctuary, the whole being in the following form:

Entire Native Tribute Tribute of Mestizos Sangleys

8 Reals, original tribute 16 Reals. $6 each.

1 1/2 Reals for expenses of troops 3 1/2 Reals to t.i.thes 1 10 Reals, amount of tribute 20 Reals. $6.75 1 Real, community funds 1 3 Reals, sanctuary rate 3 14 Reals, total annual disburs.e.m.e.nt. 24 Reals. $6.75

The males commence paying tribute at twenty years of age and the females at twenty-five, if before they have not entered the matrimonial state, and in both the obligation ceases at the age of sixty. The chiefs of clans, or cabezas de barangay and their eldest sons, or in default of children, the person adopted in their stead, that is, an entire tribute and a half, are exempt from this tax, as a remuneration for the trouble and responsibility they may have in collecting in the forty or fifty tributes, of which their respective clans are composed. Besides these there are various other cla.s.ses of exempted persons, such as the soldiers who have served a certain number of years, those who have distinguished themselves in any particular manner in the improvement of industry or agriculture, and others who have received special certificates, on just and equitable grounds. In summing up the total number of exempted persons, on an average in the whole of the provinces, they will be found in the proportion of fifty to every thousand entire tributes.

[Chinese tax.] The head-tax of the Sangleys has usually been attended with so many difficulties in its collection, owing to the facilities with which they absent or secrete themselves, and the many stratagems this cunning and artful race employ to elude the vigilance of the commissioners, that the government has at length found itself compelled to let out this branch, as was done in 1809, when it was disposed of in the name of one of them for the moderate sum of $30,000; notwithstanding it is a generally received opinion, that the number of this description of Chinese, constantly residing in the Islands, is above 7,000, which, at the rate of $6 per head, would raise this proportion of the tax as high as $42,000.

[Community funds.] The Community funds belonging to each town, have, in conformity to the regulations under which they are administered, a special, or I might say, local application; but collected together into one stock, as is now the case, and directly administered by the government, they produce a more general utility. The head town of the province A, for example, requires to rebuild the public prison or town-hall, and its own private funds are not sufficient to defray the expenses of the work in question. In this case, therefore, the government gives orders for the other dependent towns to make up the deficiency by taking their proportions from their respective coffers, as all have an equal interest in the proposed object being carried into effect. The king's officers, in consequence thereof, draw the corresponding sums from these funds, the whole of which is under their immediate superintendence. And in order that the surplus of this stock may not stand still, but obtain every possible increase in a country where the premium for money is excessive, when let out at a maritime risk, it is ordered that some part shall be appropriated in this way, and on the same terms as those observed by the administrators of the charity funds belonging to the Misericordia (Charity) establishment, and the third order of St. Francis, which is another of the great advantages of a.s.sembling this cla.s.s of property.

In consequence of this judicious regulation, and the success with which this measure has. .h.i.therto been attended, the Community fund has gone on increasing in such a way that, notwithstanding the sums drawn from it for the purpose of constructing causeways, bridges, and other munic.i.p.al objects, at the commencement of 1810, the stock in hand amounted to no less than $200,000; and it is natural to suppose when the outstanding premiums due shall have been paid in, a considerable augmentation will take place. This branch, although not exactly comprehended in those which const.i.tute the revenue of the government, has so obvious an a.n.a.logy with that of tributes, that I have not deemed it any essential deviation from the order and method I have hitherto observed in this work, to introduce it in this place, as in itself it did not deserve to be cla.s.sed under a distinct head.

[Tribute burdensome.] Notwithstanding the truth of what has been said with regard to the moderate rate of the tribute imposed on the native of the Philippine Islands, it would be extremely desirable if he could be altogether exonerated from a charge which he bears with great repugnance, by some other subst.i.tute being adopted, indirectly producing an equivalent compensation. In the first place, because the just motives of complaint would cease, caused not only by the tribute, but also the manner of its collection; and an end would then be put to those intrigues and extortions the district magistrates commit, under the t.i.tle of zealous collectors of the king's revenue, and the power of a mult.i.tude of subaltern tyrants, comprehended under the denomination of chiefs of native clans (cabezas de barangay) would then also fall to the ground; a power which, if now employed for the purpose of oppressing and trampling on the liberties of inferiors, might some day or other be converted into an instrument dangerous and subversive of our preponderance in the country. In the second place, if, among all the civilized nations a head-tax (poll-tax) is in itself odious, it must incontestably be much more so among those whose unlettered state, far from allowing them to know that the social order requires a certain cla.s.s of sacrifices for its better preservation, makes them attribute exactions of this kind to an abuse of superiority. Hence are they led to consider these restraints as the symbols of their own slavery and degradation, as in fact the natives in these Islands have ample reasons for doing, when the legal exemption of the whites is considered, without any other apparent reason than the difference in color. Independent of this, the subst.i.tute above alluded to would be extremely expedient, inasmuch as it would greatly simplify the plan of administration, the accountant's department would be freed from the most painful part of its labors, and the district magistrates and sub-collectors would not so frequently be entangled in their accounts, and exposed to expensive and interminable lawsuits, as now so often happens.

[Possible Revenue subst.i.tutes.] The difficulty, however, of finding out this compensation or subst.i.tute is a matter of some consideration. On the one hand, if it was attempted to distribute the proceeds arising out of the tributes on other branches, such as tobacco, native wine, bonga, and custom house, it would, at first sight, appear possible, through the medium of an almost invisible augmentation in the respective sale prices and in the king's duties, that this important object might easily be attained; but, on the other, it might be apprehended that the additional value put on the articles above-mentioned, would produce in their consumption a diminution equal to the difference in prices, in which cases no advantage would be gained. The practicability of the operation, in my opinion, depends on the proportion in which the means of obtaining the articles in question respectively stand with the probability of their being consumed. I will explain myself. If, for example, the annual stock of tobacco laid in should be insufficient to meet the wants of the consumers, as constantly occurs, it is clear that this article, when monopolized, will bear a small augmentation of price, not only without any inconvenience or risk, but with the moral certainty of obtaining a positive increase of revenue, the necessary effect of the total consumption of the tobacco laid in and sold. But as this does not happen with the branch of native wines, of which the stock usually exceeds the demand, and as the bonga also is not susceptible of this improvement, owing to the small place it occupies among the other resources of the revenue, no other means are left than to add to the duties of export on silver, and of import on foreign merchandise, a percentage equivalent to the deficiency not laid on tobacco, unless it should be deemed more advisable to levy a sumptuary contribution on coaches, horses and servants, and especially on all kinds of edifices and houses built of stone and mortar, situated both within and without the capital.

[Objection to tribute-paying.] However this may be, whatever the king loses in revenue by the abolition of the native tributes, no doubt, could be made up by an appeal to other ways and means. It is well-known that many of the Indian tribes refuse to become subjects of the crown and object to enter into general society on account of the odious idea they have formed of paying tribute; or, as they understand it, the obligation of giving something for nothing, notwithstanding those who voluntarily submit themselves to our laws, are exempt from tribute, and this charge falls only on their descendants. But of this they must either be ignorant, or they regret depriving their posterity of that independence in which they themselves have been brought up, and thus transmit to them slavery as an inheritance. As soon, therefore, as a general exemption of this kind, without distinction of casts, should be made public, the natives would quit their fastnesses and secluded places, and satisfied with the security offered to them, would be seen coming down to the plains in search of conveniences of civilized life, and all gradually would be reduced to Christianity. Hence the increase of productions and their consumption, as well as the extension of agriculture, industry and internal commerce. The diminution of smuggling tobacco would soon follow, progress would be made in the knowledge of the mines and natural riches of the country, and financially, greater facilities would present themselves in gradually carrying into effect its entire conquest and civilization.

Advantages of such great and extraordinary importance deserve to be seriously weighed, and to this valuable department of public administration the early attention of those in authority ought to be called. Let due inquiries be made, and soon shall we discover the substantial benefits which would be derived to the treasury from the adoption of this measure, as popular as it is just, and also conformable to the liberal spirit of the times. In support of the preceding arguments, it ought further to be observed, that when all the branches const.i.tuting the king's revenue are well organized, brought to their most productive state, and the public debt contracted under unforeseen exigencies paid off, as long as present circ.u.mstances do not vary, an annual surplus of revenue, equal to more than $500,000, will be left; and as the proceeds of the particular branch of tributes do not amount to this sum, it is evident their abolition may take place, not only without any derangement or onerous consequences to the administration, but even without any deficiency being experienced, or any necessity to recur to the treasury of New Spain for extraordinary aid. These reasons acquire still greater force when it is remembered that, as things now are, all the branches of public revenue are in a progressively improving condition, and as the whole are still susceptible of a much more productive organization, the annual surplus of receipts will rapidly become greater, and consequently also the necessity will diminish of continuing to burden this portion of His Majesty's dominions with contributions in order to meet the expenses of their defence and preservation.

Finally, well convinced of the advantageous results which, in every sense, would emanate from the revision and reforms proposed, I abstain from offering, in support of my arguments, a variety of other reflections which occur to me, not to be too diffuse on this subject; trusting that the hints I have already thrown out will be more than sufficient to excite an interest and promote a thorough and impartial investigation of concerns, highly important to the future welfare and security of this colony.

[Subaltern branches.] Besides the six preceding branches which const.i.tute the chief ma.s.s of the public revenue in these islands, there are several smaller ones of less consideration and amount; some having a direct application to the general expenses of the local government, and the others, intended as remittances to Spain; a distinction of little import and scarcely deserving of notice, since the object of the present sketch is to convey information on a large scale respecting the King's revenue in these Islands. As some of them, however, yield proceeds more regular than the others, I have cla.s.sed together the receipts of the Pope's Bulls, or "Bulas de Cruzada," playing-cards, t.i.thes, stamps and gunpowder, under the head of Subaltern Branches, with regard to the rest, to the general statement already quoted.

In conformity to the returns with which I have been favored from the public offices, these five branches produced, in the year 1809, $45,090.75 in the following proportions:

Sales. Expenses. Net Proceeds.

Pope's bulls $15,360.75 $4,422.25 $10,938.50 Playing cards 11,539.125 932.625 10,606.50 t.i.thes 12,493.00 ---- 12,493.00 Stamps 4,467.50 321.50 4,146.00 Gunpowder 7,307.625 401.125 6,905.375 ---- ---- ---- $51,168.125 $6,077.75 $45,090.375

[t.i.thes.] The scanty proceeds of the t.i.thes will naturally appear remarkable; but it ought to be remembered that, besides the ordinary tribute, the natives pay half a real under this denomination, without any distinction of person, or any reference whatever to their respective means, the total amount of which is already added to the tributes, and for this reason not repeated in this place. In addition also no t.i.thes are levied, except on lands belonging to Spaniards, churches, regular clergy, ecclesiastical corporations, etc., and even then the articles of rice, wheat, pulse indigo and sugar, are alone liable. The above branches are all in charge of administrators, and from this plan it certainly would be advisable to separate the t.i.thes and farm them out at public auction, as was proposed by the king's officers of the treasury, in their report on this, as well as other points, concerning the revenue, and dated October 24, 1792. From the net proceeds of the gunpowder the expenses of its manufacture, confided to the commandant of artillery, ought seemingly to be deducted; but, as they cannot be ascertained with any degree of certainty, and as besides they are comprehended in the general expenses of that department, a separate deduction may be dispensed with.

[Disburs.e.m.e.nts and general expenses.] In order to form a correct idea of the annual amount of the expenditure incurred by the administration and defence of the Philippine Islands, it is not necessary in this place to distinguish each item, separately; or to enumerate them with their respective sums or particular denominations. Some general observations on this subject ought, nevertheless, to be made, with a view to point out the reforms of which this important department of the public revenue is susceptible.

In the part relating to the interior administration or government, ample room is certainly left for that kind of economy arising out of the adoption of a general system, little complicated; but it is besides indispensably necessary that, at the same time the work is simplifed and useless hands dismissed, the salaries of those who remain should be proportionally increased, in order to stimulate them in the due performance of their duties. It might also be found advisable to create a small number of officers of a superior order, who would be enabled to co-operate in the collection of the king's revenue, and the encouragement of agriculture, commerce and navigation, in their respective departments. The additional charges in this respect cannot be of any great consequence; although, in reality, by the receipts increasing through the impulse of an administrative order more perfect, and the expenses being always the same, the main object, so anxiously sought for in another way, would be thus attained.

[Defence expenses.] The reverse, however, happens with regard to the expenses of defence, as I have called them, the better to distinguish them from those purely relating to the interior police or administration. Every sacrifice, most a.s.suredly, ought to appear small, when the object is to preserve a country from falling into the hands of an enemy, and it ought not to excite surprise, if, during the course of the last fifteen years, several millions of dollars have been expended in the Philippines, in order to s.h.i.+eld them from so dreadful a misfortune. But the late memorable revolution in the Peninsula has given rise to so great a change in our political relations, and it is extremely improbable that these Islands will be again exposed to the same danger and alarm, that the government may now, without any apparent risk, dispense with a considerable part of the preparations of defence, at one time deemed indispensably necessary. A colony that has no other strong place to garrison than its capital, and on the loyalty of whose inhabitants there are sufficient motives to rely, ought, in my opinion, to be considered as adequately provided against all ordinary occurrences in time of peace, with the 4,000 regulars, more or less, of all arms, the usual military establishment. In case any suspicions should arise of an early rupture with the only power whose forces can inspire the governors of these Islands with any kind of apprehensions, means will not be wanting to an active and provident minister, of giving proper advice, so as to allow sufficient time for the a.s.sembling of the battalions of provincial militia and all the other necessary preparations of defence, before the enemy is in an att.i.tude to effect an invasion of a country so far distant from his own possessions on the coasts of Malabar and Coromandel. Consequently, by disbanding the corps of provincial infantry, cavalry and artillery, which continue uselessly to be kept on foot, an annual saving of from $220,000 to $250,000 would take place, an amount too great to be expended unless imperiously called for by the evident dread of a premeditated attack from an hostile quarter.

[s.h.i.+pping reform.] The navy is another of the departments in which reforms may be introduced, of no small moment to the treasury. Of course by the government merely dispensing with the policy of keeping in readiness two large s.h.i.+ps to convey to Acapulco the cargos, for which the Manila merchants enjoy an annual licence, and leaving to the latter the full liberty of following up their speculations on their own account and risk, in vessels of their own, individually or with joint stock, a saving would result in favor of the crown equal to $140,000 to $150,000 per annum, and without preventing the receipt in Acapulco of the customary duties of $160,000 or $166,000 corresponding to the said licenses. This will evidently be the case, because as long as the large disposal of funds of the charitable inst.i.tutions are employed in maritime risks, and the private property of others is besides added to them, the amount of the operations undertaken by the merchants of the Philippines to New Spain, when divested of all restraint, will always exceed $500,000 per annum. Nor is there now any further occasion for the government to continue granting this species of gratuitous tutelage to a body of men possessed of ample means to manage their own affairs, and who demand the same degree of freedom, and only seek a protection similar to that enjoyed by their fellow-countrymen in other parts of the king's dominions.

[Galleon graft.] In case the above reform should be adopted, it might be deemed requisite for the government to undertake the payment of some of the charges under the existing order of things, defrayed out of the freights to which the merchandise s.h.i.+pped in the Acapulco traders is liable; because, calculating the freight at the usual rate of $200 for each three bales, or the amount of one ticket, out of the one thousand const.i.tuting the entire cargo, and of which one-half, or $100,000 more or less, is appropriated to the ecclesiastical chapter, munic.i.p.ality, officers of the regular army (excluding captains and the other higher ranks) and the widows of Spaniards, who in this case would be losers, independent of the remaining $100,000 or 500 tickets distributed among the 200 persons having a right to s.h.i.+p to Acapulco, it would, at first sight, appear reasonable for the treasury to indemnify the above description of persons by a compensation equivalent to the privation they experience through the new arrangement of the government. But as the practice of abuses const.i.tutes no law, and what is given through favor is different to that which is required by justice, there are no reasons whatever why the treasury should be bound to support the widows of private persons, from the mere circ.u.mstance of their deceased husbands having been Spaniards; more particularly if it is considered that, far from having acquired any special merit during their lifetime, most of them voluntarily left their native country for the purpose of increasing their fortunes, and others were banished from it, owing to their bad conduct. Neither can it be said that the munic.i.p.ality have a legal right, in the case before stated, to receive any equivalent for the value of their respective annual tickets, which, when disposed of, usually amount to about $20,000 in the first place, because it is well-known that the eleven aldermen's seats, of which that body is composed, seats which can either be sold or resigned, originally did not cost as much as $50,000 and clearly the princ.i.p.al invested is out of all kind of proportion with the enormous premium or income claimed. In the second place, although the above munic.i.p.al situations were originally purchased with a view to obtain some advantages, these formerly were very different to what they are at present, when the great increase of s.h.i.+ppers to Acapulco, or in more plain terms, of purchase of tickets competing to obtain them, has given to these permits a value more than triple to that they possessed thirty years ago.

[Indemnifying the aldermen.] In order, therefore, to do away with all motives of doubt and dispute, as well as for many other reasons of public utility, the best plan, in my opinion, would be, to return to each alderman his money, and the present munic.i.p.al const.i.tution being dissolved, the number of members might be reduced to four, with their corresponding registrar, and like the two ordinary "alcaldes,"

elected every year without any other reward than the honor of presiding over and representing their fellow-citizens. Under this supposition, the only cla.s.ses ent.i.tled to compensation, strictly speaking, would be the ecclesiastical chapter and the subaltern officers, whose respective pay and appointment are not in fact sufficient for the decency and expenses of their rank in society. Of course it would then be necessary to grant them more adequate allowances, but, according to reasonable calculations, the sum total annually required would not exceed $30,000; consequently, the reform projected with regard to the Acapulco s.h.i.+ps would still eventually produce to the treasury a saving of from $60,000 to $70,000 in the first year of its adoption, and of $110,000 to $120,000 in every succeeding one.

[The navy.] It is, on the other hand, undeniable that, if the royal navy and cruising vessels, or those belonging to the Islands and under the immediate orders of the captain-general, were united into one department, and placed under one head, considerable economy would ensue, and all motives of discord and emulation be moreover removed. Such would be the case if the change was attended with no other cirumstances than the consequent diminution of commanders, subaltern officers, and clerks; but it would be also proper to unite the a.r.s.enals, and adopt a more general uniformity in the operations and dependences of this part of the public services. It is equally certain that, during peaceful times, the two schooners and sixty gunboats, const.i.tuting the number of the above-mentioned cruising vessels, would be in great measure useless; whilst in case of a rupture, they are not sufficient to protect the trade of these Islands from the attacks of an enemy, notwithstanding they now cost the government considerable sums in repairs, etc., in order to keep them fit for service. The government ought therefore to guard against this waste of public money, without, however, neglecting the defence of the Islands, objects which, in my opinion, might easily be reconciled. Intelligent persons have judged that by reducing the naval forces to two frigates, two schooners, and about a dozen gunboats, the essential wants of the colony would be duly answered, in ordinary times; and some of the vessels might then be destined to pursue hydrographical labors in the Archipelago, which, unfortunately, are in a most backward state, whilst others could be sent on their periodical cruises against the Moros. By this means, at least, the navy department would be greatly simplified, and cease to be eternally burdensome to the government. With regard to the superfluous gunboats, it would be expedient to distribute them gratuitously among the marine provinces and Bisayan Islands, on the only condition of their being always kept fit for service; as, in one sense, the great expenses of maintaining them would be thus saved by the treasury, and, another, the inhabitants of those portions of the coast would be in possession of means sufficiently powerful to repel the aggressions of the Moros, who commit great ravages on their settlements. Finally, if besides the reforms of which the army and navy are susceptible, it is considered that the public works, such as prisons, schools, bridges, and causeways, so expensive in other countries, in the Philippines are constructed by the natives on the most reasonable terms, out of the community funds; that there is no necessity to build fortifications, and maintain numerous garrisons; that the clergy, to whose zeal and powerful influence the preservation of these Islands is chiefly due, do not cost the treasury annually above $200,000 and that the geographical situation of the colony in great measure s.h.i.+elds it from the attacks of external enemies, it will readily be confessed, that a wise and firm government might undertake, without the dread of having to encounter any great obstacles, an administrative system, in a general point of view, infinitely more economical than the one hitherto followed; might be able to extirpate numerous abuses, and by calling forth the resources of the country gradually raise it to a flouris.h.i.+ng condition, and cause it hereafter to contribute largely to the other wants of the crown. Hence was it that the distinguished voyager, La Perouse (Chap. 15), contemplating these Islands with a political eye, did not hesitate to affirm "that a powerful nation, possessed of no other colonies than the Philippines, that should succeed in establis.h.i.+ng there a form of government best adapted to their advantageous circ.u.mstances, would justly disregard all the other European establishments in Africa and America."

[Objectionable office-holders.] In our colonies, appointments and command far from being sought as a means to obtain a good reputation, or as affording opportunities of contributing to public prosperity, are, it is too well known, only solicited with a view to ama.s.s wealth, and then retire for the purpose of enjoying it. Commercial pursuits being besides attended with so many advantages that those only decline following them who are divested of money and friends; whilst the situation in the revenue are so few in number, compared with the many candidates who solicit them, that they are consequently well appointed, it follows that the excess left without occupation, besides being considerable, is generally composed of needy persons, and not the most suitable to exercise the delicate functions of collectors and magistrates in the provinces. From this cla.s.s nevertheless the host of officers are usually taken who, under the name of collectors, surveyors and a.s.sessors of tributes, intervene in, or influence the public administration. Owing to the variety and great number of persons emigrating to America, ample field, no doubt, is there left for selection, by which means the viceroys may frequently meet with persons suitable and adequate to the above trusts, if prudent steps are only taken; but in this respect the case is very different in the Philippines, where chance alone occasionally brings over a European Spaniard, unemployed or friendless. In these remote Islands, also, more than in any other quarter, people seek to live in idleness, and, as much as possible, without working, or much trouble. As long as hopes are entertained of doing something in the Acapulco speculations, every other pursuit is viewed with indifference, and the office of district or provincial magistrate is only solicited when all other resources have failed, or as a remedy against want. As the applicants for these situations are therefore not among the most select cla.s.ses, it very frequently happens that they fall into extremely improper and unworthy hands.

It is in fact common enough to see a hairdresser or a lackey converted into a governor; a sailor or a deserter transformed into a district magistrate, collector, or military commander of a populous province, without any other counsellor than his own crude understanding, or any other guide than his pa.s.sion. Such a metamorphosis would excite laughter in a comedy or farce; but, realized in the theatre of human life, it must give rise to sensations of a very different nature. Who is there that does not feel horror-struck, and tremble for the innocent, when he sees a being of this kind transferred from the yard-arm to the seat of justice, deciding, in the first instance, on the honor, lives, and property of a hundred thousand persons, and haughtily exacting the homage and incense of the spiritual ministers of the towns under his jurisdiction, as well as of the parish curates, respectable for their acquirements and benevolence, and who, in their own native places, would possibly have rejected as a servant the very man whom in the Philippines they are compelled to court and obey as a sovereign.

In vain do the laws ordain that such offices shall not be given away to attendants on governors and members of the high court of justice, for under pretext of the scarcity of Europeans experienced in the colony, means are found to elude the statute, by converting this plea into an exception in favor of this description of persons. By such important offices being filled in this manner, it is easy to conceive the various hards.h.i.+ps to which many of the provinces and districts are exposed; nor can any amelioration be expected as long as this plan is persisted in and the excesses of the parties go without punishment.

[Evils from officials in trade.] Independent, however, of the serious injuries and great errors persons of the cla.s.s above described cannot fail to commit in the exercise of their functions, purely judicial, the consequences of their inordinate avarice are still more lamentable, and the tacit permission to satisfy it, granted to them by the government under the specious t.i.tle of a licence to trade. Hence may it be affirmed, that the first of the evils, and the one the native immediately feels, is occasioned by the very person the law has destined for his relief and protection. In a word, he experiences injuries from the civil magistrates presiding over the provinces, who, at the same time, are the natural enemies of the inhabitants, and the real oppressors of their industry.

It is a known and melancholy fact that, far from promoting the felicity of the provinces intrusted to their care, the magistrates attend to nothing else but their own fortunes and personal interests; nor do they hesitate as to the means by which their object is to be attained. Scarcely are they seated in the place of authority, when they become the chief consumers, purchasers, and exporters of every thing produced and manufactured within the districts under their command, thus converting their licence to trade into a positive monopoly. In all lucrative speculations the magistrate seeks to have the largest share; in all his enterprises he calls in the forced aid of his subjects, and if he deigns to remunerate their labor, at most it is only on the same terms as if they had been working on account of the king. These unhappy people bring in their produce and crude manufactures to the very person who, directly or indirectly, is to fix upon them an arbitrary value. To offer such and such a price for the articles is the same as to say, another bidding shall not be made. To insinuate is to command--the native is not allowed to hesitate, he must either please the magistrate, or submit to his persecutions. Being besides free from all compet.i.tion in the prosecution of his traffic, since he is frequently the only Spaniard resident in the province, the magistrate therein acts with unbounded sway, without dread, and almost without risk of his tyranny ever being denounced to the superior tribunals.

[Speculating in tributes.] In order, however, that a more correct idea may be formed of the iniquitous conduct of many of these public functionaries, it is necessary to lay open some part of their irregular dealings in the collection of the Indian tributes. It is well known that the government, anxious to conciliate the interests of the tributary cla.s.ses with those of the revenue, frequently commutes the pecuniary capitation tax into an obligation to pay the amount in produce or manufactures. A season comes when, owing to the failure of the crops, the productions have risen to an excessive price, and consequently infinitely above the ordinary rates affixed by law, which are generally the lowest, and the natives, unable to keep their bargains without considerable injury or endangering the subsistence of their numerous families, implore the favor of the magistrate, pet.i.tioning him to lay their calamitous situation before the superior government, in order to have the payment of their tribute in kind remitted, and offering to pay it in money. This is the precise moment when, as his own profits depend on the misery of the province under his command, he endeavors to misuse the accidental power with which he is invested. Hence it happens that, instead of acting as a beneficent mediator, and supporting the just solicitations of the natives, he at first disregards their pet.i.tion, and then all at once transforming himself into a zealous collector, issues his notifications, sends his satellites into the very fields to seize on the produce, and in a most inexorable manner insists on collecting till necessity compels him to suspend the measure. The princ.i.p.al object being attained, that is, having now become master of the gleanings and scanty crops of his bereft subjects, on a sudden his disposition changes, he is moved to pity, and in the most pathetic language describes to the government the ravages done to the plantations by the hurricanes, and the utter impossibility of collecting in the tributes that year in kind. On such a remonstrance he easily obtains permission to change the standing order, and proceeding on to collect in some of the remaining tributes in money, merely to save appearance, with perfect impunity he puts the finis.h.i.+ng stroke to the wicked act he had commenced, by applying to himself all the produce his collectors had gathered in, and places to the credit of the treasury the total amount of the tributes, corresponding to his jurisdiction, in money.

Supposing, for example, that this has happened in the province of Antique, where the payment of the capitation-tax generally takes place in the unhusked rice, rated at two reals per cavan, and, through the effects of a bad season, this article should rise as high as ten or twelve reals. It is clear that the magistrate, by accounting for the tributes with the revenue office in money, and collecting them in kind at the rate fixed by law, would by the sales gain a profit of 400 or 500 per cent; at the same time the native, by the mere circ.u.mstance of then paying in kind, would have paid the tribute corresponding to five or six years in a single one, without, on that account, having freed himself from the same charge in the following seasons.

[No check on extortion.] When the extortionate acts as these are practised, to what lengths may it not be expected the other excesses and abuses of authority are carried? To the above it ought moreover to be added, that the provincial magistrates have no lieutenants, and are unprovided with any other auxiliaries in the administration of justice, except an accompanying witness and a native director; that the scrutinies of their accounts, to which they formerly were subject, are now abolished, and, in short, that they have no check upon them, or indeed any other persons to bear testimony to their irregularities, except the friendless and miserable victims of their despotism and avarice.

Notwithstanding, however, what is above stated, it sometimes happens that a magistrate is to be met with, distinguished from the rest by his prudence and good conduct; but this is a miracle, for by the very circ.u.mstance of his being allowed to trade, he is placed in a situation to abuse the wide powers confided to him, and preferably to attend to his personal interests; in fact, if the principle is in itself defective, it must naturally be expected the consequences will be equally baneful. The lamentable abuses here noticed are but too true, as well as many others pa.s.sed over in silence; and the worst of all is, that there is no hope of remedying them thoroughly, unless the present system of interior administration is altogether changed. In vain would it be to allege the possibility of removing the evil by the timely and energetic interposition of the protector of the natives; for although this office is in itself highly respectable, it cannot in any way reach the mult.i.tude of excesses committed, and much less prevent them; not only because the minister who exercises it resides in the city, where complaints are seldom brought in, unless they come through the channel of the parish curates; but also on account of the difficulty of fully establis.h.i.+ng the charges against the magistrates, in the way the natives are at present depressed by fear and threats, as well as restrained by the sub-governors and other inferior officers of justice, who, being dependent upon, and holding their situations from the magistrates, are interested in their monopolies and extortionate acts being kept from public view.

[Less complaisant laws needed.] If, therefore, it is not possible entirely to eradicate the vices under which the interior administration of these Islands labors, owing to the difficulty of finding persons possessed of the necessary virtues and talents to govern, in an upright and judicious manner, let us at least prevent the evils out of the too great condescension of our own laws. In the infancy of colonies, it has been the maxim of all governments to encourage the emigration and settlement of inhabitants from the mother-country, without paying much attention to the means by which this was to be done. It was not to be wondered at that, for reasons of state, defects were overlooked,--at such periods were even deemed necessary. Hence the relaxation in the laws in favor of those who, quitting their native land, carried over with them to strange countries their property and acquirements. Hence, no doubt, also are derived the full powers granted to those who took in charge the subjection and administration of the new provinces, in order that they might govern, and at the same time carry on their traffic with the natives, notwithstanding the manifest incompatibility of the two occupations; or rather, the certainty that ought to have been foreseen that public duties would generally be postponed, when placed in compet.i.tion with private interests and the anxious desire of acquiring wealth.

Subsequently that happened which was, in fact, to be dreaded, viz., what at first was tolerated as a necessary evil, sanctioned by the lapse of time has at length become a legitimate right, or rather a compensation for the supposed trouble attached to the fulfillment of the duties of civil magistrates; whilst they, as already observed, think of nothing but themselves, and undergo no other trouble or inconvenience than usually fall on the lot of any other private merchant. In the Philippines, at least, many years having elapsed since the natives peaceably submitted to the dominion of the king, every motive has ceased that could formerly, and in a certain degree, justify the indulgence so much abused, at the same time that no plausible pretext whatever exists for its further continuation.

Although hitherto the number of whites, compared to that of the people of color, has not been great, as the whole of the provincial magistracies, collectors.h.i.+ps, and subaltern governments, do not exceed twenty-seven, the scarcity of Spaniards ought not to be alleged as a sufficient reason; nor can it be doubted these situations might at any time be properly filled, if the person on whom the choice should fall were only certain of living with decency and in a suitable manner, without being carried away with the flattering hopes of withdrawing from office, with ten, twenty, and even as high as fifty thousand dollars of property, as has heretofore been the case, but satisfied with a due and equivalent salary they might receive as a reward for the public services they perform.

I do not therefore see why the government should hesitate in resolving to put a stop to evils which the people of the Philippines have not ceased to deplore from the time of the conquest, by proscribing, under the most severe penalties, the power of trading, as now exercised by the provincial magistrates. The time is come when this struggle between duty and sordid interest ought to end, and reason, as well as enlightened policy, demand that in this respect our legislation should be reformed, in order that the mace of justice, instead of being prost.i.tuted in search of lucre, may henceforwards be wholly employed in the support of equity and the protection of society.

[Urgence of reform.] The only objection which, at first sight, might be started against the suggestions here thrown out is the increased expense which would fall on the treasury, owing to the necessity of appropriating competent salaries for the interior magistrates under the new order of things. Independent, however, of the fact that the rapid improvements the provinces must a.s.sume, in every point of view, would superabundantly make up this trifling difference; yet supposing the sacrifice were gratuitous, and even of some moment, it ought not, on that account, to be omitted, since there is no public object more important to the sovereign himself, than to make the necessary provision for the decorum of the magistracy, the due administration of justice, and the maintenance of good order among his subjects.

The position being established, that a number of whites more than sufficient might be obtained, eligible and fit to perform the duties of civil magistrates, which they would be induced to undertake, if adequate terms were only proposed, it would seem that no ill consequences might be expected from at once a.s.similating the regulations of these provincial judicatures to those of the corregimientos, or mayoralties of towns in Spain, or in making out an express statute, on a triple scale, for three cla.s.ses of magistrates, granting to them emoluments equivalent to the greater or lesser extent of the respective jurisdictions. As far as regards the pay, it ought to be so arranged as to act as a sufficient stimulus to induce European colonists to embrace this career, in a fixed and permanent way, which hitherto they have only resorted to as a five years'

speculation. Conformably to this suggestion, and owing to the lesser value attached to money in India, compared with Europe, on account of the greater abundance of the necessaries of life, I am of opinion that it would be expedient to affix an annual allowance of $2,000 to each of the appointments of the six princ.i.p.al and most populous provinces, $1,500 for the next in importance, and for the twelve or thirteen remaining, at the rate of $1,000 each; leaving to the candidates the option of rising according to their length of services and good conduct, from the lowest to the highest, as is the case in Spain.

[Objects to be gained.] The first part of the plan above pointed out embraces two objects. The one is to prevent the provincial magistrates from carrying on traffic, thus depriving them of every pretext to defraud the natives of what is their own; and the other, to form, in the course of a few years a cla.s.s of men hitherto unknown in the Philippine Islands, who, taught by practice, may be enabled to govern the provinces in a more correct and regular manner, and acquire more extended knowledge, especially in the judicial proceedings of the first instance, which, owing to this defect, frequently compel the litigants to incur useless expenses, and greatly embarra.s.s the ordinary course of justice. Although the second part at first seems to involve an increased expense of $36,000 or $37,000 annually, when well considered, this sum will be found not to exceed $20,000, because it will be necessary to deduct from the above estimate the amount of three per cent. under the existing regulations allowed to the magistrates for the collection of the native tributes, in their character of subdelegates, generally amounting to $16,000 or $17,000; besides only taking into account such real and effective disburs.e.m.e.nts or extraordinary expenses as in fact they may legally have incurred in the performance of their duties.

Should it, however, be deemed expedient, from causes just in their nature, hereafter to exonerate the natives from the obligations of paying tributes, by which means the amount deducted for the three per cent. commission could not then be brought into account, let me be allowed to ask what enlightened government would hesitate submitting to an additional expense of so trifling an import, in exchange for beholding more than two millions of men forever freed from the extortionate acts of their old magistrates; and, through the effects of the new regulations, the latter converted into real fathers of the people over whom they are placed? How different would then be the aspect these fine provinces would present to the eyes of the philosophical observer who would, in that case, be able to calculate to what an extent the progress of agriculture and industry in these islands might be carried.