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HARVARD LAW LIBRARY
^"^
ReceivedDEC 4 1916
/ 0^
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ANNUAL REPORTS. WAR DEPARTMENT '
FISCAL YEAR ENDED JUNE 30. 1916
REPORT OF THE
IPHIUPPINE COMMISSION
TO THE SECRETARY OF WAR
1915
(JANUARY I. 1915. TO DECEMBER 31. 1915)
. o (IN ONE PART)
^
WASHINGTON
GOVERNMENT PRINTING OFFICE
1916
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DEC 4 1916
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CONTENTS.
PAgt.
Report of the Philippine OommisBioii 3
Change of personnel 3
Sessions of the commiBsion ^ 3
Legislation by the commission 3
Appointments by the commission 4
Se^ons of the legislature 4
Character of legislation 6
Primary schools for non-Christians 5
Emergency tax 6
Immunization of cattle 6
Reorganization of the Philippine Library 6
Mutual insurance of work animals 6
Sugar central , 6
Purchase of the Manila Railroad -. 7
Tonnage dues on vessels 7
Reg[ulating sponge fisheries 7
Civil-service employees* retirement 7
Infant industry subvention 8
Coconut products board 8
Inheritance tax 8.
Pearl fishery 9
Constabulary acadeniy »... 9
Philippine National Bank 9
Tobacco inspection 10
Conservatory of music 10
Handicraft products. 10
_ Infant mortality 10
Usury law 11
Administrative code ■- 11
Greneral conditions in the islands 12
Appendix A — List of acts enacted by the commission under its exclusive
^neral legislative jurisdiction over all that part of the Philippine Islands
inhabited by Moros or other non-Christian tribes 13
Appendix B— List of acts passed by the Philippine L^iislature •. 16
Report of the Governor General 21
Personnel 25
Operations of the Government for 1916 26
Executive Bureau 26
Bureau of Civil Service 27
Board of Public Utility Commissioners 31
Philippine Board of the Panama-Pacific International Exposition 33
Philippine Health Service 33
Bureau of Lands ^ 34
Bureau of Science 34
Bureau of Forestry 1 34
Philippine Constabulary ^ 35
Public Works 36
Bureau of Posts 36
Bureau of Justice 36
Bureau of Customs , 37
Bureau of Internal Revenue 89
Bureau of the Treasury 39
Bureau of Education 40
Bureau of Agriculture 42
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IV CONTENTS.
Beport of the Governor General — Continued. Page.
Bureau of Prisons t ,. 44
Bureau, of Supply 45
City of Manila 45
Mountain Province ^ 46
City of Baguio 46
Department of Mindanao and Sulu 46
Army and Navy 47
Visit of the chief of the Bureau of Insular Affairs 1 47
, Philippine bill 48
Appendix— Message of the Governor General to the third Philippine Legis-
lature relative to the proposed purchase of outstanding stock of the
Manila Railroad Co. by the Philippine Government 49
Report of the Secretary of the Interior 61
Work of the delate for the non-Christian tribes 62
Philippine Health Service 62
Food and drug inspection 62
Sanitation in the Provinces 63
Board of medical examiners 63
Board of pharmaceutical examiners 63
Board of aental examiners 63
Hospitals 63
Bilibid Prison 63
San Lazaro Hospital 64
Culion Leper Colony 64
Bontoc Hospital 65
Division of sanitation, city of Manila 65
Mosquito and fly extermination 66
Rat poisoning 66
Division of Sanitation in the Provinces 66
Water supplies 67
Soil pollution ' 67
Sanitary control of fiestas 68
Sanitary commission 68
Some notable results obtained during the year 68
Bureau of quarantine service 69
Chojera and plague 70
Leprosy 70
Measles 70
Smallpox 71
Typhus and yellow fever 71
Necessity for quarantine 71
Daily dock inspection 71
Disinfection and fumigation of vessels 71
Garbage from vessels 72
Rats in cargo 72
In!fei>ection of interisland vessels 72
Meat inspection certificates 73
Personnel 73
Bureau of science 73
Personnel 73
Private demand for expert services 73
Need for systematic work 73
Publication 74
Instruction of district health officers 74
Standardization of supplies 74
Manufacture of extract of tiqui-tiqui 74
Report of the Assembly Committee 74
Biological lab'oratory 74
Botan:^ 75
Fisheries 76
Ornithology 76
Entomology , 76
Chemistry 76
Mining and assay wo^k 78
Library 78
Philippine Journal of Science 78
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_ CONTENTS. V
Report of the Secretary of the Interior — Continued. Page.
Bureau of lands 79
Public lands 79
Friar Lands Division 81
R6sum6 , 82
San Lazaro estate -. . . 84
Surveying and drafting 84
Surveys completed 84
Cadastral surveys 84
Public land cadastral surveys 85
Bureau of forestry 85
Propaganda/. 85
Forest maps 86
Office of the wood expert 86
Division of administration 86
Personnel 86
Licenses 87
Commimal forests 87
Caingins 87
Trail notes 87
Division of investigation 87
Reproduction studies 88
Growth studies , 88
Forest plantation ' 88
Transplanting studies 88
Root development 88
Seed museum 88
Seed distribution 88
Seed exchange 88 <
Cuttings 89
Germination tests 89
Readside planting 89
Arboretmn 89
Durability tests 89
Mount MaquiUng Forest Reserve 89
Additions to the map 89
Forest school 89
Division of forest management 89
Forest reconnoissance 90
Valley of the Affusan River 90
Olongapo Naval Reservation ! 90
Future work 90
Cooperation 91
Work in Baguio 91
Forestry exhibit at the Panama-Pacific International Exposition 91
Lumber industry 92
China market ." 92
Personnel 93
Quarters 93
Inadequacy of funds and personnel 93
Philippine General Hospital 94
Functions *. 94
Professional work 95
Grounds and buildings 95
Financial department 97
School of nursing 97
Receiving department 99
Efficiency ^ 99
Service to Government employees 99
Abstract of earnings 100
Clerical and record division 101
Weather bureau 102
Personnel 102
Weather and typhoons 102
Manila observatory in the northern Luzon fair 102
Seismic division 103
Magnetic divbion 103
Astronomical division 103
Method of obtaining more detailed information ^ . . . . . . . (^QO^^I^
VI 00KTEKT8.
Report of the Secretary of the Interior— Continued. Pag^
Appendix— Second Annual Report of the Delegate of the Secretary of the
Jmterior 105
Mountain Province 105
Personnel 105
Agricultural and industrial development -. 105
Northern Luzon Exposition 108
Lands 109
Public works and trails Ill
Education Ill
Sanitation 113
Clothing 114
Housing 114
Calamities 115
Peace and order 115
Organization of townships 122
Travel 123
♦ Population 123
Apayao 123
Benguet -. 124
Bontoc 124
Kalinga 125
Ifugao 126
Lepanto-Amburayan 126
NuevaVizcaya 127
Mindoro 128
Palawan 129
Report of the Secretary of Commerce and Police 131
Philippine constabulary 131
Personnel 131
Medical division 133
Statiement of accoimts, 1916 : 133
Conditions as to peace and order by districts 134
Work for other bureaus 136
Municipal police 136
Recommendations 137
Bureau of public works 137
Organization diagram of the bureau of public works 138
Personnel 139
Filipiniza^on 139
Architects 139
Extension and activities 140
Panay auto line 140
Hydrographic data 140
Testing materials 141
Benguet road 141
Work in general 141
Road work 141
Progress in road construction 142
Road building and traffic 143
Road maintenance 144
Bridges.... ^ 146
Artistic side of bridge design 146
Important bridge proj ects 147
Buildinjg work 148
Water sujjply 149
Artesian wells 149
Municipal water works 150
Motor vehicles 150
River and harbor work J51
New concrete wharf . Mamla Harbor 151
Extension of Iloilo wharf 151
Molo letty 151
Dredging operations 152
Statement of appropriations 152
Bureau of coast ana geodetic survey 154
Personnel 154
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OONTENTB. VII
Beport of the Secretary of Commerce and Police— Continued.
Bureaa of coast and geodetic survey— Continued. ^^e*-
General 154
Field operations 156
Steamer Fiu^mer 155
Steamer Marinduque 156
Steamer Pathfinder 155
Steamer Research ^ . . 166
Steamer Bomblon ^ 156
Maps 157
Summary of work accomplished by the different ships from January
1 to December 31, 1915 157
Statement of accounts, 1915 157
Bureau of posts 158
Personnel 158
Number of post offices, money-order, savings-bank, and telegraph
offices, and munidpaiities with free-delivery service in each
Province at the close of the year 159
In general '...-. 160
Increase in United States parcel post 160
Money orders 160
Telc^ph and cable lines 160
Radio stations '. 161
Opening of new post offices 162
New post-office building for Manila 162
Change in the accounting system 162
Necessity for an organic act 163
Postal Division 163
Money-Order Service 165
Telegraph Division 166
Repairs and relocation of cableeduring the year 167
Postal Savings Bank Division 167
Statistics 168
Revenues and expenditures 170
Bureau of labor 173
. Personnel 173
Employment agencies 174
Seamen's employment agency 174
Emigration of Filij^ino laborers 175
Gaimsand complaints ^ 175
Labor accidents J.76
Strikes 176
Expenditures 176
Irrigation coimcil - 177
Corporations 177
Report of the Secretary of Finance and Justice 179
Judiciary 179
Supreme Court 179
Court of First Instance of Manila 180
Courts of First Instance in the Provinces 180
General Land R^istration Office. 181
Justice of the Peace (S)urts 182
Bureau of justice 182
Administration of estates 183
Bureau of the treasury 184
Financial statement 184
Fidel ity fund 186
Assurance fund, act No. 496 187
Banks and banking J87
Agricultural bank 187
Private banks , 187
Guaranty of interest on bond issues of railway corporaticms 188
Bond issues 188
Gold-standard fund 189
Circulation , 191
Bureau of customs 192
General trade conditions 192
Trade balance y^- - . 192
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Vni CONTENTS.
Report of the Secretary of Finance and Justice — Continued:
Bureau of customs — Continued.
General trade conditions — Continued. ' Pftg«-
Effect of disturbed conditions abroad 192
Trade with the United States 193
Imports , 193
Cotton coods , 193
Iron and steel 194
Rice....^ : 194
Exports 194
Hemp 194
Sugar : 195
Copra and other coconut products 195
Tobacco products 196
Gold bullion 196
Customs collections 1 196
Coastwise shipping 197
Entrances and clearances 197
Docimientation and licensing. . .^ . . .' 197
Inspection of vessels 197
Admeasurement ^ 198
Marine officers 198
Shipment of seamen 198
Arrastre Division -. 198
Division of Vessels '. 199
Division of Lighthouse Maintenance 199
Marine railway and repair shops 200
Consular duties .* 200
Bureau of internal revenue 200
Collections 200
Apportionment of internal-revenue taxes 201
Cost of collection 202
Alcohol products 202
Distilled spirits 202
Wines 203
Fermented liquors. 203
Tobacco products and matches 203
SmoHng and chewing tobacco 203
Cigars 204
Cigarettes 204
Matches 204
License taxes 204
Dealers in alcohol, tobacco products, and manufacturers of and
wholesale dealers in motor spirits and oils 204
Merchants, manufacturers, and common carriers 205
Occupations, trades, and professions 205
Cedulas 205
Banks and bankers 205
Insurance companies 206
Franchise taxes 206
Income tax 206
Revenue from new and increased taxes 206
Report of the Secretary of Public Instruction 209
Bureau of education ■. 209
Organization 210
Personnel 210
Schools and attendance ". 211
Academic instruction 212
Physical education 212
Industrial instruction 213
Insular schools 214
School work among non-Christian peoples 214
Depsjtment of Mindanao and Sulu 215
Buildings and grounds 216
Health of school children 217
Courses of study 217
School libraries : 217
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CONTENTS. IX
Report of the Secretary of Public Instructioii — Continued.
Bureau of education — Cotftinued. Pago-
Vacation assemblies and the training of teachers 217
Exhibit at the Panama-Pacific International Exposition 218
Financial support of the schools 218
Insular — current expenses 218
Insular— permanent improvements 219
Private schools 219
Bureau of agriculture 222
Cooperation 222
Food production 223
Crop conditions 223
Rice 223
Corn 223
^ Coconyts 224
Tobacco 224
, Sugar , 224
Abaca 224
Maguey 224
Personnel 224
Ore;anization \ 225
Aoministration division 225
Ofl&ce of American Colonies 225
Animal Husbandry division 225
Veterinary division 225
Rinderpest 225
Live-stock importation 226
Plant industry division 226
Fiber division 227
Demonstration and extension division 227
Ofl&ce of agricultural demonstration t . . . 227
Oflace of pest control 227
Ofl&ce of cooperative organization 228
Ofl5ce of publications , 228
Ofl&ce of statistics 228
Bureau of printing 228
Vocational training 228
Personnel 228
Fiscal operation 229
Appropriation, Act No. 2431 229
Bureau of prisons 229
Prison popidation and the status of crime 229
Prisoners*^ iiourt 230
Maintenance 230
Religious services 230
Industrial division 230
Schools 231
Improvements and repairs 231
H^th and sanitation 231
Iwahig penal colony 231
San Itamon penal farm 232
Bureau of supply 232
Divi^on of supplies 233
Division of cold storage 234
General 234
Personnel 234
Philippine library 234
Fiiipiniana mvision .^ 235
Circulating division \ 235
Public documents division 235
Catalo^e division 236
Periodical and reference division 236
Public welfare board 236
Recommendation 236
Department of Mindanao and Sulu 239
Area 239
Population 239
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X CONTENTS.
Department of Mindanao and Sulu— Continued. Page.\
Ledslation • 240
Policy of ^veniment 244
Organization 244
Finance 244
Public order 248
Justice - 261
Public health 262
Public instruction 263
Prisons 266
Public works 266
Agriculture 271
Forests 276
Mineiul products 275
Marine products 376
Public lands 277
Agricultural colonies 278
Commerce and shipping : 283
Manufactures 283
Banks and credits 284
Missions and other private philanthropies 284
Political conditions - : 286
Inspections.. , 292
Pere(Hmel , . . 293
Christian, Mohammedan, and pagan relations 294
Recommendations 296
Appendix—Apeement of March 22, 1915, between the Governor General of
the Philippme Islands and the Sultan of Sulu, and other documents 297
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REPORT OF THE PHILIPPINE COMMISSION.
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ANNUAL REPORT OF THE PHILIPPINE COMMISSION
TO THE SECRETARY OF WAR^
JANUARY U I9I5, TO DECEMBER 31, mS.
Manila, April 6j 191&,
Sir : The Philippine Commission has the honor to submit its six-
teenth annual report for the fiscal year 1915, covering the period
January 1, 1915, to December 31, 1915, except as otherwise stated.
CHANGE OF PERSONNEL.
No change in the personnel of the Philippine Commision has oc-
curred during the year, except the resignation of Hon. Clinton L.
Riggs, secretary of commerce and police, who left the islands on
April 5, 1915, and resigned on October 31, 1915. His portfolio was
taken over temporarily by Commissioner Jaime C. dei Veyra. Hon.
Winfred T. Denison, secretary of the interior, has been absent on
account of ill health since September 28, 1915, on which date he left
for the United States.
SESSIONS OF THE COMMISSION.
During the period covered by this report, the Commission held
39 executive sessions; 15 legislative sessions, acting in its exclusive
legislative jurisdiction; and 98 sessions, acting as the upper house
of the Philippine Legislature.
These sessions cohered the period February 6, 1915f to -February
24, 1916, which included tlie fourth session of the third Philippine
Legislature, October 16, 1915, to February 4, 1916, and the special
session of 1916, from February 14 to 24, all dates inclusive. During
this period the Commission, acting within its exclusive legislative
jurisdiction over all that part of the Philippine Islands inhabited by
Mohammedans or other non-Christian peoples, considered 36 bills,
26 of which were enacted, 3 are pending, and 7 were substituted,
postponed, or laid on the table.
LEGISLATION BY THE COMMISSION.
The policy heretofore pursued of extending educational facilities
among the Mohammedan and pagan people, and of aiding them in
the development of their agricultural and industrial resources, has
been consistently adhered to by the Commission during the year.
By the extension to the non-Christian Provinces of laws gov-
erning the Christian territory, such as may safely be so applied with
slight modifications, it is desired to accomplish not only imiformity
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4 KEPOBT OF THE PHILIPPINE COMMISSION.
of legislation for the entire islands but also the realization of com-
munity of interests and civilization of both peoples.
The appropriation for non-Christian Provinces this year reached
a total sum of n,923,313.68, as against ^,554,991 for last year,
a decrease of ?^31,677.32.
A list showing the number and title of each act passed by the
Commission is attached hereto as Appendix A.
APPOINTMENTS BY THE COMMISSION.
A total of 348 nominations by the Governor General were con-
firmed by the Conmiission during the period covered by this report,
as foUows:
Insular offices 30
Provincial offices 16
Offices of the city of Manila 3
Offices of the city of Baguio 2
Justices of the peace 116
Auxiliary Justices of the peace 181
Total 348
SESSIONS OF THE LEQISLATUBR
During the period covered hj this report there were held in Manila
the fourth session of the Third Philippine Legislature, beginning
October 16, 1915, and ending February 4, 1916, and the special session
of 1916, beginning February 14, 1916, and ending February 24, 1916.
During this period there were considered by the Commission in its
capacity as a chamber of the Philippine Legislature 68 commission
biUs, of which 40 were passed by the Commission and sent to the
Assembly ; 28 were tabled, postponed, or substituted by the Commis-
sion. Of the bills passed by the Commission 23 were passed by the
Assembly without amendment, 13 were amended and passed by the
Assembly, 4 remained undisposed of in the Assembly at the close of
the Legislature. Of the 13 bills amended bjr the Assembly the amend-
ments were concurred in by the Commission on 7 and conferences
were held on 6, and agreement reached on 5. A total of 35 Commis-
sion bills were finally enacted by the Legislature.
During the same period there were considered by the Commission
207 bills of the Assembly, of which 26 were passea by the Commis-
sion without amendment, 54 with amendment, and 127 refused pas-
sage, laid on the table, or undisposed of. Of the 54 Assembly bills
passed by the Commission with amendment the amendments were
agreed to by the Assembly on 42 and conferences were held on 12,
all resulting in agreement. A total of 80 bills, of the Assembly were
finally enacted bj the Legislature.
The Commission considered and adopted three Commission joint
and concurrent resolutions, of which two were adopted by the Assem-
bly without amendment and one with amendment, the amendment not
being concurred in by the Commission. A total of two Commission
joint and concurrent resolutions were adopted by both houses.
There were received from the Assembly seven Assembly joint and
concurrent resolutions, of which five were passed by the Commission
without amendment, and two were tabled by the Commission. A
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BEPO&T OF THE PHILIPPINE COMMISSION. 5
total of five Assembly joint and concurrent resolutions were adopted
by both houses.
A total of 115 acts were passed by the Legislature during the
period covered by this report.
APPBOPBIATION&
Of the 115 acts passed by the Legislature 18 make appropriations
of funds aggregating f90,4S0,941.28.
The current expense appropriation act was enacted earlier in the
session than heretofore, thus insuring the maintenance of the govern-
ment and giving chiefs of bureaus and offices sufficient time and op-
portunity to perfect their future plans and arrangements. The total
amount appropriated by this act is ^5,468,918.81, as against ?25,-
296,668.50 for 1915, an increase of f=l72,244.81.
The public works appropriation was decreased from ¥^,551,800.40
for 1915 to ¥=2,621,000 for 1916. The increased cost of materials and
supplies due to the European war,~and other important legislation
requiring large expenditures of funds, such as the Philippine Na-
tional Bank and the proposed railroad purchase, made it advisable
to curtail to a certain extent the construction of new public works
and permanent improvements. This is not an indication that the
bureau of public works will have less work this year and require
the disbanmng of the organization and personnel, inasmuch as funds
available from previous appropriations will enable the bureau to
maintain its activities to the fullest extent.
CHABACTEB OF LEQISLATION.
The legislation of this year has been characterized by the constant
realization of the economic needs of the country and the earnest de-
sire on the part of both houses to reach an a^eement on all impor-
tant^ subjects. It is for this reason that, notwithstanding the strong
difference of opinion between the two houses, it was possible to enact
laws providing for an internal-revenue emergency tax, inheritance
tax, the immunization of cattle and carabao, the purchase of the ma-
jority stock in the Manila Railroad Co., penalizing usury, and cre-
ating the Philippine National Bank. The mere mention of these acts
demonstrates the fact that the Legislature has accomplished a great
work in the line of constructive legislation.
Mention is herein made of the most important acts, explaining as
briefly as possible the purposes and results sought for.
Primary Schools for Non-Christians.
Act. No. 2531 appropriated ^1,000,000 for the advancement of
educational work amon^ the non-Christian people. Attention is
called to the fact that this act, which originated in the Assembly,
was the first act passed by the Legislature in its fourth session. The
charge has often been made that the Christian Filipino thinks little
and cares less for the backward people of his race, but this act, which '
shows great liberality on the part of the Legislature, does not accord
with such viewa .
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6 REPOBT OF THE PHILIPPINE COMMISSION.
Emergency Tax.
The continuance, of the European war, which has caused a falling
oflf in customs duties on imports, made it necessary to frame Act No.
2541, known as the emergency taxation act, which is similar to that
of last year, with various amendments, and is to be in force for two
years.
Immunization of Cattle.
Experience has demonstrated that quarantine alone is not suffi-
cient to eradicate rinderpest from the islands, although its spread
is undoubtedly greatly restricted by the efforts put forth by the peo-
ple to that end. Nevertheless, recent investigations- of the subject
mdicate that a satisfactory solution of the question may be found in
simultaneous inoculation, resulting in more or less permanent immu-
nization of cattle against the ravages of rinderpest. Act No. 2548
provides for carrying on immunization on a large scale and appro-
priates F50,000 to be carried in a fund to be known as the immunized
cattle insurance fund. An appropriation of ^5,000 is also made by
Act No. 2651 to cover the necessary expenses connected with the im-
munization of cattle and carabao by virtue of the provisions of Act
No. 2548, while Act No. 2650 authorizes the investment of the im-
munized cattle insurance fund in such loans and securities as are
authorized for the investment of other trust funds. Act No. 2573
also provides for the insurance of work animals.
Keorganization of the Philippine Library.
Act No. 2572, creating the Philippine Library and Museiun, which
originated in the Assembly, has for its purpose the consolidation of
several offices performing similar functions: assembling in one de-
Eartment materials and records which were scattered among several
ureaiis and offices, but properly belonging to the library and
museum; placing the division of archives, patents, copyrights, and
trade-marks of the executive bureau under the jurisdiction of the
library; organizing a legislative reference library; and performing
such other functions as properly may belong to a national library
and museum.
Mutual Insurance of Work Anitmials.
Act No. 2573 authorizes the creation of a division in the bureau of
agriculture to be known as the division for the mutual insurance
of work animals, and for the organization of a society to be known
as the work animals insurance society, the management of which
shall be vested in a board of three members, composed of the director
of §tgriculture, as chairman, the insular treasurer, and a third mem-
ber to be appointed by the Governor General, with the consent of the
Philippine Commission. The fundamental object of this act is the
reimbursement of owners of work animals for losses from disease
or other causes and is cooperative in its nature.
Sugar Central.
The sugar central board created last year has rendered valuable
services to the government and was ready to execute contracts for
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BBPOBT OF THE FHILTPPINE COMMISSION. 7
the construction of a modem central at Isabela, in the Province of
Occidental Negros, and had under consideration the construction of
other centrals, thereby placing the sugar industry of the islands
upon a footing where it could safely compete with any of the sugar-
producing countries of the world. Unfortunately the disturbed con-
ditions due to the European war made it impracticable to enter into
such contracts. However, the board gained valuable experience and
found that Act No. 2479 was deficient in certain respects for the
effective carrying out of its purposes. This amendatory Act No.
2577 was enacted upon recommendation of the sugar central board
for the purpose of curing these defects, and it is believed that when
conditions shall have returned to normal the central sugar board
will then be able to render a very valuable service to the government
and the people in the way of practical aid and encouragement to
the sugar industry.
Purchase of th^ Makila Railroad.
This act (No. 2574) authorizes the Governor General to execute
a certain memorandum of agreement with the Manila Eailroad Co.
and the Manila Eailway Co. (1906) (Ltd.), making appropriations
for the purpose of carrying out said memorandum of agreement,
and for other purposes.
Tonnage Dites on Vessels.
The passage of Act No. 2579 was recommended by the committee
on tax and tariff investigation created by concurrent resolution
No. 14. The collection of tonnage dues on vessels is a very common
source of revenue in other countries. In the Philippine Islands they
were formerly collected under the provisions of the act of Congress
approved Mardi 3, 1905, but the Commission was authorized by said
act of Congress to suspend or repeal such dues, and they were re-
pealed by Act No. 1535. The falling off of customs duties on imports
made it advisable to find new sources of revenue, and this act was
enacted by the Legislature for that purpose. The dues have been
placed at a very low figure so as not to discourage shipping in any
way.
REGuiiATiNG Sponge Fisheries.
Act No. 2584 prohibits the taking of sponges of less than 10 centi-
meters through any diameter^ requires gradmg of sponges exported,
prohibits the "loading'' or impregnating of sponges with foreign
substances for the purpose of increasing flieir weight, and prohibits
the taking of sponges by use of dredges except in waters of more
than 30 fathoms in depth. The secretary of the interior is given
administrative control over sponge fisheries. Concessionaires are^
required to pay an annual fee of ^5 per square kilometer and must
confine their operations to the area specified in permits issued them.
Civil-Service Emplotees' Eetirement.
Act No. 2589 provides for the payment of a gratuity to regularly
and permanently appointed officers and employees in the Philippine
civil service who retire after M least six years' continuous, faithful,
«8«9-l«— 2 Digitized byGoOgle
8 EEPOBT OF THE PHILIPPINE COMMISSION.
and satisfactory service. For many years the enactment of a pension
and retirement law has been recommended by former Governors
General, the Bureau of Insular Aflfairs, and the bureau of civil serv-
ice, but the large extraordinary expense involved has heretofore pre-
vented the passage of such legislation. This act has been so drawn
as to prevent increased expense to the government, inasmuch as posi-
tions made vacant by retirement are, with certain exceptions, declared
ipso facto vacant and can not be re-created except upon recommenda-
tion of the emergency board, with the approval of the Governor
General, and if re-created the salary of the position is automatically
reduced by one-third. The act should therefore effect a real econ-
omy. FilipinizatiOTi of the service has been consistently followed
during the present administration, but American employees who have
been in the service for many years have in most cases lost touch with
men and affairs in the United States and are fre^fuently unable to
make sufficient savings from their salaries to maintain them until
they are able to secure other suitable employment. The payment jof
the gratuity provided for by this act removes this difficulty to a large
extent. The element of personal hardship, which has been a great
obstacle to the Filipinization of the service, is also minimized thereby
when necessary reouction of force requires separation from the serv-
ice. The act has met with general favor.
Infant Industry Subvention.
Act No. 2596 provides for the creation of a board to be known as
the new industries board, and to consist of the secretary of commerce
and police, as chairman; the insular auditor; the attorney general;
and two members appointed by the Governor General with the con-
sent of the Commission. It authorizes the Governor General, upon
recommendation of the board, to guarantee on behalf of the insular
government interest or dividends not to exceed 5 per cent per
annum on capital invested in new agricultural, commercial, or indus-
trial enterprises. It appropriates a sum of not exceeding ^00,000
for such purposes.
Coconut Products Board.
Act No. 2598 is essentially the same as the sugar central act. It
provides for the creation of a coconut products board, to be composed
of the Governor General, the speaker of the Philippine Assembly,
or their authorized representatives, and one member appointed by
the Governor General, with the consent of the Commission. Its
purpose is to assist coconut growers in improving the production
and quality of copra and in the establishment of factories for the
extraction of coconut oil and for the encouragement of related indus-
tries. It is believed to be constructive legislation from the viewpoint
of the financial and material development of the country.
Inheritance Tax.
The enactment of Act No. 2601 was recommended by the committee
on tax and tariff investi^tions created by concurrent resolution No.
14. The contingent f allmg off of customs revenues due to the Euro-
Digitized by VjOOQIC
BEPOBT OF THE PHILIPPINE COMMISSION. 9*
pean war made it necessary to find other sources of revenue to offset
the loss. Other countries impose the inheritance tax, and it has been
found to be an efficient means of increasing the public revenues inas-
much as it is an easy tax to collect and does not require the creation
of additional machinery for enforcing payment.
Pearl Fishery.
The purpose of Act No. 2604 is the protection of the pearl fishing
industry, which is of considerable importance in the waters of the
Department of Mindanao and Sulu. Former legislation had proven
unsatisfactory and prejudicial to both the government and to per-
sons engaged in this industry. This act fi^es the minimum sizes of
shells which may be taken m Philippine waters and prohibits the
exportation of shells except through the customhouse at a port of
entrj. The secretary of the interior is given administrative juris-
diction in carrying out the provisions of this act. It is believed
that it will encourage the development, under proper supervision,
of fields now known and will lead to the discovery and development
of new fields. Its enactment was favored by persons engaged in
pearl fishing and in industries allied thereto, such as the button
industry.
Constabulary Academy.
The establishment of a training school for officers of the Philippine
Constabulary has been considered by the Legislature for some time.
The plans heretofore proposed involved such a large expense that
until the enactment of this act no definite legislative action has been
taken. However, the Philippine Constabulary established adminis-
tratively and has maintained a school of this character at Baguio
for some time. Act No. 2605 gives greater official recognition to said
school and prescribes its personnel, increases the number of cadets
which may be selected after examination, and provides the manner in
which they shall be nominatied, specifies the courses of study and the
length of time cadets shall be in training, and provides that the funds
necessary for carrying out its provisions shall be made available by
legislative enactment upon estimates submitted from time to time
by the chief of constabulary, approved by the secretary of commerce
and police.
Phuippinb National Bank.
Act No. 2612 provides for the establishment of a banking institu-
tion, with the majority control permanently vested in the govern-
ment. After its enactment the bank was promptly organized, and,
porsuant to its provisions, took over the Agricultural Bank of the
Philippine Government. The act provides for a capital stock of
^0,000,000, of which ^10,100,000 will be subscribed by the govern-
ment and ^,900,000 offered to the public at par. The bank is au-
thorized to engage in a general banking business, but its fundamental
purpose is to provide additional credit facilities for the development
of agriculture and industry in the Philippine Islands, which has been
greatly retarded in the past by the usurious rates of interest charged
for the use of capital. The establishment of this bank has been re-
ceived with general favor by those interested in agriculture, manufac-
turing, and commerce.
Digitized by VjOOQIC
10 rbpobt op the philippine commission.
Tobacco Inspection.
Act No. 2613 is similar in its fundamental principles to the fiber-
inspection act (No. 2380), which has proven very efficient in stand-
ardizing and improving the quality and reputation of Philippine
fibers. Tobacco products form one of the principal items of export
of the Philippines, as well as an important source of internal revenue
for the government. The act provides for furnishing gratuitously
selected seeds to planters; for the appointment of inspectors in each
tobacco-producing Province; for stimulating the production of su-
perior tobacco; for rewards to discoverers of means to combat to-
bacco pests; for rules respecting the classification, marking, and
packing of tobacco for domestic sale or for export; for mspec-
tion 01 tobacco before removal from the Province of its origin;
for inspection after manufacture; for return to the Philippine
Islands or reconditioning of cigars and cigarettes which have become
worm-eaten, musty, or moldy after arrival in the United States; for
the advertising of Philippine tobacco products; for the establish-
ment of tobacco warehouses in the Philippine Islands and in the
United States; and for the payment of bounties to encourage the prp-
duction of leaf tobacco of high quality. It makes an appropriation
of ^15,000 for carrying out the purposes of this act. The collector
of internal revenue is charged with the enforcement of its provisions
and of the regulations issued in accordance therewith. The director
of agriculture is charged with the duty of executing and enforcing
the provisions referring to the cultivation of tobacco.
CONSBRVATORT OP MuSIC.
Act No. 2623 provides for the establishment of a conservatory of
music as a college of the Universitv of the Philippines. Its estab-
lishment has been recommended for some time, but for various
reasons it has not heretofore been considered feasible to comply
with the popular demand for such an institution. It is believed
that the conservatory, which will be ready to begin work at the next
opening of the university, will receive the cordial support of the
Filipino people, whose love for music and natural musical abilities
are well known.
Handicraft Products.
Act No. 2629 has for its purpose the organization and standard-
ization of household industries of the Philippine Islands. In other
countries household industries have been fostered by the government,
which added greatly to their prosperity. It is believed that the
effect of this act will be of greatest advantage, not only to persons
engaged in household industries, but to the general welfare of the
country.
Infant Mortauty.
The importance of Act No. 2633 can not be overestimated.
Some steps have been taken in the past by the government looking
to the reduction of infant mortality. A committee was appointed
to study the causes of the excessive death rate among infants, and
made an exhaustive report to the Legislature, embodying its recom-
Digitized by VjOOQIC
BEPOBT QP THE PHILIPPINE OOMMIBSION. 11
mendations. This is the first time that the government has taken up
the tads: of reducing infant mortality in a large way. The loss to
the islands caused by the death of so many of its inhabitants during
infancy can not be estimated in terms of dollars and cents. Large
sums of money have been spent for public works and permanent
improvements for the prevention and cure of human and airn^al
diseases, for the encouragement and development of agriculture and
industry, and for other laudable purposes. By this ad; the Le^sla-
ture has taken a forward step toward the improvement of the citizens
and the increase of the population of the ^Philippine Islands^ The
Gota de Leche of Manila has' accomplished a great work with limited
resources. The extension of its activities to the Provinces and mu-
nicipalities of the islands, it is believed, will be of great benefit to
the general welfare of the people.
XTsxmT Law.
The Legislature has considered in several of its sessions proposed
legislation prohibiting and penalizing the charging of usurious rates
for the use of money. This has been a very diflfcult subject, although
one of the most important which has engaged the attention of the
lawmaking body. Perhaps no other one thin^ has so greatly re-
tarded the development of Philippine aCTicuIture, industry, and
commerce as the prevailing practice of diarging exorbitant rates
of interest whenever possible. The general lack of registered land
titles and of other securities acceptable to banking in^itutions has
placed the nroducer and dealer at the mercy of those who were
willing to aavance capital for carrying on such operations, but only
upon terms prescribed by themselves and usuaUy .ruinous to the
borrower. Every effort has been made by the government to expe-
dite cadastral surveys so that registration of land titles might be
facilitated and such land titles used as security for loans from gov-
ernment or private banks; the Agricultural Bank has rendered very
valuable service in relieving the needs of the farmers who were able
to furnish securities that the bank could accept; the postal savings
bank, within the limitajtions prescribed by law with respect to the
investment of its deposits, has been of assistance in many ways;
the government has from time to time deposited with private banks
considerable sums of money for loans at reasonable rates of interest
to planters in the sugar-producing Provinces, when such planters
could furnish the necessary collateral; but usury continued to be a
big problem. The question has been considered by committees of
the Legislature; public hearings have been held, at which persons
interested were invited to present their views; the matter has been
discussed in aU all its phases by the press and people, and Act No.
2655, while not everything that could be, desired, is believed to be a
material advance in the solution of this complex problem.
Administrative Code.
Act No. 2657 is a codification of the general statutes relating to the
organization and administration of the Philippine government. It
consists of 4 books, 15 titles, and 57 chapters. Book I relates to the
organization, powers, and general administration of the Philippine
Digitized by VjOOQIC
12 REPOBT OF THE PHILIPPINE COMMISSION.
government; Book II relates to tlie organization and administration
of the bureaus; Book III relates to the government of Provinces and
other political divisions; and Book IV relates to penalties for viola-
tions of the general statutes. The Administrative Code is the first
submitted to the Legislature by the code committee for adoption.
The Bemedial, Correctional, and Civil Codes are to follow. The
Administrative Code represents exhaustive work by the code commit-
tee, which was reviewed by a joint legislative conmiittee of the two
houses of the Legislature. It was carefully considered by the Legis-
lature, and it is believed that its adoption and the adoption of the
other codes which are to follow will be a great step forward toward
securing uniformity of legislation in the islands.
The acts passed by the Commission and the Legislature during the
period covered by this report are numbered 2517 to 2657, inclusive.
A complete list of all bills enacted by the Philippine Legislature
during the period covered by this report is also attached hereto as
Appendix B.
GENEBAL CONDITIONS IN THE ISLANDS.
The general conditions in the islands during the year have been
satisfactory. The governmental fimctions of all bureaus and offices
have been performed with increased economy and without impairing
their efficiency. Peace and order have not been disturbed. The trade
of the islands has increased, notwithstanding the world-wide finan-
cial crisis. Harmony between Americans and Filipinos has con-
stantly grown, due to the expected action of Congress on the pending
Jones bill, which is regarded as fulfilling the aspiration of the people
of the islands for justice and liberty.
The reports of the Governor General and the various heads of
departments and chiefs of bureaus and offices show in a more detailed
manner the progress in every direction accomplished during the year.
Respectfully submitted.
Francis Burton Harrison, President,
Rafael Palma, Merriber.
ViCTORiNo Mapa, Member,
Jaime C. de Veyra, Member^
V. Ilustre, Member,
V. SiNGSON Encarnacion, Merriber.
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APPENDIX A.
LIST OF ACTS ENACTED BY THE COMMISSION UNDER ITS EXCLUSIVE GENERAL LEG-
ISLATIVE JURISDICTION OVER ALL THAT PART OF THE P*HILLIPPINE ISLANDS IN-
HABITED BTMOROS OR OTHER NONCHRISTIAN TRIBES.
No. 2517. An act extending, with certain amendments, the provisions of Act
No. 2432, as amended, to the territory inhabited by Moros or other non-Christian
tribes.
No. 2518. An act extending to the Department of Mindanao and Sulu the pro-
visions of Act No. 2495, entitled "An act to amend certain sections-of Act No.
2347, entitled *An act to provide for the reorganization of the courts of first
Instance and of the court of land registration,' by changing the dates of the
terms, the seats, and the jurisdiction of certain courts, and for other purposes.*'
No. 2519. An act appropriating the sum of ^12,000 for the construction, main-
tenance, and repair of the Mount Data-Sabangan Trail, subprovince of Lepanto.
No. 2520. An act providing for the selection of assessors for courts of. first
instance and justice of the peace courts in the Department of Mindanao and
Sulu and for a special procedure for the determination of civil and criminal
cases in which the parties are Mohammedans or pagans.
No. 2521. An act appropriating the sum of ^,500 for the bureau of forestry,
for expenditure in the Department of Mindanao and Sulu.
No. 2522. An act making applicable to the Department of Mindanao and Sulu
Act No. 2472.
No. 2523. An act appropriating the sum of K0,000 for the extermination of
locusts and the suppression and prevention of rinderpest in the Mountain
Province, the Province of Nueva Vizcaya, and the Department of Mindanao and
Sulu, and for other purposes.
No. 2524. An act appropriating the sum of ^15,000 for the construction, im-
provement, and, where necessary, for the maintenance of trails, roads, and
bridges in the Province of Nueva Vizcaya, and for other purposes.
No. 2525. An act appropriating the sum of ^10,000, or so much thereof as may
be necessary, for combating cholera in the Department of Mindanao and Sulu.
No. 2526. An act appropriating the sum of W5,000 for agricultural and indus-
trial advancement, sanitation, and irrigation in the Mountain Province, and for
other purposes.
No. 2527. An act to authorize the provincial boards of the Mountain Province
and of the Province of Nueva Vizcaya to extend the time for the payment of
taxes without penalty in their respective Provinces.
No. 2528. An act establishing and regulating trading systems in the Mountain
Province and the Province of Nueva Vizcaya, and for other purposes.
No. 2529. An act appropriating the sum of 1P10,000 for the agricultural and in-
dustrial fair to be held at Baguio.
No. 2530. An act making applicable to that part of the Philippine Islands in-
habited by Moros or other non-Christian tribes Act No. 2515 of the Philippine
Legislature, and to the Province of Nueva Vizcaya Act No. 2472 of the same
Legislature.
No. 2533. An act amending Act No. 324 of the legislative council entitled "An
act providing for the levy, assessment, and collection of an ad valorem tax on
real property In the Department of Mindanao and Sulu, creating the position
of assessor for the department, and defining the powers and duties of such
oflScer, and repealing existing Inconsistent legislation."
No. 2535. An act appropriating the sum of 1P15,000 for temporary repairs to
the Benguet Road lying within the Mountain Province.
No. 2536. An act making applicable to the property of the government of the
Department of Mindanao and Sulu the provisions of Act No. 1728, entitled "An
act to provide for Insurance of the Insular, provincial, and municipal govern-
ments against loss from damage or destruction of government vessels and craft,
government machinery, and permanent public buildings and government prop-
Digitized by OSoglc
14 BBPOBT OF THE PHILIPPINB COMMISSION.
erty therein by earthquake, lire, lightning, flood, typhoon, tornado, hurricane,
or cyclone," as amended, and for other purposes.
No. 2537. An act to amend section 1 of Act No. 2103 by prohibiting the pay-
ment of the wages of a laborer by means of tokens or objects other than legal
tender currency of the Philippine Islands.
No. 2538. An act to promote good order and discipline in the San Ramon
penal farm guard of the bureau of prisons.
No. 2539. An act making applicable to that part of the Philippine Islands
inhabited by Moros or other non-Christian tribes certain acts of the Philippine
Legislature
No. 2542. An act appropriating the sum of W2,000 for the maintenance and
repair of that part of the Naguilian-Baguio Road lying within the Mountain
Province for the fiscal year ending December 31, 1916.
No. 2543. An act making appropriations for current expenses and public
worlcs and permanent improvements in the Department of Mindanao and Sulu
for the fiscal year ending December 31, 1916.
No. 2545. An act extending to and making applicable in the territory in-
habited by Moros and other non-Christian people fee provisions of Act No. 2541,
entitled "An act to amend Act No. 2339 known as the internal-revenue law of
1914, by changing the rates of taxes and additional taxes, creating new taxes,
abolishing others, and for other purposes."
No. 2546. An act making appropriations for the reimbursement of H. C.
Heald for improvements to Hotel Pines, Baguio, imder certain* conditions.
No. 2547. An act making appropriations for current expenses, public works,
and permanent improvements, and for the advancement in civilization of the
non-Christian peoples in the Mountain Province and Nueva Viscaya for the
fiscal year 1916, and for other purposes. /
No. 2632. An act appropriating out of any funds in the insular treasury not
otherwise appropriated the sum of f7,500 for assistance of private schools,
established in the Mountain/ Province.
Digitized by VjOOQIC
APPENDIX B.
LIST OF ACTS PASSED BT THE PHILIPPINE LEGISLATURE.
No. 2531. An act to appropriate W,000,000 for primary scliools and purposes
related therewith in the territory inhabited by Mohammedans or other non-
Christian Filipinos.
No. 2532. An act to amend Act No. 1407 by extending to 15 years the time
during' which timber, firewood, resin, stone, earth, and other forest products
may be cut in or taken from the public forests free of forestry charges, and
for otlie:* purposes.
No. 2534. An act empowering the Grovernor General to authorize under certain
conditions, at the request of any Province affected by the recent typhoons,
cvrtain specilic road and bridge construction or reconstruction vork, chargeable
t<» ti tr public- works allotments for 1916, and making the necessary appropria-
tions tlierefore.
No. 254^'. An act appropriating funds for sundry expenses of the insular
government for the fiscal year ending December 31, 1916, and tor other
purposes.
No. 2541. An act amending Act 2339, known as the internal-revenue law
of 1914, by changing the rates of taxes and additional taxes, creating new
taxes, abolishing others, and for other purposes.
No. 2544. An act restoring to the public domain certain lands in the Prov-
ince of Ambos Camarines reserved therefrom for public purposes by proclama-
tion No. 1 of the Governor General, series of 1913.
No. 2548. An act to provide for the immunization of cattle and carabaos to
prevent the spread of rinderpest within the Philippine Islands, appropriating
funds therefor, and for other purposes.
No. 2549. An act prohibiting in the Philippine Islands the forcing, compelling,
or obliging of any laborer or other employee to purchase merchandise, commodi-
ties, or personal property under certain conditions, and the payment of the
wages of a laborer or employee by means of tokens or objects other than legal
tender currency of the Philippine Islands.
No. 2550. An act making the friar lands estates an operating unit, providing
for the adjustment of the friar lands bonds sinking fund, and appropriating
such amounts as may be necessary to maintain the friar lands bonds sinking
fund ^nd to pay the interest on the friar lands bonds.
No. 2551. An act establishing and regulating trading systems in the Provinces
of Palawan, Mindoro, and Batanes, and for other purposes.
No. 2552. An act to amend subsection (h) of section 6 of Act No. 1396, by
transferring to the provincial board the power conferred upon the provincial
governors of Palawan, Mindoro, and Batanes to remove township ofllcers.
No. 2553. An act to amend section 1 of Act No. 146, creating the ofllce of pur-
chasing agent and defining the duties thereof, so as to provide for an annual
inspection by the purchasing agent of government supplies held in stock.
No. 2554. An act extending to the Provinces of Mindoro, Palawan, and
Batanes the provisions of all laws referring to the levying, collection, execu-
tion, disposition, and extension of the cedula personal tax, with certain excep-
tions, repealing section 19 of Act No. 1396 so far as it refers to said Provinces,
and for other purposes.
No. 2555. An act construing the provisions of Act No. 2360 as amended by
Act No. 2478 to include certain lands and buildings belonging to the hospital
and foundation of San Lazaro.*
No. 2556. An act to repeal section 30 and further amend section 114 of Act
No. 496, entitled "The land registration act," as amended by Acts Nos. 1648
^and 1699, and 1108, 1648, and 2221, respectively, by abolishin.^: the cortificates
of entries issued by the registers of deeds in registration proceed Inrxs and
providing that the applicant shall in certain cases pay the amount oi' the regis-
tration expenses when these exceed the sum paid as fees.
Digitized by VjOOQIC
16 REPORT OF THE PHILIPPINE COMMISSION.
No. 2557. An act providing for the allowance to persons sentenced in any
criminal cause, witih the exception of certain classes of crimes, of one-half of
the preventive imprisonment undergone by them, repealing section 93 of the
** provisional law for the application of the provisions of the Penal CJode of the
Philippine Islands," and for other purposes.
No. 2558. An act to amend section 18 of Act No. 2259, entitled "An act
providing certain special proceedings for the settlement and adjudication of
land titles," as amended by Act No. 2338, by introducing several modifications
relative to the assessment and exemption from the payment of the costs in
cadastral proceedings.
No. 2559. An act extending the provisions of the third paragraph of section
7 of Act No. 2041 to the justices of the peace of Palawan, Mindoro, and
^ Batan^s.
No. 2560. An act to amend section 4 of Act No. 2361 by extending the time
allowed to the grantee under said act (franchise to Charles M. Swift for
hydroelectric plant).
No. 2561. An act to amend section 18 of Act No. 2169, reorganizing the munici-
pal police, by making final, under certain conditions, the decision of the provin-
cial governor In cases of suspension and removal of members of the police.
No. 2562. An act amending section 23 of Act No. 1396, entitled " The special
provincial government act," by reorganizing the provincial board of Nueva
Vlzcaya, providing for the election of a third member, and for other purposes.
No. 2563. An act separating the Philippine General Hospital from the Phil-
ippine health service and placing It under the Immediate supervision of the
secretary of the Interior.
No. 2564. An act to amend the third subsection of section 1 of Act No. 2387 as
amended by Act No. 2433, and section 93 of Act No. 136 as amended by Acts
Nos.- 2035 and 2244, relative to notaries public and the final disposition of
notaries' registers.
No. 2565. An act providing that resolutions of the provincial boards of special
Provinces must obtain the approval of the secretary of the interior before
taking effect, and for other purposes.
No. 2566. An act amending Act No. 2508, entitled "An act regulating the
creation and operation of * rural agricultural cooperative associations,* and for
other purposes."
No. 2567. An act to punish fraud against the United States, and the selling,
purchasing, or otherwise acquiring any arms, equipment, ammunition, clothes,
military stores, ort>ther public property from officers, soldiers, sailors, or other
persons employed In the military or naval service of the United States, or of the
Philippine Constabulary.
No. 2568. An act amending section 1 of Act No. 2228, entitled "An act author-
izing the use, under certain conditions, of the road and bridge fund of the
Provinces organized under Act No. 83, for subsidizing or for the acquisition,
operation, and maintenance of water transportation," by authorizing the use
of said fund for the establishment and operation of telephone systems.
No. 2569. An act to provide that the office of provincial governor of the
Province of Mindoro shall be elective, and for other purposes.
No. 2570. An act amending sections 5 and 9 of Act No. 1654, entitled "An
act to provide for the leasing of reclaimed land for commercial purposes, for
the leasing of the foreshore and lands under water, and to regulate the con-
struction of bridges over navigable waterways," by authorizing the secretary
of commerce and police, with the approval of the Governor General, to grant
permission to use any portion of the foreshore or land under water in the
Philippine Islands for any lawful private purpose, and for other purposes.
No. 2571. An act establishing the right of any person detained. Imprisoned,
or deprived of his liberty to confer with his duly accredited attorney at any
hour of the day or night, and for other purposes.
No. 2572. An act to authorize, In the Interest of the efllclency and uniformity
of the public service, the consolidation of the Philippine Library, the division
of archives, patents, copyrights, and trade-marks of the executive bureau, and
the law and library division of the Philippine Assembly, to form an organization
to be known as Philippine Library and Museum, under the administrative con-
trol of the secretary of public Instruction.
No. 2573. An act providing for the mutual Insurance of work animals.
No. 2574. An act authorizing the Governor General to execute a certain
memorandum of agreement with the Manila Railroad Co. and the Manila Rail-
Digitized by VjOOQIC
EEPOET OF THE PHILIPPINE COMMISSION. 17
way Co. (1906) (Ltd.), making appropriations for the purpose of carrying out
said memorandum of agreement, and for other purposes.
No. 2575. An act amending section 26 (c) of Act No. 1396, by creating the
office of provincial fiscal for the Province of Palawan, and for other purposes.
No. 2576. An act to amend the first, tenth, and eleventh paragraphs of sec-
tion 5 of Act No. 2347, entitled "An act to provide for the reorganization of
the courts of first instance and of the court of land registration," as amended.
No. 2577. An act to amend certain sections of Act No. 2479, entitled "The
sugar central act."
No. 2578. An act creating a school of the University of the Philippines to be
known as " The Forest School."
No. 2579. An act providing for the collection of tonnage dues on vessels com-
ing from or going to foreign ports.
No. 2580. An act providing for the publication and recording in the bureau
of posts of the names and post-office addresses of editors, publishers, managers,
owners, and stockholders of newspaper publications, and for other purposes.
No. 2581. An act to regulate the sale of certain corporation shares, stocks,
bonds, and other securities.
No. 2582. An act to amend* section 25 and add a paragraph at the end of
section 26 of Act No. 1582.
No. 2583. An act making an appropriation for public works and permanent
improvements.
No. 2584. An act regulating sponge fisheries in the Philippine Islands.
No. 2585. An act directing that the provincial boards shall establish and
maintain agricultural nurseries and authorizing the municipal councils to
establish such nurseries wherever the public interest may require it.
No. 2586. An act to amend section 1 of Act No. 2501, hi the sense that the
present vocales of the provincial board, formerly third members, shall be called
"vocales of the provincial board," and that the members appointed by the
Ck)vernor-General shall be elective.
No. 2587. An act to amend Act No. 2159, as amended, entitled "An act to
regulate motor vehicle traffic in the Philippine Islands, to provide for the
registration of motor vehicles and the licensing of operators, and to require
all vehicles on highways to carry lights, and for other purposes," by fixing an
annual registration, and for other purposes.
No. 2588. An act amending section 88 of Act No. 190, entitled "An act provid-
ing a code of procedure in civil actions and special proceedings in the Philip-
pine Islands," as amended by Act No. 1778, by changing the conditions under
which a defendant may be allowed to appeal from a judgment of a justice of
the peace ordering the restitution of possession of any land or building.
No. 2589. An act providing for a gratuity by reason of retirement to oflEicers
and employees of the Philippine government who have rendered satisfactory
service during six continuous years or more, and for other purposes.
No. 2590. An act for the protection of game and fish.
No. 2591. An act amending Act No. 2083, as amended by Acts Nos. 2344 and
2465, by authorizing the investment, temporarily, of part of the gold-standard
fund in stock of the Manila Railroad Co.
No. 2592. An act amending Act No. 2550, by authorizing the investment, tem-
porarily, of the friar lands bonds sinking fund in loans to the Manila Rail-
road Co.
No. 2593. An act amending Act No. 1729, as amended, by authorizing the
investment, temporarily, of the public works bonds sinking fund in loans to the
Manila Railroad Co.
No. 2594. An act amending Act No. 1728, as amended, entitled "An Act to pro-
vide for insurance of the insular, provincial, and municipal governments against
l<^s from damage or destruction of government vessels and craft, government
machinery, and permanent public buildings and government property therein
by earthquake, fire, lightning, flood, typhoon, tornado, hurricane, or cyclone,"
so as \o authorize the temporary investment of the insurance fund in loans to
the Manila Railroad Co.
No. 2595. An act fixing two years as the term for the prescription of the
crime of libel and of a civil action arising therefrom.
No. 2596. The infant industry act.
No. 2597. An act amending section 23 of Act No. 2169, entitled "An act to
provide for the reorganization, government, and inspection of the municipal
police of the municipalities or Provinces and subprovinces, organized under Act
No. ^," so as to authorize the equipment of the municipal police with revolvers.
Digitized by VjOOQIC
18 BEPOBT OF THE PHILIPPINE COMMISSION.
No. 2598. An act establishing a coconut-products board to encourage the
improvement of coconut products, and for other purposes.
No. 2599. An act to authorize the provincial boards of the Provinces of
Palawan, Mindoro, and Batanes to extend the time for the payment, without
penalty, of the taxes in their respective Provinces.
No. 2600. An act prescribing the qualifications of the electors of municipal
officers In the Provinces of Batanes, Mindoro, and Palawan, and for other
purposes. >
No. 2601. An act to tax inheritances, legacies, and other acquisitions mortis
causa.
No. 2602. An act to amend sections 1, 5, and 6 of Act No. 2462, entitled "An
act providing new regulations for the examination of dentists and the practice
of dentistry in the Philippine Islands, and for other purposes."
No. 2603. An act authorizing the Governor Genernl to desismate rV-^noUorj^s
of the Philippine government in the United States as branches of the Philip-
pine treasury.
No. 2604. An act for the protection of marine nioMTisf*'^.
No. 2605. An act providing for the creation in t^.e Thilippine IsUmds of an
academy for officers for the Philippine ConstabuJnry.
No. 2606. An act to amend paragraph 7 of so^tion H of Xff Xn. loS2 kno-vn
as the election law, as amended by paragraph 2 of section 3 of Act No. Z0\^
and by section 1 of Act No. 2498.
No. 2607. An act authorizing and directins: V^(' cjo^T^rfo^y of ^rar^o i^T
justice and the insular treasurer, with the approval of the Governor-Genen.l,
to provide funds for the stimulatioh and aid of n.!i*ioTi!fnre.
No. 2608. An act to amend section 9 of Act No. 11-IS, kno^vn as t>.e forest
act, by authorizing *the director of forestry to i^j^no. nA:^r7>ut<;; for the use of
forest lands as sites for sawmills, the construction of hotels, sanitoria, resi-
dences, camps, fishponds, pastures, or other lawful uses.
No. 2609. An act to penalize the theft and destruction of coconuts, and to
establish the penalties to be Imposed In each case.
No. 2610. An act making additional appropriations for general expenses of
the judiciary for the fiscal year ended December 31, 1915.
No. 2611. An act making additional appropriations for sundry expenses of
the Insular government for the fiscal year ended Do(!ember 31, 1915, and other
periods herein specified.
No. 2612. An act creating the Philippine National Bank.
No. 2613. An act to improve the methods of production and the quality of
tobacco In the Philippines and to develop the export trade therein.
No. 2614. An act to amend Act No. 2507, entitled "An act providing for a
board of marine examiners for the examination and llcenlng of watch officers
and engineers on Philippine vessels In the coastwise trade and for the high seas,
license fees, compensation, and penalties. In certain cases, and repealing certain
acts relating thereto."
No. 2615. An act providing for the Issue of bonds of the government of the
Philippine Islands in such amount as may be authorized by the Congress of
the United States before the next session of the Philippine Legislature, for the
purpose of acquiring funds for public expenditures.
No. 2616. An act on salvage and rendering of assistance to vessels and
cargoes.
No., 2617. An act to amend sections 67 and 71 of Act No. 136, as amended,
and section 5 of Act No. 1450, as amended, by providing for the salaries and
duties of the justices of the peace of the capitals of Mindoro, Palawan, and
Batanes, limiting the jurisdiction of the ex-officlo justices of said Provinces,
and for other purposes.
No. 2618. An act to convert the townships of the Province of Uocos Sur and
the sub-Province of Abra into municipalities, and for other purposes.
No. 2619. An act granting a franchise to Charles W. Carson to construct,
maintain, and operate telephone and telegraph systems, and to carry on other
electrical transmission business In and between the Provinces of Occidental
Negros and Oriental Negros and the municipalities thereof.
No. 2620. An act amending Act No. 2475, entitled "An act granting to
Julian M. Locsin Anson a franchise to install, operate, and ' maintain an
electric light, heat, and power system in the municipality of Albay, including
its two districts, Daraga and Legaspi, in the Province of Albay, Philippine
Islands," by extending the time limits specified therein.
Digitized by VjOOQIC
HEPOBT OF THE PHIUFPINB COMMISSION. 19
No. 2621. An act to amend Act No. 2474, granting to the sodedad an6ninia
known as Malolos Electric Light, Power & Ice Plant CJo., a franchise to install,
operate, and maintain an electric light, heat, and power system in the mu-
nicipality of Malolos, Province of Bulacan, Philippine Islands ; by extending
the time for depositing the second installment in the insular treasury^ and for
other purposes.
No. 2622. An act to amend Act No. 2889, known as the internal-revenue law
of 1914, as amended by Act No. 2541.
No. 2623. An act appropriating ^'lO.OOO for the establishment and main-
tenance of a conservatory of music. •
No. 2624. An act appropriating such sum or sums as may be necessary, in
money of the United States, for the payment of interest as it may become due
upon the bonds authorized to be issued by Act No. 2615.
No. 2625. An act making appropriation for the creation of a sinking fund
for the purpose of retiring at maturity or sooner if desirable the bonds au-
thorized to be issued by Act No. 2615.
No. 2626. An act amending section 24 of Act No. 1698, so as to provide an
allowance of vacation leave to messengers, deputy provincial and municipal
treasurers, deputy provincial and township treasurers, and telegraph operators
under certain conditions.
No. 2627. An act providing for the suspension of any order of ejection against
delinquent taxpayers in the Province of Albay resulting from delinquency in
the payment of land tax due.
No. 2628. An act creating a Philippine Red Cross, designating its powers and
duties, and for other purposes.
No. 2629. An act conferring certain powers upon the director of educatloh
for the purpose of stimulating and encouraging the manufacture of handicraft
products In the Philippine Islands, and providing for the establishment of
provincial industrial departments to cooperate with the bureau of education,
and for other purposes.
No. 2630. An act authorizing the Marine Trading CJo. (Inc.) to bring suit
against the government of the Philippine Islands to recover damages, if any,
alleged to have arisen from the collision of its launch with a scow towed by a
launch belonging to the government of the Philippine Islands.
No. 2631. An act authorizing the provincial board of Capiz to expend a certain
sum for the establishment of a hospital in the sub-Province of Romblon.
No. 2633. An act appropriating the sum of ?1,000,000 for certain work in
relation to the protection of early infancy in the Philippine Islands, including
the establishment of Gotas de Leche.
No. 2684. An act authorizing the reimbursement to municipalities of customs
duties paid on material used in the construction of municipal waterworks and
sewer systems.
No. 2635. An act authorizing the Governor-General to reserve for public
purposes land belonging to the private domain of the government.
No. 2636. An act amending section 1 of Act No. 648, entitled "An act author-
izing the civil governor to reserve for civil public purposes, and from sale or
settlement, any part of the public domain not appropriated by law for special
public purposes, until otherwise directed by law, and extending the provisions
of Act No. 627 so that public lands desired to be reserved by the Insular gov-
ernment for public uses, or private lands desired to be purchased by the
insular government for such uses, may be brought under the operation of the
land-registration act," by authorizing the Governor-General to revoke a previous
executive order reserving public land or amend the same by changing the
purpose of the reservation by means of another executive order.
No. 2637. An act appropriating the sum of nO,000 for a Philippine exhibit
at the Talpeh, Formosa, exhibition.
No. 2638. An act appropriating the sum of ?61,000 for distribution among
the municipalities In which the land tax for the fiscal year 1916 may be re-
mitted on account of damage caused by t3i)hoons.
No. 2639. An act to amend Act No. 2159, entitled "An act to regulate motor-
vehicle traffic in the Philippine Islands, to provide for the registration of motX)r
vehicles, and the licensing of operators, and to require all vehicles on highways
to carry lights, and for other purposes," as amended, by regulating the use
of headlights on motor vehicles, and for other purposes.
No. 2640. An act to amend sections 256 and 569 of Act No. 190, known as the
code of procedure in civil actions and special proceedings In the Philippine
Islands.
Digitized by VjOOQIC
20 REPORT OF THE PHILIPPINE COMMISSION.
No. 2641. An act authorizing provincial and municipal governments to make
appropriations from their general funds to defray the expenses of local fairs,
or to send exhibits to any other provincial fair in the Philippine Islands.
No. 2642. An act amending Act No. 1120, as amended, and for other purposes.
No. 2643. An act granting Ramon Fernandez, a citizen of the Philippine
Islands and resident of the city of Manila, and his successors and assigns, a
franchise to establish, construct, equip, maintain, and operate a railroad in
the Province of Occidental Negros, Philippine Islands.
No. 2644. An act granting to Eusebio Diaz Cacitas a franchise to install,
operate, and maintain an electric light, Ifeat, and power system in the munici-
pality of Tabaco, In the Province of Albay, Philippine Islands.
No. 2645. An act amending section 618 of Act No. 190, entitled "An act pro-
viding a code of procedure in civil actions and special proceedings In the
Philippine Islands," prescribing additional requirements In the execution of
wills.
No. 2646. An act empowering the Governor-General to extend the time for
the payment of the land tax without penalty In any Province or municipality
which had been devastated by the recent typhoons.
No. 2647. An act granting to Mariano Abella e Isaac a franchise to Install,
operate, and maintain an electric light, heat, and power system In the munici-
pality of Naga, Province of Ambos Camarlnes, Philippine Islands. '
No. 2648. An act amending subsections (g) and (h) of section 184 and sec-
tion 192 of Act No. 2427, entitled "An act revising the Insurance laws and
regulating Insurance business In the Philippine Islands."
No. 2649. An act appropriating W0,000 for the reforestation of uncultivated
public lands.
No. 2650. An act authorizing the Investment of the Immunized cattle Insur-
ance fund, established by Act No. 2548.
No. 2651. An act appropriating funds for the Immunization of cattle and
carabaos by virtue of the provisions of Act No. 2548.
No. 2652. An act amending Act No. 2152, entitled "An act to provide a system
for the appropriation of public waters, and for the determining of existing
rights thereto; for the public registration of all water rights; for the crea-
tion and use of water power ; for investigations for and the construction, main-
tenance, and operation of Irrigation systems by the government of the Philip-
pine Islands ; for the repayment of money expended therefor ; for the construc-
tion, maintenance, and operation of Irrigation systems by private persons; for
the Inspection and regulation of all works pertaining to the use of water ; and
providing penalties for Its violation, and for other purposes," and prescribing
the conditions under which a loan may be obtained from reimbursable funds of
the government, and for other purposes.
No. 2653. An act to amend subsection (d) of section 7 and section 12 of
Act No. 2238, entitled "An act to provide for the revision and correction of
land-tax assessments, the valuation of newly declared real property for the
purposes of taxation, and for other purposes," as amended.
No. 2654. An act granting to Alfredo Pardo de Tavera a franchise to Install,
operate, and maintain an electric light, heat, and power system In the munici-
palities of San Fernando and Bacolor, Province of Pampanga, Philippine
Islands.
No. 2655. An act fixing rates of interest upon loans and declaring the effect of
receiving or taking usurious rates, and for other purposes.
No. 2656. An act making the penalties for delinquency In the payment of
the personal cedula tax less onerous to the taxpayer, and providing for the
manner In which a current cedula may be paid at the same time as cedulas
for former years.
No. 2657. An act constituting an Administrative Code.
Digitized by VjOOQIC
REPORT OF THE GOTERNOR GENERAL.
JANUARY 1, 1915, TO DECEMBER 31, 1915.
Manila, July J, 1916.
Gentlemen : From April 15 to June 19, 1915, the undersigned was
absent from the Philippines on vacation in China, Japan, and Korea,
during which period Vice Gov. Henderson S. Martin acted as Gov-
ernor General.
The partial reorganization of the government effected in the last
quarter of 1913 and early in 1914 t)roduced most gratifying results,
both in legislation and administration. As a result, all symptoms
of former troubles between the two houses of the Legislature have
entirely disappeared and the deliberations of the two chambers are
uniformly attended with mutual . confidence and good will. The
quality of the legislation which results is generally of a very high
order, and will be mentioned in some detail in the report of the
Philippine Ccwnmission. Every effort has been made to increase the
efficiency of the government and at the same time to emphasize the
need of economy m the expenditure of public funds. It is a pleasure
to be able to comment upon the general absence in the Legislature of
anything like logrolling, or any attempt to place personal political
considerations above the public welfare. This is especially com-
mendable, because during the 1915-16 session the legislators were
for the most part facing a general election for the next four-year
term. Nor, even in the political tension, always to be expected in
the months before an election, were there any charges of public
wrongdoing preferred against any member of the Legislature.
It is noticeable that the greater part of the legislative sessions was
devoted to considerations of financial reform and economic develop-
ment of the islands. While many of the features of existing legisla-
tion which it is desired to correct and improve are not yet within the
constitutional power of, the Philippine Legislature, being reserved
to Congress under the organic act, economic and financial reforms
were effected during 1915 which are destined to assist greatly the
development of the islands along proper lines. The public finances
naturally occupied the place of first importance in these plans. In
my last annual report I dwelt on the dangerous condition of the
Philippine treasury in recent years, during which, since 1910, an
annual excess of expenditures over insular income had varied from
^,000,000 to ^,500,000 in 1913. This was brought down to ^,800,-
000 in 1914, at a time when the treasurj^ had incurred an additional
loss of about ^,000,000 from the abolition of the export tax by the
Underwood tariff bill of October 4, 1913, and, moreover," a great fall-
ing off of customs revenues during the first five months of the Euro-
pean war, when a partial paralysis of our commerce occurred. In
Digitized by CjOOQIC
22 REPOBT OF THE PHILIPPINE COMMISSION.
December, 1914, the Legislature imposed additional internal-revenue
taxes as an emergency war measure for the year 1915. The calcula-
tion of the collector of internal revenue that these new or increased
taxes would produce additional revenue for the insular government
of about ^4,500,000 was exactly justified* In December, 1915, the
Legislature renewed and extended these taxes for another two years,
modifying slightly some of the rates of the 1914 emergency law to
avoid hardship in the incidence. It is noticeable that in imposing
these new taxes the Philippine Legislature followed correct princi-
ples in levying upon luxuries, amusements, and upon commerce, so
that those best able should bear the necessary burdens. Comment is
made of this feature in view of the frequent statements made by
critics of self-government among oriental or tropical peoples that
the incidence of taxation is always laid directly upon the poor or
upon the necessaries of life.
Owing to these increased taxes and to an improvement of ^1,174,-
828 in the customs revenue over 1914 and as a result, particularly, of
the economies prescribed by the 'Legislature, and so faithfully put
into practice by administrative officials during 1914 and 1915, the
fiscal operations of the Philippine government for the year 1915
resulted in a surplus of ^1,116,387.75, as compared with a deficit of
P2,841,118.81 for the year 1914, or an increase of f=3,957,506.56 in
favor of the year 1915, thus putting to an end the recurring annual
deficits which have occurred every year since 1910, the operating de-
ficits from 1911 to 1914, inclusive, aggregating the sum of ^13,688,-
780.95. That this has been done without impairment of efficiency
and without the cessation of really useful public activities will be
admitted by any unprejudiced student of the work accomplished by
the departments and bureaus during 1914 and 1915, outlined in the
accompanying reports of secretaries of departments. It is unneces-
sary to emphasize the difficulties inherent in carrying out such plans
for economy, and great credit is due to the bureau chiefs as well as
to the Legislature for this successful consimimation.
The gross revenue of the insular government for the year was
1^=26,960,697.31, as compared with ^1,100,103.64 of the prior year,
an increase of ^5,860,593.67. The principal increasefe were from im-
port duties, excise tax, and license and business tax, the latter show-
ing an increase of ^3,072,780.19.
The expenditures for the year amounted to 1^25,844,309.56 as com-
pared with ¥=23,941,222.48 of the prior year, an increase of 1^1,903,-
087.11. The total general expense of the government increased
^374,637.66 over that for the year preceding, namely, n6,366,641.80
for the- year 1915 as compared with ^15,992,004.14 for the prior
year. The expenses of general administration, protective service,
and social improvement show a total reduction of f=224,017.30 ;
whereas the expense of economic development increased ^598,654.96,
netting an increase of ^74,637.66 as above stated.
There was an increase of ^50,525.12 in fixed charges due to an
increase of ^62,949.88 paid on account of railroad companies as in-
terest on their bonds under guaranty contracts, the total of the other
items of fixed charges showing a decrease of ^12,424.76.
The financial aid given to local governments amounted to ^,799,-
547.52 as compared with ^5,358,467.23 for the year 1914, an increase
Digitized by VjOOQIC
BEPORT OF THE GOVEBNOR GENERAL. 23
of ^,441,180.29, of which the larger share went to the Department
of Mindanao and Sulu; the Mountain Province and other geo-
graphical units containing large numbers of the so-called non-
hristian peoples also benefited to a large extent by increased in-
sular aid.
There were increased expenditures from appropriations for public
works and improvements notwithstanding the fact that the purely
insular outlays for the year were 1^1,707,986 as compared with
^,644,667.78 for the year 1914, due to the fact that increased allot-
ments were made to aid local governments in public works projects,
mostly roads, bridges, schoolhouses, and waterworks.
The government^ current surplus at the end of the year was 1P10,-
234,116.77, of which f=5,006,789.96 was appropriated and available
for the purposes for which appropriated, and ^5,227,326.81 was
free surplus available for appropriation by the Legislature. The un-
appropriated current surplus is larger than it has been since the close
of the fiscal year ending June 30, 1907.
The unceasing eflforts to place the insular treasury on a stable
basis were shared both by Americans and Filipinos in the service,
but the Philippine government can hardly be expected to be on a
thoroughly satisfactory financial basis and accommodate the increas-
ing popular demand for education and other necessary public im-
provements until Congress shall grant this Legislature additional '
powers over Philippine finances.
The administrative machinery of the government has been in
smooth and successful operation during 1915 and the personnel has
worked harmoniously and with spirit. The old antagonism between
American and Filipino officials and employees has almost disap-
peared, and throughout the islands a better feeling between Ameri-
cans and Filipinos is most apparent. Investigation will show that
practically every case of complaint regarding reduction of expendi-
tures has originated with a former official or employee whose services
have been dispensed with because the duties of the position could be
as efficiently performed by a lower though properly paid employee.
It is the fashion for many critics of the races which dwell in the
Tropics to generalize about the inhabitants of these regions, and
to deny them the capacity in government affairs with which more
northern races are endowed. In the case of such of these critics as
are foreigners, their observations are usually based upon a condition
of affairs in countries or colonies where the tropical peoples are
denied all real participation in the affairs of state. The capacity
of the people is unknown because it has never been tried. In the
Philippines, however, the avowed American policy has always been
to give the inhabitants of the islands an increasing control of their
own public affairs to qualify them for complete self-government and
ultimate independence. This policy was dictated by American
ideals and constitutional requirements, and is amply justified in
each succeeding concession of self-government to the Filipinos. The
people of these islands are as a whole far in advance of the people
of surrounding tropical countries, as might be expected from the
only Christian oriental race, a privilege which has incidentally given
the Filipinos a western or European outlook upon many or the
features of modem life. The rapid spread of modem education
throughout the islands has also been a most important factor.
61983—16 3 Digitized by GoOglc
24 REPORT OF THE PHILIPPINE COMMISSION.
Visitors to the islands, therefore, who come imbued with ideas
of colonial government as practiced by European countries in the
Tropics, are obliged to rearrange all their preconceived prejudices
if they wish to make an intelligent study of the Filipino people.
It is unfortunately true, moreover, that many Americans who have
never had an opportunity of visiting the Philippines personally
have acquired a notion that these islands are inhabited only by
savage tribes of head-hunters, with little conception of the fact that
only one-eighth of the population is non-Christian, and that even
among these less advanced peoples of the remote mountain districts
head-hunting has now ceased and elementary education has been
introduced, following the opening of a network of roads and trails.
This frequently erroneous conception of the Philippine peoples is
largely due to a pernicious campaign carried on throughout the
United States by persons who for profit or improper political mo-
tives represent the Filipinos as savage races, leaving out of account
entirely the seven-eighths of civilized Christian peoples.
But every year now it becomes less and less necessary to theorize
about the capacity and endowments of the Filipinos. To one who
will take the trouble to make his own observations ample opportunity
is afforded for accurate judgment from the actual state of Filipiniza-
tion in the government service to-day.
There are now 44 Provinces in the Philippine Islands, of which all
but 7 are under Filipino control, for the most part with elective
officials. In these 44 Provinces and 13 sub-Provinces there are 173
Filipino and 36 American officials, of which latter number 14 are
provincial treasurers and no longer members of the provincial boards.
Exclusive of the cities of Manila and Baguio there are 756 munici-
palities and 83 townships in the islands, governed entirely by Filipino
officials, of which there are 13,138. There are, however, 89 American
justices of the peace or notaries public, who, of course, have no admin-
istrative functions or powers. The Filipino municipal presidents and
councils are chiefly elective officers. Of these 13,138 Filipino munici-
pal officials, during 1915 only 101 were found guilty of serious mis-
conduct, either upon administrative investigation or in court action,
of which number only 16 convictions were for malversation or
breach of trust, forgery, falsification of public documents, or ex-
tortion.
In the insular government itself the Legislature was as heretofore
composed of an upper house or Commission, which, during the session
of 1914-15, consisted of 4 Americans and 5 Filipinos, and during
1915-16 of 2 Americans and 5 Filipinos, while the lower house or
Assembly consists of 81 members, all Filipinos.
The supreme court is composed of a Filipino chief justice and
4 American and 2 Filipino associate justices. The courts, of first
instance have 14 American and 22 Filipino judges.
Of the four administrative hea^s of department during most of
the year 1915 a Filipino was secretary of finance and justice and
another Filipino acting secretary of commerce and police. A Filipino
also acted as secretary of public instruction during the absence of
the head of that department in the United States for the first few
months of 1915.
Digitized by VjOOQIC
BEPORT OF THE GOVERNOR GENERAL. 25
Of the chiefs of bureaus and offices during 1915, 17 were Americans
and 9 Filipinos. Of the assistant chiefs 13 were Americans and 9
Filipinos.
The report of the director of civil service shows that on July 1,
1915, there were 1,935 Americans and 7,881 Filipinos in the Philip-
pine civil service.
The results of the operation of this organization, which is in a
stage of gradual transition from a government of Americans assisted
by Filipmos to a government of Filipinos aided by Americans, are
set forth in the annual reports herewith. It should thus be possible
for one who wishes to form a fair judgment of Filipino capacity for
government work to base it upon actual facts rather than upon preju-
dice or political exigency.
PEKSONNEL.
Two changes occurred in the membership of the Philippine Com-
mission : Hon. Clinton L. Kiggs left for the United States April 5,
after a serious operation, and resigned on October 31 ; during his ab-
ence and for the balance of the year Hon. Jaime C. de Veyra per-
formed the duties of acting secretary of commerce and police. On
September 28 Hon. Winfred T. Denison left for home on account of
ill health, and resided March 3, 1916, his health not being sufficiently
improved to permit of his return to the Philippines. During his
absence the undersigned acted as secretary of the interior.
Two deaths occurred among the higher officials of the government.
J. Lindsey Johnson, the assistant director of the census, so widely
liked and respected in this community, died in Manila, July 27, 1915,
and Thomas I. Mair, colonel of constabulary, after 15 years of faith-
ful and valuable service in that organization, lost his life in a fire in
Iloilo, July 30, 1915.
Other changes in the personnel of the government were chiefly of a
routine nature. Executive Secretary Villamor was elected president
of the University of the Philippines, vice Murray Bartlett, resigned<
on June 6, 1915, and during the remainder of the year Fir:st Assistant
Executive Secretary Samuel Ferguson was acting executive secre-
tary. William A. Randall resigned as special agent of the executive
bureau, his post, the last of the special agencies, having been abol-
ished by the Legislature as of Jime 30. Catalino Lavadia was ap-
pointed fourth assistant executive secretary, a vacancy having been
created by the appointment of Assistant Executive Secretary Eobert
M. Shearer to be director of the bureau of posts, vice William T.
Nolting, who resigned to accept a business position in South America.
On June 5 E. G. Shields, for so many years purchasing agent, in
charge of the bureau of supply, left for the United States, where,
upon the expiration of his leave, he was given an extra year's assign-
ment to duty in the New York office of the purchasing agent, his
health having made inadvisable his return to the Philippines. Mills
Dean, the assistant chief, acted as chief of the bureau until October
3, 1915J when he resigned to accept a commercial position in the
United States. From October 3 until the end of the year J. W. B.
Mannion, chief buyer of the bureau, acted as chief.
On January 1, 1915, William E. Cobey, chief clerk of the bureau
of agriculture, was appointed assistant director of the bureau.
Digitized by VjOOQIC
2& BEPOBT OP THE PHIU^PINB COMMISSION.
On March 1, 1915, Dr. J. D. Long, of the United States Public
Health Service, was appointed director of the bureau of health in the
place of Dr. Victor G. Heiser, who resigned to accept the position of
director for the Far East of the international health conunission of
the Kockefeller Foundation.
In the Mountain Province Walter F. Hale, the lieutenant governor
of the sub-Province of Kalinga, resigned, and Lieut. Gov. SanmerE.
Kane of the sub-Province of Lepanto-Amburayan was appointed
lieutenant governor of Kalinga. Deputy Treasurer Jose Martinez
was appointed lieutenant governor of Lepanto-Amburayan, vice
Kane.
Arcadio Arellano resigned May 7 from the municipal board of
the city of Manila to take up the practice of his profession of archi-
tecture, and Fernando Ma. Guerrero was appointed in his place.
During the two absences in the United States of City Engineer
William H. Kobinson his place was filled by Jose P. Katigbak, the
assistant city engineer.
From July to the end of the year Insular Auditor Clifford H.
French was on duty with the San Francisco Philippine exhibit,
and Deputy Auditor John K. Pickering, and, in turn. Chief District
Auditor Dexter acted in his place. On January 1, 1916, Mr. Picker-
ing resigned to become secretary of the newly created efficiency board,
and Mr. Dexter was appointed deputy auditor. At the same time
Mr. Emile G. Abry was appointed chief district auditor.
OPERATIONS OF THE GOVERNMENT FOR 1915.
It is not necessary in this report to discuss in detail all of the
workings of the bureaus and offices for the year 1915, since this is
done in the reports of secretaries of department printed herewith, or
of the bureau chiefs themselves, but for the sake of emphasis on cer-
tain matters the undersigned desires to mention briefly some of the
principal features of the year's administration.
EXECUTIVE BUREAU.
Economy and efficiency marked the work of the executive bureau
during the year ; ^94,089 was saved in salaries and wages and 1P18,-
636 in contingent expenses, following a considerable saving effected
in 1914. On December 31, 1912, there were 39 Americans and 170
Filipinos in the executive bureau, while on December 31, 1915, the
force consisted of 16 Americans and 160 Filipinos.
The trust fimds — i. e., bonds, sinking, and other special fimds —
of the government are loaned to Provinces and municipalities upon
investigation and recommendation by the executive bureau within
certain limits prescribed by law, and it is noteworthy that up to the
present time not a single case of default of payment has been made
by a Province or municipality. The policy of building with insular
loan funds a great number of bridges, schoolhouses, and markets
has been continued during this year. In the case of markets built
with insular loans, the great financial success of the projects ap-
pears from the fact that market receipts throughout the islands,
excepting Mindanao and Sulu, have increased from 1^330,000 in 1910
Digitized by VjOOQIC
REPORT OF THE GOVERNOR GENERAL. 27
to ^800,000 in 1915. The increase in Mindanao and Sulu has been
even greater in percentage.
General supervision of the actions of the provincial boards is still
exercised by the executive secretary, although the provincial treas-
urers, formerly recognized as the representatives of the executive
office, are no longer members of the provincial boards, pursuant to
legislative Act No. 2501 of February 5, 1915. This act relieved the
provincial treasurer of all political duties by substituting for him
an elective member, so that the entire provincial board of three mem-
bers is now elected by the people, a very proper extension of popular
representation in the provmcial government. The provincial treas-
urer, however, still occupies a somewhat anomalous position, in that
as a treasurer he is responsible to the executive bureau, while as a
collector of internal revenue he is answerable to the bureau of internal
revenue. This dual control is not conducive to good administration,
and legislative attention should be directed to a solution of the
difficulty.
BUREAU OF CIVIL SERVICK
The report of this bureau is printed and available at the Bureau
of Insular Affairs in Washington, as well as in the Philippines.
Nine thousand five hundred and ninety-seven persons took the
civil-service examinations in the Philippines during 1915, the largest
number in the history- of the service. This was no doubt due to the
large number of graduates from the schools of the Philippines who
seek employment with the government. It is thus less and less
necessary to send to the United States each year for purely clerical
employees, and, in fact, that practice has been almost completely
abandoned during the past two years, a fact which largely explains
the decrease in the total number of American employees in the
classified service. While in 1914 and 1915 the number of Americans
leaving the service has been substantially normal, taking the average
since the civil-service records have been kept, their places have been
filled by promotions in the service and from the local civil-service
lists, instead of importing, as formerly, large numbers of employees
from the United States, inexperienced not only in the work of
government here, but as well entirely lacking familiarity with the
conditions of life and even without knowledge of the Spanish lan-
guage, which is still frequently essential. Even technical and semi-
technical employees may now be obtained from the civil-service
examinations in the islands.
Another reason for the increase in the number of candidates for
admission to the classified list was tjie memorandum order of the
Governor General of July 9, 1915, directing all non-eligibles tem-
porarily employed to take the civil-service examinations before the
end of the year. This order was issued upon the advice of the
director of civil service, and was intended to strengthen the civil-
service lists and to reduce the large number of temporary employ-
ments which so greatly increase the cost of administration and4)rove
an uncertain factor in the annual appropriations.
So large is the increase of eligibles in the higher grades that it
may he advisable in the near" future to discontinue the third-grade
examinations. As a rule, competition is always sought in the civil-
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28 BEPORT OF THE PHILIPPINE COMMISSION.
service examinations, and noncompetitive examinations are avoided
wherever possible as inconsistent with the spirit of the law. Promo-
tion examinations should be still more extended throughout the
service, for, although these to a certain extent interfere with the
personal initiative of the bureau chief, all suggestions of favoritism
are thereby avoided.
As a result of the examinations, there were 842 new appointments
in 1915, of which 39 were Americans, as against 772 in 1914 (with 44
Americans) and 1,021 in 1913 (with 117 Americans). One hundred
and seven persons were brought from the United States during the
year, as compared with 94 in 1914, 201 in 1913, and 317 in 1912; 91
of thdse brought from the United States during 1915 were for
the classified service, of whom 69 were teachers, and 16 for the
unclassified service, of whom 12 were constabulary officers,. 1 as-
sistant architect, and 3 instructors for the university. Only 2
clerical employees were brought from the United States.
During 1915, 357 of the Americans in the classified list left the
service, considerably less than the average for the past 15 years; of
these 322 voluntarily resigned, 14 were separated by reduction of
jforce or abolition oi position, 17 were separated for cause, and 4
died. The net number of Americans in the regular service was
thus reduced 213 during the year.
As before stated, on July 1, 1915, upon which date the official
roster was printed, there were 1,935 Americans in the Philippine civil
service, and 7,881 Filipinos. The budget for American salaries
was ^,156,580, and for the Filipinos f^ ,787 ,740, making the aver-
age American salary ^3,698.49, and the average Filipino salary
f%88.17, in both cases the highest average in the history of the
service. On December 31, 1915, the director estimates that there
were 1,836 Americans in the classified service, of whom 555 are
teachers, 213 constabulary officers; 219 patrolmen, firemen, and prison
guards; 112 civil engineers, surveyors, draftsmen, and computers;
68 medical, scientific, and technical men; and, finally, 669 in the
other branches of the service, such as chiefs and assistant chiefs of
bureaus, or chiefs of divisions, and in the judiciary. At the end of
the year there were also about 300 Americans in the temporary or
unclassified service, of whom 59 were teachers, 110 civil engineers,
technical men, or otherwise, employed chiefly in outdoor work.
The civil-service retirement act passed by the Legislature in Feb-
ruary of 1916 should perhaps more appropriately be discussed in
the report for the year 1916, but some brief mention of it may not be
out of place here. For years the question of a civil pension or retire-
ment act had been under discussion, but had recently become a ques-
tion of more vital interest, diie to the pendency in Congress of the
Philippine bill during the winters of 1914, 1915, and 1916. It was
thought desirable by the Legislature to quiet the uneasiness in the
service by the passage of what is now known as the retirement act
of 1916. It should be clearly understood that the applications for
retirement under this law are purely and entirely voluntary, and in
a large proportion of the cases can not be immediately granted
without detriment to the service. In accordance with the terms of
the act applications for its benefits must be made before July 1, 1916,
and retirements will be granted when the exigencies of the service
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BEPOBT OF THE GOVEENOE GENERAL. 29
will permit. The benefits of the law are, for those who have served
10 years, one full year's salary, one-third to be paid each year in
equal monthly installments, in addition to any accrued leave or other
privileges to which the applicant is entitled under the law. Six years'
continuous service is the minimum required for a retirement pension,
and the amount of the gratuity allowed increases from 60 per cent
of 1 y^ear's salary at the rate received at time of retirement for 6
years service to one full year's salary for, service of 10 years or
longer, thus providing an incentive to those who have had less than
10 years in the service to remain here longer. Acceptance of the ap-
plication is made discretionary with the Governor General. The
salary list of the Philippine government, due to the necessity of
providing in the first instance for a scale of salaries sufficient to tempt
Americans to enter the Philippine service, has always been recog-
nized as being far too large for the revenues of the Philippine treas-
ury. The retirement act, therefore, in order not to increase the cost
of personnel, provides that upon acceptance of an application for
retirement, except in the judiciary, the position thus vacated is con-
sidered abolished, unless, upon recommendatiton of the emergency
board, the Governor General shall continue the position in existence,
in which case the new occupant of the position vacated shall receive
only two-thirds of the salary upon which retirement was granted.
The terms of the proposed law were submitted to the bureau chiefs
before presentation to the Legislature, and received their unanimous
support and approval, and were amended in several particulars sug-
gested by the bureau chiefs in their meeting.
From the beginning of the establishment of the American adminis-
tration here the Filipinization of the service has been the uniform
policy. In many of the bureaus, however, this Filipinization has in
the past taken place only in the lowest grades, and the opportunity
for really responsible government work can not be afforded the Fili-
pinos while all of the higher offices in the bureaus are held by Ameri-
cans. That many of the Filipinos who have served for years in the
lower grades should now be given an opportunity to enter upon
higher responsibilities is generally conceded. A just and fair method
of meeting this situation is by granting to the American employee a
retirement gratuity in recognition of his long and faithful service to
the government, this retirement depending entirely upon his own
volition, in the act specified.
The only other legislation affecting the civil service was the grant-
ing of 15 davs' vacation leave to messengers in the classified service
and of 21 days to municipal treasurers and telegraph operators.
These are all regular civil-service employees, who receive very low
salaries, devote their whole time to the government service, and are
often stationed away from their homes. It was thought that they
were entitled to a reasonable amount of vacation leave annually to
cover necessary absences on account of sickness or to visit their
homes, ^a consideration which has been extended to practically all
other officers and employees since the establishment of the civil
service.
A general inquiry is under way by the emergency board, which
was constituted also as an efficiency board by Act No. 2540 at the last
session of the Legislature, for the purpose of ascertaining the effi-
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30 EEPO^T OF THE PHILIPPINE COMMISSION.
ciency of tiie present organization of personnel of the government
throughout the bureaus and offices, and Mr. John K. Pickering re-
signed as deputy auditor to accept appointment as secretary of this
board.
The recommendation of the director of civil service is concurred in
to the effect that some central authority should be intrusted with the
granting of promotions in the civil service. At present this is in
the power of the four chiefs of department and the Governor General,
each for those bureaus in his respective department, and a general
policy on the subject is difficult to enforce. Under the present sys-
tem there is no check or limit upon the salary which may be paid any
individual, except the amount appropriated by the Legislature. The
salary is thus apt to be designed to fit the man rather than the office,
and members of the civil service, either in person or through their
bureau chiefs, are tempted to apply to the Legislature each year for
an increase in salary. The subject is one of very great importance,
owing to the enormous total of the salary list of the government and
its utter disproportion to the total revenues. As the personnel be-
comes more and more completely Filipinized permanent residents of
the Philippines take the places of Americans whose terms of service
have been generally recognized as temporary. If those permanent resi-
dents are to spend the greater part of their lives in this service and
demand annual increases of salary, the result can be imagined. There
is no disposition on any side to curtail just and deserving increases
in salary, and yet the present system accommodates salary raises in
many cases every year or more frequently at a rate which is unknown
in any other civil service, and which places an increasing and almost
intolerable burden on the treasury. A Philippine salary act is much
needed which shall prescribe the exact salary for each position or
each class of positions, whoeVer may for the tme being be the occu-
pant of any given office. Promotions from grade to grade should also
be regulated by some fixed principle, so far as the requirements of the
service permit. This will relieve the Legislature, the chiefs of depart-
ments, and the bureau chiefs from a great deal of official worry and
personal pressure, and will remove an incentive to restlessness and
dissatisfaction among the employees. In August, 1914, upon the out-
break of the European war, the undersigned issued a memorandum
order restricting promotions and the filling of vacancies during that
period of alarming decrease in our customs revenues, but in January,
1915, the crisis having somewhat relaxed, the order was modified
and more liberally interpreted. At the same time it is only by a sur-
render of their prerogatives by the four secretaries of department
that one central authority can dictate a general policy on this sub-
ject, and so during the latter months of 1915, when the need for
economy became once more apparent, the department he^^ds in-
formally agreed upon a policy of restriction of salary increases for
the time being. The Legislature also endeavored to control the mat-
ter by adopting ^ rule of increasing the salary of a position only
when the salary of the individual concerned had not been increased
during the preceding four years. This, of course, does not affect the
promotion of an employee to a higher salary in a higher post, a pro-
ceeding which is going on constantly in the service.
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REPOBT OF THE GOVEENOB , GENERAL. 31
In the opinion of the undersigned, special-case promotions should
be forbidden by law or greatly restricted, while salary increases and
promotions generally should be under the active supervision of the
director of civil service pending the passage of a general salary act
for the whole government.
BOARD OF PUBLIC UTILITY COMMISSIONEBS.
Decisions and orders were issued by the board during the year in
312 oases. This includes 37 cases dismissed. Two cases were dis-
posed of informally.
During the year the shipowners of the Philippines made frequent
informal ajjphcations for permission to raise rates, and since the ab-
normally high freight rates prevailing on the China coast tempted
several of the vessels theretofore engaged in Philippine interisland
shipping to leave this service the subject was one of vital importance ^
to the Philippines. The board of public utility conmiissioners, while |
not expressmg any opinion adverse to a possible raise in shipping j
rates, required of the shippers the filing of a statement of operation |
accounts and income upon which a decision might be based as to the |
justice of a raise of rates. This was refused by several of the more
miportant shipowners, and finally the supreme court decided that
the board had no jurisdiction to make such a requirement. Early in
1916 a raise in rates was granted, many of the shipowners having
voluntarily filed with the board the necessary statements. It is clear,
however, that the transfer of the several vessels mentioned to the
foreign trade would have taken place in any event.
The railroad situation in the Philippines occupied a great part
of the attention of the board. Fifty-one and nine-tenths kilometers
of new line was placed in operation on the Manila South lines during
1915, track was laid in 32.8 kilometers, and grading was finished in
34.5 kilometers additional. There remain 318 kilometers to be copi-
pleted by the lines covered by the existing franchise to the Manila
Railroad Co.
The government has paid out in guaranteed interest on the Manila
Railroad 4 per cent bonds up to the present time the sum of 1P19,460
m 1910 and ^51,636 in 1914. In 1915 ^82,900 was thus paid out by
the government, subject, however, to subsequent adjustment and pos-
sible reduction. Three factors combined to make the year an unsatis-
factory one in the accounts of the Manila Railroad Co.: First, the
disastrous drought which reduced the rice crop in central Luzon,
from which freight receipts are so largely produced ; second, the in-
creasing autobus or "jitney" competition for passenger traffic on
automobile roads ; and third, the transitory period of railroad build-
ing, during which the unconnected newly constructed sections of the
line, such as that in Albay and Ambos Camarines. are not self-sup-
porting as separate links, though full of promise for the future when
through traffic shall be established. At the time of writing this
report through traffic is open to Hondagua, the Pacific terminal of
the Manila South lines, but there still remains to be constructed the
section over the more mountainous route between Hondagua and
Albay.
The Philippine government was required to pay ^430,241, the
amount which the Philippine Railway Co.'s lines in Panay apd Cehu
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32 BEPOBT OP THE PHILIPPINE COMMISSION.
ran short of their bonded interest during 1915. This brought the
total so paid by the Philippine government to 1^3,945,101. The earn-
ings of the Panay Railroad are showing an increase from year to
year, but it is clear that the expensive Syle of construction of the
lines both in Panay and in Cebu is totally unsuited to the traffic to be
expected and the country to be served, and constitutes now and prob-
ably for many years to come a heavy burden upon the Philippine
treasury.
The relation of the government to the Manila Railroad Co. has
caused increasing anxiety to government officials during recent years.
The European war seriously restricted the credit facilities of the con-
struction company in Great Britain, and this government has been
obliged by the act of the Legislature of December 8, 1911, to advance
by way of loans from its trust funds larger and larger sums for rail-
road construction at times when the money was badly needed here
for other public improvements. Moreover, the obligations of the
government under its guarantee of the 4 per cent bonds were in-
creased by the method of acquisition of right of way in an unsound
maimer under a railroad directorate which for all practical purposes
under the government guarantee of interest had the right of appro-
f)riation of the public funds of the Philippine treasury. After a
ong controversy the government was put to great trouble to secure
such a change in the method of acquisition of the remaining right
of way as would prevent further S)eculation. Owing to its large
investment in this railroad by loans, already aggregating 1^5,637,000,
the question presented itself whether the government should not con-
sent to the purchase of the stock of the Manila Railroad Co. and
exercise that opportunity to buy back for the Philippine Islands the
perpetual franchise which had so unwiselv been granted to this com-
pany, a franchise which gives to it practically a perpetual monopoly of
land transportation on the Island of Luzon. The feeling was, more-
over, very strong in the Legislature and among government officials
that the people of the Philippines should control and own this trans-
portation monopoly and operate it for the benefit of the people rather
than principally for the profit of distant stockholders. An oppor-
tunity to take this step was afforded during the summer and autumn
of 1915 when a representative of the stockholders of the Manila Rail-
road Co. was sent to Manila to discuss with the Governor General
the purchase by the government of the capital stock of this company.
On December 18, 1915, a contract for the purchase of this stock was^
signed by the Governor General and by Mr. Higgins, who represented*
both the railroad companj and the English construction company.
A copy of this contract is printed as an appendix to this report.
It was by its terms subject to ratification by the Philippine Legisla-
ture and by the trustees for the bondholders of the railroad company.
On February 4, 1916, the Philippine Legislature ratified and ap-
proved the action of the Governor General in executing this agree-
ment and authorized him to execute a formal contract or purchase
of the railroad in almost identical terms. It is thus probable that
the Philippine government is about to enter upon the policy of
ownership of its principal transportation system. It is hoped the
government may find the policy of government ownership and oper-
ation as successful as has proved the case in Dutch India, in the
Federated Malay States, in Indo-China, Japan, and other neighbor-
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REPORT OF THE GOVERNOR GENERAL. 83
ing countries. But even if in future it be deemed advisable to lease
the road to others for operation, the purchase can not but be beneficial
to the people of the Philippines.
PHILIPPINE BOARD OF THE PANAMA-PACIFIC INTERNATIONAL
EXPOSITION.
This board was composed of Leon Ma. Guerrero, president; Wil-
liam W. Barclay, director general; and Francisco Liongson, with
Allen T. St. Clair as chief clerk. The result of their efforts was a *
complete success, and has been gratifying to the people of the Philip-
pines and their friends. For the first time the Philippine Islands
were presented to the outside world by an exhibition of the education
and accomplishments of the 8,000,000 civilized inhabitants of the
islands, instead of an exhibit of the 1,000,000 or less partly civilized
inhabitants of the mountains and more remote regions, as has been
the case in exhibitions, pictures, and lectures upon so many occasions
in the recent past. Attention is also invited to the fact that the'
Philippine exhibit was a financial success, there having been ^0,000
returned to the treasury instead of a deficit to be made up bv further
appropriations as in the past.
PHILIPPINE HEALTH SEBVICK
By Act No. 2468 of the Legislature the former bureau of health
was changed to the Philippine health service, which has stabilized
the service and increased its efficiency and the esprit de corps of its
members. Salaries have been raised and regular gradations estab-
lished. A council of hygiene has been created, with advisory func-
tions, by which the health service is brought into closer consultation
with representatives of the public. There is an undoubted improve-
ment in the attitude of the people generally toward sanitation. A
much-needed extension of sanitary work in the Provinces has been
systematically entered upon through the medium of the new sanitary
commissions, by which a sanitary survey of a g^iven district is un-
dertaken and advice given the municipal authorities on reform meas-
ures. While Manila has heretofore been brought to the position of a
model city so far as sanitation and health are concerned, extension
of serious efforts to improve sanitary conditions in the Provinces are
but now being instituted.
Mention should be made of the control exercised by this service
over food and drugs offered for sale and over the use of advertise-
ments, especially those relating to patent and other medicines. Dur-
ing the year 75 per cent of all proposed newspaper advertisements on
these subjects were rejected and suppressed as being misleading and
untrue.
One of the accomplishments of 1915 of great interest to science
and to humanity was the determination to discharge from the Culion
leper colony, on August 28, 23 clinically and bacteriologically nega-
tive lepers who had been medically treated there. This opens the
door of hope to these unfortunate invalids all over the world.
Generally speaking, the Philippines were remarkably free from
commimicable diseases during 1915. No quarantinable disease has
entered from abroad, a considerable achievement when it is remem-
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34 BEPOBT OF THE PHILIPPINE COMMISSION.
bered that the Philippines are surrounded with ports almost con-
tinuously infected with the epidemic maladies most dreaded by
mankind.
BUBEAir OF LANDS.
This bureau reports a considerable increase in the number of appli-
cations^ for public lands, because of the inspectors sent out to acquaint
the people with their rights and methods of procedure. Should the
power be granted by Congress, as proposed m pending legislation,
the undersigned is prepared to submit to the Legislature various
reforms in the land laws to facilitate the settling up of the unoccu-
pied lands of the archipelago, while maintaining the present policy
of reserving the public lands for actual residents and their families
and still preventing the vesting of large tracts of land in the control
of corporate interests. .
The collection of rents and installments upon the friar lands still
presents an administrative problem of considerable difficulty. For
the past six years collections have been in arrears. To a certain ex-
tent collections depend upon the weather conditions during the year,
for in years of drought and typhoons the ability of the tenants to
pay is materially reduced. The early months of 1916, however, show
greatly increased collections, and it is expected that during the cur-
rent year the bureau will prove successful in reducing the arrears,
which have accumulated almost since their purchase and first sale.
The exceedingly high price originally paid for these lands un-
doubtedly makes the subject one which will eventually require legis-
lation, as was the case in the settlement of agrarian difficulties in the
United States and in Russia, two countries confronted in the past
with similar problems in the disposition of their public lands.
BUREAU OF SCIENCE.
The work of this bureau has, during the past three years, been
directed into practical channels useful to the people of the Philip-
Eines, rather than into purely scientific research, such as is performed
y private foundations in the United States. Jn consequence of this
policy the agitation against the maintenance of a costly scientific
staff has been gradually dying out. Certain features of the work,
however, duplicate the activities of the bureau of agriculture and
the University of the Philippines, which is not only expensive, but a
source of some irritation and rivalry at times. This feature will, it is
hoped, be simplified by the next Legislature through a designation of
the scientific functions of each of these entities.
BUREAU OF FORESTRY.
That the efficiency and high standard of this bureau are generally
recognized in the Orient is evidenced by the fact that the chief of
the bureau, Mr. William F. Sherfessee, has during the year received
an offer from the Chinese Government to superintend the work of
reforestation of that great country, and two more of the foresters
have left the bureau during 1915, one to accept a position in Boreno
and one in Sumatra.
The year has been one of depression in the lumber trade here;
largely because of the excessive freight rates now prevailing exports
Digitized by VjOOQl _
BEPOET OF THE GOVEBNOB GBNBBAL. 36
have declined. Imports have been also smaller because of the in-
creasing use of Philippine woods in the islands, which is gratifying
in view of the fact that during 1914 the imports of lumber were
double the exports from the Philippines. The military authorities
contracted in 1915 for the first time for a large supply of Philippine
lumber. Another favorable symptom is the recent organization of
the Philippine Lumber Manufacturers' Association.
PHILIPPINE CONSTABULABY.
The Philippine Constabulary maintained its high level of organi-
zation and efficiency during 1915 under Brig. Gen. Herman Hall.
The work of pacification and extension of government control in .
the more remote sections of the Department of Mindanao and Sulu,
commanded by Col. Peter E. Traub, was especially noticeable.
On December 31, 1915, there were 341 officers, of whom 223 were
Americans and 118 Filipinos, and 4,981 enlisted men, all Filipinos,
in the constabulary. Every year since peace and quiet have pre-
vailed, an increasing share of the constabulary work especially in
the Christian portions of the islands has been in purely civil matters,
such as fighting the spread of rinderpest and locusts.
During the year 14 new American officers were appointed, 2
from the Philippine Islands, and 12 from the United States, and 34
Filipinos ; the establishment of the Constabulary Academy at Baguio
in 1914 has furnished a larger proportion of Filipino candidates
eligible for appointment ; and in its 1915-16 session the Legislature
materially increased the establishment there.
PUBLIC WOBKS.
In the year 1915, the activities of this bureau were extended to the ,
Department of Mindanao and Sulu and to Palawan and Mindoro.
With a reduced force, a much larger program of public works
was carried out with most satisfactory results. The total expendi-
tures of the bureau were 1^11,181,282, an increase of 13 per cent over
1914, including an increase of 108 per cent on port works and 40
per cent on water supply. Four hundred and ninety-nine kilometers
of first-class road were constructed and designated, 371 reinforced
concrete bridges and culverts completed, 139 deep wells completed,
and 127 reinforced concrete buildings finished. All of this work
was done with an expenditure of W19,400 less for salaries than in
1914, partly owing to gradual Filipinization of technical positions.
Although the total number of engineers has been decreased, their
average length of service is greater.
There are now 3,068 kilometers of first-class road in the islands,
an increase of 20 per cent over 1914 ; 2,082 of second-class ; and 3,052
of third-class roads, a total of 8,202 kilometers. In addition, 518
kilometers of trail were opened during the year in the Mountain
Province, in Mindoro, and in the Department of Mindanao and Sulu.
The expense of maintenance and repair of the 3,068 kilometers
of firet-class road falls annually upon the Provinces, and in 1915
amounted to 1^1,258,114. It is a question whether some limit to
first-class road construction should not be set, both on account of
the permanent expense to the Provinces and because in some sections
Digitized by VjOOQIC
36 BEPOET OP THE PHILIPPINE COMMISSION.
the use of the roads does not seem to justify from an economic view-
point the heavy expenditures for construction. It may also be con-
sidered whether the excellent Philippine hardwoods may not be prop-
erly used for bridge^ construction in some of the more remote regions,
where reinforced concrete building is so expensive. Our consistent
policy has been one of permanent construction, but so much is needed
in the way of roads, buildings, and bridges that it may^ be better to
use good timber construction at times when projects would otherwise
be postponed indefinitely on account of lack of funds or of the
technical personnel necessary for steel and concrete work. It is also
a matter of regret that there has not been sufficient time properly
to survey and measure many streams of shifting and uncertain
course and volume, and as a result of inexperience in dealing with
these problems, a portion of the supposedly permanent work has been
lost, another good reason for the use of timber bridges until proper
and continuous flood observations can be made.
The new concrete wharf at Manila and the Iloilo customhouse
were the most important of the new building constructions during
the year. Artesian- well boring reached a new high record in 1915.
BUBEAU OF POSTS.
During the year a parcel-post convention was executed with
Australia, and negotiations were entered into for conventions with
Japan, Spain, and Singapore. There is need also for a similar
convention with the Dutch East Indies and with Indo-China, our two
nearest neighbors. Insured parcel post with the United States
increased from 8,742 packages in 1914 to 11,556 in 1915, merchants
employing this means of avoiding the high freight rates upon small
parcels.
' In its 1915-16 session the Legislature provided for the opening
of a post office in each one of the 109 municipalities not already
provided with postal facilities. Plans were also approved by the
Legislature following the recommendations of the new director of
posts for a revision of our telegraphic system to substitute land lines
for the cables, wherever approximately parallel, for relaying certain
cables in shallower water, and for the mstallation of radio stations
wherever possible to supersede cables. It has been found necessary
to devise these reforms in order to reduce the abnormal expenditure
for maintenance and repair and to avoid the frequent interruptions
incident to our present extensive deep-water cable system.
In 1913 there were 179 Americans in the bureau of posts, and
2,047 Filipinos, with a total salary roll of 1^1,290,754; in 1915 there
were 103 Americans and 2,231 Filipinos, with a salary roll of
1^1,210,770, a saving of ^80,000 in salaries and wages.
BUREAU OF JUSTICE.
Noteworthy progress is reported by the attorney general in the
disposition of cadastral survey cases by the courts during 1915. The
judiciary reorganization act, which became effective in July, 1914,
abolished the court of land registration, and imposed upon all the
courts of first instance the duty of hearing and determining the
the cadastral survey cases. Some dissatisfaction was expressed in
1914 with the relative slowness with which the courts were talring
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REPOBT OF THE GOVERNOR GENERAL. 37
up their new cadastral duties, and it was pointed out that the
increasing activities of the bureau of lands in making the cadastral
survey was far outstripping the ability of the courts to hear the
cases. The secretary of finance and justice therefore took a very
firm stand in the matter and urged upon the judges to devote more of
their time to cadastral work. His efforts met with an immediate
result, in that during 1915 the courts of first instance disposed of 26
cada^ral cases, covering 14,435 parcels of land, figures which equal
fractically the total of all cases taken together ever decided by the
'hilippine courts up to this year. Nevertheless, vigilance will have
to be continually exercised to prevent the banking up of cadastral
cases upon the court calendars, owing to the rapid progress of the
surveying parties in certain of the Provinces.
One thousand and forty-seven ordinary land-registration cases
were disposed of in 1915, as against 792 in 1914, a number exceeded
only twice in the past.
BUREAU OF CUSTOMS. ^
The partial demoralization of our foreign commerce during the
first few months of the European war soon passed by, although
conditions are still far from normal, and trade has iJeen largely
dislocated from its previous channels. The cessation of commerce
with certain of the European countries has, naturallj enough, caused
an increase of trade with the United States, reachmg the figure of
^=100,068,560, the largest in Philippine history. Trade with Great
Britain has resumed normal conditions, while that with Italy has
largely increased. The total trade oi the Philippines for 1915
amounted to ^06,250,375, the largest of any calendar year in the
islands except for 1912, when a total trade of ^33,182,402 included
f=26,000,000 for rice imports, the largest ever known. It is true, also,
that rice imports, though in a much less degree, helped to swell the
total of imports for 1915 — in itself an economic loss to the Philip-
pines resulting from the great droughts of 1914 and consequent
partial failure of rice crop. Nevertheless, the exports of 1915 (^107,-
626,008) exceeded the imports (f=98,624,367) by 1^9,000,000, leaving
a trade balance in favor of the islands, a very healthy condition in
spite of so many adverse factors in foreign commerce.
The total commerce of 1915 exceeded that of 1914 by nearly
^=12,000,000, and produced an increase in gross collections of 1P911,-
286 at the customhouses over the previous year. Had it not been
for the large rice imports of the current year, amounting to 13,500,-
000, exceeded only five? times in the past 12 years, it would appear
that the European war is still causmg an actual decrease in our
customs revenues, by the transfer of so large a proportion of our total
trade to the United States. Commercially speaking, the Philippines
from year to year become more dependent upon the United States,
the direct effect of the tariff act of 1909.
In analyzing the import figures for 1915 the collector of customs
emphasizes the remarkable increase in imports of cotton goods from
the United States, which now has ^17,223,686, or 73 per cent of the
total Philippine trade, an increase of ^5,571,020 over 1914. At the
same time iron and steel imports declined, due probably to the ex-
cessive ocean freight rates and inability to place orders in the United
Digitized by VjOOQIC
38 REPOBT OF THE PHILIPPINE COMMISSION.
States. Lumber imports fell to one-half of the figures for 1914, due
partly to the same cause and partly to the increasing use of native
lumbers. Imports of fresh meat decreased, owing to impossibility
of securing supplies from countries which heretofore constituted our
purchasing market, but are now supplying belligerent forces. But
imports of live cattle greatly increased, due to the action of the sec-
retary of public instruction in admitting under strict supervision
cattle from the China coast.
A considerable increase in the export of hemp occurred during
1915, 53 per cent going to the United States and 30 per cent to Great
Britain. At the same time the unit value per metric ton decreased.
The export of this hemp was for the first time under the operations
of the new law for inspection and grading, which is having a bene-
ficial effect in steadying the market and restoring confidence in. the
Philippine product.
Sugar increased in price, but a large part of the 1915 crop was
obliged to be held in the Philippines pending freight accommoda-
tions.
Copra showed a new high record of 139,000,000 kilos, valued at
?^2,000,000, as against 87,000,000 kilos, worth approximately f=16,-
000,000 in 1914. The copra trade has shown truly remarkable devel-
opment in recent years, made striking by reference to the fact that
only 15,000,000 kilos were exported in 1899, as against 139,000,000
last year, during which time a large export business has also grown
up in coconut oil. The 1915 increase went largely to Great Britain
and to Spain.
The cigar export trade is still far short of the position it deserves
in the world's commerce. Trade with the United States has not yet
recovered from ibhe evil effects of flooding that market with grossly
inferior Manila cigars immediately upon and following the enact-
ment of the Payne tariff bill. The visit of the collector of internal
revenue to the United States during the summer of 1915 will, it is
hoped, help to restore confidence there among the cigar dealers, and
his recommendations are now being followed here in the regulation
of the shape and quality of cigars for export to the United States.
The largest of all proportionate increases in exports is, however,
in the embroidery trade, which doubled during 1915, with a total of
^35,303. When it is realized that some $35,000,000 worth of em-
broideries are normally imported into the United States each year,
and that the trade of Belgium and France and Switzerland is so
greatly curtailed to-day, it can easily be seen how great is the oppor-
tunity for the Philippine products in the American market. Buyers
from many of the leading American houses visited the islands during
the past year, and have greatly stimulated the trade, although they
were generally unable to fill the large orders required, owing to lack
of local organization. The failure of the old Sales Agency to meet
the situation and its subsequent abolition by the Legislature has been
followed in the 1915-16 session by the passage of a law placing the
supervision of government assistance in household industries in the
bureau of education and the selling of government-aided products,
whenever possible, by the bureau of supply, which is authorized to
use a limited portion of its existing capital in advancing funds for
raw materials and acquiring the finished products for sale. One of
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REPORT OF THE GOVERNOR QENERAL. 39
the chief difficulties in the past has been the lack of designs suitable
for the United States market, and these are now being supplied by
the bureau of education. Of the workmanship displayed in Philip-
pine laces and embroideries, it may safely be stated that they are at
least equal to the best in the world, and it is hoped that the industry
is now about to enter upon a new and far more stable and successful
career.
The bureau of customs displayed great activity during the year in
the detection and apprehension of violators of the opium law, and
the traffic is almost stamped out in the Philippines. Five hundred
and eighty-nine convictions were secured in 1915. A .jail sentence is
generally imposed by the courts, and is the only sure method of
Shutting an end to this nefarious business. Fines are of no effect in
eterring smugglers, because the profits are so great that a fine is
tantamount only to a license fee.
The lighthouse division of the bureau of customs reports 12 new
lights established in 1915, making a total of 160. The placing of
additional lights on the Sibutu Passage should be undertaken at once
in recognition of the opening of direct trade with the Dutch East
Indies by the new Java-Pacific Line, which made its first stop at
Manila in January, 1916.
The collector of customs reports the sale of the cable ship RizcH to
the Compaiiia General de Tabacos de Filipinas for the sum of
^210,000 cash, and, in addition, the exchange of the modern steamer
J. Bustamante^ valued at ^50,000, a nominal total of ^460,000, or
more than the original cost of the Rizal^ which was ^182,680.10. The
average -annual cost of maintenance of the RizcH^ which was ^110,-
802.77, had made it apparent for some years past that this govern-
ment was not justified in keeping so large a ship for cable work,
which averaged only 1 month out of every 12. The purchasers have
entered the RizoL in the foreign trade between Spain and Mediter-
ranean ports and the Philippines.
BUREAU OF INTERNAL REVENUE.
The total amount collected during the fiscal year was ^7,35^8,394,
an increase of ^4,838,284 over 1914, or about 21.5 per cent, due chiefly
to the imposition of new or increased taxes in the emergency law
of December, 1914, intended to provide revenues in place of those
lost through the destruction of trade incident to the war. This
revenue law was renewed and extended in a somewhat modified form
for two years from January 1, 1916. The report of the collector
of internal revenue, which has been printed, shows the details of
the new taxes. The cost of collecting the internal revenue was 2.07
centavos for each peso collected, as compared with 2.45 centavos for
1914, 2.64 centavos for 1913, 3.08 centavos for 1912, and 4.90 centavos
for 1908.
BUREAU OF THE TREASURY.
The cost of conducting the bureau was reduced from ^112,539 for
1914, to f=101,570 in 1915.
The insular treasurer reports that the resources of all commercial
banks in the Philippines on December 31, 1915, were ^1,542,868,
or ^4,903,002 greater than last year, and are the largest in the history
61983—16 4 Cc^c^cAo
Digitized by VjOOQ Lc
40 EEPOBT OF a:HE PHILIPPINE COMMISSIOK.
of the Philippines, except in 1912, when they were approximately
the same, or ^=71,771,455. The most important development in the
banking world was the preparation by the Legislature of an act for
the establishment of the Philippine National Bank largely with
government capital, designed to serve the economic necessities of
the Philippine people themselves. The passage of this act and the
establishment of the bank occurred early in 1916, and an account of
the matter will therefore be more properly stated in the annual
report for 1916.
, The total circulation in the Philippines was 1^51,284,906, compared
with 1^52,575,117 in 1914, 1^50,697,252 in 1913, approximately
^52,000,000 in 1912 and 1913, and about 1^48,000,000 in 1911. There
were, however, 1P2,785,500 less in silvfer certificates in circulation in^
the islands at the close of business in 1915 than in 1914.
Reference is made in the treasurer's report to the various loans
authorized by the Legislature from the gold-standard fund, which are
in the executive discretion, and are managed so as to retain always
a sufficient supply of actual cash not only to meet our exchange re-
(juirements, but also to maintain unimpaired full public confidence
in our gold standard. It is the opinion of the undersigned that the
Philippine government has too large a quantity of unnecessary silver
in its silver-certificate reserve fund lying idle in the vaults and that
some of this silver should be sold to purchase gold as soon as a suit-
able opportunity offers.
BUREAU OF EDUCATION.
Substantial progress has been made during the year in the bureau
of education; the number of schools in December, 1915, was 4,386,
compared with 4,187 the previous year, and 4,235 in 1913. The
average daily attendance has shown a gratifying increase to 473,213
from 441,742 in 1914 and 428,552 in 1913. No marked changes of
policy have been made except the general tendency to emphasize the
industrial and technical features of education in the public schools,
and the gradual but pronounced extension of the influence of the
schools into the homes and the community at large.
It is still true in the Philippines that a very large proportion of the
total number of pupils is in the primary schools, but the intermediate
or secondary schools have also made a striking increase, due in part
to private subscriptions to the school funds. Insistence should be
maJe at all times upon the importance of primar;^ work ; the State
owes to every one of its citizens a sufficient education to enable him
intelligently to guard his own ris^hts and to participate himself in
the affairs of government. A policy should be favored in the Philip-
pines of greater and greater expenditures for primary schools, even if
thereby the funds for higher education are encroached upon, or are
left in greater degree to private initiative.
The Targe share played by athletics in the school curriculum is
proving of great benefit to the Filipino people. Not only is a strong
esprit de corps aroused in the schools, but a national spirit amongst
all classes or Filipinos is directly stimulated. Moreover, there is
a marked improvement in physical type in the younger generation,
and energy, enthusiasm, and initiative are on the increase as a natural
result. The participation of the Filipino athletic team in the second
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BEPOBT OF THE GOVEENOB GENERAL. 41
meet of the Far Eastern Athletic Association in Shanghai, in May,
1915, was an unqualified success. In a contest with the Chinese and
Japanese athletes the Filipinos won the majority of the track and
field events.
Education among the non-Christian people of the islands is greatly
on the increase. The appropriations have practically doubled during
the last two years, and the first act passed by the Legislature at its
1915-16 session was the setting aside of 1^1,000,000 for new primary
school work among the non-Christians. Naturally enough, in this
class of educational effort, particular impprtance is attached to
industrial or technical studies, and less time is devoted to the purely
academic. The school enrollment in the Mountain Province nearly
doubled in this year, but it is in the Department of Mindanao and
Sulu that the most striking process is visible. There among the
Mohammedan and pagan populations the greatest activity is notice-
able in the opening of new schools, for which there is a genuine de-
mand among the people. There were 125 teachers in that depart-
ment in 1913, 239 in 1914, and 273 in 1915, of whom only 14 were
Americans, the balance being mostly Filipinos from the northern
provinces. Many of these young men have gone cheerfully into *
remote regions hitherto considered actually unsafe for strangers, and
not one of them has been molested or mistreated. One feature of
these new schools is their equipment with a medical dispensary,
foimd to be a most satisfactory method of gaining the confidence of
timid or suspicious peoples. At the present time 150 or more new
primary schools are about to be opened in Mindanao and Sulu.
The insular appropriations for schools in 1915 were 1P4,259,000,
while ^25,000 was contributed to the university, ^31,189 was spent
on the construction of new school buildings as the share of that
expense by the insular government. The sum of P215,398 was re-
ceived for educational purposes from cash voluntary subscriptions,
and about 1^160,000 additional in other donations.
The University of the Philippines, having selected as its second
president Ignacio Villamor, is progressing rapidly to a position of
prime importance and influence in Far Eastern educational affairs.
The enrollment is now approximately 2,000. Everything possible
should be done to enlarge and improve the school of engineering
which up to the present time has not attracted a satisfactory number;
of pupils. In no way could the Filipino people be better fitted for
the struggle with modern economic problems than by a development
of their capacity as ehgineers, a capacity which has been satisfac-
torily established in the few engineers already graduated from
foreign universities.
It has been recommended also that the university seek to render
itself, to some small extent at least, self-supporting instead of call-
ing each year for largely increased appropriations from the Legis-
lature. The system of universal free university tuition has not
always proved a success elsewhere, since it attracts to the institution
a number of students who are not in genuine earnest and do not
profit by the instruction. It is always possible, and only just, to
provide a sufiicient number of free scholarships for those who need
them, as is done in Cornell University on the plan worked out l)y
the Hon. Andrew D. White.
Digitized by VjOOQIC
42 REPORT OF THE PHILIPPINE COMMISSION.
BUREAU OF AGRICULTURE.
Agriculture, the basis of all Philippine wealth, is unquestionably
the department in which the American Government has made the
least progress. In some parts of the islands agriculture has never
recovered from the destructive effects of the wars of insurrection
against Spain and the United States. In former times the Philip-
pines were actually exporters of rice; nowadays from twelve to
fifteen millions of pesos go out of the country each year for rice, the
stapje article of food. We are thus to some degree dependent on
other countries for our food supply. In an economic sense, it is'
perhaps true that some part of the labor which used to be expended
on the cultivation of rice is now directed to the -production of more
paying crops which are sold more profitably for foreign export, but
land especially suitable for rice cultivation can not always be profit-
ably used for other crops, and it is also probably true that the same
amount of labor and of capital now put into the production of rice
could, by more perfect processes of agriculture, produce sufficient
additional rice to make the Philippine Islands independent as to
•their food crop. Seed selection, irrigation, and fertilization are
all necessary, and the bureau of agriculture is active in the endeavor
. to forward all these reforms. Much good iias undoubtedly resulted
from the recent food-crop campaign, by which diversity of crops
is encouraged ; this will tend to the diminution of beriberi and infant
mortality, and render less alarming the occasional failures of specific
crops which have wrought so much havoc in the past. It has been
suggested that it is unreasonable to expect Americans, trained in
a temperate climate, to direct the operations of tropical agriculture
with complete success, but it seems probable that the chief hindrance
to profitable development of the fields in the islands has been the
ravages of the rinderpest and locusts. Year after year these dan-
gerous pests have absorbed a great part of the energies of the bureau
of agriculture and of other government offices. On paper, a man
with little capital could soon figure out a great fortune from agricul-
tural enterprises in the Philippines, and it is true that the soil is of
surpassing fertility in certain sections of the islands, but when
account is taken of the rinderpest, locusts, droughts, floods, and
typhoons, of such frequent occurrence, the hazards of agriculture
are more readily appreciated. Modern science is, no doubt, re-
sponsible for considerable improvement in the fighting of insect
and fungus enemies of the crops, but the rinderpest is always with
us, as it has been for several decades in the past. Quarantine might
solve the rinderpest problem but it is difficult of application in a
country without fences, where almost all the families keep one or
more carabaos. Moreover ,'Tihe disease is supposed to" be transmitted
not only from one carabao to another but also by deer, by dogs and
cats, by pigs, and even by the birds which settle on the backs of the
carabao to relieve them of their insects. Quarantine can, and has
reduced the rinderpest, but it is too much to expect that it can bring
about the entire elimination of the disease. Simultaneous inocula-
tion has proved very successful in Iloilo and in Pampanga during
the past year, and is being as vigorously pushed as funds and per-
sonnel will permit. It may ultimatelv become necessary to adopt
the method of purchase and killing by the government of jajl animals
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BEPOBT OF THE GOVEBNOB GENEKAJL. 43
suspected of having the disease. This is the means by which rinder-
pest was ultimately conquered in some near-by countries. The best
that can be said in the Philippines to-day is that the disease is not so
prevalent, and deaths less numerous than at some periods in the
past. But all persons familiar with the disease have anticipated
the more virulent outbreak now as a result of the decreased per-
centage of immunity, owing to the large increase in yoimg carabaos
and cattle that have now come to the age when they can profitably
be worked in the fields and for hauling products from one locality
or district to another. This eventuality is practically certain unless
a specific, either for prevention or cure, is discovered. The relative
immunity of carabaos for the past four years has without doubt in
great part been due to the terrible epidemic of the disease during
the years 1900 to 1912, when it is probable that only those carabaos
more or less immune survived. This immunity does not seem to have
been communicated to the offspring.
The vast territories of unoccupied lands in the Philippines favor
the breeding and spread of the locusts, which at certain seasons
descend from the mountains like devastating armies. One who has
never seen a locust plague can hardly picture the numbers and ex-
tent of these armies. Experiments are being made, or have been
tried, to secure an insect or disease enemy of the locusts, as well as
with various destructive agencies like fire and gas, but as yet with
no satisfactory result. The present locust law is being energetically
administered and vast numbers of the people have turned out in
times of need to fight the locusts. Considerable improvement in
the methods and in the results has been made in the current year.
A healthy sign of the times is the rapid formation, under stimulus
from the bureau of agriculture, of cooperative agricultural societies,
of which there are now 29 provincial and 295 municipal organizar
tions. Above all, the meeting of the first Farmers' Congress, from
August 21 to 28, 1915, in Manila, is significant of great progress. , At
the present time it may perhaps be suggested that these agricultural
meetings are apt to lean too heavily upon the advantages of govern-
ment aid rather than self-aid, but a very positive benefit will result
from these frequent meetings and conferences. The government is
doing everything it legitimately can, and for which the necessary
funds can be provided, to meet the requests and necessities of the
farmers. During the past two years laws have been passed for the
formation of rural credit associations, for the founding of a govern-
ment bank with special credit facilities for the agriculturists, for the
hastening of the work of the cadastral survey, for the reform of the
irrigation and water-right laws, for the rapid building and exten-
sion of the road system, for the grading and classifying of hemp
for export, for the regulation and betterment of the export of cigars
to the United States, for improvements in the locust and rinderpest
laws, and for the organization and operation with government aid
of sugar and copra centrals. And yet all of these laws will be of but
little effect unless the people themselves will cooperate and take
advantage of them. This, fortunately, has already been the case
in many instances. The first government-aided sugar central would
now undoubtedly be in process of construction at Isabela, Oriental
Negros, were it not for the immensely increased cost of material and
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44 EEPOBT OP THE PHILIPPINE COMMISSION.
machinery, the high freight rates, iand the preoccupation of Ameri-
can and foreign factory managements in manufacturing supplies
for the war. The contract which was about to be entered upon for
the supply of machinery was canceled because the manufacturers
were unable to give a satisfactory guaranty of delivery. In conse-
quence, the construction of this central is postponed until more nor-
mal prices once more prevail. However, the result of the policy of
government deposits with the Bank of the Philippine Islands for
the benefit of the Negros sugar planters has very greatly increased
the output from those plantations. To prevent the creation of a
special privileged class in the Philippine Islands this government aid
should be restricted as rapidly as possible, and the sugar growers
should be encouraged and made to stand on their own feet. There
is no reason why the agriculturists of one portion of the islands
should be aided and not those of all other parts, which is manifestly
impossible. Here, as in the United States, many sugar producers
are insistent on special privileges.
' During the year 1915 the disastrous effects of the 1914 drought
were felt in many agricultural regions, and the autumn and eaj:ly
winter of 1915 were notable for a series of severe and destructive
typhoons across the island of Luzon. Hemp and rice were the chief
products to suffer, hemp possibly to the extent of 1^3,000,000.
Certain of the coconut-producing districts also suffered severely,
the terrific winds stripping the trees of leaves and branches and set-
ting back products for two years.
The American agricultural colony at Momungan, Mindanao, is
prospering, and bids fair to be a permanent success. The climate is
suitable for outdoor labor for American men, and during 1915, the
first year the colony was really under way, 1P12,583 worth of garden
produce was sold for their account in Manila.
BUREAU OF PRISONS.
A j)risoners' court has been recently established in Bilibid for
the trial of offenses against prison regulations and discipline; all
of the members of the court are prisoners, and of the 2,000 cases de-
termined by them the director of prisons, open review, modified
onlv 5 per cent.
One-half of the prison population of Bilibid works in the indus-
trial shops, and to them nearly ^8,000 were paid in wages ; ipore-
over, these men learn useful trades and upon their discharge from
prison they may take some honorable part in the community.
A women's brigade building was constructed during the year,
affording a much-needed reform in the condition of the women there.
The Iwahig penal colony has so greatly increased its own food
production as to reduce the cost of rations. A new record was also
made in that for the first time there were no escapes from the colony
and no serious injury from violence. This will be appreciated when
it is considered that there are no guards except those imposed by
the colonists themselves, who, moreover, aided in the capture of 14
of the 17 prisoners who had escaped in the period from August,
1913, to October, 1914.
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BEPOBT OF THi; GOVERNOB GENEBAL. 45
BUREAU OP SUPPLY.
This bureau reports an increase of 5^ per cent in total sales over
1914, and an increase of 6 per cent in local purchases. It cost 15
per cent less to operate the bureau of supply than in 1914, and in
that year 28 per cent less than in 1913. The ratio of operating ex-
penses was only 5.21 per cent, the lowest ever attained in this bureau.
No specific discussion is given here of the bureaus of labor, weather,
printing, or library, which will, of course, be found in the following
reports of the secretaries of departments.
CITY OF MANILA.
The finances of the city of Manila have been managed with great
success by the municipal board. An overdraft of approximately
^50,000, which had been incurred two years previously, has been
entirely paid off by reason of the careful and economical adminis-
tration of the city. The revenues of the city in 1915 were nearly
1^73,000 greater than in 1914, and public works showed considerable
progress; 24 streets were opened or extended during 1915, and provi-
sion was made for the beginning of the construction of the new
Bridge of Spain over the Pasig River, as soon as ocean freights and
prices of building materials are reduced. The unsightly piles of
stone along the water front of the Luneta and adjacent fill are the
result of a most improvident and injudicious contract made by the
then municipal board on June 19, 1913, by which the city agreed for
three years to take from the Rizal quarry this large amount of stone
in excess of its needs, and that it should be transported by a con-
tractor's fleet of barges, while the city's own scows were tied up and
unused. The stone was purchased for repairing the city's streets,^
but is far more than was needed or could be used, and is not of a
very durable quality. The yearly expenditures under the contract
were so great as to leave practically nothing available for using the
stone for necessary construction and repair work. This unfortunate
contract expires in 1916, and plans are already under way to make
use of some part of the piles of stone in new roads on the Luneta
and to surface the extension toward Pasay Beach. In this connec-
tion study should be made of the question whether brick could not
be more advantageously used in city road construction than crushed
stone. In a country of tropical rainfall the expense of road repair
is very great, and if the initial exj^ense could be borne the roads could
be much more economically maintained in brick. It might even
prove advantageous to found a city brickyard, maintained by the
municipality, which could also manufacture roofing tiles, to return
to the old Spanish style of roof, which is not only architecturally so
much more satisfactory, but infinitely more suitable for the Tropics
than the hideous galvanized iron roofs so much in fashion of late
years.
The police force of the city of Manila closed another j^ear of effi-
ciency and good reputation; for a city of the size of Manila, 250,000
inhabitants, of various nationalities, it is a remarkably creditable
achievement for the police force to sustain itself in good repute,
without a breath of scandal, and with a high level of public peace
and order. The prosecuting attorney's office is also entitled to much
Digitized by VjOOQIC
46 REPOBT OF THE PHILIPPINE COMMISSION.
credit for the efficient and absolutely fair method in which it has
handled the criminal cases of the city.
The city schools enrolled nearly 2,000 more pupils during the year,
and the city appropriated ^105,000 more for schools than in the
previous year, about 23 per cent increase.
MOUNTAIN PROVINCE.
Public peace and order having been satisfactorily established in
the Mountain Province for some years past, the present problem is the
economic improvement of the population to fit them for a higher
degree of civilization. .The food supply of these people is insuffi-
cient, leaving them frequently barely enough to maintain existence.
Every effort is now being made to increase and improve their crops
and to diversify their subsistence. With time and patience it may
be possible to induce some of the mountain people to leave their
barren and overcrowded hills, and descend to the fertile plains, but
it will take years to overcome their timidity and fear of the lowlands.
Meanwhile, trails and cart roads are being opened and rapidly ex-
tended throughout the mountains, and the people in more remote
villages are becoming accustomed to the sight of strangers and
learning to travel themselves, thus gradually overcoming the appre-
hensions and prejudices of generations. Trading is on the increase,
and the traffic in household wares as well as food supplies between
the sub-Provinces and the lowlands is breaking down the barriers
and proving a civilizing and educative influence of great importance.
Largely increased appropriations for trails, as well as for schools
and hospitals in the Mountain Province, have been granted by the
Legislature since it has had a Filipino majority in both houses.
One of the most interesting developments of recent years has been
the voluntary agreement of the Ifugaos and other moimtain races to
lay down their spears while traveling on th« trails. This was
brought about by argument and persuasion on the part of govern-^
ment officials. Another sign of advancing pacific education is the
keen interest taken by the mountain people in the election of their
own village officials in newly established townships.
CITY OF BAGXTIO.
There is a marked improvement in the appearance of Baguio, both
in the buildings and in the roads and trails. The city has also
found that it can stand upon its own resources as the metropolis of
the Mountain Province and as a health resort without the assistance
of the government other than the usual annual contribution from
insular funds. The new Naguilian Road has materially increased
the trade of Baguio with Pangasinan and the Ilocos Provinces. The
Pines Hotel is now in the hands of a government receiver, bad man-
agement having obliged the government to take this step under its
contract. The hotel has been largely rebuilt and repainted from
insular funds.
DEFABTMENT OF MINDANAO AND SULU.
The very striking success of the administration of the Department
of Mindanao and Sulu und^r Gov. Frank W. Carpenter is best told
Digitized by VjOOQIC
BEPOET OF THE GOVERNOR GENERAL. ^ 47
»
in his own report, which is printed herewith. As a result of his
work, the so-called Moro problem, which assumed such apparently
impossible proportions a few years ago, now seems on the road to
complete solution. It is gradually beginning to be felt that no real
obstacle remains to the assimilation of the Mohammedan peoples into
the general body politic of the* Philippine people. Mention should
also be made of the fact that Filipino officials have largely shared in
the accomplishments of these past two years. And this is true not
only administratively but in appropriations. The Filipino 6iajority
in the Legislature since the autumn of 1913 has been very generous
to the sections in which the Mohammedans and other non-Christians
predominate. A large increase in expenditures took place during
the years in which the Legislature was putting into effect the greatest
economies in other branches of the government.
Upon March 22, 1915, an agreement was entered into by Gov. Car-
penter (acting on behalf of the Governor General) and the Sultan
of Sulu by which in effect, and in return for recognition as the head
of the Mohammedan Church in the Philippine Islands, the sultan
agreed for the first time to surrender all claims of sovereignty over
the regions of the Sulu Archipelago. The importance of this agreie-
ment can not fail to impress any student of recent history in the
Philippines, and it will undoubtedly serve to prevent embarrassment
and possible pecuniary complications on an extended scale in the
future. The subject is most interestingly: and forcibly discussed in
the department governor's report herewith. In the opinion of the
imdersigned. Gov. Carpenter is entitled to the highest credit and
commendation for his successful handling of a difficult negotiation.
THE ARMY AND NAVY.
Sincere thanks are again due to the military forces under the com-
mand of Maj. Gen. Thomas H. Barry for the unfailing courtesy and
obliging generosity with which the views and wishes of insular gov-
ernment officials have been met at all points. Though subsequent to
the period covered by this report, it should be stated that Maj. Gen.
Barry completed his tour of duty and was transferred to the United
States on April 15, 1916. Brig. Gen. Hunter Liggett then took
commanjd of the department and has continued a policy of cordial
cooperation. •
The naval authorities of the United States have been of great
assistance to this government, especially in cohnection with the
enforcement of neutrality laws and measures, and the sincere
appreciation of this government is due them for the hearty spirit of
cooperation displayed in all matters necessitating action or advice on
the part of the Navy.
VISIT OF THE CHIEF OF THE BUREAU OF INSULAB AFFAHtS.
During the summer of 1915, Brig. Gen. Frank Mclntyre, Chief of
the Bureau of Insular Affairs, visited the Philippines, making an
extensive tour of the islands and a careful study of conditions here.
His report to the Secretary of War following his return to the
United States, as well as his advice and valuable suggestions while
here, have proved of the greatest benefit to the people and to the
insular administration.
Digitized by VjOOQIC
48 REPORT OP THE PHILIPPINE COMMISSION.
THE PHILIPPINE BILL.
In conclusion, mention should be made of the all-important subject
of Philippine legislation by Congress. So many questions in the
insular government have awaited decision based upon the passage of
this legislation that the operations .of the administration have at
times been seriously embarrassed. It has undoubtedly caused strain
and stress in the management of public affairs here to have this
legislation so long pending and unsettled ; it has moreover disturbed
business conditions in the islands and has produced a considerable
part of the recent political campaign in the United States and in
Manila against this administration. However, all of these matters
are of minor importance to the fimdamental lact that the political
future of the Filipino people is soon to be finally settled by Congress.
All friends and well-wishers for the Philippines will unite in the
earnest hope that the pending bill will soon become a law.
Very respectfully,
Francis Burton Harrison,
Chvemor General,
To the Philippine Commission.
Digitized by VjOOQIC
\
Appendix.
MESSAGE OF THE GOVERNOR GENERAL TO THE THIRD PHILIPPINE LEGISLATURE RELA-
TIVE TO THE PROPOSED PURCHASE OF OUTSTANDING STOCK OF THE MANILA
RAII.ROAD CO. BY THE PHILIPPINE GOVERNMENT.
Manila, January 10, 1916,
Gentlemen of the Legislature: I have the honor to submit herewith for
your consideration an agreement entered into on the 18th day of December,
1915, by and between the duly authorized representative of the Manila Rail-
road Co. and of the Manila Railway Co. (1906) (Ltd.) and myself. This agree-
ment was made by me subject to the approval of the Philippine Legislature,
and is of no force and effect unless ratified by you. On behalf of the Manila
Railroad Co. and the Manila Railway- Co. (1906) (Ltd.) this agreement was
signed subject to the assent of the trustees of certain A and B debenture
bonds of the Manila Railway Co., which Is the owner of the stock of the
Manila Railroad Co.
I advocate the adoption by you of the terms of the agreement primarily
because I believe that the people of the Philippine Islands should own their
greatest public utility, the Manila Railroad Co.; this railroad Is a public
highway, and should be operated for the benefit of those served thereby rather
than for the financial benefit of private stockholders. A railroad Is, In the
very nature of things, a monopoly, and exi)erlence throughout the world affords
convincing arguments In favor of the ownership and control of such monopoly
by the people themselves. Even If It be suggested that the management of a
railroad company may perhaps be more profitably conducted by private enter-
prise, which Is by no means certain, considerations of the highest public policy
offset this. This railroad discharges a public function, namely, the transporta-
tion of persons and of freight from place to place within the Philippine Islands,
and the exercise of this function should be subject to the control of the public
Itself. The conduct and operation of the Manila Railroad Co. enters. In one
way or another, Into almost every detail of your economic growth, and thus,
directly or Indirectly, affects and will continue indefinitely to affect the daily
lives of the people of these Islands.
Without entering into a discussion of the general subject of the benefits of
government ownership of railroads as opposed to private ownership, I submit
this matter to your attention as of especial importance in the economic future
and development of .the Philippine Islands. The gift to a private company of a
perpetual franchise for the operation of a transportation system was Imprudent
and unwise, and I earnestly advise that the people of the Philippines should
take this, the first reasonable opportunity of securing the return of this
franchise.
It Is true that In the United States the railroads generally have been built
and maintained by private enterprise, although even there public assistance
Jias been given by way of land grants, and guarantee of interest In many of the
States, and the courts have been frequently called upon through reorganization
to sustain the operation of many of these systems. However, the United
States Government has recently authorized Government construction and owner-
ship of a railroad line for the development of the Territory of Alaska. More-
over, the Government of the United States, through the ownership of the capi-
tal stock, operates the Panama Railroad as an Incident to the building and
operation of the Panama Canal. Outside of the United States the greater por-
tion of the railroad mileage of the world is owned by the several States and
Governments. The figures for the year 1913 show that of the railroad mileage
outside the United States 197,491 miles were State owned, as compared with
136,327 miles privately owned. Here in the Orient it is especially noticeable
that within recent years the Japanese Government has taken over and is
maintaining In successful operation more than two-thirds of the railways of
the Japanese Empire, and in the Dutch East Indies almost the entire railway
Digitized
by05ogle
50 BEPOBT OF THE PHILIPPINE COMMISSION.
mileage is owned by the Government. It is in British India, however, that we
have the most strilcing precedent. There, as in the Philippines, it was found
to be almost impossible to induce private capital to engage in the construction
of the railways without government guaranty of some sort ; that guaranty was
finally and somewhat reluctantly given and carried with it such supervision
as was necessary for the proper protection of the government under its
guaranties. The exercise of this supervision finally resulted in the acqui-
sition by the government of the greater portion of the railroad mileage of the
numerous railroad companies of India, where they are now successfully oper-
ated by the States or by their lessees. A similar situation has developed in
respect to the Manila Railroad Co. In order to induce the development and
further construction of mileage, the government in 1910 guaranteed interest
on bonds issued for the construction of the so-called Southern Lines in the
amounts and under the conditions set forth in Act 1905 of the Philippine Legis-
lature. The annual contingent liability of the government under this guaranty
to-day amounts to approximately W63,000, and will increase as new sections
of the railroad are completed and new bonds are issued under the provisions
of existing law. To protect itself under its guaranty, the Philippine govern-
ment has maintained agencies of supervision and of audit, but constant contro-
versies have arisen between the government and the management of the rail-
road company in the acquisition of the land for right of way, in the construc-
tion of these lines, regarding the proper distribution of the expense of oper-
ation as between the Northern and Southern Lines, and over other matters.
During these years the control and management of the railroad company have
been In the hands of a board of directors In New York City ; the Manila Rail-
road Co., moreover. Is controlled through stock ownership by an English hold-
ing company whose directors sit In London. I believe It desirable to transfer
the control of the great public function which the Manila Railroad Co. has
undertaken under Its franchise to perform from these two boards of directors
In New York and London to the representative of the people served; In other
words, to the government of the Philippine Islands. The control thus located
in the Philippine Islands can be more Immediately responsive to the needs of
traffic and may be exercised not solely for the financial benefits arising from the
railroad for the benefit of the stockholders, but primarily to develop the coun-
try and to serve the people occupying the territory traversed by the road. The
consolidation of the management of the road In the hands of directors in
Manila and abolition of the dual supervision over the construction work by
the government and the railroad company, as at present exists, will result In
considerable net economics to the railroad company Itself.
In addition, however, to the general reasons In favor of government owner-
ship of this railroad, a special reason exists of great and compelling Interest
to the Filipino people. For the purpose of expediting the construction of the
Southern Lines of the Manila Railroad, the Philippine government has by
legislative authority lent to the -Manila Railroad Co. from time to time from
the resources of the gold standard fund the sum of M,675,000 and has author-
ized further loans so that the total will eventually reach the sum of ^,127,000.
These sums of money have been reloaned by the Manila Railroad Co. to the
sole stockholder, the Manila Railway Co. (1906) (Ltd.), which Is the English
construction company, In order to enable the latter to comply with Its contract
to construct the Manila South Lines.- This English company Is now unable
by reason of the financial condition brought about by the European war to
obtain capital for further construction work In the Philippines except as this
government may make to It further advances from time to time. The situation
Is one, therefore. In my opinion, which requires the Philippine government, for^
the protection of its own investments in the Manila Railroad Co., to assume
the ownership of the road. Moreover, it may be stated that the government has
practically financed the construction work for the Manila Railroad Co. since
January 22, 1912, during which time the final control of that construction and
the operation of the line so constructed has been In private hands. The
contract which I submit for your consideration provides for the liquidation of
all claims by the English construction company against the railroad company
for work already performed and the complete withdrawal of the construction
company from further responsibility.
The present financial condition of the Manila Railroad Co. Is as -follows:
The bonded Indebtedness Is W5,242,000, and consists of the following Issues of.
bonds: ^8,660,000 6 per cent first-mortgage gold bonds, maturing In 1956;
^15,432,000 7 per cent second-mortgage gold bonds, maturing also in 1956;
Digitized by VjOOQIC
REPOET OF THE GOVERNOR GENERAL. . 51
and ^=21,150,000 4 per cent first-mortgage gold bonds. Southern Lines, maturing
in 1939. The capital stock amounts to ^11,567,000 authorized and outstanding,
all owned by the Manila Railway Co. (1906) (Ltd.), with the exception of a
few qualifying shares in, the hands of the directors of the road. The negotia-
tions for the acquisition of the Manila Railroad Co. have been based upon the
purchase by the government of the capital stock of that company. The price
finally agreed upon is f^,000,0(X), or approximately 70 per cent of the face
value, which is the full amount required for the acquisition of the Manila
Railroad Co. by the Philippine government. For the immediate present the
contract calls for the payment of 51 per cent of the f«,000,000, or ^4,080,000,
which sum may be temporarily provided out of existing capital resources of
the government. The balance of W,920,000 will be payable .in 18 months
from the date of the execution of the contract. In addition to this, the
government, under the terms of the contract, will undertake to lend to the
Manila Railroad Co., if required, such amount as may be necessary to maintain
a sinking fund to be established by the railroad company at a rate sufficient
to pay off the principal on the outstanding government interest-guaranteed 4
per cent bonds, and the construction company, which is the owner of almost all
of the oi^tstanding 4s, has agreed to an extension of the date of maturity of
said 4 per cent bonds, provided congressional authority for such extension can
be secured. Such loans for the purpose of maintaining this sinking fund are
to bear interest at 4 per cent and are secured by a lien on the property of the
railroad company subject. only to the liens existing on such property at the
time such loans are made. In consideration of the price of f^,000,000 agreed
upon for the 1P11,567,000 par value of outstanding capital stock, the construc-
tion company, which is the owner of all of the outstanding 6 and 7 per cent
first and second mortgage bonds of the Northern Lines, has agreed to a reduc-
tion in the rate of interest upon such bonds to 5 per cent, which will result in
a net interest saving of W95,240 to the Manila Railroad Co. It is this saving
which gives, in my opinion, value to the outstanding stock of the Manila Rail-
road Co. The railroad has now for the third time since the government entered
into its contract of guaranty failed to meet the full interest obligations upon
its present indebtedness. In 1910 the government was compelled to advance
under its interest guaranty the sum of approximately ^19,000 to enable the
road to meet its full interest payments. In 1914 the deficit amounted to
f=51,631.26. In 1915 the estimated deficit October 31, on the Southern Lines,
amounted to f=82,900. In the years 1914 and 1915 there were partial failures of
the riefe crops in central Luzon, and these, coming at times when financial
conditions throughout the world were already disturbed by reason of the
European war, brought about the inability of the Manila Railroad Co. to meet
its interest obligations for the current years. In addition to the deficit on the
Southern Lines amounting to f^2,900, which has been paid by the government
under its guaranty as stated above, there is a further sum which may amount
to M00,000 on the Northern Lines, which has been financed by a temporary
release by this government of a portion of the bonds now held In the bureau of
Insular affairs to secure existing indebtedness of the railroad company to the
government. Moreover, until the completion "Of the present construction plans
of the railroad company, each year imposes greater interest obligations upon
the railroad, inasmuch as the road is being built in Isolated sections, and these
sections can not be expected to pay for themselves until they are connected one
with another and through traffic is thus established. As has before been men-
tioned, the refunding of 6s and 7s under the terms of this agreement with 5
per cent bonds will result in an annual saving of Interest to the Manila Railroad
Co. of W95,240 per annum, or more than sufficient to provide for any ordinary
contingencies such as those hereinbefore detailed. It should not be understood,
however, that the purchase of the Manila Railroad Co. will result in Immediate
financial benefit to the government by way of dividends upon the stock. While
It is true that in the year 1912 the sum of W77,733 was paid In dividends upon
this stock and In the year 1913 1P=465,683, it Is also true that the company has
under the terms of Its existing construction contracts assumed liability for
hiterest payments upon sections of the road which will in themselves be unprofit-
able until finally linked one to the other. For example, the Southern Lines are
not finally connected between Laguimanoc and Hondagua on the Pacific coast
of Luzon. It Is expected that this connection will be made some time In the
early part of this year, but there Is as yet no connection between Hondagua
and the beginning of another section of the line at Irlga, and It is estimated
that this connection can not be effected for at least two years to come. Until ,
Digitized by VjOOQIC
52 REPORT OF THE PHILIPPINE COMMISSION.
this connecting link is built the existing line in Ambos Camarines and Albay
does not and will not produce sufficient revenue to pay for its operation.
An actual deficit in operation of this individual section of approximately-
W00,000 a year, which must be debited against the entire system, will be
almost inevitable until this connection is made. It will only be upon completion
of the line between Hondagua and Iriga that its operation through Ambos
Camarines and Albay will pay fixed charges upon that section, I am confident,
however, that upon the completion of that line the through traffic from the
southern Provinces will produce revenue more than sufficient to pay the fixed
charges, and that the completed system of railways will prove to be a profit-
able investment in the* way of dividends upon the stock acquired by this
government.
The question of profitable operation and stock dividends upon the stock of
the Manila Railroad Co. when owned by the government is without doubt a
matter of great Importance, but of less importance to the people of the Philip-
pine Islands than that the road should be operated in such a way as to develop
as quickly as possible and to the utmost the country served and the expansion
of commerce in the Philippines.
Should the agreement entered into by me and herewith placed before >ou
be ratified by the Philippine Legislature, I recommend that provision be made
for a management of the railroad with a reasonably fixed tenure of office and
freedom from minor political restrictions which should be accomplished by an
extension of the civil-service rules to the personnel. In a larger sense the very
acquisition of this railroad system by the government will remove the railroad
from politics.
Attached to this message are a copy of the agreement entered into by me and
of the balance sheet of the Manila Railroad Co. as of September 30, 1915.
Francis Burton Harrison,
Governor Oenerah
Memorandum of agreement between the Manila Railroad Co., a corporation
organized under the laws of the State of New Jersey, and duly authorized to
do business in the Philippine Islands (herein referred to as the railroad
company), the Manila Railroad Co. (1906) (Ltd.), a company incorporated
under the English companies* acts as a company limited by shares and also
duly authorized to do business within the Philippine Islands (herein re-
ferred to as the construction company), and the government of the Philippine
Islands (herein referred to as the government) ; witnesseth that
Whereas under the provisions of Act 1905 of the Philippine Legislature and a
contract in accordance therewith executed between the government and the
railroad company the government has guaranteed until maturity the due and
punctual payment by the railroad company of Interest at the rate of 4 per
cent per annum upon first-lien bonds with respect to the lines of railway
therein designated as the Southern Lines issued in the amounts and for the
purposes specified in paragraph 4 of said contract ; and
Whereas the government, by reason of said contract • of guaranty and under
the provisions of law whereby such guaranty is authorized, is compelled,
through various agencies created for that purpose, to inspect and supervise
the construction and operation of the lines designated in said Act No. 1905
as the Southern Lines of the railroad company in order to protect itself under
said contract of guaranty ; and
Whereas the railroad company, on the 28th of Jahuary, 1910, entered into a
contract with the construction company whereby, among other things, it was
agreed that the latter company should construct and equip all such portions
of the Northern Lines and Southern Lines of the railroad company as said
lines are designated in said Act 1905, including telegraph, telephone, and
electrical transmission lines thereupon as then remained to be constructed
and receive in payment therefor securities of the railroad company as therein
specified; and
Whereas under and by virtue of the provisions of Acts 2083 and 2465 of the
Philippine Legislature and 2088 of the Philippine Commission the government
has loaned to the railroad company from the so-called gold standard fund the
sum of TC,637,000 in order to assist the railroad company in 'the construction
and equipment of said Southern Lines ; and
Digitized by VjOOQIC
BEPORT OP THE GOVEENOB GENERAL. 53
Whereas the railroad company has reloaned to the construction company the
moneys loaned to it by the Government from the gold standard fund, as
hereinbefore recited, in order to assist the construction company to carry out
its said contract of the 28th of January, 1910, said loans by the railroad com-
pany to the construction company being on the terms and conditions set forth
in a contract dated January 14, 1913 ; and
Whereas the construction company has purchased construction stores and
materials and has performed construction worli under the said contract of
January 28, 1910, in an amount in excess of its indebtedness to the railroad
company by reason of said loans and all other loans made by the railroad
company to it; and
Whereas the outstanding stock of the railroad company consists of common
stoclj of a par value of $2,130,700 and 7 per cent cumulative preferred stoclc
of a par value of $3,652,800, all of which is owned by the construction com-
pany; and
Whereas the funded indebtedness of the railroad company consists of $4,330,000
Northern Lines first mortgage 6 per cent gold bonds, $7,716,000 Northern
Lines second mortgage 7 per cent gold bonds, all of which are owned by the
construction company, and $10,575,000 Southern Lines first mortgage 4 per
cent gold bonds, many of which are also owned by the said construction com-
pany; and
Whereas all the outstanding stock of the railroad company and all its Northern
Lines bonds have been pledged by the construction company with the Mer-
chants Trust (Ltd.) of London as security for certain A and B debenture
bonds of the construction company ; and
Whereas by reason of the European war the construction company is unable
to proceed further with its contract of January 28, 1910, in the construction
and equipment of such portions of the Northern and Southern Lines of the
railroad company as remain to be constructed and equipped ; and
Whereas it is the desire of all parties hereto that the accounts between the rail-
road company and the construction company be liquidated, and that the gcfv-
ernmeht, through the acquisition of all the outstanding stock of the railroad
company, acquire the management and control thereof, and that the payment
of the Southern Lines 4 per cent bonds of the railroad company be more
fully insured by the establishment and maintenance of a sinking fund suffi-
cient to pay off said bonds at their maturity, all in the manner and upon the
terms and conditions outlined in this agreement; and
Whereas it is the desire of the government upon acquiring the stock of the rail-
road company to make substantial changes in the management and operation
thereof in order to effect certain proposed economies therein, and the railroad
company and the construction company concede to the government the right
so to do ; and
Whereas there are no contracts of employment between the railroad company
and its officers, general manager, or counsel which can not be canceled forth-
with, but there are certain written contracts of employment between the rail-
road company and certain of its employees in usual and customary forms, a
specimen copy of which has been exhibited to all the parties hereto, and
others of said employees are now serving or continuing to serve without the
formal execution or renewal of such written contracts, to each of which
contracts reference is hereby made for the exact terms and conditions therein
contained and the rights of the parties thereunder ; and "
Whereas the negotiations between the parties hereto have resulted in the
agreement herein outlined, which his excellency, the Governor General, has
accepted subject to the approval of the Legislature of the Philippine Islands,
and which Mr. Horace L. Higgins, as president of the railroad company and
as attorney in fact of the construction company, has been duly authorized
by cables recently transmited and exhibited to the Governor General, to
execute on behalf of the railroad company and the construction company,
respectively, but which agreement is to be subject also to the approval and
consent of the Merchants Trust (Ltd.), trustees for the holders of said A
and B debenture bonds of the construction company, and of the shareholders
of the construction company should their consent and approval be neces-
sary or advisable: Now, therefore, in consideration of the premises, and of
the mutual promises herein contained, and of the benefits to accrue to each
of the parties hereto, and of other valuable considerations the receipt whereof
by each is hereby acknowledged, the parties hereto hereby respectively
agree: n J
Digitized by VjOOQIC
54 REPORT OF THE PHILIPPINE COMMISSION. *
1. The maturity of the Southern Lines 4 per cent bonds shall be extended
for 20 years — that is to say, to May 1, 1959 — as to those holders of said bonds
consenting thereto, provided that the consent of Congress to such extension
and to the extension for a lilce term of the guaranty by the government of the
interest on said bonds can be secured, in which event the construction company
will consent to such extension as to all bonds then held by it.
2. The railroad company will establish a sinlcing fund from funds available
for such purpose, if any, to be deposited with the insular treasurer in annual
installments payable on May 1, 1917, and thereafter on May 1 of each suc-
ceeding year. Unless and until the parties hereto agree upon a graduated
scale of payments, the first three of said annual installments shall be M00,000
each, and thereafter said annual installments shall be sufficient to enable the
railroad company to pay off upon their maturity in 1939 all the Southern
Lines 4 per cent bonds issued and to be issued, provided that if the consent of
Congress to the extension of the maturity of said bonds and of the govern-
ment's guaranty of interest, as aforesaid, has been or shall at any time be
secured then the amount of said annual installments shall be sufficient to pay
off upon their maturity in 1959 those Southern Lines 4 per cent bonds the
holders of which consent to such extension, and only such consenting bond-
holders shall thereafter participate in any of the benefits of said sinliing fund.
3. All holders of said bonds shall be given an opportunity to signify their
consent to such extension and to participate in the benefits of the sinking
fund. Such ' holders as desire to consent to said extension shall surrender
their bonds to the railroad company for the indorsement thereon of such ex-
tension so as to bind, subsequent holders. In case any of such bondholders
shall withhold their consent, the railroad company and the government jointly
and severally bind themselves to preserve the lien of the mortgage and protect
the security of the consenting bondholders, notwithstanding that the bonds of
such nonconsenting bondholders may become due and payable on the 1st day of
May, 1939; and if the railroad company or the government should fail ade-
quately so to do, any of the consenting bondholders may themselves talse such
steps as may be necessary to protect their interests. Any expense on the part
of the consenting bondholders in so doing shall be a charge on the property
of the railroad company of equal priority with said bonds, and said sinking
fund shall thereupon be increased by annual payments sufficient to pay off
such expense and interest thereon at maturity of said bonds on May 1, 1959.
4. The government, by a continuing annual appropriation or in such other
lawful manner as may hereafter be agreed upon, will loan to the railroad
company an amount sufficient to maintain the sinking fund at the required
figure. All loans so made by the government shall bear interest at the rate
of 4 per cent per annum and shall constitute a lien on the property of the
railroad company subject only to liens or mortgages existing on said property
at the time such loans are made.
5. Such portion of said sinking fund as shall have been deposited by the
railroad company shall be invested only in the purchase of said Southern
Lines 4 per cent bonds at the market value on the date of purchase, but at a
price not above their par value, provided that funds loaned by the government
to the railroad company for the purpose of maintaining said sinking fund may
be invested for the benefit of said sinking fund, in the discretion of the Governor
General. All bonds purchased by said fund shall be forthwith canceled.
6. Upon the maturity of the 4 per cent bonds for which a sinking fund is
created the fund shall be applied in paying off such of the bonds as have not
been purchased and canceled. All loans made by the government for the pur-
pose of maintaining said sinking fund and the interest thereon shall thereupon
become immediately due and payable and the lien of the government securing
the same shall become immediately enforceable.
7. The government shall purchase all the capital stock of the railroad com-
pany now outstanding for the sum of W,000,000, Philippine currency, in cash
payable 51 per cent upon the date of the sale, and the balance within 18
months thereafter with interest thereon at 5 per cent per annum, said balance
to be evidenced by paper which can be discounted with banks and shall be
issued by such parties as may hereafter be lawfully agreed upon.
8. The construction company will transfer said stock to the government in
proper proportion of preferred and common shares as and when the payment
therefor Is received.
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KEPOKT OF THE GOVERNOR GENERAL. 55
9. The net amount due to the construction company from the railroad com-
pany on September 30, 1915, as appears from the books of the two companies,
is acknowledged to be approximately M,730,650, exclusive of moneys ad-
vanced and liabilities incurred by the constrilction company for stores and
materials, shipped and unshipped and not yet received, for and on account of
the railroad company, which, when properly verified, shall be added thereto,
said amount being also subject to the adjustment of exchange, interest, and
other items which ordinarily are adjusted at periodic or irregular intervals
and which consequently have not yet been entered in the books of the respective
companies.
It is agreed that all accounts between the railroad company and the construc-
tion company shall be adjusted as of the 31st of December, 1915, and entered
In the books of the respective companies, that the books of the railroad com-
pany shall be closed as of said date, that proper trial balances and balance
sheets shall be prepared showing the status of the accounts between the rail-
road company and the construction company, a certified copy of which shall
be furnished to each of the parties hereto, and that the net amount then
due to the construction company from the railroad company, Including said
expenses and liabilities incurred by the construction company for said stores
and materials, shall be definitely ascertained. All said accounts and the ad-
justment thereof and the net amount due to the construction company ascer-
tained therefrom shall be examined, checked, and certified by auditors of the
government and of the railroad and construction companies. All disputes re-
garding these accounts and any addition to be made thereto under this agree-
ment shall be settled by arbitration in the usual manner.
The net balance due to the construction company on December 31, 1915, as
thus ascertained, shall be accepted by the parties as correct, provided that an
inventory shall be made of 10 per cent of those certain construction stores and
materials in stock, not issued up to the date of the sale for construction pur-
poses, which constitute part of said indebtedness of the railroad company to
the construction company, to ascertaliji if said stores and materials are actually
on hand on December 31, 1915 ; tf said inventory shows that the stores and ma-
terials actually on hand do not vary overage or shortage by more than 10 per
cent from the amounts thereof which should be on hand, as shown by the
books, then the book figures of such indebtedness shall be accepted, but if such
variation indicated by said inventory shall be greater than 10 per cent then a
complete inventory shall be taken of all such construction stores and materials,
and said net balance shall be increased or diminished as said complete inventory
may disclose an overage or shortage in the total amount of said construction
stores and materials.
Subject to such changes as may occur in the usual course of business between
December 31, 1915, and the date of the sale the said net balance due to the
construction company, shall without deduction, be paid in the manner herein-
after set forth.
10. The two agreements between the railroad company and the construction
company, one dated the 1st day of January, 1907, and the other dated the 28th
day of January, 1910, and the further agreement supplementing the same, dated
the 14th day of January, 1913, shall be terminated and canceled as of the date
of the sale.
11. The railroad company shall refund at par and cancel all its outstanding
$4,330,000 first mortgage 6 per cent bonds and $7,716,000 second mortgage 7
per cent bonds and issue in lieu thereof new bonds maturing at the expiration
of 40 years from the date of the sale and hearing interest at 5 per cent per
annum, which shall be secured by a first mortgage on the Northern lines and
by a mortgage on the Southern Lines subject only to said Southern Lines 4
per cent mortgage and the lien of the government for the payment of interest
guaranteed thereunder; provided that said 5 per cent bonds may be divided
Into classes having different priorities or may be divided into two issues secured
by first and second mortgages, or may be issued under the existing first and
second mortgages, modified accordingly, as the construction company may elect.
The construction company shall surrender for cancellation all said first 6s and
second 7s, and shall accept in exchange therefor said new 5 per cent bonds
of an equal par value. The issue of new 5 per cent bonds shall- not exceed
in the aggregate the principal amount of $13,236,000.
12. The net balance due to the construction company on the date of the sale,
ascertained as above provided, shall be paid by bonds of the railroad company
6198a— 16 5 • r- T
•* ^ • Digitized by Google
^56 REPORT OF THE, PHILIPPINE COMMISSION.
of an equal par value as follows : $1,190,000 by said new 5 per cent bonds and
$1,740,000 by Southern Lines 4 per cent bonds, all (including $600,000 of said
Southern Lines 4 per cent bon^Js now held by the government as security for
certain loans heretofore made by the government to the railroad company) to
be issued and certified and delivered to the construction coijipan^ upon the
date of the sale, the remainder by Southern Lines 4 per cent bonds as and
when first issued. The construction company agrees to accept said bonds in
lieu of the stock and bonds which it is or would be entitled to receive under
said agreements of January 1, 1907, and January 28, 1910. Interest up to
the date of the sale due the construction company as holder of the first mort-
gage- 6 per cent bonds and second mortgage 7 per cent bonds of the railroad
company, although included in the net balance, shall, however, be paid in cash.
13. Until fully paid the net balance due the construction company shall be
evidenced by notes of the railroad company bearing interest at 4 per cent,
which, principal and interest, shall be paid off and cancelled by the delivery to
the construction company of an equal par value of Southern Lines 4 per cent
bonds as and when first issued. All of such bonds hereafter issued by the
railroad company shall be delivered to the construction company until said
balance and notes are paid off, notwithstanding the right of the government
under certain existing contracts between it and the railroad company to hold
said bonds as additional security for loans to the railroad company.
14. The construction company shall upon the date of the sale be released
from all liability to the railroad company or to the government except as herein
otherwise provided, and particularly from all claims or liabilities based on
or arising out of said agreements and supplementary agreement dated, respec-
tively, January 1, 1907 ; January 28, 1910 ; and January 14, 1913.
15. The government agrees to waive any defaults existing on the date of the
sale on the part of the railroad company in complying with any of the condi-
tions or requirements of the various concessions granted to it by the govern-
ment, and the government agrees that thereafter it will take no steps to forfeit
any concession or franchise because of any default thereunder on the part of
the railroad company.
All bonds heretofore executed as a guaranty for the performance of the obli-
gations of the concessions shall be cancelled and returned.
16. The government and the railroad company shall be released from all
claims on the part of the construction company except those hereby continued
or created, and excepting, always, the obligations set forth in the various
bonds and mortgages, it being expressly understood and agreed that the con-
struction company does not waive any rights which it may have as holder of
any of the bonds of the railroad company.
17. Immediately upon acquiring a majority of the stock of the railroad com-
pany, the government, as majority stockholder, shall have the right to change
the personnel of the board of directors and to nominate new directors and
officers of the railroad company, including its general manager and counsel, and
the construction company, as present majority stockholder, agrees to procure
the resignation of said officials if requested by the government so to do, and
will undertake to hold the railroad company harmless from any such change,
provided that so long as the construction company shall continue to hold any
of the stock of th^ railroad company it shall be entitled to have a substantial
minority representation on the board of directors and executive committee, if
any, of the railroad company.
In order more fully to insure to the government the foregoing rights, the
railroad company and the construction company jointly and severally represent
that there are no existing contracts of employment between the railroad com-
pany and its officers, agents, or employees, other than those hereinbefore re-
ferred to, which will hinder or prevent the government from effecting such
changes in management or operation as it may desire; but nothing herein
contained shall affect any of the said contracts of employment between the
railroad company and its employees, it being the intention of the parties hereto
that the railroad company shall continue to have the same discretionary rights
with respect thereto under the new management as it now has.
The construction company will consent to the transfer of the principal office
of the railr6ad company to Manila in any lawful manner which the government
may elect.
18. The government agrees that the time for completing the construction of
the lines of railway of the railroad compaAy shall be extended for such time as
may be prudently necessary, and the time for payment of the loans made by the
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REPORT OF THE GOVERNOR GENERAL. 57
government to the railroad company from the ^old-standard fund of the Philip-
pine Islands shall be extended for as long a time as the Governor General may
lawfully extend the same, and in case legislative permission can be secured the
time for the payment of said loans shall be further extended for such time as
may be prudently necessary.
19. The points herein outlined shall be embodied in an agreement of sale the
execution of which shall be dependent upon legislative action necessary or
proper to enable the government and the railroad company to carry out the
agreement, and it is understood that the agreement herein set forth shall be
subject to the assent of the trustees of the A and B debenture bonds of the con-
struction company and of its shareholders should their consent be necessary or
advisable. In said agreement of sale the parties shall fix a date when the
accounts between the railroad company and the construction company shall be
finally liquidated, when all payments and transfers provided for shall be made,
and which shall be considered as the date of the sale for the purposes of this
agreement.
20. The parties will execute such further instruments as may be necessary to
carry out this agreement.
In witness whereof, this memorandum of agreement is executed in triplicate
on the 18th day of December, 1915. Witness the hand of Francis Burton Harri-
son, Governor General, and the great seal of the government of the Philippine
Islands, and that of Horace L. Higgins, president of the Manila Railroad Co.,
with the corporate seal of the latter, and attorney in fact of the Manila Rail-
way Co. (1906) (Ltd.), thereunto duly authorized.
The Government of the I^hilh^pine Islands,
(Sgd.) By Fbancis Burton Harrison,
Governor General of the Philippine Islands.
Attest :
(Sgd.) S. Ferguson,
Acting Executive Secretary,
Manhla Railroad Company,
(Sgd.) By Horace L. Higgins,
As its President.
Attest :
(Sgd.) P. A. Alexander,
Assistant Secretary.
Manila Railway Company (1906) (Ltd.),
(Sgd.) By Horace L. Higgins,
^45 its Attorney in fact.
Attest :
(Sgd.) P. A. Alexander.
Philippine Islands, City of Manila, ss :
In the city of Manila, Philippine Islands, on this 18th day of December, 1915,
personally appeared before me Francis Burton Harrison, Governor General of
the Philippine Islands, and Horace L. Higgins, to me known to be the persons
who executed the foregoing instrument, and acknowledged that they executed
the same in their respective official capacities. The cedula certificates of the
parties were exhibited to me, being numbered, respectively, F-1, issued at
Manila, dated January 2, 1915, and F-1797660, issued at Caloocan, Rizal, dated
February 1, 1915.
(Sgd.) M. DE Yrtarte,
Ex Officio Notary Public. Reg. 48y page 57.
I, Samuel Ferguson, acting executive secretary for the Philippine Islands, do
hereby certify that M. de Yrlarte, who took the annexed acknowledgement, was
at the time of taking the same a duly qualified notary public in and for the city
of Manila, P. I., and authorized to take the same ; that the same Is executed in
accordance with the laws of the Philippine Islands ; that I am acquainted with
the signature and seal of said notary, and that the signature and seal afllxed to
the said acknowledgment are his genuine signature and seal.
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58 REPORT OF THE PHILIPPINE COMMISSION.
In witness whereof I have hereunto set my hand and caused the great seal of
the government of the Philippine Islands to be aflSxed at Manila, Philippine
Islands, this 18th day of December, 1915.
(Sgd.) S. Ferguson, ^
Acting Executive Secretary of the Philippine Islands.
The Manila Railroad Co. general balance sheet, Sept. SO, 1915.
[Note. — ^The accounts are stated in Philippine currency. One peso (?1) equals 50 centa
United States gold, or, say, 2 shillings English money.]
LIABILITIES.
stock — Capital stock:
Common stock W, 261, 400. 00
Cumulative preferred stock — 7 per cent 7, 305, 600. 00
f=ll, 567, 000. 00
Long-term debt — Funded debt unmatured :
First mortgage 6 per cent gold bonds 8. 660, 000. 00
Second mortgage 7 per cent gold bonds 15, 432, 000. 00
First mortgage 4 per cent;.gold bonds ( South-
ern Lines) 21, 150, 000. 00
45,242,000.00
Note. — Six hundred and ninety of the 6
per cent gold bonds of $1,000 each have been
delivered to the government as collateral se-
curity for the repayment of the loan.
Current liabilities :
Loans and bills payable 225, 497. 44
Traflac and car service balances payable 4, 604. 25
Audited accounts and wages payable 100, 403. 82
Miscellaneous accounts payable 6, 211. 79
Interest matured unpaid (Philippine govern-
ment interest on loan, W2,101.38) 96,381.38
' Unmatured interest accrued 459, 400. 00
Other current liabilities 3, 582. 91
The Manila Railway Co. (1906) (Ltd.)—
Remittances account 379, 676. 70
Sundries 527, 512. 51
1, 803, 270. 80
Deferred liabilities:
Liability for provident funds 34, 906. 21
Other deferred liabilities »— 12, 222. 26
Philippine government loan 5, 437, 000. 00
The Manila Railway Co. (1906) (Ltd.)—
5 per cent of expenditures subsequent to
Jan. 27, 1910, not bonded 789, 484. 94
Sundries 7, 016, 367. 74
13,289,981.15
Unadjusted credits:
Tax liability i 12, 769. 91
Operating reserves 37, 622. 65
Accrued depreciation — Equipment 96, 702. 90
Other unadjusted credits 26, 371. 77
Philippine government — ^Advances to meet
bond interest —
Subsequent to date of
F. C. O f=40,644.11
Prior to date of F. C. O 4, 216. 00
44, 860. 11
218, 327. 34
72, 120, 579. 29
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REPORT OF THE GOVERNOR GENERAL. , 59
ASSETS.
Investments — Investment in road and equip-
ment :
At Dec. 31, 1914 f=56, 246, 807. 49
For 9 months ending Sept.
30, 1915 3,170.61
^f=56, 249, 978. 10
Note. — In addition to the above, a sum of,
say, W,335,000 has been expended to Sept.
30, 1915, by the constructing company. This
expenditure (plus 15i'per cent contractors'
profits) will be transferred to the Northern
Lines as and when the lines concerned are
put in full commercial operation and to the
Southern Lines as and when the bonds are
issued in respect thereof.
Other investments —
Manila Hotel Co.~-600 shares at cost__ 60, 000. 00
'■ ^56, 309, 978. 10
Current assets:
Cash 1 367, 158. 77
Time drafts and deposits 32, 681. 00
Special deposits 11, 523. 63
Miscellaneous accounts receivable 177, 082. 82
Materials and supplies 1,199,012.66
Interest and dividends receivable — The Ma-
nila Railway Co. (1906) (Ltd.)— Current
account for interest 245, 840. 23
, Rents receivable 109. 68
2,033,408.79
Deferred assets :
Working-fund advances 21, 012. 08
Other deferred assets 41,820.77
The Manila Railway Co. (1906) (Ltd.)—
Loan account M, 437, 0(X). 00
Sundries 7, 941, 692. 95
13, 378, 692. 95
13,441,525.80
Unadjusted debits:
Rents and insurance premiums paid in ad-
vance 7, 450. 56
Property abandoned chargeable to operating
expenses 19, 306. 44
Other unadjusted debits 24, 957. 65
51, 714. 65
Profi t-a nd-loss account :
Balance at credit Dec. 31, 1914 73, 404. 38
Delayed income credits 16, 964. 53
89, 368. 91
Delayed income debits f^O, 550. 29
Loss for 9 months ending Sept.
30, 1915 342, 770. 57
373, 320. 86
283, 951. 95
72, 120, 579. 29
(Sgd.) H. L. HiGGiNS,
President.
(Sgd.) F. A. Stevenson,
Asaistant Comptroller,
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Digitized by VjOOQIC
REPORT OF THE SECRETARY OF THE INTERIOR.
JANUARY 1. 1915, TO DECEMBER 31, 1915.
The Government of the PnHiippiNE Islands,
Department of the Interior.
Manila^ July i, 1916,
Gentlemen : I have the honor to present the fourteenth annual re-
port of the operations of the Department of the Interior, covering
the period between January 1 and December 31, 1915.
In some cases it has been necessary to include references to inci-
dents which happened shortly after this period, in order to complete
the account of certain transactions.
The head of the Department of the Interior, Hon. Winf red T. Den-
ison, was forced, by reason of ill health, to take a two month's vaca-
tion in April and May of this year, which he spent in Japan. Dur-
ing Mr. Denison's absence Governor General Harrison acted as
Secretarjr of the Interior. After Mr. Denison's return his health
did not improve, and finally reached a condition that made it neces-
sary for him to return to America for treatment. He left Manila
on September 29, 1915, and was absent during the remainder of the
year. Governor General Harrison again assumed charge of the
department, and remained in charge until March 29, 1916, when the
undersigned became acting secretary of the interior.
Mr. A. E. Southard, private secretary, resigned on February 26,
1915, to spend an extended leave of absence in Peking, China, where
he was connected with the American Legation. Mr. Eoland B. Pen-
dergast came out from the United States to accept the position of
private secretary in place of Mr. Southard.
Mr. Denison was keenly and energetically interested in the affairs
of the department, and his high ability, together with a winning and
sympathetic personality, have helped him in achieving a notable
success in administering its affairs. His plan of inviting the advice
and cooperation of unoflScial voluntary committees familiar with
general subjects taken up by the department proved eminently suc-
cessful in finding a practical way of modifying the department's
action, so as to adapt it to existing conditions, without injustice or
injury to anyone. He was very successful in explaining and making
known the department's intentions, thus avoiding misunderstandings
which might have led to irritation and opposition, and prevent har-
monious cooperation with the public. His painstaking attention to
requests, criticisms, or complaints of individual citizens met with
hearty approval, and has won for him the sincere cooperation and
admiration of all who have come in contact with the varied activities
of the department of the interior. The breaking down of his health
and his absence from his work is a distinct loss to the sendee.
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62 REPORT OF THE PHILIPPINE COMMISSION.
WOBK OF THE DELEQATE FOB THE NONCHBISTIAN TBIBES.
Mr. Charles C. Batchelder has continued in the position of dele-
gate, and has carried on his difficult work with a deep insight into its
requirements. He has pushed the campaign of economic, sanitary,
and educational development with great vigor, and has made remark-
able progress in promoting the civilization and general welfare of
the non-Christians, and in bringing about the^nost friendly relations
between them and their Christian neighbors.
The delegate in his annual report has dealt with this subject in
such an interesting manner that, in place of further comment, atten-
tion is invited to his report, which is printed herewith in its entirety
as Appendix A.
PHILIPPINE HEALTH SEBVICE.
On February 28, 1915, Surg. Victor G. Heiser, United States
Public Health Service, resigned his position as director of health
for the Philippine Islands for the purpose of entering the service
of the International Health Commission of the Rockefeller Founda-
tion as director for the East. He was succeeded on March 1, 1915,
by Surg. J. D. Long, United States Public Health Service, who also
exercised the functions of chief quarantine officer for the Philippine
Islands.
On the 1st of July, in accordance with the provisions of Act No.
2468, which reorganized the former bureau of health and changed its
name to the Philippine health service, a complete reorganization of
the bureau was placed in effect. As preparations in anticipation had
been under way for some time, no disturbance was occasioned by the
reorganization.
A noticeable feature of the reorganization is the provision for a
council of hygiene composed of local medical men, an attorney, and
a property owner. This council acts in a purely advisory capacity
to the director of health and has been frequently consulted by the
director during the year in connection with the preparation and
promulgation of sanitary regulations and in matters affecting general
policy.
Under the reorganization law the administrative supervision of
the Philippine health service is now conducted through four main
divisions, namely, division of general inspection and division of hos-
pitals, under the charge of the assistant director; division of sanita-
tion, city of Manila; and division of sanitation in the Provinces.
The following additional divisions or offices carry out their various
activities under the direct supervision of the director of health,
namely, clerical office, office of sanitary engineering, property office,
office of statistics, and office of district nursing.
Food and Drug Inspection.
The board of food and drug inspection held regular meetings twice
a month throughout the year for the purpose of passing upon ques-
tions arising in connection with the enforcement of the food and
drugs act. The activities of this board have been of material as-
sistance in the maintaining of a high standard in foods and drugs.
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BEPOBT OF THE SEQKETABY OF THE INTERIOR. 63
both imported and of domestic manufacture, and in guaranteeing
to the individual purchaser, through the net- weight requirement of
the law, that full value is received for money expended.
Sanitation in the Provinces.
Under Act 1458 it becomes the duty of the Philippine health serv
ice to supervise the sanitary condition and to regulate the use of all
cemeteries in the islands. Inasmuch as a number of reports had beei
received that cemeteries were in many instances not m proper con
dition, a circular was issued to district health officers directing them
to inspect all cemeteries and report the result. Forty-two ceme
teries were reported as being in insanitary condition and 21 wer*
ordered to be closed.
Board of Medical Examiners.
This board held its ordinary sessions each quarter and examina-
tions were held at intervals during the year, with the following
results : Nineteen physicians were registered ; 44 licentiates were ex-
amined, 2 of whom failed.
Board of Pharmaceutical Examiners.
This board held* two examinations during the year. A total of
182 applicants were examined, 134 passed.
Board of Dental Examiners.
In accordance with the provisions of Act 2462 all dentists who had
been in practice for more than three years and desired to continue
their profession were required to apply for a new registration certifi-
cate within six months after the organization of the new board of
examiners — ^that is, by November 20, 1915. The total number of
certificates that had been issued from 1913 to 1915 was 178. Of thfe
applications for reissuance of certificates under the law 84 were
rejected for various reasons. Three examinations were held during
the year. A total of 58 candidates were examined, 21 of whom
failed to pass.
t Hospitals.
The work of the hospitals already established in the Provinces
has continued to progress with notable benefit to those who have
.attended them and the attendance at hospitals and dispensaries has
markedly increased during the year. New hospitals began opera-
tion during the year at Tacloban, Leyte, and Puerto Princesa, Pala-
wan. Others are in prospect during the coming year as follows:
Cuyo, Palawan; Siquijor, Oriental Negros; Iba, Zambales; Eom-
blon, Eomblon ; Albay, Albay ; and San Pablo, Laguna.
BiLiBiD Prison.
Sanitary conditions in the prison were satisfactory during the
year. The death rate was 13.33 per thousand, based on a daily
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64 BEPOBT OF THE PHILIPPINE COMMISSION.
average of 5,706 prisoners. The prevailing diseases among the
f)risoners were intestinal parasites, amoebiasis, filariasis, tubercu-
osis, venereal diseases, contagious diseases of the eye, contagious
diseases of the skin, and diseases of the respiratory passages. Owing
to the invariable practice of placing all prisoners in quarantine
for a period of five or more days prior to admission to the prison
proper, any disease or defect in the prisoner is eliminated prior to
his admission to the portion of the prison to which he is to be as-
signed. This precautionary measure has resulted in preventing the
occurrence of many cases of disease which would otherwise have
occurred. One case of cholera and 50 cholera vibrio carriers were
found during the year. Inasmuch as the cases were discovered m.
quarantine no spread to the other prisoners occurred.
San Lazaro Hospital.
The activities of the San Lazaro Hospital, which serves as the
contagious hospital and the hospital for lepers and insane, are con-
ducted through the following departments: Department of insane,
department of lepers, department of contagious diseases, tuberculosis
department, morgue, and crematory.
At the end of the year there was a total of 299 inmates in the
insane department, 248 males and 51 females. During the year 156
were admitted, 87 cases were discharged, 13 were transferred or
escaped, and 52 died. The great majority of the cases discharged
were either cured or improved. The prevailing types of insanity
are manias and melancholia.
Investigations have ]]ust been instituted to determine the predis-
posing causes of insanity in the Philippines, with a view to insti-
tuting such measures of prevention and cure as may be possible.
The fact that an analysis of 650 cases showed that 432 had been
discharged as cured or improved gives reason for hope that some-
thing tangible may develop from the studies now under way.
In the department of tuberculosis, which accepts only advanced
cases, 624 patients were admitted, 388 discharged, 9 transferred, and
202 died.
In the department of acute communicable diseases, diphtheria re-
quired the largest amount of attention during the year. Among the
carriers who were in isolation in the hospital 4 per cent presented
symptoms of diphtheria, but prompt administration of antidiph-
theretic serum effectively and promptly cured the cases.
From July 4 to the end of the year only one case of cholera was
admitted.
CuLiON Leper Colony.
The cement building for the isolation of bacteriologically negative
lepers was completed on April 26. Twenty-three clinically and bac-
teriologically negative lepers were released on August 28 and per-
mitted to return to their homes with the understanding that they
would report to the district health officer of their respective Provinces
every six months for a period of two years to determine whether
they are permanently free from the disease or not. To the end of
the year no case had been reported as positive. Preliminary work
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BEPOBT OF THE SECRETAKY OF THE INTEKIOB. 65
for increasing hospital facilities is now under way, and it is hoped to
be able to care for 350 more patients within the period of a few
months. Three other houses, one for the children of lepers, one
for the Sisters of St. Paul de Chartres on duty at the colony, and
one for the physician of the colony, were projected during the year.
The house for children is almost completed and will afford a place
of segregation for the more than 50 children born each year in the
colony. These children will be held for a period of two years to
determine whether or not they are free f rbm the disease, after which
time their adoption by relatives will be permitted. The drilling of
artesian wells was begun for the purpose of furnishing additional
water. To the end of the year ^lo water had been encountered, on
account of diflSculties in connection with the formation of the rock
strata underlying the island. Efforts are being continued, however,
and hope is entertained that satisfactory water will be encountered
before long.
BoKToc Hospital.
This hospital is located in the Mountain Province and furnishes
assistance to members of what are known as the non-Christian tribes.
It is encouraging to note that an increased number of patients was
treated during the year as compared with the previous* year, thus
indicating that these people are learning the advantages of modern
medical and surgical treatment. Various improvements were added
during the year for the purpose of making the hospital more effi-
cient and attractive. A total of 14,874 patients visited the hospital
clinics.
Division of Sanitation, City of Manila.
Sixty-six cases and 44 deaths of cholera occurred in Manila during
the year. Of this number 6 cases occurred after the 31st of March,
the balance occurred during the months of January, February, and
March. There was no plague, no smallpox, no varioloid, 112 cases
of varicella, 59 cases and 23 deaths of diphtheria, 686 dipththeria
carriers, 96 cases of measles with 4 deaths, 107 cases of typhoid with
103 deaths, and 20 cases of mumps.
The situation as regards cholera, plague, and smallpox is very
satisfactory indeed, and the prompt discovery and isolation of diph-
theria carriers prevented any serious mortality from that disease.
The percentage of cholera carriers fell from 1.42 per cent in 1914,
to 0.41 per cent in 1915.
The mortality from typhoid fever is -apparently very high. It does
not represent, however, the actual facts of the case, due to neglect
in reporting the cases of disease and due to the fact that a nuniber
of cases died without medical attention and were not recognized
until autopsy. Of 6,412 stool specimens taken during the year but
4 were found positive for typhoid fever.
Vaccination and revaccination were continued throughout the
year for the purpose of preventing the reappearance of smallpox
in the city.
Measles infection was very mild. Only four deaths occurred
among measles cases and these were entirely due to complications.
Forty-one thousand five hundred and forty-five disinfections were
performed during the year for various purposes. ^ ,
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> 66 REPORT OF THE PHILIPPINE COMMISSION.
The general water supply was carefully watched to determine
either the occurrence of infection or evidences of pollution, as well
as water supplies of public places such as restaurants, tiendas,
schools, etc. All cases where unsatisfactory water was found were
promptly handled and the conditions corrected.
Mosquito and Fly Extermination.
When it is considered that there is a total of 9,203,124 square
meters of lowlands within the limits of the city of Manila, it is a
satisfaction to be able to state^ that, through the efforts of the
mosquito and fly externiination- campaign, both of these pests have
been reduced to as low a minimum as possible and with the excep-
tion of isolated instances have practically ceased to be a nuisance.
Where nuisances did occur they were almost invariably found to be
due to carelessness on the part of the householder either in failing
to take the steps necessary to control the propagation of these pests
or in failing to report the same to the health service with sufficient
promptness that adequate measures might be taken.
Rat Poisoning.
Twice during the year the city was covered throughout with poison
for the purpose of exterminating rats and preventing the reappear-
ance of plague. During the first poisoning 322,273 poisoned baits
were placed in 28,373 houses. During the second poisoning 480,057
poisoned traits were placed in 23,943 houses. No effort was made to
collect the poisoned rats, consequently no definite figures can be
given as to results obtained, the idea being to push the campaign
with the greatest possible rapidity with the purpose of destroying
the highest number of rats possible within the shortest space of time.
Clean-up week was held from December 13 to 18; it was most
successfully observed by everyone.
Division of Sanitation in the Provinces.
When the division was organized on July 1, 1915, it found 36
health districts in operation troughout the islands that had been
organized in accordance with different laws. Immediately efforts
were made to reorganize all the Provinces in accordance with Act
2468 for the purpose of obtaining a higher degree of sanitary effi-
ciency. Great interest was shown on the part of all concerned.
The principal difficulty encountered in effecting such reorganization
was through the lack of money in the Provinces and municipalities.
A total of 252 sanitary divisions was proposed, averaging a little
under three towns to each division. At the end of the year 44 mu-
nicipalities were actually organized under the new law with a quali-
fied physician in each, and plans were completed, even to the appoint-
ment of personnel, for organizing 100 more on January 1, 1916 ; in
all, nearly one-third of the total number of municipalities.
Nurses in the Provinces. — In addition to those nurses employed in
hospitals, 16 nurses formed parts of various provincial health organi-
zations. They assist in the operation of dispensaries, go into the
field during epidemics of various types, have given talks in schools
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KEPORT OF THE SECEETARY OF THE INTERIOR. 67
on hygiene, have done valuable work in the prevention of infant
mortality in the instruction of expectant mothers, in the actual care
of cases of confinement, and have given demonstrations on proper
methods of infant feeding and caring for babies and instruction in
good housekeeping and house sanitation.
BacUlary dysentery is one of the diseases which annually assumes
epidemic form in a number of localities shortly after the beginning
of the rainy season. Fortunately, however, the outbrbeaks do not
show the same tendency to spread as does cholera, usually remaining
localized, and were readily and ejffectively controlled.
Smallfox, — Beyond an outbreak in Sapaar and Leyte, isolated cases
only occurred in other Provinces. The persistence of smallpox in
Samar and Leyte is due to the difficulty attendant upon the transpor-
tation of vaccine virus in an effective condition, on account of poor
transportation facilities. Vaccination and revaccination, however,
are being continually practiced, and it is hoped that even with the
handicap of poor virus due to the loss of potency in transmission
the disease will soon disappear. *
Malaria, — Malaria is fairly widesprea^d throughout the Provinces,
and a great deal of work will have to be done to bring it under ef-
fective tontrol. A number of outbreaks were reported in various
municipalities, and such aid as was possible was furnished promptly,
with usually effective results. Much more attention will- be devoted
to this disease during the coining j^ear, now that the problem of other
contagious diseases seems to be fairly well solved.
Rqbies, — Rabies was reported from various Provinces during the
year. Information obtained indicated that during the two years,
from July 1, 1913, to June 30, 1915, 200 cases had occurred in dogs
and 13 human beings had died from the disease. An act passed by
the Legislature empowers the director of health, with the approval
of the secretary of the interior, to prescribe muzzling or other effec-
tive restraint of dogs or other animals liable to convey the disease.
A proclamation placing the law in effect will soon be published,
when it is hoped that improvement will at once be manifest.
Water Supplies.
The understanding of the value of good potable water has become
so general in the Provinces that but little urging is necessary on the
part of this service to convince the average municipality of its
necessity. Three gravity systems and 199 new artesian wells were
put in during the year. Thirty other towns have either made ar-
rangements for the construction of gravity systems or are collecting
funds necessary to permit of installation.
Soil Pollution.
Heretofore the solution of the question of the prevention of soil'
pollution has been one of the most crying needs of the Provinces.
Pits, pails, and other means have been tried; and while in some
instances satisfactory results have been obtained, in many this can
not be Said. During the year the so-called antipolo system was devel-
oped during the work of the sanitary commission at Pasig. Investi-
gations and observations made over a long period indicate that
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68 KEPORT OF THE PHILIPPINE COMMISSION.
this system of sewage disposal will probably be satisfactory in the
large portion of provincial towns, particularly for individual house
installations. Every effort is now being made to have this system
introduced, and our efforts are meeting with notable success.
Sanitary Control of Fiestas.
The fiesta, a time-honored institution in the Philippines and the
principal event in the yearly history of each town, combining re-
ligious celebration of the patron saint's day or a pilgrimage to some
venerated shrine, with many features analogous to those of a county
fair, has often been the occasion of an outbreak of dangerous com-
municable disease, such as smallpox, cholera, or bacillary dysentery,
due to the enormous number of persons which collect and to the
lack of sanitary supervision and the sale of improperly prepared
and protected foods. Twice during the year outbreaks of cholera
occurred following fiestas, one at Jagna, Bohol, and the other at
Carcar, Cebu. In view of past experience in this regard, it was
suggested that orders be sent to the municipal presidents requiring
them to notify the district health officer well in advance of any
fiesta that is likely to occur in the town over which he presides. It
is now obligatory on municipal presidents to give this notification
and to use every means in their power to follow out the recommen-
dations that the health officer makes for proper sanitary control^
under penalty of discipline.
Sanitary Commission.
In June of 1915 a commission, composed of a doctor, a bacteriolo-
gist, an engineer, nurses, and a sanitary inspector, was created for
the purpose of making a sanitary survey of the town of Pasig. Its
instructions were to investigate in each locality the prevalent types
of disease which are factors in morbidity and mortality and the con-
ditions which favor their spread; the prevalence of intestinal para-
sites; to make a study of methods of improving local water supplies,
sewage and garbage disposal, housing conditions, town location, and
drainage; and to report practical plans for improvement, ready to
be put into operation as soon as funds available to the municipality
would permit. The finances of the municipality were also to be
studied, as well as the economic status of the community, so as to be
able to point out means whereby the latter might be improved and
the former increase its revenues. Upon the completion of the work
of the commission definite recommendations were submitted for the
municipal council of Pasig which would give it a continuing program
of sanitary improvement to be followed in accordance with the lunds
available for such period of time as might be necessary to place the
town in complete sanitary condition.
Some Notable Results Obtained During the Year.
Cholera has been effectively controlled.
Smallpox has diminished and the reappearance of plague pre-
vented.
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KEPOBT OF THE SECRETARY OF THE INTERIOR. Q9
Flies and mosquitoes have diminished to the point that in the city
of Manila they can scarcely be considered a nuisance except in isolated
instances.
Provincial sanitary commissions have been organized and estab-
lished.
A district nursing service has been instituted for the city of Manila
~ and its extension to the Provinces is being pushed as rapidly as
possible, and promising results have already been obtained. '
Diphtheria has been scientifically and effectively controlled.
Malaria has been controlled in the Agusan Valley.
Sanitary provisions prior to the holding of fiestas are now obli-
gatory.
A survey of the lowlands of the city of Manila has been made with
the view to bringing about the filling of lowlands and the eradication
of nuisances.
Twenty-three persons, negative for leprosy, have been released
from the Culion leper colony on probation.
~ New buildings have been constructed at the San Lazaro Hospital
. for the isolation of persons suspected of having leprosy and for those
negative for the disease.
Standard plans for the construction of provincial hospitals at a
low cost have been prepared.
A marked change has been brought about in the attitude of the
people generally toward sanitation, and a renewed interest has been
aroused.
A standard type of sanitary house has been developed, and several
models have been constructed that they may serve to educate the
people in this type of construction.
The antipolo type of sewage disposal for provincial use has been
perfected, tested, and found to be a satisfactory type of installation.
Ninety-nine new dispensaries have been established in the towns of
Bulacan and Tayabas.
The increased salaries, better prospects, and fixed status provided
by the reorganization act have increased the efficiency of the com-
missioned personnel, and greater interest is constantly noted in the
character of work performed.
Sanitary toilet installation is no longer confined to Manila, but is
being extended to many houses in near-by towns.
' Town waterworks have been established in San Pablo, Lagima;
Taal, Batangas ; and Vigan, Ilocos Sur ; and 20 other municipalities
are planning and preparing for similar water systems.
Forty-four municipalities were brought into health organizations
with a (jualified physician in charge, and plans were completed for
organizing 100 more at the beginning of the new year, in all nearly
one-third of the total number of municipalities.
Nine provincial laboratories have been appropriated for after
January 1, 1916. Seven provincial and other health officers have
taken the course of instruction in the bureau of science, and five will
take it after January 1, 1916.
BUBEAU OF QUABANTINE SEBVICE.
The work of the bureau of quarantine service for the Philippine
Islands during the fiscal year ended December 31, 1915, was con-^
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70 REPORT OF THE PHILIPPINE COMMISSION.
ducted in practically the same manner and with the same measure
of successful accomplishment as in the past.
The activities of that bureau were again carried out with the view
of attaining the desired end without the necessity of detaining
persons and vessels in actual quarantine. The experience gained in
dealing with the measures necessary to properly safeguard the
islands against the introduction of quarantinable diseases from
abroad enabled another year's work to be carried on, even when
surrounded by epidemics of the most dreaded diseases, without inter-
fering with the movements of the vessels calling regularly at our
ports and without the detention of large numbers of persons at the
several quarantine stations; and at the same time without having
observed a single instance where a quarantinable disease has gained
admission from outside the Philippines.
The office of the bureau is in Manila, located in the customhouse,
and is open for business from Sunrise to sunset daily. Vessels are
boarded from sunrise to sunset, but the duties of the service often
require much earlier and later hours of duty.
Cholera and Plague.
There is every reason to believe that none of the cases of cholera
that occurred in the Philippines could in any manner be traced to
introduction by vessels from abroad. The local cholera yibrio-
carrier seems to have been responsible in all the known firgt cases.
The steamship Rio Pasig arrived at the port of Cebu with a case of
cholera among the crew, evidently contracted at the port of Saigon.
All necessary measures were taken with the crew of the vessel.
There was no spread of the disease.
No plague was encountered at quarantine this year at any of the
stations in the Philippines. The fact, however, did not lessen the
very intensive antiplague and antirat measures constantly in force
at all of the ports of entry. The vessels plying between Philippine
ports and the near-by plague-infected ports were required to be
fumigated some every trip and some every other trip. Keeping the
vessels rat free lessens to the greatest extent possible the means of
transmission by means of rats and rat fleas.
Leprosy.
Leprosy was found on four vessels at quarantine inspection and
four vessels of the Philippine Health Service which had been used
for transporting lepers to the Culion colony were treated at the
quarantine stations.
Measles.
By request of the director of health the quarantine service has
been considering measles as a quarantinable disease and taking
every measure to prevent its introduction from foreign countries
because the foreign type of measles has high rate of mortality when
contracted by Philippine residents. Vessels on which measles oc-
curred were given appropriate treatment at the quarantine stations
and persons spent 1,330 days in quarantine on this account.
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report of the secret aby of the interior. 71
Smallpox.
Three vessels arrived at Philippine ports with smallpox on board
during the year; appropriate treatment was ffiven and no spread
of the disease occurred. Smallpox on interisland vessels has now
become unusual, which is a real confirmation of the efficiency of
vaccination, for since all the people have been vaccinated the disease
has practically disappeared, while in former years smallpox on
such vessels was of almost continuous occurrence.
Typhus and Yellow Fever.
Typhus fever was present in a number of near-by foreign ports
and constitutes a serious menace to the Philippines and demands that
a strict vigilance be exercised for its detection among arrivals at
the ports of entry. The responsibility in this connection is very
heavy.
The Panama Canal route must be regarded as a danger, in that
it brings the yellow fever districts of the northern part of South
America and Central America into direct commercial communica-
tion with the Philippines. The Canal Zone itself will never be a
menace, but rather a protection, on account of the rigid quarantine
restrictions placed upon all vessels which use the canal, yet there are
contiguous ports and districts which are constantly infected with
yellow fever; and it is possible that human beings or mosquitoes
might carry the disease from those centers to the Philippines in
spite of the time and distance. All vessels arriving so far have been
subjected to special treatment upon arrival to rid same of mosquitoes
and other disease bearers.
The Necessity for Quarantine.
From the foregoing paragraphs it will be seen that the quarantine
function is a continuing necessity. They show the responsibility
resting upon the quarantine officers in preventing the introduction
of disease into the Philippine Islands from abroad. The work at-
tempted and accomplished for the purpose of attaining this aim
also works for the betterment of sanitary conditions on board vessels
and of the port cities. Other functions and plans were put into force
for the benefit of the people of the Philippines.
Daily Dock Inspection.
The piers and quays at the several ports of entry are subjected
to daily inspection to see that the antirat regulations are strictly
observed. At Manila a zone around the piers has been maintained
as free of rats as practicable, but at Iloilo and Cebu, where the
quays are right in the heart of the city, the problem is much more
difficult, and consequently the requirements at the latter ports are
more stringent. The piers at Jolo and Zamboanga, as at Manila,
have been made practically rat proof.
Disinfection and Fumigation of Vessels.
There were 13 vessels disinfected at the several quarantine stations
on account of disease for quarantine purposes ; and a number of ves-
61983—16 6 f^ T
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72 BEPOET OF THE PHILIPPINE COMMISSION.
sels in port were disinfected for the Philippine health service. Fumi-
gation of vessels may also be called antiplague work. Eats and fleas
are known to be carriers of plague ; to reduce, therefore, the means of
transmission of this disease vessels were kept as free of rats and^other
vermin as was possible. All interisland vessels were fumigated every
six months, and vessels from foreign ports were required to be fumi-
gated as often as practicable. This work is carried out at all of the
stations in the Philippines, and cooperation is also had with the dis-
infection and fumigation plants at Amoy, Hongkong, Shanghai, and
Saigon. During the year 39 vessels were fumigated at Cebu, 284
at Iloilo, and 248 at Manila, including vessels of all kinds from small
launches and lighters to the largest ocean-going liners which visit
our ports.
On those vessels making report of the number of animals killed
by the fumigation there were found 1,456 rats and 349 mice, in addi-
tion to large numbers of the small insects which infest vessels.
' Garbage from Vessels.
The vigorous campaign of previous years to prevent the throwing
into the bay of garbage from the vessels at anchor has borne fruit
this year in that the rules on the whole have been, more care-
fully observed, and now the bay is practically free at all times of
promiscuous garbage from vessels, and the effect of having a practi-
cally garbageless and nonmalodorous beach is a satisfaction indeed.
This freedom from foodstuffs being washed out on the riprap and
beach has also resulted in an almost rat-free coast, as the rats have
sought localities where food is more abundant.
Rats in Cargo.
The question of the transmission of rats in cargo was given further
study and consideration. In view of the large shipments to the
Philippines of potatoes, onions, garlic, and similar products, which
are packed in open crates and baskets, also glassware and crockery,
which is packed in loose straw, also the shipments of bamboo furni-
ture nested and in burlap wrappings, the rats which may travel in
such cargo present a public-health problem which must be solved,
and that soon if epidemics are to be prevented. Efforts to compel
the shippers to use rat-proof containers met with only partial suc-
cess, owing to the great expense occasioned by the use of any kind
of special containers. Considerable satisfaction is had over the
successes already attained.
Inspection of Interisland Vessels.
During 1915 systematic sanitary inspections were made of the-
various interisland vessels, launches, tugboats, and the larger and
smaller freight and passenger vessels at the ports of Cebu, Iloilo,
and Manila. Many of these vessels exhibited a most deplorable sani-
tary condition, and officers of vessels were instructed in the manner
to keep their vessels clean and in order. Much work in this con-
nection remains to be done. The constant endeavor to improve sani-
tary conditions has not been without its results, but it will take a
long time until these vessels are kept as they should be.
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bepobt of the beobbtaey of the inteeiob. 73
Meat Inspection Certificates.
For the food and drugs board the quarantine service again passed
upon all the certificates covering meat^ and meat products imported
into the Philippine Islands from abroad, because the quarantine
offices are the only offices that are open all the time.
Personnel.
The quarantine service is conducted by officers of the United
States Public Health Service, assisted by employees secured locally.
The bureau for the islands was in charge of Surg. Victor G. Heiser,
until March 1, 1915, when he was relieved, and Surg. John D. Long
was detailed as chief quarantine officer.
BUREAU OF SCIENCE.
The total routine work of the bureau of science has increased from
year to year, while the available appropriations have decreased ; this
means that the employees must put in more overtime and have less
opportunity for the investigation of new problems.
Personnel.
From February 16 until September 8, 1915, the director of the
bureau of science, Dr. Alvin J. Cox, was in America enjoying a
well-earned vacation. During his absence. Dr. J. A. Johnston, of
the medical laboratory of the bureau of science, performed the
duties of acting director in a very satisfactory manner.
Mr. A. E. Southard, chief clerk of the bureau, was absent from
March 22 until August 30, 1915. The duties of this position were
very ably performed during his absence by Mr. C. J. Stancliff.
The bureau suffered the loss of three division chiefs during the
year, namely, Dr. M. A. Barber, chief of the biological laboratory ;
Mr. Robert K. Williams, chief of the division of inorganic chemistry ;
and Dr. Merton L. Miller, superintendent of the museum. These
men v^^ere employees of years of service and their loss is genuinely
regretted.
Private Demand for Expert Services.
There has been a continually increasing demand for the services
of the experts of the bureau of, science for consultation work, such
as the making of field and mine examinations, advice such as is
given by a consulting chemist, and investigations of a strictly eco-
nomic nature desired by private individuals and corporations.
Need for Systematic Work.
Systematic work in botanv and zoology must precede all other lines
of investigation in these branches and is a ^necessity before the
branches of these sciences can cooperate in the study of timber trees,
medicinal plants, plant and animal diseases produced by fungi, con-
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74 BE PORT OF THE PHILIPPINE COMMISSION.
trol of insect pests, etc. Systematic work, that is, the classification
and preservation of specimens, is a credit to the institution and the
government which support it.
Publication.
All investigative scientific institutions of standing issue publica-
tions in which the work of their staffs is given to the world. Nearly-
all governments support official scientific publications. The Philip-
pine Journal of Science justifies its publication because it can readily
be exchanged for other periodicals needed by this government; be-
cause it stimulates employees in the bureau to put the results of
their work into form such that they will be of use to others ; because
an institution with a high-grade periodical is able to secure high-
fjrade men ; because an institution is known to the world by its pub-
ications and a government is known by its institutions. Finally the
government is training a number of Filipinos in science and these
men will need a place to publish their papers when they begin to do
indep^ident work.
Instruction of District Health Officers.
Bacteriologists of the bureau of science are giving a six weeks'
laboratory and practical instruction course to district health officers
in order that they may know better how to prepare specimens to be
sent to the bureau of science for examination and to perform the
most common bacteriological examinations.
Standardization of Supplies.
The bureau of science urges more extensive standardization of
government supplies and the purchase of materials under specifica-
tions.
Manufacture of Extract of Tiqui-Tiqui.
Under the provisions of Act No. 2376 the bureau of science has
prepared 200 liters of extract of tiqui-tiqui for the treatment of
mfantile beriberi. The work is of great practical importance and
positive results are reported. The quantity prepared is sufficient to
treat 3,500 infants.
Report of the Assembly Committee.
The report of the committee appointed in accordance with As-'
sembly Resolution No. 108, dated November 9, 1915, fully explains
the advantages of having all scientific work, such as is done by the
bureau of science, done in one bureau, and enthusiastically com-
mends the present organization.
Biological Laboratory.
The personnel of the biological laboratory has been depleted by
resignations. While the routine work has been carried on, there is
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KEPORT OF THE SECRETABY OF THE INTERIOR.
75
serious need for more men in case of the outbreak of epidemics. The
reappearance of diphtheria and cholera have been checked by strin-
gent sanitary measures and the examination of a large number of
contacts, which made possible the isolation of carriers. Here, as in
other divisions, the men are unable to undertake new and construc-
tive work because of the great amount of routine. The diagnostic
work imposed upon the bureau of science by law and carried on
during the year and made during the fiscal year 1914 are given in
parallel columns in the following table :
Nature of examination.
Calendar year.
1914
1915
2,118
2,985
16,383
15,832
699
6,168
6,398
27
392
1126,022
50,021
1,142
569
64
1
1113,337
79,298
2,095
85
4,275
2
35
21
1,288
633
181
473
412
117
1,649
9,989*
Waters
Qonococci
Widaltest
Blood
Blood cultures.
Feces
Leprosy
Plague
Rats for plague
Sputum
Urine....:
Rabies
Wassermann test
Histological examinations
Necropsies
Miscellaneous
> Suddenly increased by more than 50 i>er cent due to examinations during an epidemic.
The amount, variety, and importance of the work performed by
the bureau of science in the preparation of sera and vaccines is prob-
ably not generally understood. Some of the sera and vaccines manu-
factured and kept on hand in response to government and private
need in the past five years are shown in tables contained in the report
of the director df the bureau of science.
Botany.
Botanical work has been very greatly restricted during the past year
by the absence on leave in the United States during two-thirds of
the year of Mr. E. D. Merrill, chief of the botanical section. The
total number of Philippine plants poisoned, mounted, and distributed
is 4,857. The specimens added from all sources to date increase the
grand total of the herbarium to 160,354 mounted specimens, of which
92,357 are Philippine and 67,997 are extra Philippine. A large num-
ber of identifications have been made mostly of Philippine plants,
but including also plants from other Malaysian districts, mostly for
other bureaus and branches of the Philippine government. One of
the important branches of botanic study is mycology which has to do
with the diseases of plants, and the fungi which cause them. My-
cology also has to deal with the systematic side of some diseases of
animals. The identification of the fungi is especially important as
by this means it is possible to learn what has been done to combat dis-
ease caused by the same species in other countries.
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76 REPORT OF THE PHILIPPINE COMMISSION.
Fisheries.
Black bass and mosquito fish have been planted in new localities
during the year. Ther former is a valuable lood and game fish, while
both species are very efficient in destroying mosquito larvse. The
study of pearl, button shell, and sponge fisheries has been continued
and proposed regulative acts have been presented to the Legislature,
The conservation and development of marine products is very im-
portant in this country.
Ornithology.
Economic ornithology goes hand in hand with entomology in the
determination of what birds are of value to man in destroying in-
jurious insects; work along this line is being done, but is not yet
ready for publication.
Entomology.
The bureau needs entomologists to handle routine economic ques-
tions, to care for the silkworm industry, and to study new problems
in relation to agriculture, forestry, and medicine.
Chemistry.
Aside from routine work the chemical laboratory carries on inves-
tigations of various useful substances and processes of industrial im-
portance. Some of these are:
The properties, drying qualities, and uses of the oils of lumbang,
kapoc, castor bean, etc.
Chaulmoogra oil and its administration in the treatment of leprosy,
A survey of the chemical and physiological properties of the con-
stituents of medicinal plants.
Perfume oils, such as ylang-ylang, champaca, and gardenia.
Papain, produced from papaya fruit.
Materials for paper pulp.
The destructive distillation of waste woods.
Resins.
Tanning materials of the Philippine Islands.
Local foodstuffs, including fruits and vegetables.
Fresh and canned milks.
Copra and other coconut products.
Sugar and alcohol from various sources.
Improvements of methods employed in Philippine tanneries.
Water supplies.
Clays as materials for paving brick, roofing tiles, sewer pipe, etc.
Roofing materials.
Fireproof materials.
Classification of commercial rattans and other forest products.
Preparation of buri-palm (buntal) fiber.
Galvanized iron.
Paint and other protective coatings.
These studies have discovered new industries, have indicated the
most efficient means of treating certain commodities, have discovered
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BEPOBT OF THE SECRETABY OF THE INTERIOB.
77^
uses for hitherto unknown and new uses for already useful materials,
and have resulted in the improvement of old methods, making possible
l)etter products, etc. This work should be continued and extended to
arouse further interest in Philippine resources and to stimulate the
development of both old and new industries. In industrial develop-
ment the plan of the director of the bureau of ^ science is to work
toward improved modifications of existing methods and in so far as
possible to avoid radical changes which will entail heavy expense.
In this department of its work the bureau of science has also
been very shorthanded during the year. Nevertheless the amount of
work done has been somewhat larger than that performed during the
previous year. The two following tables illustrate the growth of the
chemical work:
Nature and quantity of inorganic chemical work.
Nature of material.
Metals and alloys
Rocks, minerals, natural pigments, and similar substances
Clays, shales, limestone, Imies, wall plasters, cement, and slags
Fertili2
Soils and similar substances.
Coal analysis
Calorimetric tests of fuels —
Waters..
Crude chemical and miscellaneous analyses
Standard solutions
Phjreical test of wire, twine, fiber, textile, paper, and similar articles.
Cements.
Compression, tensile, or transverse strength of concrete, stone, mortar, rope, iron and steel,
etc
Standardization of road materials
Standardization of units of measures:
Lengths
Capacities
Weights
Miscellaneous
Nature and quantity of organic chemical work.
Name of sample.
Examined
under Acts
1655 and
2342.
Viola-
tion of
Act
16fi5.
Gov-
ern-
ment
work.
Private
work.
Total samples
submitted.
1915 1914
Alcoholic liquors
Cereals and cereal products
Clinical examinations other than urines.
Commercial and miscellaneous
Condiments
Dairy products
Drugs and medicines
Fruits and fruit products...
Meats and meat products...
Mineral and vegetable oils..
Nonalcohidic drinks
Opium and legal cases
Paper and textiles
Raw sugar and sugar cane..
Sugar products
Urmes
Vegetables
Total..
12
2,059
5
93
U17
3
29
82
113
144
35
34
2,083
18
37
4
97
117
3
32
82
31
115
. 44
114
129
242
2,657 222 3,279
2
157
11
48
1
2,100
21
90
9
129
125
15
40
82
39
117
•44
116
226
39
177
243
371
3,650
16
57
42
123
11
66
33
33
11
19
23
46
44
109
308
2
316
35
1,294
1 Sixty-seven were in violation of Act 2342.
Digitized by VjOOQIC
78 BEPORT OF THE PHILIPPINE COMMISSION.
Additional personnel is needed to make the examinations re-
quired by an amendment to the food and drugs act.
Iloilo sugar laboratory. — ^The work of the Iloilo sugar laboratory
is not included in the above tables. During the year 3,660 samples
of sugar were polarized in the laboratory. Producers and dealers
eagerly avail themselves of umpire polariscopic analysis in case of
disputes and as a basis for valuation. The work of the Iloilo sugar
laboratory should be extended in order to give more instruction with
regard to milling practice and more perfect recovery of sugar.
Mining and Assay Work.
The personnel of the division of mines has been reduced to three
geologists. Mr. Wallace E. Pratt, chief of the division of mines,
after some five and a half years' c6ntinuous service, was granted
leave of absence with permission to visit the United States and has
been absent since July. Though seriously handicapped by a small
staff an attempt has been made to handle all routine work presented.
With the assistance of men in other divisions this has been accom-
plished without serious confusion. The bureau of science has not
been able to keep up with the demand for mine examinations and
other geologic work. During the year 460 assays, 29 bullion smelt-
ings, and 266 placer weighings have been performed. About 300
mineral specimens have been examined free of charge. The year has
been marked by much interest in legislation concerning mining. The
tax placed on the gross output of mines has not affected the mining
industry as it was anticipated by those interested in mines. No cor-
porations were forced to stop operation because of its application.
The need of more men in this line of work is urgent.
Library.
The library is an important branch of the bureau of science, be-
.cause of its vital necessity to all other departments. During the year
six double sections were added to the stacks, giving approximately
1,500 feet of much needed additional shelving. One thousand one
himdred and seventy-two volumes were added to the library, making
a total of 32,032 bound volumes in the library on December 31, 1915.
The union catalogue of printed cards and proofs of cards is the most
serviceable reference tool in the Philippine Islands. The library
is open to the public and is used by many people who are not em-
ployees of the bureau of science.
Philippine Journal of Science.
In spite of unstable business conditions the mailing list of the
Philippine Journal of Science has been scarcely changed, which
shows the appreciation in which the Journal is held. The press bul-
letins issued by the bureau of science during the year are Nos. 35
to 47, inclusive. The preparation of a 10-year index to the Philip-
pine Journal of Science is nearly completed.
Power Plant.
The main functions of the power plant of the bureau of science
remain unchanged. The electric current supplied to the Philippine
General Hospital and the College of Medicine and Surgery was fur-
nished at an average cost of about 10 centavos per kilowatt hour.
BEPORT OF THE SECRETARY OF THE INTERIOR. 79
This was slightly higher than during the former year, due to the
increased cost of coal.
The producer gas generator and the gas engine have proved their
reliability and economy. Under intelligent supervision and care the
cost of the production of electric current could be considerably
reduced by the addition of another producer gas generator.
In this brief review of the work of the bureau of science neces-
sarily much is left without so much as mentioning many of the im-
portant phases. However, they are fully described in the report
of the director, and what is discussed under "recommendations" is
of special interest and importance as follows :
Additional appropriation is needed properly to handle routine
work.
To do the laboratory work connected with the enforcement of
sanitary measures.
To aid the sugar industry by experiment and by demonstration
in the field.
To employ entomologists for handling routine work, for caring
for and extending the silk industry, and for working out economic
problems. Demonstrators are needfed for the silk business.
Demonstrators are needed for many lines of work which affect
the economics of the islands.
The coconut industry, the most important to the Philippine
Islands, requires study to improve the methods of oil production
and utilization of waste. '
The publication of a flora of the Philippines should be begun in
order to take advantage of the botanists' unique knowledge of Phil-
ippine plants and Philippine botanical literature.
The recommendations of previous years which have not been
taken up for lack otf funds are more and more urgently needed as
time goes by.
BTJBEAU OF LANDS.
No substantial change in the organization or in the activities of
this bureau has been made. The moving of the bureau of forestry
to another building has resulted in giving this bureau much needed
space with the result that office arrangement is much more satis-
factory. Quarters of the Manila cadastral survey party have been
allotted in this building, which obviates the necessity of renting
quarters elsewhere as was required prior to the allotment of addi-
tional space. The j^ersonnel has remained practically constant, ex-
cept that the American personnel has been reduced somewhat and
the Filipino personnel increased slightly. There was a great in-
crease in the number of applications for public lands received dur-
ing the year due to the detail of 15 public land inspectors to the
field, who assisted materially in the promulgation of knowledge of
the benefits resulting from acquisition of public lands. .The sur-
veyors of this bureau and also the rangers of the bureau of forestry
rendered very valuable assistance.
Public Lands.
A vital question, which is a source of considerable trouble to this
bureau, is the matter of determining whether land is public domain
or private property. Where there is evidence of fraud on the part
of the claimants to large tracts this bureau uses every effort to
80 REPORT OF THE PHILIPPINE COMMISSION.
protect homesteaders and others who, in good faith, are attempting
to develop what may to all appearances be public land. This ques-
tion will, however, never be definitely settled until a complete
cadastral survey of the islands is made.
The desire of the homesteaders to live in barrios has proven
something of an obstacle to the final settlement of homestead
claims.
Homesteads. — Applications received numbered 7,465, which shows
an increase of 34^ per cent over the previous year, being the largest
number recorded during any one year, the increase being due to the
activity of public land inspectors and establishment of agricul-
tural colonies. In some Provinces oppositions to homesteads were
of such frequency as to require the entire time of inspectors in
said Provinces. Opposition by the government to the registra-
tion by private persons of property which includes homesteads is
generally successrul. Two thousand hectares of public domain and
the rights of many homestead entrymen were saved during the
year by such opposition. Two hundred and thirty-eight patents
were issued, and 300 other patents have been prepared and are ready
for execution.
Sales. — Four hundred and thirty-one applications were received,
being an increase of 27.8 per cent over the previous year. Twenty-
three sales of the above number were executed, together with 80
sales of applications received prior to January 1, 1915. Three
sales were canceled. Of the 383 sales already executed 23 were made
to corporations, the average area per parcel being 609 hectares,
and 306 were made to individuals averaging 9 J hectares per parcel.
Leases, — Seventy-eight applications were received during the
year, being 20 per cent less than the previous year. Eleven of the
loregoing leases were canceled at the request of the applicants.
Eleven leases were executed during the year, covering an area of
1,688 hectares.
Free Patents. — One thousand three hundred and seventy-six appli-
cations were filed during the year, of which 29 were rejected and the
remainder are pending until plans are completed. This shows an
increase of 15.5 per cent over the previous year. More than 65 per
cent of all applications filed during the year were received from
Bukidnon, Cotabato, and Lanao. This result is due through hearty
cooperation of the officials of the Department of Mindanao and Sulu
with inspectors and surveyors of this bureau, together with a defi-
nitely organized system especially adapted to that Province. During
the year 167 patents have been issued and 2,900 have been prepared
and are ready for execution. Practically all of these are for lands
located in Nueva Vizcaya.
Town sites. — During the year lots were offered for sale in the town
sites of Malabang, Parang, and Cotabato. No sales were made in
Malabang, 44 lots were sold in Cotabato, and 11 lots were sold in
Parang. Patents were issued as follows: Twenty in Cotabato, two
in Baguio, and one in Bontoc.
Reservations. — Fifty-one reservations were made for various pur-
poses, the majority being for school purposes. The more important
reservations being one of 2,009 hectares for non-Christian settlement
in Davao ; an extension of the Mariquina watershed, and an area of
7,297 hectares to protect the water supply of ZamboangaT> t
REPOBT OF THE SECRETARY OF THE INTERIOR.
81
Unperfected titles. — Five hundred and eightv-two notices were
received from the courts of several Provinces, from applicants re-
questing benefits of Chapter VI of the Public Land Act. The area
covered by these applications aggregate 43,276 hectares. Opposition
was filed against 185 of the cases.
Compulsory registration, — Seven cases were filed in the courts
under section 61 of Act 926. One case in Tarlac has been decided,
the balance are pending in the courts.
Forfeited Icmds, — The number of parcels of land forfeited de-'
creased by more than 1,100 during the year. During the year 7,845
parcels were forfeited, 2,064 tracts repurchased, and 381 certificates
of forfeiture canceled. The amount received during the year on ac-
count of repurchase was 5P6,758.12, making a total amount received
from this source of ^=26,359.22.
Coed claims. — Twenty-eight locations were reported, all practi-
cally being relocations of former claims. These locations were in
Mindoro, Cebu, and Tayabas Provinces. A total of 815 locations
have been made since Act 1128 went into effect. Seven patents have
been issued since the coal-land law became operative, and cover an
area of 242 hectares.
Mining claims other Jhan coal. — The reports received from 28
Provinces show that 601 locations were made during the year. Of
these 494 were said to contain gold and were divided into 123 lodes
and 371 placers. The largest number of claims in one Province were
reported from Surigao, being 20 lodes and 173 placers. Thirty-one
iron locations were made in Bulacan ; 24 petroleum in Cebu and
Tayabas; 21 claims in Zambales said to contain both gold and
copper; and 19 claims in Leyte located for pitch and oil. Other
important lode locations for gold were as follows: Benguet, 40;
Iloilo, 10; Masbate, 33; Antique, 12. Placer locations not already
mentioned: Agusan, 86; Albay, 19; Mindoro, 25; Nueva Ecdja, 20;
Pangasinan, 33 ; Tayabas, 10.
Foreshore and lands under water. — ^Fourteen applications were
filed during the year. Two leases have been executed, one applica-
tion rejected, one surveyed and ready for advertising, and the re-
mainder are pending. The total number of leases executed to date
is 16, and the annual rental amounts to 1P2,548.50.
Friar Lands Division.
The following table shows the amount of friar lands receipts up
to and including June 30, 1916 :
Year.
Contracted
income.
Delinquency.
Delinquency
per cent on
contracted
income.
Total
collections.
Delinquency
per cent on
total
coUections.
1906
^190,507.54
241,833.48
356,491.48
530,182.67
688,821.05
976,895.97
789,509.14
1,222,166.99
903,286.91
867,241.49
794,583.60
.. ., <A
1907
1908
P'265,440.63
36.5,324.38
517,716.25
1,068,706.13
1,124,477.46
1,183,029.04
1,185,187.64
1,148,686.19
1909
P-2,789.65
75,934.51
185,983.54
417,399.34
124,985.08
284,746.91
284,491.83
19/25
15
17
37
10
24
n*
1910
1911
19-
1912
53
1913
10
1914
31
1915
33
1916»
I. . -»
I First six months.
Digitized by CjOOQIC
82 REPORT OP THE PHILIPPINE COMMISSION.
Net undercollections, 1911 ^=91, 816. 04
Net uudercollections, 1912 338,042.93
Net undercollections, 1914 J 282,723.44
Net undercollections, 1915 281,220.44
Total undercollections ^=993,802.83
Net overcollectlons, 1910 25,023.86
Net overcollectlons, 1913 40, 259. 05
Total overcollectlons 65, 282. 91
Net short collections 928, 519. 92
The sales of practically all the estates began in 1910 and the re-
ceipts during the years 1908 and 1909 were for rentals. The year
which has registered the largest amount of collections was 1913. due
to the fact that (1) only during that year a large amount of interests
upon payments in arrears was paid, and (2) to the exceptionally
good harvest.
In studying the administrative question of the so-called friar lands
the financial activity of the purchasers thereof necessarily becomes
involved. The above tabulation shows that the largest percentage of
delinquency over the contracted income was in the year 1912, due to
an exceptionally poor crop on account of typhoons. On the other
hand, the fact that up to the year 1913 a great number of parcels
were paid for in full, as evidenced by the overcoUections, which
necessarily resulted in the shortage of collections in subsequent years,
especially when the fact is taken into consideration tl>at during 1914
and 1915 a very poor crop was gathered, due to severe drought and
to the appearance of locusts, and a further decrease in revenue due
to the dropping of the lots paid for in full.
It can be said with certainty that the number of cases of delin-
quency keeps pace with the number of estates having poor crops, and
with the same certainty it can be stated that as the years go by there
will be more or less cases of delinquency, but never will they entirely
be done away with, except after the lapse of many years to come^
because it is the financial failure of the purchaser which makes him
unable to fulfill his contract that cau^s delinquency. To illustrate
this point, the director of lands cites the following two estates
wherein there was a large number of cases of delinquency.
Ityius. — ^The average sale price per hectare is P261 for first-class
irrigated lands. The yearly installment is ^15.66, with interest
amounting to ?=6.48, or a total obligation of 1^2.14 per annum. The
average yearly crop of rice is 40 cavans, the average market value
of which is 1P3, or a total of F120. Deducting the yearly obligation
from this amount there will be left the amount of ^97.86 for the holder
of the land. In the majority of cases the lands are worked under
the aparcero system, and only in a negligible number of cases the
purchasers are themselves working their own land. In the first case,
if from the amount of ^97.86 one-fourth or one-third or even one-half
of itself is deducted as share of the laborers, and all incidental ex-
penses in connection with the exploitation of the land which is esti-
mated at ^17 per annum for every hectare, it will be found that the
purchaser will only be able to retain a net proceed of from ^40
to ^53.
Digitized by VjOOQIC
V
REPORT OF THE SECRETARY OF THE INTERIOR.
83
The same estimate, with slight difference, can be applied to the
Talisay-Manglanilla estate, the greater portion of which is devoted
to the production of sugar cane. It is one of the estates having the
largest number of cases of delinquency.
In the light of these circumstances it would not be unusual that
with one or two years of crop failure, which is common in a country
where the crops are dependent on rains, carabaos, and locusts, the
farmers are placed in an embarrassing financial position very diffi-
cult to recover from, taking into consideration that in cases of this
nature it is not only a question of securing new capital to cover the
current expenses of production, but also the necessity of obtaining
loans at an exorbitant rate of interest wherewith to meet his living
expenses. If the landholder had made advances to his laborers, this
will naturally greatly reduce his productive activity. A year of
good harvest will hardly cover his obligations contracted during
years of unproductive harvest.
This problem will, more or less, present itself under agricultural
economy similar to ours, and in all cases where the farmer on pur-
chasing the land expects to get its price from the products thereof.
On the other hand, the bureau of lands has always considered the
• question of collections as a strict business proposition ; and taking
into consideration the fact that the greater part of the delinquencies
are due to causes entirely beyond the control of the purchasers, and
acting always within the spirit of Act 2125, has given opportunities
to the purchasers to fulfill their obligations to the government.
Furthermore, the Philippine Legislature has set aside the sum of
1^100,000 (Act No. 1736) for the purpose of making loans to the
purchasers of friar lands. Notwithstanding these facts the follow-
ing tabulation will show that during the years 1909-1915 the number
of suits filed has been steadily on the increase.
•
Year.
Number
of cases
filed.
Number
compro-
mised.
Number
of exe-
cutions.
1909-10 :
603
48
25
779
4,177
1,022
631
65
70
650
475
969
185
1911
24
1912
42
1913
122
1914
160
1915
1,005
The bureau, by strictly adhering to prescribed regulations, could
have followed a much more drastic procedure for the purpose of
enforcing collections, and the director of lands, at the time of taking
over the office had decided to do so. For this reason it will be seen
that in 1914 there were more complaints filed than in any other one
year ; later experience, however, demonstrated that a change of pur-
chasers was no more than a change in names in the delinquent list;
for this reason it was found preferable to aid the purchasers, extend-
ing whenever convenient, and in accordance with the solvency of
each delinquent, from one to six months the time within which to
meet payments; in other cases compromises were made while execu-
tions were pending. In this manner, tending to avoid the occupa-
tion of friar lands without contract of lease or purchase, as per
Digitized by VjOOQIC
84 REPORT OF THE PHILIPPINE COMMISSION.
information received by the director, of the occupation by some
5,000 persons occupying vacant lands in friar lands estate without
contract of purchase, which lands comprise some 2,500 hectares in
area, the greater number of such illegal occupants were the result
of executions of judgments, where the lands had been sold at sheriff's
sale and repurchased by the government for lack of other bidders.
For this reason there have been adopted the necessary remedies for
the ejection of such persons and to avoid a repetition of similar cases
in the future.
In conclusion it may be said that the question of administration
of the friar lands not only constitutes an administrative question in
so far as the government is concerned, but also a financial question
in so far as concerns the purchaser. Various projects have been
studied by the director of lands with the view of resolving this
problem, but it appears that all have thus far failed to present a
satisfactory solution without entailing great expense of insular funds.
San Lazaro Estate.
Act 2478, amending certain sections of Act 2360, was passed
February 5, 1915. From February 5, 1915, to December 31, 1915,
436 lots were sold, with an area of 372,732 square meters, valued at
^468,680. The total amount of annual contracted installments is
^80,610. The total receipts for the year were 1P198,212.91 ; being
divided as follows: Sales, f=109,990.50; interest, f=69,168.29; rents,
«8,962.72 ; other sources, f=91.40.
The following is a statement of the cash receipts for the year 1915 :
Friar lands.' W67, 648. 97
San Lazaro estate 198,212.91
Cadastral collections 7, 659. 19
Receipts from operations 121, 674. 66
Revenue account 91, 152. 53
Street and sewer construction, port district 13, 623. 10
Accounts receivable 54, 394.60
Accounts payable 451. 87
Miscellaneous accounts ^ 4, 975. 78
Friar land loan fund 43, 144. 66
Total 1, 402, 938. 27
Surveying and Drafting.
Durijig the past year all of the available siirvej^ors have been
placed on cadastral work, although those engaged m survey work
for private individuals have been interfered with the least possible.
SURVEYS COMPLETED.
The total number of surveys completed during the year was
4,721, consisting of 8,604 parcels, containing 144,884.34 hectares,
costing f=346,086.29.
CADASTRAL SURVEYS.
Decreed eases, — There were decreed by the courts 16 cadastral cases
containing 8,724 parcels, consisting of 74,166 hectares. The total
charges against these cases to date are ^15,575.37.
Digitized by VjOOQIC
REPORT OF THE SECRETARY OF THE INTERIOR. 85
Ca^es pending decree, — There are 16 cases pending decree contain-
ing 8.732 parcels, consisting of 54,079 hectares, with charges to date
of M34,429.
Cadastral surveys completed. — ^The totals of the decreed and
pending-decree cases are 130, containing 93,029 parcels, consisting of
219,911 hectares, having a total cost of M,198,535.59.
Surveys pending coTnpletion^ Manila office. — There are on hand in
this office pending completion and filed in the courts six cadastral
cases containing 12,881 parcels, consisting of 71,685 hectares, with a
total charge of ^229,357.24.
Surveys pending completion of field work. — There are 11 cadastral
cases pending completion of field work which have not reached this
office as vet, containing 37,639 parcels, consisting of 41,147 hectares
and costmg to date f=157,920.85.
Cadastral progress for the year. — Eecapitulation of cadastral sur-
veys for the past year, including those decreed, completed, and pend-
ing completion ; 56 cases containing 54,399 parcels, consisting of
172,133 hectares, with total charges of f=467,551.12.
The total of all cadastral surveys completed or pending comple-
tion to date is 181 cases, containing 168,042 parcels, consisting of
515,874 hectares, against which total charges are W,646,089.90. Ad-
ditional charges of ^3,364.61 have been assessed against decreed
cases by the courts, making a total expense against cadastral surveys
to date of 1P1,649,454.51.
As 10 per cent of this expense is borne by the insular government,
the accounts receivable to date are ^1,482,993.22, of which ^2,047.14
has been repaid by property owners. Provinces, and municipalities,
the net accounts receivable outstanding on aQcount of cadastral sur-
veys being W,460,946.08. But a small proportion of these accounts
are due and payable at this time, and probably not more than
?=400,000 of this amount will be due before January 1, 1920, as
property owners are granted the privilege of paying the survey
costs in five equal annual installments.
Cadastral court hearings. — It will be noted that the courts have
decreed 8,724 parcels during the past year, but the surveys completed
by this office and certified to the courts during the year totaled 17,456
parcels.
PUBLIC LAND CADASTRAL SURVEYS.
During the year the surveys in the vicinity of Cotabato, Lake
Lanao, Zamboanga, and Jolo were continued. These surveys are
made under cadastral instructions and are for the purpose of defining
the claims of the various occupants of public lands who can not
secure title except through homestead or free-patent applications.
The cost of this work during the year has been 1P112,165.33, making
r. total to date of ^167,104.16.
BUREAU OF FORESTBY.
Propaganda.
As the personnel and work of the bureau increases it constantly
becomes more plain that the mass of the people know very little of
the objects of the bureau. During the past year more educative prop-
Digitized by VjOOQIC
86 REPORT OF THE PHILIPPINE COMMISSION.
aganda has been undertaken to dispel this ignorance than ever be-
fore in the history, of the bureau. The circulars mentioned in a
previous annual report printed in English (10,000 copies), Spanish
(5,150), and in nine different Philippine languages (346,140 copies),
were distributed to every municipalitjr and barrio in the islands.
Beside municipal oflScials and forest officers the bureaus of constabu-
lary and of education, provincial governors, and members of the
Assembly assisted in the distribution; also forest officers gave 1,207
informal lectures at various points in their districts, addressing at
the meetings 81,000 people.
Forest Maps.
During the year nearly 7,000 kilometers of trail notes were taken
by forest officers, and the result embodied in the base maps at scales
of 1 : 20,000 and 1 : 200,000 ; also 70 maps of communal forests and
6 copies of the large forest map of the Archipelago have been pre
pared.
The Office of the Wood Expert.
Over 1,600 botanical specimens (of which 495 were also accom-
panied by wood specimens) collected by forest officers were received,
registered, and forwarded to the bureau of science. Of this number,
1,300 duplicates were returned and forwarded to the forest stations.
During 1915 a similar system of returning to forest stations duplicate
hand specimens of woods collected in their respective districts was
inaugurated, 888 specimens being furnished to the 39 stations.
Beside the above-mentioned 495 wood specimens 130 trade samples,
19 new plank numbers, 10 floor specimens (logs), and 200 foreign
specimens were added to the? working collection.
About 4,800 hand spiecimens (:i by 4 by 6 inches), representing over
200 species, were sent out during thie year, of which 1,748 wer^ fur-
nished to the forest school and the remainder distributed gratis,
exchanged, or sold.
Over 1,000 cards were added during the year to the "Index of
Common Names" from phenological reports, lists of local names sent
in by forest officers, and miscellaneous sources.
During the latter half of the year the wood expert was engaged
almost exclusively in the preparation of a bulletin, soon to be pub-
lished, on "The Commercial Timbers of the Philippines: Their
Preparation and Uses." His two ranger assistants spent a consider-
able portion of their time in collecting data on local names and dis-
tribution of the trees described in the bulletin.
Division of Administration,
personnel.
At the close of the year the field force of this division consisted
of 4 foresters, 1 assistant forester, 83 rangers, and 19 guards, a total
of 107 men, as against 101 at the end of 1914. Four foresters
and 10 rangers resigned during the year. The island of Mindoro
was separated from district No. 5 and organized as district No. 12.
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BEPORT OF THE SECRETABY OF THE INTERIOR. 87
*
Nine new forest stations were established, the total number at the
end of the year being 39.
During 1915, 7,0^ parcels of public land applied for as home-
steads, etc., were exammed and reported on, as against 5,890 during
1914. Only 2,243 applications were pending at the end of the year,
as against 2,961 at the end of 1914. This increase in the amount of
work performed, in spite of the fact that the field force was in-
creased only by six men, was the result principally of the instruc-
tions in the circular letter of March 29, sent out at the request of the
secretary of the interior, according to which many applications for
homesteads were made with the assistance of a forest officer and
sent in, accompanied by his report on the parcel, thus shortening
considerably the procedure of approval. The survey by the bureau
of lands of large agricultural colony tracts has also served to shorten
the procedure in these cases.
LICENSES.
The number of timber licenses in force was 1,481 as against 1,483
in 1914. There were also issued 2,305 licenses for firewood, rattans,
and other minor products, as against 2,001 in 194-4, and 50 gratuitous
licenses for public works, and 34 for mine timbers; in all, 6,083
licenses were granted as against 5,897 during 1914.
COMMUNAL FORESTS.
Sixty-three new communal forests were established as against 42
in the previous year; sixty-seven more are proposed. Some of the
mimicipalities have shown much interest in their forests, even to
the extent of beginning replanting.
CAINGINS.
Gratifying results have been obtained in combating illegal caiiigin-
making. Oi 1,198 cases reported, the provincial fiscals acted on 541
and secured convictions in 507, against only 895 cases reported, 269
acted on, and 249 convictions in 1914. Not only have the convictions
become much more frequent, but the fines imposed on violators of
the law have been more adequately proportioned to the value of the
timber destroyed.
TRAIL NOTES.
Forest officers took trail notes of 8,787 kilometers of trail during
the year. Directions are taken by pocket compass and distances by
pacing. These data, with topographic details noted by the way, are
plotted by the officers and sent to the map section, where they are
incorporated in the progress maps of the different districts.
Division op Investigation.
The work of this division has in the past been carried on in connec-
tion with the supervision of and instruction in the forest school at
Los Banos, but it has been found that the latter work absorbed too
much of the time of the members of the division. It is intended,
61983—16 7 C"n,r^n]o
Digitized by VjOOQ Ic
88 REPORT OF TECB PHIUPPIKB COMMISSION.
ther<9f ore, to transfer the divifflon of investigation to Manila to devote
the time of its members entirely to investigative work, especially as
to the supply and uses of minor products.
REPBODUGTIOK STUDIES.
Two examinations were made during the year of the reproduction
Slots at Limay. Though some favorable conclusions as to the repro-
uctive powers of the dipterocarps seem to be indicated, these studies
have not yet been continued long enough to give any conclusive data.
GROWTH STUDIES.
These were begun only in 1914. No important results can yet be
expected, but the interesting fact seems to be indicated that some
species have two periods of rapid growth during their lives.
FOREST PLANTATION.
Some 6,000 square meters (about 1.5 acres) have been used as a
forest nursery. Nearly 13,000 plants of over 100 species have been
set out from seed beds into nursery rows. (Complete records are kept
showing the percentage of germination from seed, the age as accu-
rately known of each lot of seed, the per cent of plants surviving
transplanting, etc., thus securing valuable data as to methods of
plantmg the various species.
TRANSPLANTING STUDIES.
These are, of course, a continuation of the above and are conducted
in a similar manner. Age and size of seedlings are noted, as well as
the relation of the periiKl of transplanting to the rainy season.
ROOT DEVELOPMENT.
This study is carried on in connection with the transplanting
experiments and typical specimens preserved for mounting.
SEED MUSEUM.
The work of collecting and labeling seed specimens of important
species is continued; there are now 496 species in the collection.
They are of great value for the students, for identifying new collec-
tions, and for demonstration to inquirers.
SEED DISTRIBUTION.
Nearly 650 liters of seeds, all of trees, with the exception of 0.3
liter of gourd seeds, were distributed or exchanged. A large propor-
tion of these was furnished to school nurseries.
SEED EXCHANGE.
The exchange of seeds with foreign institutions has made possible
nursery experunents with a large number of exotica.
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KBPOBT OF THE SEOBETABY OF THE INTERIOR. 89
CUTTINGS.
Experiments in planting large numbers of cuttings of 80 species
were made. Fourteen species, of which a large proportion are val-
uable timber trees, were found to give very good results.
GERMINATION TESTS.
On October 22, 1914, 5,000 fre^ seeds of ipil-ipil were placed in
moist boxes and the sprouted seeds removed day by day. The total
per cent of germination was 22.38. The students repeated the experi-
ment and secured a total germination of 23.52 per cent of 11,500
tfeeds.
ROADSmE PLANTING.
This was begun in cooperation with the bureau of public works in
June, 1914. The only work done this year was that of replacing dead
plants on the road from the campus to barrio San Antonio.
ARBORETUM.
Twenty-nine new species were planted, bringing the total up to
about 180. Eecords are kept of the ages and measurement of these
plants.
DURABHITT TESTS.
Thelisual semiannual examinations of the test pieces were made
and recorded. Pieces treated with two proprietary preservatives were
planted. Nearly 600 pieces representing 192 species have so far been
tested.
MOUNT MAQUnjNG FOREST RESERVE.
A large amount of ipil-ipil seed has been sown in abandoned clear-
ings as well as for a cover crop and for fire protection in and around
the plantations.
ADDITIONS TO THE MAP.
About 50 kilometers of trail notes were taken by students. These
have been used for revising the map of the entire iBatangas block ad-
joining the Calamba estate block.
FOREST SCHOOL.
*
In March, 1915, 17 students graduated from the ranger course, who
were appointed as rangers with salaries of from 1P50 to 1P60. Two others
were conditioned and given temporary appointments. The class of
1916 contains 19 Filipino pensionados, 2 private students from Guam,
and 3 from China. In the class of 1917 there are 22 students.
Division of Forest Management.
This division is composed of one forester as chief, two American
^eld assistants and a number of Filipino rangers, the latter used in
Digitized by VjOOQIC
90 BEPOBT OP THE PHILIPPINE COMMISSION.
cooperation with the division of administration. Division head-
?uarters are at Manila; the two field assistants are stationed at
!adiz, Occidental Negros, and Limay, Bataan, and the rangers at
the various regular forest stations.
The work so far has shown excellent results in fostering a better
understanding between the bureau and the lumbermen.
Every opportunity has been used to recommend native woods fit
for worl^ that has previously been done with imported ones.
The question of adopting grading rules has been constantly agi-
tated. During 1915 the Mindanao Lumbermen's Association adopted,
with some modifications, the proposed grading rules formulated
by the bureaus of forestry and supply. The Philippine Lumber
Manufacturers' Association is considering the adoption of a set of
rules, but has not yet formulated them.
The bureau intends to appoint two experienced graders from the
States to be assigned to this division to do all government inspec-
tion work and to train up a body of Filipino inspectors.
Forest Reconnoissance.
the valley of the agusan river,
This was the most important reconnoissance made during the year.
The total area of the Province of Agusan is about 11,730 square
kilometers (4,529 square miles), of which about 10,000 square kilo-
meters are estimated to contain commercial forest. Detailed studies
were made over an area of about 135,000 hectares of forest. Valua-
tion surveys were made of 465 hectares selected in 13 different com-
partments.
The valuation surveys give, for the 135,000 hectares above men-
tioned, an average stand of about 83 cubic meters per hectare
(= to about 8,000 board feet per acre), or a total of about 11,000,000
cubic meters (2,800,000,000 board feet) . About 30 per cent is apitong,
35 per cent lauan and tangile, 8 per cent toog, 3 per cent yakal, and
the rest of numerous mixed species amounting to less than 3 per cent
each.
Conditions for lumbering are good, the number of navigable
rivers being considerable and the nature of the terrain such that
railway construction would be comparatively easy and cheap.
OLONGAPO NAVAL RESERVATION.
This reconnoissance was made at the request of the naval au-
thorities to ascertain if it would be practicable to install a mill on
the reservation to utilize the timber found in thef reserve.
The reserve contains about 65 square miles, of which 45 square miles
contain commercial forest. The average stand is about 145 cubic
meters per hectare, or 14,500 board feet per acre. The report con-
tains definite recommendations as to location and equipment for a
small mill. It is anticipated that if the United States Navy should
decide to exploit this timber it would be another aid to stimulating
the use of Philippine instead of imported timbers.
FUTURE WORK.
It is intended during, this year to make a reconnoissance of the
large and imperfectly Imown forests of Samar. r^^^^T^
Digitized by VjOOQLC
eepobt of the seobetary of the intebiob. 91
Cooperation.
The bureau made exhibits at the annual fairs at Iloilo, Capiz, anc}
Surigao, and forest officers gave lectures on the importance of the
forests and about the work and aims of the bureau.
Forest officers were instructed to cooperate with local authorities
in the extermination of locusts. They also cooperated with the
welfare committee in observing clean-up week and inculcating its
observance in the barrios through which they pass.
The work at Baguio is carried on in cooperation with the city of
Baguio and the bureau of public works.
Cooperation with the bureau of education has been continued in
supervising school nurseries and furnishing tree seeds.
The bureau continues to supply the bureau of science with botani-
cal specimens, the latter bureau in turn furnishing mounted speci-
mens for the forest stations.
The bureau of constabulary cooperates with the bureau of for-
estry in suppressing caingin making.
The Work in Baguio.
The object of the nursery at Baguio is to raise and distribute such
plants, chiefly trees, as have been found to be adapted to the vicinity,
as well as to reforestation throughout the Mountain Province. Dur-
ing the year 10,800 plants, estimated to be worth at least 1P4,200,
were distributed among the city of Baguio^ the military, and private
individuals. The total cost of supervision and labor was only
f=3,800. /
Of 400 different trees and shrubs that were experimented with,
about 290 have given good results, more than half of these being
native to the Province. The nursery herbarium contains 316 speci-
menSj of which about 90 per cent were collected in the Mountain
Provmce.
Experiments have been begun in raising economic trees valuable to
the people of the Mountain Province, such as pili, almaciga, species
of citrus, etc.
The Forestry Exhibit at the Panama-Pacific International
Exposition.
The bureau of forestry exhibit at the Panama-Pacific Interna-
tional Exposition took three grand prizes. Besides, there were
• awarded to the bureau and to the private individuals and com-
panies who contributed to the exhibit, 24 gold, silver, and bronze
medals, and two honorable mentions.
The chief object of the exhibit was to make it a commercial adver-
tisement of the forest resources of the Philippines. Numerous sam-
ples of woods and various minor products were furnished to dealers
and manufacturers for experimentation, as well as copies of litera-
ture on the special subjects in which each inquirer was interested.
Also, addresses were made by the forester in charge of the exhibit
to meetings of contractors, architects, and lumbernien during the
exposition. Many inquiries about Philippine forest products were
already received during the exposition, and there is no doubt that
Digitized by VjOOQIC
92
BEPOBT OP THE PHILIPPINE COMMISSION,
when the present business depression and scarcity of transportation
due to the war are righted the results of the exhibit will be more
plainly seen.
The Lumber Industry.
The total amount of lumber cut under license in tiie public forests
during 1915 was 276^67 cubic meters against 294,688 cubic meters
during 1914. There has been a serious depression in the lumber
market due chiefly to the lack of transportation caused by the
European war. Almost all of the larger mills have been forced to
reduce their operations and a few even to shut down entirely for a
time.
The fact that the military authorities for the first time since the
establishment of the modern lumber industry contracted for a large
supply of native timber, nearly two and a half million board feet,
was especially important as coming during, an otherwise unsuccessful
year.
A comparison of exports and imports of timber for the past two
years is diown in the following table :
Ewport8.
1914
1915
Timber
^1,744
619,528
71,982
ri9,267
Lumber
470,551
Furniture and others -
108,603
Total
753,254
598,421
Imports,
1914
1915
Ties
^5,424
122,866
965,476
449,812
Timber
^■85,578
Lumber .
247,552
Furniture and others. .....
339,295
Total
1,543,578
672,425
Exports have decreased 20 per cent, due probably almost wholly to
lack of transportation. Imports have decreased 57 per cent, which is
due to the greater use of native timber, as is illustrated strikingly in
the case of railroad ties, of which none at all were imported during-
the year.
The China Market.
Much propaganda work has been done with a view to encouraging
exportation of lumber to China. Data of all kinds reffarding the
character and supply of Philippine woods have been ramished in
answer to numerous inquiries, articles have been published in trade
journals, and various sets of 12 bj 18 inch panels and of hand speci-
mens have been furnished to officials of the Chinese Government and
of the American Consular Service, as well as to lumber dealers in
Digitized by VjOOQIC
EBPOBT OF THE SEOBBTABT OF THE INTEBIOB. 93
China. In one case, at least, a Chinese translation of the descriptive
label was attached to the panels, the translation being furnished to
this bureau by the courtesy of the Mindanao Lumber Co.
Personnel.
Several important changes were necessary in the American per-
sonnel of the Dureau. Two foresters resided to take more lucrative
positions in Borneo and Sumatra, respectively. One of the resulting
vacancies, as well as two vacancies existing at the time of the previous
annual report, were filled by three appointments from the United
States. Two field assistants employed as scalers were appointed
for the new division of forest management, which division is dis-
cussed elsewhere in this report. Two American clerks resigned, the
stenographer to the director and the license clerk, the major part of
whose duties is being now performed by Filipinos. Nineteen gradu-
ates from the forest school were added to the ranger staif , but 10
rangers resigned during the year, most of them to accept better posi-
tions elsewhere. The permanent force on January 1, 1916, consisted
of 1 director of forestry, 7 foresters, 1 wood technologist, 1 wood
expert, 1 instructor in forestry, 2 assistant foresters, 2 field assist-
ants, 92 rangers, 4 draftsmen, and 25 clerks, besides the following,
employed on a temporary status: One assistant forester, 2 nursery-
men (1 of whom devotes only one-third of his time to this bureau) , 2
rangers, 2 draftsmen, 3 clerks, 3 messengers, 7 laborers, 1 carpenter,
2 vamishers, 17 guards, 2 watchmen, 1 cnauffeur, 1 launch engineer,
1 launch patron, and 1 launch sailor.
Quarters.
During the early part of the year the oflBces of the bureau were
moved to the building at 244 Calle Juan Luna. Both upper and
lower floors were remodeled to suit the needs of the bureau. The
building is very much more satisfactory than the old quarters in
the Oriente Building.
Sufficient money has been allotted to the bureau to complete the
buildings for the forest school and students' quarters at Los Banos.
Inadequacy of Funds and Personnel.
Though progress has been made in all activities, due principally
to the mterest jof the Legislature in our work, and though the
bureau has received an increase in appropriation making it possible
to carry out the plans of the director, the funds and personnel are
not yet sufficient to do all the work adequately. With 16,000,000
hectares of forests, we have only 228 employees and spent last year
1P274,175.98, while Japan, with 23,000,000 hectares, has 2,873 men
and spent, in 1914, ^5,884,309.
In spite of the world-wide business depression, the revenue of the
bureau of forestry last year w,as 1^425,817.22, and the expenditures,
including the forest school, only 5^74,175.98, leaving a surplus in
the insular treasury of W51,641.24.
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94 EEPOBT OF THE PHIUPPIKE COMMISSION.
PHILIPPINE GENERAL HOSPITAL.
The year 1915 has been one of the most successful in the history
of the hospital in the volume and quality of work performed, includ-
ing the care of the sick; educational activities in medicine^ phar-
macy, dentistry, and nursing; in the extension of social service and
uplift movements; in the spirit of cooperation, efficiency of em-
ployees; and in all other ways. In spite of the very general and
considerable increase in the costs of apparatus, equipment, sup-
plies, medicines, and foods, the hospital has been very economically
operated.
The director of the Philippine General Hospital was absent on
vacation in the United States during the months of April, May,
and June. The duties of the position were discharged by the assist-
ant director. Dr. Fernando Calderon, during this time.
Miss Elsie P. McCloskey, principal of the school of nursing and
superintendent of nurses, was absent on vacation from September 15
till the end of the year; Miss Mabel F. Dobbs has discharged the
duties of the position during this time.
FUNCTIPNS.
The Philippine Greneral Hospital has assigned to it an unusual
number of important functions even for a general hospital.
Briefly stated, these functions are:
1. Medical and surgical care for government employees.
A^ccording to law government employees, their wives, and minor
children are entitled to treatment at the hospital, either as "in
patients " or as " office patients."
2. Medical and surgical care for the poor of the city of Manila
and the Provinces.
3. Hospital accommodations for private patients who are willing
to pay for private rooms and other special accommodations.
4. Emergency hospital and ambulance service for the city of
Manila and surrounding territory.
5. Pharmacy service for hospital and free dispensary patients; for
government employees and for the poor of the city of Manila.
6. Out-patient visiting maternity service for the poor of the city
of Manila. This service is made possible by the generosity of the
municipal board of the city of Manila.
7. SKilled services in clinical laboratory work, X ray, and other
laboratories for hospital and dispensary patients, government em-
ployees, and the public in general.
8. Educational facilities and teachers for interns, externs, graduate
and under^aduate students of medicine, pharmacy, dentistry, nurs-
ing, and midwifery.
9. Public welfare (social service) department for the poor of
city and surrounding territory.
10. Cooperation in facilities and personnel with all official and
public societies and organizations looking to the improvement of
health and social economic condititons.
It is the aim of the hospital administration to render these and
many other less important services in a courteous and efficient manner
Digitized by VjOOQIC
BEPOBT OF THE SEOKETABY OF THE INTEBIOB. 95
to the limit of its finances, facilities, and personnel administered
economically.
To do this requires a definite but elastic organization closely
aflUiated with the college of medi^eine and surgery ; on a friendly
and mutually cooperative basis with other government and public
organizations havmg correlated functions; with firm discipline free
from politics among the personnel; and the absolute sympathy and
support of the secretary of the interior. .
All of these conditions obtain at the present time and have been
a normal , outgrowth of the policy instituted by secretary of the
interior Denison as a result of his extensive investigation and re-
organization of the hospital in 1914.
Professional Work.
There were 7,116 patients treated in the hospital, with 685 births
and 476 deaths. The total hospital days were 86,742.
The free-dispensary service handled 90,947 patients, of which
36,924 were first visits. The receiving and emergency service
(including attending physicians'* offices) cared for 17,131 patients.
The out-patient visitmg services in obstetrics had 7,355 patient
visits with 573 births and 68 deaths. Total births in hospital and
out-patient services, 1,036.
The total patients for all services was 116,230 with 337,918 patient
visits.
Of the hospital patients 450 were Americans, 6,438 Filipinos, and
256 other nationalities.
The clinical laboratory made 27,417 examinations. There were
1,496 major operations, 68,612 minor operations and dressings, and
3,062 patients were given anesthesia.
The physical therapy department, including Roentgen work, had
3,293 patients.
The general-service department handled more than 180,000 visitors
and about 200,000 telephone calls.
Grounds and Buildings.
The hospital has one of the most beautiful locations in Manila.
The campus, which is a common one occupied by the hospital, col-
lege of medicine and surgery, and the bureau of science, covers six
city blocks. It was formerly an exposition ground and is well
shaded with acacias and otherwise made beautiful with sunken
gardens, palms, and shrubbery. Adjoining the campus is that of
the University of the Philippines on one side and the observatory
on another. The hospital fronts on Taf t Avenue, one of the main
boulevards of the city.
The physical arrangement in the utilization of space is excellent.
The unit construction is peculiarly adapted to the warm climate.
The long, open corridors and porch-surrounded wards assure con-
venience, perfect ventilation, and architectural beauty. All Con-
struction is of reinforced concrete with massive walls and red tile
roof.
Digitized by VjOOQIC
96 BEPOBT OF THE PHILIPPIKB 00MMI88I0N.
The administration building is of two stories. The first floor con-
tains the administration offices, reception room, and post office, and
in the lobby is located an information center, which is the heart of
the whole hospital. One end of the second floor has been made into
quarters for the house staff and the other end is used as a library.
The general plan of the various ward units is the same through-
out the building. There are interior modifications to meet the re-
quirements of special services, such as private rooms, maternity
wards, etc. In addition there is a surgical building, pharmacy and
di^ensary buildings, afad dormitories.
Owing to restricted government finances very little construction
work has been undertaken during the past year. A number of alter-
ations in buildings have been made to make them more useful and
economical in administration. Among these changes the following
may be noted :
The large pharmacy laboratory has been remodeled and equipped
with modem desks and plumbing and is now an ideal laboratory for
the accommodation of some 50 Sudents. A manufacturing division
has been constructed and equipped on the second floor of the pharmacy,
building. This department is well* supplied with modem machinery
of all kinds, each machine operated by its own individual motor. The
wholesale division of the pharmacy has been equipped with appro-
priate shelving and:fumished to meet the requirements of such a serv-
ice. The retail pharmacy has been rearranged so as to give ample
space for both practical work and teaching.
Five new temporary property and supply buildings were com-
pleted. These buildings were constructed largely from old material
secured by tearing down the old, insanitary, and unsightly sheds
formerly used as army barracks which werfi scattered over the
campus.
One of the new buildings is used as a clothing room and head-
quarters for the service division of the hospital. It is equipped with
office space, lockers, baths, etc., for the convenience of servants and
the protection of the hospital against the introduction of infection.
Internal construction in the west side of the administration build-
ing has been completed by providing for a staff, library, and resi-
dents' quarters on the second floor. The large accounting and
cashier's office space on the first floor has been rearranged so as to
allow greater speed and efficiency in the work.
A general service office for the chief of this department and the
general supervisors has been constructed in the rotunda. This office
also contains the telephone exchange, information clerks, physicians
and patients' registers, and all other equipment and personnel link-
ing the hospital with the outside world.
Further alterations have been made in the kitchen particularly
with a view to increasing facilities for teaching dietetics and the
efficient and economical accounting for supplies.
The clinical laboratory has been enlarged and well equipped with
modem appliances for diagnostic work.
The physical therapy space, including Roentgen and other elec-
trical work, has been changed so as to provide for a general photo-
graphic division which has been transferred from the college
buildings.
Digitized by VjOOQIC
BBPOST OF THE SECEBTABY OF THE INTERIOR. 97
Most of the alterations necessary to make the receiving and emer-
gency department what it should be have been made.
The somewhat more expensive steam system has been changed to
g^s installation throughout the plant. This has resulted in a con-
siderable saving each month.
Financial Department.
One of the first steps taken in the reorganization of the hospital
• was to create a financial department with th^ object of establishing a
more practical and efficient system of accounting, collecting, and dis-
bursing funds, care of property and supplies, figuring distribution of
<50sts, etc. Improvements have been made in the methods of receiv-
ing, issuing, checking and accounting for property and supplies.
School op Nursino.
The introduction of nursing education and the rapidity with which
the profession has become a most active, influential, and important
uplift movement forms an exceedingly brilliant chapter in the cur-
rent history of this country.
The laws organizing the school of nursing of the Philippine Gen-
eral Hospital, and the teaching facilities, curriculum, courses of in-
struction, etc., pertaining to the school are outlined in the ninth
annual announcement of the catalogue. *
The school has developed very rapidly, particularly during the last
two years, and new courses are being added every year. Formerly
the school was entirely tinder control of the aepartment of the
interior. The last Legislature by Act No. 2467 reorganized it and
placed its academic work under control of the authorities of the
University of the Philippines, while administratively the school is
still carried on as a department of the Philippine General Hospital.
After the passage of this law the school was entirely reorganized and
its catalogue, which has the full force of law, is approved by both the
secretary of the interior and the university council. This method of
placing the academic control of the school under university authority
offers many advantages to the students. In the first place, it makes it
practical to elevate the standards of admission, to elaborate courses
of instruction, to insure better and more thorough teaching, and it
offers a special stimulation in that the degrees are awarded by the
university. Inasmuch as the dean of the college of medicine and
surgery is also the director of the hospital, there is the advantage of
having one man control in administrative affairs of the school, be-
cause the hospital is supervised directly by the secretary of the
interior.
The school as now organized bears the same relation to the hos-
pital as other schools of the college of medicine and surgery, namely,
the educational function is considered a part of the college of medi-
cine and surgery and the practical work of the school is m carrying
out the functions of medicine and allied sciences for the hospital.
As now organized the personnel of the school is as follows : One prin-
cipal, who is also superintendent of nurses ; 2 assistant principals and
superintendents of nurses; 20 supervisors, who are all teachers in
the school and control the practical work of the various departments;
40 head nurses, who teach and at the same time carry on the prac-
Digitized by VjOOQIC
98 REPORT OF THE PHILIPPINE COMMISSION.
tical work of the various departments; 14 nurses, who are young
graduates and in training for promotion to head nurses.
The graduate students consist of 15 scholarship students provided
by the government and such others a3 may matriculate in the grad-
uate courses. There is a total of 247 undergraduate students divided
between senior, jimior, and freshman classes.
The school gives carefully outlined graduate courses as follows :
1. Teachers' courses: Duration one year.
2. Ward administration: Duration six months.
3. Nursing school administration : Duration one year.
4. Surgical nursing: Duration one year.
5. Public health nursing: Duration one year.
6. Social service : Duration six months to one year.
7. Private nursing: Duration one year.
8. Hospital administration: Duration two years.
9. Dietetics: Duration one year.
10. Midwifery: First class course given only to graduate nurses:
Duration six months.
The undergraduate instruction is divided into regular departments
as shown in the catalogue. These departments are made to suit the
requirements of modern hospital administration and the teaching
convenience of the faculty of the college of medicine and surgery.
The course of instruction Qovers two and one-half years. The school
has its own subsidiary faculty presided over by the principal of the
school, who also is superintendent of nurses in the hospital.
The ^laboratory courses for student nurses such as anatomy, physi-
ology, clinical laboratory, etc., are given in the laboratories of the col-
lege building by the same men who teach medical students.
rharmacy courses, including weights and measures, and practical
work, is given in the school of pharmacy by the faculty in the
laboratories and hospital pharmacy.
Didactic and practical nursing, ethics, housekeeping, dietetics, etc.,
are taught by specially selected members of the faculty of the school
of medicine and experienced supervising nurses.
The midwifery problem always has been a serious one in this
country. The supply of physicians is far below the needs of the
country, and, except in Manila and a few other cities, more than 96
per cent of tne babies are bom without competent assistance, and a
large share of mothers are attended by ignorant and superstitious
" intruders," who practice as midwives.
Acting upon the recommendation of various medical and other in-
terested persons, the school of nursing established two midwifery
courses, one for a postgraduate course of six months for nurses, and
a second-class course for girls who have completed the seventh grade
in the public schools.
The jBrst class of nurses to take the graduate course completed
their training November 1 of this jear, and they are all doing very
creditable work in various provincial stations.
Special attention should be called to the second-class midwifery
courses. This is a new innovation for the school. The entrance re-
quirements are the same as for the regular school of nursing, and the
duration of the course is one year. These young women during their
first six months in the hospital are given exactly the same training
as probational and regular students. During the seconcLs^x months
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BEPOST OF THE SECBETABT OF THE INTEBIOB. 99
they are given practical work in the department of obstetrics in the
hospital and in the large out-patient service of this department.
They are taught just as much as it is possible for them to absorb
during this one year's time, and they are given a second-class mid-
wife's certificate and returned to their Provinces to fulfill the re-
quirements of their scholarship, which in each instance is supported
by a provincial government.
The first class to finish their year of intensive training in the
second-grade course will be ready to return to the Provinces on April
1, next. Practically all of these 21 young women hold fellowship
appointment from their provincial governments, and their useful-
ness, and, therefore, the wisdom of establishing these courses, may
not De determined for at least another year.
For several years now the hospital has been conducting a practical
experiment in trying to make nurses of selected young women from
the various non-Christian Provinces. At present there are in the
hospital representative Moro, Igorot, and Tingian students. In most
instances these girls and boys have been selected from the fourth and
fifth grades in the public schools.
Eeceiving Depabtment.
A separately equipped receiving and emergency service constitutes
a new department in the hospitaL having b^n arranged during the
early months of the year. This d.epartment has been provided with
a sufficient personnel of doctors, nurses, and employees, and, in gen-
eral, its organization completed very similar to that existing in all
modern up-to-date hospitals. The reorganization of this department
has been a success from the first, and with the close of the year it is
working smoothly and efficiently.
Efficiency.
It is the policy of the hospital constantly to strive for ever-increas-
ing efficiency, to encourage economy as distinguished from parsi-
mony, and to investigate promptly every complaint or criticism re-
gardless of its nature or source.
All officers and employees are urged to offer suggestions for the
improvement of the service in any department. Recommendations
or suggestions leading to economy without impairing efficiency are
particularly welcome. Employees offering suggestions which are
later adopted receive credit for them on their efficiency reports.
In order to emphasize the importance of efficiency and to keep it
constantly and attractively before employees and students, a plan
of rewards for meritorious service was introduced and has been in
effect for several months.
Sebvice to Govebnment Employees.
A great amount of criticism of the hospital has been from govern-
ment employees who by law were entitled to free medical service as
part of their compensation.
During the early days of American sovereignty a physician was
appointed to render free medical service to government employees
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100 REPOBT OP THE PHIUPPINE COMMISSION.
and their families. By law and custom this service rapidly de-
veloped into a very large and extensive one. The number ot em-
ployees increased and "families" expanded until there were some
120,000 people entitled to this service. At no time has more than
a comparatively small percentage of the beneficiaries ever availed
themselves of this perquisite. The reasons were several : Government
provisions to handle it was inadequate and largely limited to Manila ;
the choice of physicians considered an inahenable right by most
people were not provided for ; the personnel of attending physicians
was made up largely by the detail of government medical officers
already more than busy with other duties ; the detail of young and in-
experienced internes to perform this difficult duty ; and many other
reasons similar to those encountered with the administration of
health insurance laws in Great Britain, Germany, and other countries*
When the Philippine General Hospital was organized in 1910 it
fell heir to this government function. The service was already a
very unpopular one, and it continued to be a most difficult duty to
discharge. Beneficiaries sometimes were unreasonable in their re-
quests and hypercritical of results. Some of the physicians detailed
to the duty had not sufficient experience and tact to deal with the
situation, and altogether there was constant dissatisfaction both
among employees and physicians and a large share of the criticism
of the hospital during its first four years was due to this cause.
Criticism of this service became so severe and at times unreasonable
that Governor General Forbes in 1912 issued an executive order pro-
viding for drastic action against employees making irresponsible
criticism.
With the reorganization of the hospital in 1914 the stand was taken
that much of the former trouble could be eliminated by appointing
specially paid physicians and surgeons exclusively for this dut^,
providing office room and personnel outside of the hospital, and in
other ways making the service a special one.
This action was taken and a circular outlining the plan and ask-
ing for cooperation was sent to employees. The effect was salutary
from the first. All criticism was not removed, but it was rapidly re-
duced, and during the past year there has not been a single instance
of serious or important criticism of the service, and at the same time
the volume of work has been kept up.
Abstract of Earnings, Philippine General Hospital.
From January 1, 1915, to December SI, 1915.
Accommodation and subsistence:
Private-room patients W5, 758. 39
Ward patients -. — 19, 067. 46
Extra accommodation and subsistence 1, 953. 13
City patients 50, 000. 00
W6,778.98
Electric fan 17. 81
Maternity room fees 849. 82
Dental treatment 603. 00
Extra medicines 436. 08
X ray fees 1,295.18
Ambulance fees 915. 76
Laboratory fees 2, 484. 80
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REPORT OF THE SECRETARY OF THE INTERIOR. 101
Messenger fees f=44. 97
Operating room fees and dressings ^ 2, 263. 4a
Professional services (doctor's fees) 664.00
Anesthetics fees 741. 00
X ray prints 18. 00
Miscellaneous and incidental receipts 2,142.94
Total 109, 255. 27
Clerical and Recobd Division.
General atatistics.
Total number of admissions 7,116
Total number of discharges 7, 144
Total number of births , 685
Total number of deaths 476
Total number of hospital days 86, 742"
Average hospital days 12:
Patients (all classes:)
Hospital . _>_ 7, 164
Dispensary l ^ 90,947
Attending physicians and surgeon^ 10, 03T
Receiving department (out-patients) 7,094
Obstetrical department (out-patients) 7,354
Other offices 720^
Total patients, all classes ; 123,296
Visiting physicinas :
Average daily number 2
Total during the year 569^
Patients :
Number occupying private rooms 471
Number occupying double rooms and pay wards 660
Number occupying free beds l . 6, 013
Classification of hospital patients :
American (total) 450
Private pay 92^
Government pay 324
Free 54
Filipino (total) 6, 43J^
Private pay 278-
Government pay 335
Free 5, 830
All others (total) , 256
Private pay 72
Government pay _* 56^
Free 149
Hospital days :
Total, all classes 86, 742
American patients 4, 072*
Filipino patients 80, 280
All others 2, 39(V
Private rooms 3, 784
Double rooms and pay wards 5, 665
Free 77, 293
Government pay (total) 6,530
American 3, 045
Filipino 3, 171
All others 314
Private pay (total) 2,919
American 660^
Filipino 1, 78a
All others 471
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102 REPORT OF THE PHILIPPINE COMMISSION.
WEATHER BUREAU.
Personnel.
Nationality, — ThQ composition of the personnel of the weather
bureau as to nationality has remained practically unchanged, over
91 per cent being Filipinos.
Promotions, — Only five employees in the centiial office, and two
second-class observers and one third-class observer in the Provinces,
were promoted during the year.
Separations. — ^It was with sincere regret that the resignation of
Rev. R. Brown, secretary of the weather bureau, was accepted.
Fortunately it was possible to secure Rev. M. Selga to succeed Rev.
Brown. Rev. Selga is a man of extraordinary abilities and of ex-
cellent training in science and is a valuable addition to the staff.
Outside of Rev. Brown there were five more separations from the
service, through resignation. One second-class observer; two third-
class observers and two assistants to first-class observers. One
third-class observer was reinstated.
Weather and Typhoons.
The year 1915 has been one of quite extraordinary weather condi-
tions for the Philippines. It began with a period of several months
of a severe drought whose effects were much felt throughout the
islands and most particularly in the Provinces of southeastern
Luzon, the eastern Visayas and eastern Mindanao. This drought as
far as these Provinces are concerned was even worse than that
of 1912, although in Manila and generally in the Provinces of the
western part of the Archipelago it was by no means so severe or
extraordinary.
Then we had not a single typhoon crossing the Philippines during
the greatest part of the typhoon season, viz, from May to Septem-
ber, both inclusive, while later on there ^ were no less than five
typhoons over Luzon in a period of about six weeks, from October
23 to December 7. It is considered indeed very extraordinary {a)
that there be so many typhoons in Luzon in so short a time; (J)
that all the typhoons crossed Luzon while there was none over the
Visayas; (<?) that a typhoon would come to pass near Manila so late
in the year, as it was the case in the typhoon of December 7, which
caused typhoon signal No. 7 to be hoisted there.
The worst of these typhoons was that of October 23 and 24, which
wrought ffreat havoc in the southern part of Catanduanes, Cama-
rines, and Batangas and the northern part of Albay, Marinduque,
and Mindoro.
Out of the five typhoons, three had a very similar track across
the southern Provinces of Luzon, while another crossed the northern
part of the island, and another the central part. In each case timely
warnings distributed as usually by Manila observatory throughout
the Archipelago, particularly to those Provinces which were con-
sidered to be m the path of the storm.
The Manh^a Observatory in the Northern Luzon Fahi.
The Manila observatory contributed to the northern Luzon fair
held in Baguio at the end of December, 1916, by the exhibition of
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BEPOET OF THE SECBETABY OF THE INTEEIOB. 103
three big charts showing: (a) The average monthly temperature
in Baguio as compared with those of Manila, Cebu, Zamboanga,
Hongkong, Singapore, Galveston, and Los Angeles; (6) the bright
sunshine m Baguio, Manila, and Hongkong; (c) the monthly tem-
perature, rainfall, and sunshine in Baguio.
Seismic Division.
A new station at Butuan was added during the year to this de-
partment. Considering that place very important on account of
the great seismicity of the Agusan Valley and of its vicinity to the
Philippine Deep, it was decided to place there a,Weichert seismo-
graph.
The Manila seismographs have registered during this year 338
seismic disturbances, 40 of them or 12 per cent having the origin
farther than 5,000 kilometers, and the rest either in around the
Archipelago or in the seas and regions of the Far East.
The number of local earthquakes felt in the different regions of
our Archipelago has been 137.
There was not during the year any great and really disastrous
earthquake in any part of the Archipelago, the strongest reaching
only Degree VIII of the scale. . Nevertheless some damage to the
buildings was caused within very small areas in the island of Mas-
bate, Sabtan and Batan Islands, Agusan Valley and the Ilocos
Norte Province.
The seismograph of Butuan registered from May to the end of the
year not less than 492 different instrumental shocks, originated gen-
erally within the Agusan Valley or in the Philippine Deep. The
seismograph of Agaiia, Guam, registered only 76.
Magnetic Division.
The observations of variation and the absolute measures of the
magnetic elements have been continued during the year. During the
month of June occurred the greatest magnetic storm ever registered
at the new observatory at Antipolo. It was general, with many sud-
den movements, and coincided with an interval of great solar activity
shown by very numerous sun spots and faculsB.
Astronomical Division.
The time service and other work has been continued as in the pre-
ceding years. Time signals at 11 a. m. have been sent every day of
the year, including Sundays and oflScial holidays, to all the tele-
graphic stations in the islands connected with the post office of
Manila. At noon the time ball has been dropped in the central
observatory. The largest error recorded in the moment of the fall
of the time ball has been 0.45 seconds, recorded once, on September 27,
the average error of 170 records not exceeding 0.15 seconds.
Correct time has been determined with a Repsold broken-transit
instrument of 75-millimeter aperture. One thousand two hundred
and thirty transits of stars have been observed and reduced and the
instrumental constants computed 60 times.
61983—16 8 r^^^M^
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104 BEPOBT OF THE PHILIPPINE COMMISSION.
The Biefler sidereal clock No. 251 has been used as standard clock
for the time service. Its performance during the year has been satis-
factory. The two largest discrepancies between tiie computed and
the observed correction of the clock have been 0.60 seconds and 0.58
seconds after periods of 7 and 18 cloudy nights, during which transits
of stars could not be taken.
Five hundred observations on solar radiation were taken during
the year with the Angstrom compensating pyrheliometer.
Method of Obtaining MoitE Detailed Information.
The annual reports of the directors of bureaus and their subordi-
nates are on file and open to inspection. Such of them as are printed
may be had upon application. The department will furnish any
information within its field that may be applied for, either from
these reports or otherwise, as desired.
Respectfully submitted.
Rafael Palma,
Acting Secretary of the Interior.
The Phujppine Ommission, ManUa.
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Appendix.
SECOND ANNUAL REPORT OF THE DELEGATE OF THE SECRE-
TARY OF THE INTERIOR.
JANUARY 1 TO DECEMBER 31, 1915.
The Govebnment of the Philippine Islands,
Department of the Interior,
MaivUa, January 1, 1916.
Sir: I have the honor to submit the following report of the work of this
office among the non-Christians from January 1 to December 31, 1915 :
The Mountain Province,
personnel.
Hon. B. A. Eckman continued, as governor of the Mountain Province, to
supervise the general administration and the public works, and. In addition,
performed the duties of lieutenant governor of Bontoc, as the latter position
was not filled.
Mr. C. W. Olson returned from leave and reassumed the work of provincial
treasurer, which had been efficiently performed during his absence by Mr.
Jos6 Martinez.
Lieut. Gov. Norman G. Conner, of Apayao, was obliged to return to America
on leave after a severe Illness of several months in the Philippine General
Hospital \ He was succeeded as acting lieutenant governor, first by Capt.
A. H. GUfillan, Philippine Constabulary, and, when the latter went to America,
on leave, by Capt. F. A. Whitney, Philippine Constabulary.
Mr. Sharon R. Mote, who served last year as acting lieutenant governor of
Bontoc, returned from leave and was appointed acting lieutenant governor of
Benguet during the absence of Lieut. Gov. J. H. Evans, who had gone to Fort
Bayard, Ariz., for his health.
Lieut. Gov. O. A. Tomlinson, of Ifugao, went home on leave, and Capt W. B.
Dosser, Philippine Constabulary, who had been for a number of years stationed
at Mayoyao, was appointed acting lieutenant governor of Ifugao during his
absence.
Mr. Walter F. Hale resigned the position of lieutenant governor of Kalinga
to enter inta private business, and was succeeded on August 1 by Mr. Samuel
E. Kane, who was transferred from the lieutenant governorship of Lepanto-
Amburayan.
Mr. Jos6 Martinez, after giving up his duties as acting provincial treasurer,
was appointed on July 18 acting lieutenant governor of Lepanto-Amburayan to
succeed Lieut. Gov. Kane.
AGRICULTURAL AND INDUSTRIAL DEVELOPMENT.
The policy which has been pursued in the past of opening up the Mountain
Province by the construction of roads and trails leading into it from all the
surrounding provinces has inevitably resulted in increased intercourse between
the people of the lowlands and those of the highlands. This naturally will
bring about considerable changes in the economic and social environment of
the non-Christians, who have in the past lived an isolated life under condi-
1 Since died, on Mar.' 24, 1016, in the Letterman Hospital in San Francisco, Cal.
Digitized by VjOOQIC
106 REPORT OF THE PHILIPPINE COMMISSION.
tions which kept them in a stationary state, but little beyond that of the races
of the stone age. The excellent progress which many of the children have
made in the schools ancJ the good records which some of them haVe made as
teachers and government officials show that their want of progress in the past
is due largely to unfavorable conditions, and there is, therefore, no apparent
reason why the non-Christians should not advance in time, provided they have
proper guidance and assistance, to a much higher stage of civilization.
As the changes due to increased intercourse with neighbors will be very con-
siderable, it is felt that the best interest of the non-Christians will be fostered
by fitting them to adapt themselves to the conditions which they will have to
meet as they are thrown more and more in contact with their Christian
neighbors. It is clear that the first steps should be to establish them upon a
secure agricultural. Industrial, and economic basis, which will provide them
with proper food, and housing and such comforts and necessities of life as
they may find necessary from time to time, and to give them sufficient ele-
mentary education to enable them to hold their own in trade and social inter-
course.
The most pressing problem is to improve their agricultural condition, as but
little progress in civilization can be expected from any people who are on the
verge of starvation, as many of the Igorots are.
The Mountain Province probably contains very nearly all the human beings it
is capable of supporting under present conditions, and the ■ sterile soil keeps
the people of Benguet, Lepanto, Bontoc, and Ifugao so near the starvation point
that it is almost impossible for them to do anything more than to keep them-
selves alive by unremitting labor. Everyone who visits this country is struck
by the immense amount of labor spent in terracing the steep hills for irrigation
and in carrying soil in baskets from the mountains to the river beds to make
rice paddies, which are almost certain to be swept away by thQ first high flood.
The most obvious remedy for this situation is to move part of the people to
more fertile vacant lands in the lowlands, but this moving of peoples has been
found difficult wherever it has been tried. It is not, therefore, surprising that
the non-Christians positively refuse to migrate, saying, with considerable reason,
that they do not like the ,new climate, and that they will die if they go to the
lowlands. It seems extremely probable that they would rapidly succumb to
malaria, tuberculosis, dysentery, and other diseases if they were forcibly trans-
ferred. The Ifugaos have for centuries been familiar with the settled, fertile
plains of the Magat River in Nueva Vizcaya, and twice have made settlements
there which were abandoned on account of the high death rate from malaria.
Consequently they prefer to exist on the verge of starvation in their own moun-
tains rather than move to the lowlands.
An experiment, however, is about to be tried at Panobdopan, in Ifugao, where
a fertile valley at the foot of the mountains is being brought under irrigation.
The Ifugaos who have worked on the ditch are becoming gradually accustomed
to the spot and have selected lands for cultivation. It is intended to place a
sanitary inspector in charge of the colony and to establish there a farm superin-
tendent and a school.
It is quite clear, nevertheless, that before long any methods which may be
tried to improve the cultivation of the lands in the Mountain Province and to
encourage its industries will fail to make sufficient provi^on for the population
if it continues to increase, and the only permanent remedy will be to assist
the non-Christians to settle on the lands east and south of Panabdopan and in
the eastern part of Kalinga. The situation in Bontoc and Ifugao is already
critical, as the people at times are destitute of rice and have to import it from
the surrounding territory. Kalinga will probably for some time continue to
j)roduce a surplus, and the population of Apayao is so sparse that no such
problems are likely to arise there.
The most practical remedy for the present, however, is to improve existing
systems of cultivation, and this has been the main work of the past year.
Every effort has been made to change the agricultural methods of the people by
introducing the use of fertilizers, rotation of crops, new food plants, and
especially by the use of leguminous plants, which are turned under to enrich
the soil. As the food supply consists practically of rice, yams, cassava, and
other starchy foods, with practically no oils, fats, or nitrogenous foods, the
people are underfed, show little power of vital resistance to disease, and are
unable to work more than a short time without exhaustion.
In accordance with the advice of Lieut. Col. E. L. Munson, Medical Corps,
United States Army, who made a sanitary survey of the Mountain Province at
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i
BEPOBT OF THE 8E0BBTABY OF THE INTEBIOB. 107
the request of this department, through the courtesy of Gen. Barry, a campaign
has been carried on to introduce and encourage the cultivation of various
plants and vegetables tending to vary the diet or to provide products which can
be sold to secure the necessities and comforts of life.
As a result of the enthusiastic cooperation of the provincial authorities and
of the bureaus of agriculture, education, and constabulary, the non-Christians
now grow in different places abaca, American sweet potatoes, bamboos, bananas,
beans, beets, cacao, camphor, camotes, cabbages, carrots, cassava, coffee (both
Arabica and Robusta), cowpeas, cotton, coconuts, cucumbers, eggplants, en-
dives, ginger, gourds, kapok, lemons, limes, lettuce, mangoes, maize, millet,,
melons of various kinds, mongos, mustard, mulberry trees, onions, oranges,,
papayas, peas, peanuts, pechay, peppers, pineapples, pill nuts, potatoes, pomeloes,
quinine, rice, radishes, sorghum, squashes, sugar cane, tomatoes, tobacco, tur-
nips, ubi, and yams. Some of these have been recently introduced, and the
cultivation of the others has been increased and improved.
Especial attention has been paid to encouraging the keeping of cattle, goats,
sheep, chickens, and pigs, in order to add meats and fats to the diet, and im-
proved breeds are being introduced.
The most important and practical work along this line is improving the
varieties of rice through seed selection. The agricultural inspectors of the
bureau of education and of the Province have traveled from place to place in-
structing the Igorots in the subject. Agricultural fairs held in some of the
townships and subprovincial capitals were very useful for this end. Especially
good results were secured from the northern Luzon exposition. At all these
fairs the best seeds exhibited were bought by the Province and sown in seed
beds for the purpose of supplying an improved supply of seeds for the people.
It was expected that but little success would be secured at first from this
movement, but it has been found that the mountain people, so far from being
unprogressive, are clearly alive to their own interests and support enthusiasti-
cally any movement which they can see is beneficial to them. Many of them
have practiced seed selection in an elementary way for some time, and so it
was not difficult to explain the principles to them. They are keen to buy
improved* varieties of seed and are excellent judges of quality.
A survey of the Mountain Province is now in process to collect and identify
the different varieties of rice and to encourage the planting of those which
are best suited to the different soils and localities on account of the yield per
hectare, the size and weight of the grains, resistance to drought and disease,
and. early maturity. At first considerable difficulty was experienced in per-
suading the people to use their rice fields for other crops between rice seasons,
as they were sure that the soil would become exhausted, but when they found
that planting of leguminous crops had no such effect they began in many
places to practice the new methods of crop rotation with excellent results.
Owing to the great cost of transportation, due to the fact that in most places
in the Mountain Province goods are transported only on the backs of men and
horses since the roads in relatively few places are suitable for carts, it is not
possible either to export or to import food supplies or other bulky articles
except in very limited quantities. It is not probable that the people of
Lepanto, Benguet, Bontoc, or Ifugao will every be able to export much food
of any kind, and if they are to rise in the scale of civilization they must be
able to give in trade something in return for the articles which they can only
secure from the lowlands.
Copper, gold, and other metals and minerals occur in a number of places,
but have not yet been developed, although the gold mines in the vicinity of
Baguio furnish regular employment at good wages to a number of the non-
Christians.
The most promising source of income for the inhabitants is the development
of the coffee industry. The Province is i^^id to have exported formerly about
^200,000 worth of coffee a year, but the trees were largely killed by the coffee
blight, as in many other parts of the world, and but few berries are harvested
from the enfeebled trees which still survive.
The success of the Dutch Government in restoring the coffee industry of
Java, which had been practically destroyed by the blight (Hemileia vastatrix)
through the substitution of the blight-resisting Robusta coffee for the Arabica
variety formerly grown, encouraged this department to send Mr. P. J. Wester
to Java, through the courtesy of the bureau of agriculture, in order to obtain,
full information as to the methods pursued. The Dutch Government was kind
enough to furnish for purposes of experiment the seeds of 12 varieties of coffee-
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108 REPORT OF THE PHILIPPINE COMMISSION.
which seemed best adapted to Philippine conditions, and also gave Mr. Wester
much information which had been accumulated by Dr. P. J. S. Cramer, chief of
the plant-breeding station in Buitenzorg. These seeds have been sown in a
numbea- of places in the Mountain Province and are doing very well. Arrange-
ments have been made to transplant the young trees into nurseries and to
distribute them later among the non-Christians.
The director of agriculture arranged for Mr. D. B. Mackie and for Mr.
Wester to make extended trips through the Mountain Province for the purf^ose
of obtaining full information as to local conditions, and Dr. H. E. Edson, of~
the United States Department of Agriculture, visited most of the places in the
Mountain Province where Arabica trees still survived in order to see whether
any blight-resisting varieties existed. The latter advised the entire abandon-
ment of the culture of Arabica coffee and held out no hopes that any bllght-
resisting variety could be developed.
Certain portions of Lepanto-Amburayan and Kallnga seem well adapted to
Robusta coffee, and the work of coffee culture will be largely concentrated In
those regions, although experiments will be conducted In other places In order
to ascertain whether Robusta coffee will flourish at the higher altitudes under
existing conditions In the Philippines.
It has usually been necessary In Java to dry the Robusta berries artificially
In order to prepare them for the market, but It has been found possible to
remove the " sliver skin " by sun drying and washing when only small quantities
are grown. The possibilities of Robusta coffee are shown from the fact that
while only 1,861,000 kilograms were grown In Java In 1910, 34,268,000 kilograms
were produced In 1914. Experiments are also being tried with Llberica coffees.
Full instructions have been secured from the best sources and distributed
among the provincial authorities for the Information of those who are Inter-
ested In coffee culture, as It has been found that poor methods have been
employed In the past, as the coffee trees have been planted too thickly together
In unsuitable soils, and have not been properly pruned and cultivated. In
many cases no effort has been made to provide them with the shade which Is
Indispensable.
It Is too early to predict what success will attend these experiments, although
It Is hoped that some at least of the numerous varieties will prove adapted
to the soil and climate. The Igorots are showing much Interest and have
shown a willingness to plant the trees which are to be furnished them.
The experiments started last year In silk cultivation continue to show good
results under the care of Father Jurgens, of the Belgian mission at Bontoc,
and a Japanese teacher of silk culture has recently been secured to assist the
progress of the Industry. Additional mulberry trees have recently been
planted In Bontoc to provide food for larger numbers of worms. Silkworm ^
eggs win be sent to a number of other places as soon as the mulberry cuttings
which have been set out In them have grown to a sufficient size to provide
^food for the worms. The worms have not suffered from the climate or from
disease, and there seems at present to be no obstacle to the extension of
the Industry under proper management.
NORTHERN LUZON EXPOSITION.
In order to foster the agricultural and Industrial advancement of the nou-
Chrlstlans, the northern Luzon exposition was held In Bagulo from December
27, 1915, to January 2, 1916. The Igorots had an opportunity to see the best
agricultural products, not only of the various sub-Provinces of the Mountain
Province, but also of Pangaslnan, Ilocos Sur, Ilocos Norte, and La Union. For
the first time the people of all the various tribes, which formerly had been
hostile, mingled with each other on friendly terAs on a large scale. There was
absolutely no disturbance or disorder of any kind, and the non-Chrlstlans who
visited the exposition were much gratified to find that they were able to win
prizes for Industrial and agricultural exhibits In competition with the lowland-
ers, and carried home with them many new Ideas which they hastened to put
Into practice. It was a surprise to everyone to find how keenly the non-Chrls-
tlans appreciated the value of various agricultural products and how eager
they were to purchase the best seeds available.. Many of them also purchased
clothes, household equipment, and many articles of comfort and luxury.
The fair opened with a grand parade, which Included a battalion of Scout
soldiers from Camp John. Hay with their band, and 2,000 non-Chrlstlans. The
attendance surpassed all expectations, as fully 2,500 non-Chrlstlans were fur-
nished accommodations by the officials of the exposition In addition to those
Digitized by VjOOQIC
EEPOBT OF THE SECRETABY OF THE INTERIOR, 109
who provided their own lodging. Many people from the lowlands were pres-
ent, and the total number in attendance was estimated at 8,000. All the
hotels and private boarding houses were taxed to their full capacity, as well
as the dormitories in teachers' camp, while two of the government center
office buildings were open to accommodate visitors.
Typical Igorot houses were constructed, showing the architecture, manners,
and customs of the inhabitants of each sub-Province and were among the
principal sources of attraction. The agricultural and industrial exhibits were
very creditable, and 826 first prizes, together with 230 second prizes, were given
for various agricultural, industrial, live-stocl£, poultry, and mining exhibits. The
laces, embroideries, and hand- woven cloths of various kinds attracted especial
attention.
LANDS.
The question of the ownership by the non-Christians of the land which they
occupy is constantly becoming of greater importance. Practically all the lands
in the Mountain Province are classed as public lands, and few i)eople have
definite titles to their fields, even though they and their ancestors have cul-
tivated them *to some extent for many years. Almost all the land in the inhab-
ited portions of the Mountain Province is claimed by some one, usually the rich
men of the villages, and the poor people who have plots too small for the
support of their families are obliged to work for the wealthier men.
The so-called caifigin system is very detrimental, -as it involves the wholesale
destruction of the forests by the cutting down and burning of the trees in
order that the clearing thus made may be cultivated for not more than three
years. After this the cogon and other coarse grasses usually come in and
make it impossible to raise crops with the primitive methods of cultivation in
use, since the plow is unknown and the soil is merely dug up and loosened
with rude hand implements. A new tract of timber therefore must be cleared
and burned when the old one is abandoned, and thus the remaining forests
are being constantly encroached upon. This method of cultivation necessarily
requires a large amount of land for each family, as so much of it is always idle.
In order to support the population comfortably it is extremely essential that
the land should be made continuously productive by better methods of cultiva-
. tion. According to the custom of the mountain people, land belongs forever
to a family which has once cleared and cultivated it, even though they no
longer continue to do so. A famUy which has not suflacient land for its support
is constantly tempted to attempt to cultivate cleared land which has been
abandoned, and disputes are constantly arising between the new occupants and
the descendants of those who are said to have made the original clearing. It is
absolutely necessary that some system of ownership should be adopted which
shall be just to all parties, and in some cases the non-Christians have been
persuaded to admit that the claims of the original owners should not be valid
if the family has not cultivated the lands for seven years. The people without
land are unwilling to expend the labor necessary to raise crops, as they have
found by experience that after the crops are sow^n some one is apt to claim
ihe fields on the ground that his ancestors formerly owned them and take
possession of the crops. In order to secure the economic independence of the
poorer classes it is necessary to distribute unused land to them, and experience
has shown that although all the land is legally public property, it is, neverthe-
less, advisable for administrative reasons to secure the consent of the claimants
of unused areas before they are distributed among those who need them.
The situation in regard to lands which can be irrigated is a little different.
These are cultivated practically continuously, with occasional periods when
they are allowed to lie fallow, and the real owners are usually known to every-
one. Although a large part of the land which can be irrigated is now under
cultivation, there are considerable areas which could be made into rice paddies
if it were not for the fact that the people are unwilling to expend the labor
necessary to terrace the ground, because they fear that the land will be taken
away from them by the descendants of the people who originally made caifigins
there.
In order to support the increasing population it will soon be necessary
to distribute all the land which can produce crops and to terminate
the custom of allowing families to claim lands which they are not using, and
thus keep them out of cultivation. The claimants of such lands will naturally
be opposed to any attempt to deprive them of what they claim are their rights.
and so this whole subject must be handle<l with great tact. The majority of
the people are not able, for various reasons, to profit by the present laws re-
jrarding homesteads and free patents, and it now seems prgbable, that acMiC
110 REPORT OF THE PHILIPPINE COMMISSION.
tlonal legislation will he necessary to give the people definite titles to lands
which they have heen continuously cultivating.
Under existing circumstances the expense of regular surveys does not seem
warranted, and so the plaji is now being tried of staking out the lands which
are publicly recognized as belonging to each owner, and keeping a record of
these lands, containing a rough description, in the office of the provincial
authorities, giving certified copies to the landowner and to the lieutenant
governors. Considerable difllculty arises from the fact that one owner will
often possess many scattered small tracts which are very irregular in outline.
These rough descriptions can form the basis for legal titles to be given later.
This method should be pushed as rapidly as possible, and when completed
arrangements can be made to distribute the land which is left with no
recognized owners. Announcement should be made in advance of the basis
which will be used in giving these informal titles, so that the non-Christians
may know just what proofs of ownership will be required. It should be
thoroughly understood that no claim of ownership will be considered if the
land has not been cultivated for over seven years or some similar period to be
agreed upon.
Some of the provincial authorities recommend that unoccupied tracts of
public land, not to exceed 5 hectares, should be conveyed free of charge to any
non-Christian over 18 years of age who requests it or to any head of a family
under that age, but that no person shall be given such a concession who is the
owner of 5 hectares. The provision is further advocated that any land so
granted shall be used only for purposes of actual settlement and cultivation
and shall revert to the government if not so used, and that in any case it shall
not become liable for the satisfaction of any debts contracted previous to five
years after the date of the concession, and shall not be sold or mortgaged until
five years after the date of such grant.
Many persons feel very strongly that for the present the non-Christians
should not be allowed to sell or mortgage their lands, the title to which should
pass only by inheritance or by gift within the family, so as to Insure to the
younger generation the possession of their family Innds. Claims are often
made by one person upon the lands of another based upon the loan of a pig or
carabao for a caflao. This custom leads to endless disputes, and If Informal
titles are to be granted It should be clearly understood that no such claims will
be valid against the land, although they may be permitted to be valid against
personal property.
In some places It Is possible to distribute public land which can be culti-
vated immediately, while In other places It will be necessary to assist the non-
Chrlstlans to construct Irrigation ditches to bring Into cultivation the lands
which have never been available In the past. The labor for these ditches is '
usually furnished gratuitously by those who are to profit by them, and the
government only provides the dynamite, tools, and supervision.
The experience of other countries would make It seem advisable In drafting
any comprehensive legislation regarding the lands of the non-Chrlstlans to
make provisions regarding their rights of alienation of the. property which
they cultivate, which Is practically all, strictly speaking, legally public land.
The lack of such provisions has caused serious difficulties In India and in
Egypt, and It Is quite possible to profit by the experiments which have been
tried In those places.
It seems very probable that as the non-Chrlstlans advance In civilization
they win come Into possession of lands valuable either for agriculture or for
the minerals which they contain, and In that case J;helr long established habits
of borrowing — ^principally for cafiaos and festivals of various kinds — are likely
to cause serious trouble. The existing uncertainty in land tenures makes the
land a poor security for debt, and therefore there is no encouragement for
money lenders to advance money on mortgage for the purpose of securing
ownership of the property through foreclosure. If legal titles are granted,
some way should be devised to protect the family against being reduced, to
pauperism through the improvidence of the member possessing the legal title.
The. experience of the Punjab In India Is most Illuminating. In the old days
the cultivator had no title, and though he borrowed money the money lenders
were restrained from demanding exorbitant interest through the fear that the
debtor would refuse to make any payments whatever, a situation against
which there was no remedy, because there was no legal machinery for the
collection of debts by foreclosure. The organization of the British system of
justice made It possible for the creditor to take his mortgage to court and
evict the debtor, thus securing a legal title. The land became a safe and
BEFOBT OF THE SEOBETABT OF THE INTEBIOB.
Ill
profitable investment, and the improvidence of the cultivators made them an
easy prey, so that many of the peasants, deprived of their land, became day
laborers and lived on the verge of starvation. During the term of Lord?
Curzon as viceroy a law was passed in 1900 providing that money lenders,,
shop keepers, and professional men might not be permitted to buy land from
hereditary cultivators, or even to hold such land on mortgage for more thaa
20 years without the consent of the State. The small farmers could, however^
sell to others of their own class without restriction. The result has been very
satisfactory, as both sales of land qnd mortgages have been greatly reduced^
and a considerable number of people every year pay their indebtedness and
free their land from existing mortgages.
If some similar system were introduced among the Igorots it would be neces-
sary to provide that small cultivators could sell only to each other, and could
not sell or mortgage their land to the wealthier men <"Bacnangs") or money
lenders or traders of any class. The whole subject should be given careful
study, and not only the local oflacials but the more intelligent non-Ohristians.
should be consulted before any law is passed on the subject.
PUBLIC WORKS AND TRAILS.
Roads and trails have been well maintained during the year, as is shown*
by the fact that in addition to road labor equal to f=42,034 cash appropriations^
of ^122,182.92 were spent on them during 1915 as compared with 1P«8,64a
during 1914, while ^117,105.81 were spent in addition on the Benguet and
Naguilian Roads.
During the year ?343,014.85 were spent on public works, including roads and
trails, waterworks, irrigation, buildings, telephone lines, and resthouses.
The former horse trail between Ifugao and Nueva Vizcaya has been changed
to a cart road, and narrow carts are now able to go from Ilocos Sur through.
Cervantes, Bontoc, Banaue, and Kiangan, to Nueva Vizcaya. Cart roads have-
also been constructed from Bontoc to Lubuagan, and from Balbalan to Pinukpuk.
near the boundary between Kaliuga and Cagayan, and also from Sagada ta
Bauko, while the road from Tagudin to Cervantes has been so much improved
that it was possible to drive a Ford automobile to Cervantes, and a motor
bicycle with a side car to Lubuagan.
Persons not connected with the government have frequently made statements-
to the provincial authorities that the roads and trails have never been main-
tained in such good condition as during the past year.
An entirely new trail has been built from the vicinity of Loo over Mount
Data to Sabangan, to shorten the distance between Baguio and Bontoc. A new
trail has already been constructed from Cervantes, through Kayan, to Bauko,
which will eventually be developed into a cart road in order to avoid th^ large-
expenses of maintenance caused by the Tuy slide on the main road. Many
other trails have been widened and improved.
Telephone lines have been constructed from Baguio to Bontoc, with con-
necting lines to the towns of Loo, Buguias, and Kabayan, in Benguet; from
Bauko to Banaao, in Lepanto ; and from Bontoc to Natonin, in Bontoc, making
the total length of lines in use 662 kilometers. Other lines now in process of
construction are from Cervantes to Tagudin, and from Lubuagan to Kabugao^
in Apayao.
EDUCATION.
The increased interest taken by the people in education has been most grati-^
fying, and there are successful bureau of education schools now in 69 places,
in the Mountain Province, including 21 recently established. The increase in
the numbers of pupils receiving instruction is especially remarkable, as ia
fehown by the following table:
1914
1915
Total
in-
crease.
Ambnrayan
1,005
1,214
95
1,688
324
669
648
1,292
209-
95.
Apayao '
Benguet
002
225
359
61
643
786
Bontoc ]
99
Ifueao
310-
Kalinga !
587
Lepanto
649
Total
3,195
5,930
2,736-
^
O .
112 BEPOET OF THE PHILIPPINE COMMISSION.
During the year 1915 the first school was started in Apayao in the town of
Talifugo, and the people of other places are now anxious for schools, which it
is proposed to establish in the near future. The increase in Benguet is espe-
cially large, as the people are beginning to appreciate the advantages of an
education, owing to the fact that the graduates of the schools have been able to
secure excellent positions of various kinds. The attendance in Ifugao and
Lepanto has nearly doubled, and the pupils in Kalinga have increased from 61
to 648. The total result has |>een that the attendance at the close of 1915 is not
far from double what it was in the early part of 1914.
There has been considerable criticism from various sources that it is unwise
to educate the mountain people, as it would unfit them for their environment.
The policy of the bureau of education, however, has been carefully adapted to
the situation, and the results seem to show that this criticism is not justified.
In all the educational work in the Mountain Province the work is suited to
the actual needs of each place, and while academic work in the schools is not
by any means neglected, special attention is paid to agricultural and indus-
trial education in order to fit the pupils to earn a satisfactory livelihood after
graduation. Most of the schools have gardens, and every effort is made to
teach improved methods of cultivation.
The existing local industries are carefully fostered. In Ifugao, for Instance,
where the wood-carving Industry has long been established, wood carving is
taught in the schools. In the towns in which basket making Is a hereditary
occupation, teachers of basket weaving are located, and teachers of pottery
have been sent to places like Samokl and Sapao, where the making of pottery
Is a long-established Industry. The Introduction of the potter's wheel Is much
appreciated. The recently established pottery factory at Daklan, In Benguet,
Is very promising, as jars are constantly being made and sold there at a price
of M, which are similar to the jars which are household articles throughout the
Mountain Province, and for which the people now pay from W to W each
when they are imported from China and Japan. A number of these jars were
exhibited at the Northern Luzon Fair and found a ready sale. Plain dishes
of several kinds are being manufactured and sold to the people at low prices.
The boys of Kiangan who have been taught stonecutting are earning good
wages as stonecutters and can always secure a living by making mortars for
husking rice and troughs of various kinds. Carpenters and metal workers are
In great demand, and the products of the weavers and lace makers, who are
taught In many places, find a ready sale.
The school at Bagulo this year sent out the first graduating class of 15 from
any Intermediate school for non-Christians. One of the boys went to the
United States to advance his education and another to Manila, while others
secured good positions as teachers, township secretary-treasurers, and exchange
officers. It will be several years before all the available positions can be filled,
and there Is therefore an assured career for the present for all the graduates
of the Intermediate school at Bagulo.
As the standards of living In the schools, especially the dormitory schools,
are higher than those of the great masses of the people, the problem of the
adjustment of the school children to their surroundings after they leave the
schools is one which requires considerable thought. No dlflftculty arises In the'
case of the graduates of the Intermediate school, as there are always positions
waiting, and the boys who have learned a trade need no assistance, but the
other children are likely to be required to aid their families in tilling the
fields, and unless some assistance is furnished them after they leave the
•chools they are likely to lose the education which they have acquired. With
this in view, the teachers make a special effort to keep in touch with the
pupils after they leave the «chools and to help them in various ways. It is
planned to establish settlements in the vicinity of the schools, with the idea
that the schoolboys will marry the better-educated girls, build improved houses,
and set an example to the surrounding population.
The homes of the mountain people are not suited for the industries which
are taught the girls in the schools, and so a practical remedy for the situation
has proved to be the establishment of industrial centers, where women can
work together in groups under supervision.
The Bontoc industrial center provides a building suitably equipped with
an Industrial teacher to supervise the. work. Fifteen girls who have completed
a course In lace making at the Bontoc Industrial School have been working at
this center, earning about 30 centavos a day, and other girls are weaving.
Digitized by VjOOQIC
REPORT OF THE SECRETARY OF THE INTERIOR. 113
As the people have no capital, the materials for the»e industries are fur-
nished by the provincial exchanges located in various towns, which also buy
the finished products, so as to insure an immediate sale for the finished goods.
An industrial center has been established at Tagudin, which is a large loom-
weaving region, in order to teach the use of the sling-shuttle attachments,
which are a great improvement on the ordinary hand loom. A skilled weaver
is in charge, and the school shop of the Tagudin intermediate school manu-
factures the new loom attachments and sells them at 'a low price. The weaving
Industry has been newly established in Kabayan, and 20 girls* are now weaving
under supervision. One of the ends in view in teaching weaving, lace making,
and other domestic arts is to free the women from the drudgery in the fields,
in which they spend most of their time, because It Is felt that an Improve-
ment in the condition of the women Is one of the essential steps to a higher
civilization.
The bureau of etlucatlon has encouraged athletics, which play an Important
part In the lives of the communities where the schools are located. The Baguio
Industrial School baseball team and band made trips to Vlgan and Manila
with excellent results.
No account of education In the Mountain Province would be complete without
mention of the excellent work of the various mission organizations.
The Belgian missionaries began work In the Mountain Province In the year
1907, and now have 44 schools, with 3,181 pupils, supported entirely by volun-
tary contributions, mostly subscribed In Belgium and Holland. In addition
^to the various schools maintained In Baguio, there are schools at Camp 7,
Irlsan, Batly, Taklan, Headwaters, Llbtong, Itogon, Atok, Tagudin, Cervantes,
Bauko, Gulnsadan, Otukan, Sadangan, Bontcfc, Tukukan, Klangan, Lagawl, "
Pugo, Anbangonan, Mawaswas, San Luis, and Cuenca. The girls* schools are
In charge of 22 Belgian canouesses, with 23 Flliplna teachers, and the boys'
schools are taught by 17 fathers, with 39 Filipino teachers.
A number of these schools are dormitory schools, and many of them give
especial attention to Industrial work, such as lace making, embroidery, and silk
culture. The general course of academic Instruction Is similar to that fol-
lowed In the schools of the bureau of education.
The policy pursued Is to continue Interest In the pupils of these schools after
their graduation and to assist them to progress. For this purpose suitable
houses are erected for many of them after marriage, for which they are allowed
to pay in monthly Installments, and the schoolboys are encouraged to marry
the schoolgirls, so that the latter may not lose what they have gained In the
schools by returning to the drudgery In the fields, which Is the usual occupation
of the Igorot women. Efforts are made to secure suitable occupations for them,
and a constant friendly Interest Is maintained both In the pupils and In their
families. The result is apparent in a very marl^ed Improvement in the com-
munities In which the work Is carried on.
The Protestant Episcopal Church, under the direction of the Right Rev.
Charles H. Brent, is carrying on work In Baguio, Sagada, Bontoc, Samokl, Alab,
Tukukan, Besao, and Bagnen. The schools In these places contain 450 puplUr,
In charge of 6 American teachers and 19 others, of whom at least half are
Igorots and the balance Filipinos.
The principal activity Is In Sagada, where a large stone church and hospital
are under construction. There Is now a dispensary. In which 4,747 treatments
were given during the year.
Schools for boys have been established. In which. In addition to receiving
academic Instruction, woodworking, carpentering, blacksmlthlng, and stone-
cutting are taught them, and they are already operating a printing press and
an electric-light plant
In the girls* school weaving and lace making form the principal Industrial
work.
Every effort Is being made to improve the condition of the inhabitants by
introducing new agricultural and Industrial activities, and the saw mill which,
was originally erected to supply materials for the buildings Is of great benefit to
all the surrounding country, and Its products are much used In the town of
Bontoc
SANITATION.
A special effort has been made to Improve the sanitary conditions In the
Mountain Province. At the end of October, 1913, the doctor stationed In
Bontoc was the only one In the Mountain Province. At present there are two
Digitized by VjOOQIC
114 REPORT OF THE PHILIPPINB COMMISSION.
doctors regularly stationed in Bontoc and others in Kabugao (Apayao), Kiangai*
(Ifugao), Lubuagan (Kalinga), and Cervantes (Lepanto), making six in all.
This does not take into consideration the hospital at Baguio, which is not
administratively in the Mountain Province. The number of nurses in the
Bontoc Hospital, which is the central hospital of the Province, has been in-
creased from four to five, and a district nurse is now stationed in Tagudin,
Amburayan, where she is doing excellent work in house-to-house visiting among^
the people. The sanitary 'inspectors have been increased from 5 to 17, all of
wliom are constantly tr^eling from place to place in the Provinces of Ifugao,
Lepanto-Amburayan, Apayao, Kalinga, Bontoc, and Benguet. In addition to
these, there are 3 new practicantes, making an increase from 11 to 32 pec^le
engaged in caring for the health of the people of the Mountain Province.
In addition to the well-established hospital at Bontoc, small hospitals have
been established at Lubuagan (Kalinga), Cervantes (Lepanto), and Tauit
(Apayao), as it was found that the mountain people would not take the journey
of several days necessary to visit the hospital at Bontoc. There was formerly
a small hospital in Kiangan, Ifugao, under the charge of a constabulary officer,
who has since been recalled. The doctor of the bureau of health, who is now
stationed there with two sanitary inspectors who act as nurses, has met with
extraordinary success, and for the month of October, for instance, treated 229-
patients in the hospital, while 642 were treated throughout the different
ranch^rias, making a total of 871 patients for that month in Ifugao. At times
as many as 102 patients have been treated in a day in this hospital.
The condition of the Bontoc villages has always been extremely unsatis- .
factory, as the people are accustomed to huddle their homes and pig pens
'closely together in compact villages. They resist any attempt to change their
customs, and it is stated that some years ago the threat of armed opposition
to any attempt made by the American officials to Improve conditions made
further improvements in sanitation inadvisable. During the past year, how-
ever, the effort has been renewed, the pigpens have been made more sanitary,
and have been filled with clean straw and rice husks. This has tended to im-
prove conditions greatly and has lessened the number of flies.
CLOTHING.
After considering tbe subject of clothing carefully Col. Munson reached the
following conclusions:
"The amount of clothing available to these mountain people is insufficient
for proper warmth. That they often suffer severely from cold is undeniable.
Also to keep the naked body warm requires the consumption of more food as
fuel than If body heat was conserved by garments. The mountain people
highly appreciate blankets, coats, shirts, etc. That they do not have them is
believed to be largely a matter of financial inability to procure them. Those
living near Baguio seem all to wear'^ cast-off garments which they have been
able to acquire at little or no cost. Improvement of economic conditions would
mean increased ability to buy more clothing, which would doubtless be taken
advantage of to a very large extent. Much of the body heat now so readily
lost would be conserved and the need of fuel, already deficient, to maintain
warmth thereby decreased."
A certain part of the necessary clothing can be supplied by the product of
hand looms, improved models of which are being introduced into towns which
formerly bought all their clothing. Every effort is being made to teach
weaving to the women and girls. The keeping of sheep and goats for their hair
and wool is being encouraged and also the planting of kapok trees, the fiber of
which Is useful for pillows and mattresses.
It Is probable, however, that a large part of the necessary clothing, especially
blankets, will always have to be Imported from the surrounding Provinces, and
all these Imported articles can only be obtained by the proceeds of the sale of
the products of local agriculture or Industry, or by the wages of the men who
work as laborers In various places, especially on public works.
HOUSING.
Owing to local customs, the houses of the people in the different sub-Provinces
vary considerably. Many of the houses of the Kallngas, Ifugaos, Apayaos, and
the Igorots of Benguet and Lepanto-Amburayan can be made Into very satis-
factory dwellings with relatively slight changes, but radical alteration in the
Digitized by VjOOQIC
BEPOBT OF THE SECRETARY OF THE INTERIOR. 115
:system of building of some of the peoples, including the Bontocs, is necessary.
All the people are being encouraged to build permanent houses of wood, and
as suitable timber is scarce everywhere and requires much labor to fit it for
use, In addition to that needed to transport it by human power for long dis-
tances, the various species of bamboo now existing in the Province are being
planted as widely as possible. As these will not thrive at the higher altitudes,
several new species of bamboo adapted to mountain conditions have been im-
ported from Japan and are now under cultivation.
Many of the wealthier inhabitants have built improved houses and are using
their influence to persuade their neighbors to follow their example. In various
places the provincial authorities have induced the non-Christians to provide
their houses with sanitary conveniences. The missionaries and private indi-
viduals have assisted a number of the younger people to erect adequate houses,
in which they live very comfortably.
CALAMITIES.
\
The typhoons of October 29 and November 3 caused serious damage in prac-
tically all parts of the Province. Many people lost their lives by slides and
drowning in the rivers, and buildings of all kinds were blown down. The
damage to the roads and trails through slides and washouts amounted to many
thousands of pesos. The crops were also destroyed in many places, and many
animals, mostly pigs, cattle, and carabaos, died from exposure or accident.
The heavy rains in many* places washed out the terraced walls of the rice
fields, inflicting damage which it will take much labor to repair. Other fields
were carried away by rivers or buried under slides of dirt, rocks, and gravel.
Locusts were particularly troublesome in Ifugao and Kalinga, and also in-
fested Apayao, Benguet, and Lepanto-Amburayan, but no serious damage was
done, as the people turned out and fought them vigorously. The constabulary
rendered especially valuable assistance in this field.
Rinderpest broke out in Baguio in October, and occasioned 16 deaths, but the
disease was completely checked by quarantine and disinfection, and did not
appear elsewhere in the Province.
There were 49 cases of hemorrhagic septicemia in Cervantes, Angki, and
Concepcion during May and October, with 48 deaths. The strict observance of
quarantine prevented the spread of the disease after its discovery.
lu July 13 cases of cholera, with 8 deaths, appeared in San Gabriel,
Amburayan, but the disease was quickly checked by the excellent work of the
bureau of health and the bureau of constabulary, and its spread to ther neighbor-
ing towns was prevented.
Nearly all parts of the Mountain Province were afflicted with drought,
which extended over a number of months and reduced the rice and camote
crops very largely. Through the energy of the provincial officials, quick-
growiug crops were planted in many places, so that the distress was not as
great as it would have been otherwise. The need of small irrigation works
in different places is becoming more and more apparent. *
PEACE AND ORDER.
Those who are familiar with the situation in the Mountain Province are
aware that conditions are constantly improving. Crimes of any kind are
rare, theft is almost unknown, and most of the cases brought before the
justices of the peace are for petty gambling and for nonpayment of taxes. The
people are constantly becoming more accustomed to governmental control, as
is conclusively sho\yn by the fact that the road tax is now collected everywhere
except in the Christian municipality of Tagudin, and the cedula in all sub-
Provinces except Ifugao and Apayao.
Both Americans and Filipinos travel alone unarmed in practically all por-
tions, and parties of ladies and gentlemen are constantly visiting the objects
of interest in the remote districts. Filipino traders penetrate with their wares
to many of the towns, and the hostility between the Christians of the lowlands
and the non-Christians of the mountains is rapidly disappearing as the two
classes become better acquainted. There has been no case for a long time
of a raid of one town upon another, or of an attack upon any American or
Filipino official.
Digitized by VjOOQIC
116 BEPOBT OF THE PHILIPPINE COMMISSION. "
The following table, taken from the court records, shows the exact situation
as regards infractions of the laws :
Number of criminal cases decided 9
Number of criminal cases dismissed IIIIIIIIIZIIIII 2
Number of civil cases decided 4
Number of civil cases dismissed IIIIIIIII 1
Total number of cases disposed of during the year 1906 16
Number of criminal cases decided 13
Number of criminal cases dismissed I 6
18
Number of civil cases decided 6
Number of civil cases dismissed 4
9
Total number of cases disposed of during the year 1907 27
Number of criminal cases decided :^> 21
Number of criminal cases dismissed 1
22
Number of civil cases decided 1 5
Number of civil cases dismissed 1
«
Total number of cases disposed of during the year 1908 28
Number of criminal cases decided 23
Number of criminal cases dismissed 7
30
Number of civil cases decided 3
Number of civil cases dismissed ^ _• 1
3
Total number of cases disposed of during the year 1909 33
Number of criminal cases decided : 24
Number of criminal cases dismissed 16
40
Number of civil cases decided 6
Number of civil cases dismissed 3
9
Total number of cases disposed of during the year 1910 49
Number of criminal cases decided 20
Number of criminal cases dismissed 19
89
Number of civil cases decided •.
Number of civil cases dismissed 3
3
Total number of cases disposed of during the year 1911 42
Number of criminal cases decided , 37
Number of criminal cases dismissed 23
60
Number of civil cases decided 12
Number of civil cases dismissed 2
14
Total number of cases disposed of during the year 1912 74
Digitized by VjOOQIC
BEPOBT OF THE SEOB£TABY OF THE INTEBIOB. 117
Number of criminal cases decided 38
Number of criminal cases dismissed 22
60
Number of civil cases decided 7
Number of civil cases dismissed 4
11
Total number of cases disposed of during the year 1913 71
Number of criminal cases decided 41
Number of criminal cases dismissed 16
67
Number of civil cases decided 6
Number of civil cases dismissed 1
7
Total number of cases disposed of during the year 1914 64
« ■
Number of criminal cases decided 64
Number of criminal cases dismissed 20
- — 84
Number of civil cases decided 78
Number of civil cases dismissed 9
87
Total number of cases disposed of during the year 1915 171
The great Increase In civil cases during the year 1915 was partly due tq.
increased land registration, In consequence of the policy of giving titles to
lands as far as possible. The Increased number of criminal cases heard from
year to year Is not to be attributed to a corresponding Increase In crime,
but to Improved administration of justice. Infractions of the laws are promptly
detected and punished. The constabulary have been extremely active and
eflaclent, and a number of the cases heard In 1915 were of crimes committed
eight or nine years ago, the perpetrators of which had only been recently
apprehended.
During the last two years very few crimes have gone unpunished, due to
the extension of organized government to the remote districts, and to the
cooperation between the mountain people and the provincial officials.
The following tables show the status of the more serious crimes, and make
it clear beyond doubt that head taking has practically disappeared .
Digitized by VjOOQIC
118
KEPOBT OF THE PHILIPPINE COMMISSION.
«3
I
I
O
I
<
Unknown.
Dispute over a hog.
Cutting affair between
two tribes— retaliatory .
Love affair.
Gambling.
Unknown.
Do.
Cutting affair between
two tribes— retaliatory .
Unknown.
Do.
Do.
Do.
Old feud.
Unknown.
Quarrel over debt.
Robbery.
Old feud.
Dispute over debt.
Running amuck.
Do.
Robbery.
Revenge.
Unknown.
Do.
Do.
Jealousy. .
Unknown.
Do.
Unknown.
Dispute over deer.
Unknown.
Do.
Debts.
Unknown.
Jealousy.
Unknown.
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Digitized by VjOOQIC
BEPOBT OF THE SECBETABY OF THE INTEBIOB.
lid
Land dispute.
Revenge.
Unknown.
Old feud.
Unknown.
Do.
Insanity.
Cutting affair between
two tribes— retaliatory .
Unknown.
Adultery.
Land dispute.
Do.
Ill
Panrtelde
Murder
Homicide
Murders
Muraer
do
Parricide
Killings
Homicide
do
Parricide
Murder
3wa
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Digitized by VjOOQIC
120
REPOBT OF THE PHILIPPINE COMMISSION.
I
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Do.
Do.
Unknbwn.
Quarrel.
Unknown.
Old feud.
Unknown.
Running amuck.
Robbery.
Theft.
None.
Revenge.
Unknown.
Dispute over a chicken.
Drunkenness.
Gambling.
None.
Revenge.
Unknown.
1
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Digitized by VjOOQIC
EEPOBT OF THE SECRETARY OF THE INTERIOR. 121
The recent apparent increase in crimes of violence lias received careful atten-
tion. It seems probable that in former times many of the crimes were con-
cealed, or passed unnoticed, and so were not reported to the government, which
has continued to extend its influence to new territory, so that now every crime
is reported promptly and is investigated at once. In most cases, the culprit is
discovered and arrested.
There seems reason to believe that the excessively dry season of 1913 caused
some increase in crime, as many of the people believe that a drought is caused
by the displeasure of the rain spirits at the abandonment by the people of their
old custom of propitiating them with human victims. The old women have been
endeavoring to persuade the young men to kill in order to break the drought.
It is well known that head-hunting with this people was a matter of religion,
and that in some parts of the country a man was not allowed by public opinion
io get married until he had killed somebody. The old women also say that a
dead person can not rest quietly in his grave until a head has been taken.
Every effort is being made to stamp out these superstitions, and the taking of a
head is severely punished.
It is also felt that part of the increase in crime is due to the lack of fear at
present by the mountain people of the prison in Bontoc, sentence to which was
formerly regarded as equivalent to the death penalty. Criminals frequently
state that they are not afraid of prison, and the case of Mah-Hen, of Ifugao. is
typical. He confessed the murder he committed, and gave the details, sjiyi ng,
" I am not afraid to go to Bilibid, because J am brave — ^I killed a man and feel
good." The record of the justice of the peace in the case of the two men con-
cerned in this murder is "during the entire Investigation of the case both
accused acted and appeared highly pleased with themselves, and during their
confessions quite frequently bragged of their crime, and of their satisfaction of
being what they considered brave men."
Discharged prisoners carry to their h omes the news of the good treatment
which they received in the Bontoc prison, and In several cases the provincial
officials have identified a man in the distance, who has recently been discharged
from Bontoc, on account of his being better fed than his companions.
A careful investigation into the situation has caused the concurrence of this
department in the recommendation of the provincial officials that the death
penalty should be inflicted in the Mountain Province in the same manner as in
the lowlands. On many occasions, mass meetings of the Inhabitants have peti-
tioned for the infliction of the death penalty, saying that this was the only way
to stop killings. They said that formerly when a murder was committed the
murderer- was punished by the relatives of the victim, but that now he is
arrested, sent to Bontoc prison for a short time, and eventually pardoned and
^released, to return to his home to boast of the situation. One of the ))rincipal
grievances is that, while the i)eople as a whole have to eat camotes, the criminals
are fed on meat. The provincial officials report that the relatives of the victims
often come to visit the murderers, and express great disapproval of their being
too fat, and urge that they be made to work harder and be fed on ta motes.
There is no evidence whatever for the belief that the people are less under
control than formerly. It should be remembered that previous to 1909 mur-
derers were not punished by the courts in the regular way, as no evidence
against individuals could then be secured, but punishment was usually inflicted
in the form of punitive expeditions against the guilty community as a whole.
Conditions in Apayao have improved very materially, owing to the efforts of
Lieut. Gov. Conner, Capt. Gilflllan, and Capt. Whitney. The surviving outlaws
who so long defied the provincial authorities are now serving a term of im»
prisonment in the ^ontoc jail, having recently been captured with Mu; iiid of
the people of the sub-Province, who have now finally decided to array themselves
on the side of the government.
The relations between the non-Christians of Apayao and the Christians of the
surrounding Provinces are excellent, and Ibanag and Ilocano traders n.»w travel
all over the Province in safety. Head-hunting in Apayao is a thing of the past,
and there has not been the least rumor of any attempt even to take a head. The
transfer of the capital from Tauit to Kabugao will place the authorities in a
more central location, and will enable them to control the people better. Addi-
tional roads are being built, and these, together with the construction of a tele-
phone line, are sure to produce the same excellent results on public order that
have been secured in other parts of the Province.
The people of Benguet are a law-abiding class, and when disputes and quarrels
occur they are usually settled by the local men of influence without recourse to
Digitized by VjOOQIC
122 BEPOBT OF THE PHILIPPINE COMMISSION.
the courts. Only a very few crimes, mostly of minor importance, have been
reported, and the situation is extremely satisfactory.
The conditions in Lepanto-Amburayan are similar to those in Benguet. The .
local constabulary officials have been extremely active in apprehending and
bringing to justice offenders of past years. This has had an excellent effect, as
it has shown that it is impossible to escape the vigilance of the authorities.
In Kalinga most of the serious cases brought before the courts were old
cases of crimes committed in 1907 and 1908 where the criminals were ap-
prehended during this year. No heads have been taken in Kalinga, and the
situation has been satisfactory.
An important step forward was taken in Ifugao, where it was finally decided
to prohibit the people from carrying spears because it was found that the
carrying of arms tended to convert simple disputes into serious affrays. The
matter was taken up with the people a year ago and was widely discussed.
The authorities went from village to village and explained the matter to the
people carefully, until they began to see the advantages of the plan, and finally
agreed that it was a desirable change, provided they were given permits to
carry their spears when hunting. This was easily arranged, and the carry-
ing of spears was abandoned in October throughout the Province without pro-
test and without the slightest disturbance. Only two men have been fined for
carrying spears, and they were from remote districts to which the news of the
new regulations had not penetrated.
A similar policy will be adopted in Bontoc and Kalinga, and no protests are
expected.
OBGANIZATION OP TOWNSHIPS.
Like most primitive races, the people of the Mountain Province were for-
merly governed mostly by chiefs and headmen, who formed a kind of wealthy
aristocracy, called "Bacnangs." This custom was superseded by the regular
system of organized townships which has for some time been extended over the
sub-Provinces of Benguet, Lepanto-Amburayan, and part of Bontoc. The whole
of Ifugao was last year organized into the townships of Kiangan, Banaue, and
Mayoyao, while all Kalinga was organized into the townships of Lubuagan, Bal-
balan, Pinukpuk, and Tabuk. Part of the sub-Province of Bontoc was or-
ganized into the townships of Sadanga and Tinglayan, in addition to the exist-
ing townships of Bontoc and Sagada. It is planned to establish townships in
Apayao during the coming year.
Under this system the president, vice president, and township councillors
are elected by an oral, popular vote in an open-air assembly held for the pur-
pose, under the supervision of provincial officials. Much interest is manifested
in these elections. For instance, out of the 10,551 qualified electors in the ,
Province of Iiepanto-Amburayan, 6,617 votes were actually cast. Ip some
towns every one of the electors voted. In some cases there is close competition
between the different candidates, and the system tends to increase the satis-
faction of the people with the government, besides training them in self-govern-
ment.
Although most of the township officials can not read and write, each town-
ship has a township treasurer, who keeps the records and assists them in the
management of their affairs. The majority of the townships have their own
revenues and make their own appropriations. In some there is much civic
interest, and they are even economizing the funds for the purpose of building
creditable township offices and school buildings. Although the votes of the
township councils are subject to review by the provincial board, it is rarely
that any advice of the provincial board is necessary for township affairs. The
ability of the non-Christian for local self-government is really a matter of
surprise to those who are not familiar with the workings of this system.
One of the great advantages of the township councils is that they arouse
popular interest in sanitation, in agricultural development, and in keeping up
the attendance in the schools, as the local officials are held responsible for all
these matters. The object in view is clearly to make the people feel that
these activities are theirs, and that they have a vital and practical interest for
them, and are not mere " fads " imposed upon them by higher authorities. Any
one who has dealt with primitive i)eoples realizes the obstacle that passive
resistance always presents to any change in customs or habits, and without
the popular support of these township governments progress would be almost
impossible. It is desirable to consider in this connection tiie advances in edu-
cation, sanitation, and agricultural development discussed elsewhere in this
Digitized by VjOOQIC
BEPOET OF THE SECBETABY OF THE INTERIOB.
: 12a
TRAVEL.
The system of trails has been extended and rest houses established in many-
places at about a day's journey apart. In most of these places there is a care-
taker who provides meals, bedding, and forage at fixed rates. Carriers for
baggage are furnished by the provincial authorities at an established tariff.
The larger rest houses are comfortably furnished.
The best months to visit Apayao are March, April, May, June, and July, as
from August to February there are apt to be rains which cause the river to
rise so that travel is uncertain.
December and January are the pleasantest months in Benguet, as frequent
showers occur from April to June, while typhoons are likely to occur at any
time from July to October. The months of February and March are likely to
be excessively warm during the middle of the day.
Bontoc is most agreeable from December 1 to June 30, although rains may
be expected any month, particularly during May and June. Typhoons are very
unusual between December and May, and the hottest months for traveling are
April, May, and June.
March and April should be chosen for Ifugao, as typhoons and heavy rains
are to be expected between August 1 and October 15. During November,
December, January, and February there is a great deal of rain, with fog and
cold. In May, June, and July afternoon showers are common, with occasional
rain storms.
The typhoon season in Kalinga is through September and October, with
frequent heavy rains in November and December, so these months should be
avoided. January, February, March, and April are usually rainy, but there
are only a few showers from the middle of April to June 15, so this season is
the most pleasant for horseback riding. During the rest of June, July, and
August there are occasional showers.
The months between November and March should be selected to travel in
Lepanto and Amburayan, as from April to June there are apt to be showers
and typhoons, with excessive heat, while July and October is the period of
the typhoons.
POPULATION.
There has been a great deal of speculation as to the number of inhabitants
in the Mountain Province, and the number of non-Christians has been greatly
overestimated. The following figures are the best available at present, derived
in some cases from the actual taking of a census and in others from an esti-
mate based upon the road tax. The population of Apayao is still merely an
estimate, but it is proposed in 1916 to secure more accurate information.
Sub-Province.
Christians.
Non-Chris-
tians.
Total.
AmburftYfwi - r r
13,935
302
926
283
47
14
2,721
13,793
61,698
27,600
61,717
116,953
75,986
29,300
27,728
Anayao
62,000
BeilgU6t ,^, ,,^^^,rrr .r, -, rr-,,r,^ ,r, ,,..-, , ,,,--- ^ -
28,426
Bokhoc
62,000
Itasao
117,000
K^Iiiiga
76,000
I^Aimito
32,021
Total
18,228
376,947
395,175
APAYAO.
Apayao has not progressed to the same extent as the other sub-Provinces;
because no attempt was made to organize it until 1907, and then nearly four
years passed before any real work was undertaken among the people. The
Spaniards only penetrated to Kapinatan on the north and to Ripang and Tali-
fugo on the south, while they had made for many years efforts to bring Ifugao,
Bontoc, Benguet, Kalinga, and Lepanto-Amburayan under control. Although
relatively little money has ever been expended for its improvement, neverthe-
less much advance has taken place during the past year.
There are probably only about 4,000 persons subject to the road tax, of
whom only about half have ever worked, as the people are very scattered, and
Digitized by VjOOQIC
124 REPORT OF THE PHILIPPINE COMMISSION.
the lack of communications makes it hard to manage them. It is therefore
very difficult to construct trails, but the tact and energy of the provincial
officials have caused many people to work in 1915 on the trails from rancherias
which have never furnished workmen before, thus rendering possible the con-
struction of new trails which will open up districts which have been nearly
inaccessible up to the present.
The exchange and post office have been transferred to the new capital at
Kabugao, which is located in a more central position than Tauit and will
put the officials in closer touch with the i)eople. The provincial buildings will
soon be ready for occupancy, and it is proposed to move to this place also the
constabulary quarters and the hospital.
The people are showing a spirit of cooperation with the officials and are
beginning to be interested in agricultural development. Some tobacco is being
produced and sold, and also a little cacao. Abaca shoots are being distributed
and also various kinds of plants and seeds. Rice and camotes are the princi-
pal staples, but many other kinds of vegetables are grown which afford a suffi-
ciently varied diet. It is felt that there are good possibilities for the Province
in growing coffee, tobacco, cacao, and hemp, and there is also much excellent
timber.
The arrest by two Apayao policemen of the Isneg called Yaden, who mur-
dered an Ilocano in 1912 in order to rob him, has had an excellent effect
upon the people at large, as it has shown them that even criminals who escape
to remote districts in the mountain are not safe from arrest by the authorities.
Isnegs are enlisting in the constabulary and will make good soldiers. The
Isneg policemen are also rendering satisfactory service.
Schools are much needed, as the only one is located in Talifugo.
The people are now ready to progress, and, if the requisite funds are pro-
vided, good results are assured.
The telephone line from Baguio to Bontoc has been completed, with connec-
tions in all the rest houses and in a number of the presidencias, including
Tublay, Kapangan, Buguias, and Kabayan. The bridge was rebuilt over the
Trinidad River, and the road from Baguio to Trinidad was surfaced. The
rest houses at camp 59 and at camp 88 /have been repaired.
Progress in many directions in Benguet has been extremely satisfactory, as
the people respond readily to the efforts which are being made to assist them.
They are taking up the cultivation of many new plants and vegetables, and
results are already appearing from the campaign which has been carried on to
introduce cowpeas as a second crop on the rice fields, thus both increasing the
food supply and enriching the land.
The chief resource of Benguet is live stock, consisting mostly of horses,
carabao, cattle, and hogs. This is increasing in a satisfactory manner, and
efforts are being made by the bureau of agriculture to improve the breeds.
The township fairs which were held in all the townships in preparation for
the Northern Luzon Exposition at Baguio stimulated materially the interest of
the people in agriculture and in native industries.
Health conditions have been very good. There have been no dangerous
contagious diseases, and the people are responding to the efforts of the sanitary
inspectors.
The locusts which infested almost all of the townships of Benguet during
the year caused but very little damage, as the people fought them whenever
they appeared, and no hoppers were allowed to develop.
Schools have been in a flourishing condition, especially in the Kabayan dis-
trict. The people in many places have asked for schools and have been ready
to erect good buildings by voluntary labor, but the lack of sufficient funds to
pay the salaries of the teachers and to provide the necessary equipment has
made it impossible to grant all their requests.
BONTOC.
The rest house at Talubin is being reconstructed, and a combined presidencia
and rest house is being built in Tinglayan, and a presidencia in Sadanga.
A l)rick kiln has been started in Bontoc to supply brick for the Bontoc prison
addition and other buildings.
The food supply of Bontoc has always been inadequate, and so new land
is being brought under cultivation by the construction of irrigation ditches
Digitized by VjOOQ I _
REPORT OF THE SECRETARY OF THE INTERIOR. 125
at Mainit, Barlig, Tetepan, Alab, Butigui, Tukukan, Talubin, and Ambayuan.
These are being constructed with voluntary labor, and the Province furnishes
only dynamite and superintendence. The lands brought under irrigation are
distributed among the people who work on the ditch.
One of the most interesting agricultural experiments is under way. about 2
kilometers north of Bontoc, where an uncultivated piece of land has been
laid off in parcels of a thousand square meters which have been distributed by
lot to about 40 people. Preference was given to young men who had attended
school and to those who had shown some sign of trying to improve their living
conditions. Seeds of corn, rice, and peanuts were given to the colonists, and
also seedlings of bananas, bamboo, kapok, pineapples, mongoes, coffee, and
cacao.
There will probably be several thousand parcels more to be distributed on
the same plan when the Mainit irrigation ditch has been completed.
Special effort is also being made to introduce ''new food plants. The pro-
vincial and prison gardens form the principal agricultural center in the Prov^
ince, and all new seeds and plants are here given a trial under proper super-
vision.
It is interesting to note that excellent red apples were picked this year in
Suyok from stodr imported from the United States and also green apples in
Suyok and Bauko from cuttings taken from trees planted by the Spaniards in
Balili in Lepanto.
The culture of silk worms is progressing satisfactorily under the care of
Father Jurgens, and will be developed as soon as the recently planted mul-
berry trees give suflacient food for the worms.
An industrial center has been constructed in Bontoc of wood 30 by 60
feet, to encourage weaving, lace making, and other household industries, and
women are working there under superintendence. Similar arrangements are
being made in Kaneo and in Tukukan. ,
KALINGA.
The 277 kilometers of first-class trail within the sub-Province were all main-
tained in good condition for horse travel. A most important feature is the
opening of the trail from Balbalasan to Tuao, as it traverses in its course of
88 kilometers large tracts of uncultivated lands, which could easily be brought
into cultivation. It also opens a much-used trade route between the Cagayan
Valley and the sub-Province of Kalinga. It is felt very strongly that the
trail from Balbalasan to Bangued, Abra, should be improved, and that a road
should be constructed from Bangued to Vigan, as it would form an excellent
route for the inhabitants from the overcrowded districts of Ilocos to reach
the fertile uninhabited plains of Cagayan and Isabela.
The waterworks of Lubuagan have been completed during the past year,
and shower baths and faucets have been installed in the provincial buildings
and in other places, with a public faucet for the use of the people on the
reservation. The Kalingas are much impressed, and have requested that
shower baths and faucets be placed in their barrio also.
A new wooden hospital and a new exchange building have also been erected.
Much progress has been shof^n by KaHngas in a number of fields.
Agriculture has been very successful. There was a considerable surplus of
rice, which was exported to Bontoc and Cagayan, and many seeds and cuttings
of different kinds have been distributed, including 15,000 coffee trees and sev-
eral thousand papaya trees. A nursery has been established at Kalitong,
where many thousand coffee trees have been planted and will be ready for
distribution in June, 1916. The trade of the Kalinga exchange has shown a
gratifying increase, to the great advantage of the inhabitants, as it was 1^00
in July and 1P1,280 in December. Between August 1 and December 31, 3,800
gantas of rice were shipped to the Bontoc exchange, and 4,828 to the con-
stabulary and schools. Formerly, there were only five small peddlers in
the Lubuagan market, while at the beginning of 1916 every stall was occupied
by merchants from Bontoc, Candon, and Abra, and by two Hindoos, who came
from Manila with a large stock of goods. Nearly 2,000 shirts, clothes, and
blankets were sold In the Lubuagan market within 10 days. A local industrial
and agricultural fair was held in Lubuagan on November 30 in preparation for
the Northern Luzon Exposition in Baguio, and 43 districts brought in exhibits,
from which selections were made by a committee of presidentes.
Digitized by VjOOQIC
126 BEPOBT OF THE PHILIPPINE COMMISSION.
Especial interest has been shown in education and eight primary schools of
light materials have been constructed by the people and nine started since
Augst 1, with a total enrollment of 684 pupils, while formerly there was only
one central school in Lubuagan. People now seem anxious to educate their
children, and are constantly requesting that schools should be started in new
places. Work is progressing on the construction of a two-story wooden school
building in Lubuagan. The site has been prepared, and the material is being
sawed by Kalingas in a lumber camp in the forests of Balhalan.
The cedula and road tax laws were applied to Kalinga during the past year.
The majority of the people preferred to work out their road tax, and there wa»
no opposition to the payment of the cedulas, of which 7,600 were sold.
IFUGAO.
The Ifugao provincial buifding and the Kiangan waterworks were completed,
the latter consisting of a 14,000-gallon covered reservoir supplied by water from
springs which is piped to the town. A new presidencia in Banaue was finished,
and a new exchange store and a slaughterhouse in Kiangan are almost com-
pleted. A number of irrigation canals were completed, and others are under
way.
Rest houses were constructed at Awa and Monhuyuhuy, and the cart trail
from Kiangan to the boundary of Nueva Vizcaya at the Lamut River was
widened and improved.
The congestion of the population makes the agricultural problem always a
serious one in Ifugao, since it contains 135,000 people upon an estimated area of
800 square miles, only a very small portion of which can be used for agricul-
ture, because much of the land is sterile and mountainous. The severe drought
during the months of March, April, and May reduced the rice crop at least 25
per cent and so the situation became acute, as even with full crops there is not
enough rice to support the people, and large quantities of rice and palay are
imported annually from Nueva Vizcaya. As soon as the rains began in May,
however, large areas of land were planted in quick-growing crops, such as
camotes, peas, beans, and other vegetables, through the activity of the provin-
cial officials, with the result that no actual suffering was occasioned by the
food shortage. At least 30 per cent more land was planted to quick-growing
crops than ever before.
The provincial officials are doing everything possible to vary the crops, intro-
duce seed selection, and improve the existing methods of cultivation. The
provincial gardens distribute young plants and seeds of various kinds, and seed
beds of coffee have been started in various places. The method has been em-
ployed of interesting ex-constabulary soldiers in the agricultural campaign, as
they are influential persons in their respective townsl
Several hundred cavans of coffee were raised in Kiangan, Banaue, and Sapao,
and found a ready sale to traders from Nueva Vizcaya. Tobacco is raised in small
Quantities for local use, but as it is of an inferior quality, it is not suitable for
sale. A "little cotton of good quality is raised for use in weaving blankets and
clothing. The schools have taken the lead in developing the already established
wood-carving industry, the products of which are sold at good prices as curios.
The bureau of education has discovered a new potter's clay in Sapao, and has
established a small kiln for the purpose of encouraging the pottery industry.
Cattle and carabao are rarely used for farming purposes, and only a few for
drawing carts. Hogs are raised extensively, and the blooded boars from the
Trinidad stock farm are improving the breeds.
The traveling sanitary inspectors, some of whom are native Ifugaos, have
worked to keep the villages clean, and to protect the sources of drinldng water
from contamination. The hospital has been particularly successful." During
the year 1,038 people were admitted, and 1,556 out-patients were treated, while
3,280 patients were treated in the rancherias.
The general order throughout the Province has been very well maintained, on
the whole, and there has been but very few cases of robbery or theft
Townships were established in Banaue, Mayoyao, and Kiangan along the lines
of village government which has been so successful in other parts of the
Province.
LEPANTO-AMBUBAYAN.
The construction of the new Sabangan-Mount Data trail opened a new coun-
try, the people of which have never before come in contact with civilization.
They soon learned, however, to earn money by working on the trail, and the
BEPOET OF THE SECRETABY OF THE INTERIOR. 127
authority of the provincial ofllcials has been extended over them, and many
have joined some of the neighboring organized communities. The road from
Tagudin to Bontoc is in good condition for standard carts from Tagudln to
Cervantes, and for narrow carts from Cervantes to Bontoc.
The provincial authorities have shown special activity in Improving agricul-
ture and have met a ready response. Nurseries for coffee have been established
in Kayan, Bauko, Besao, Sabangan, Banaao, Maukayan, and Ampasungan. In
order to assist the i)eople to build better houses, 5,000 bamboo cuttings were
planted during the year. The various agricultural fairs have aroused much
interest, and the influential men seem to appreciate clearly the benefits of the
new plans to the people, and urge the latter to assist in every possible way.
A rice seed selection campaign was started in the towns of Cervantes, Kayan,
and Angaki, and a strong effort is being made to find which varieties of rice
can be planted with the most profit in the different places. This Is important
in view of the fact that 38 varieties of rice are grown in Lepanto and Ambu-
rayan alone, including bearded and nonbearded, glutinous and nonglutinous, red
and white, irrigated and upland varieties. Forty different varieties of peas and
beans are also grown.
As the drought caused an almost complete failure of the rice crop, a campaign
for the production of secondary crops was started by Lieut. Gov. Martinez, with
the result that more corn and peas were harvested in Amburayan than at any
time in the last 10 years, so that there is now a surplus, upon which the people
are raising pigs and chickens.
The principal industries are the raising of cattle and carabao, rice, coffee,
the weaving of cloth and blankets, and the making of pottery, baskets, lace,
and embroideries.
The Mankayan-Suyok district In Lepanto is rich in gold and copper, and it is
estimated that in some years the Igorots of Suyok have sold gold to the value
of ^=75,000, mostly Obtained by panning the loose deposits and gravel.
The pail system has been successfully established in Cervantes, which is now
a very clean, sanitary town. The Cervantes waterworks have been completed,
and good drinldng water has been piped throughout the town, with faucets and
shower baths in private houses and a number of public faucets and shower baths.
NUEVA ViZCAYA.
Public works have been the main activity of the Province during the past year.
A number of reinforced concrete schoolhouses are under construction, and the
roads and trails have been extended and improved.
Almost the whole population is engaged in agriculture, and the surplus rice
finds a ready sale in Isabela, so the cart road, surfaced with crushed stone, now
under construction, which will ultimately extend from Imugan, through Bayom-
bong and San Luis, to Echague, will tend to reduce the cost of transportation
and develop not only Nueva Vizcaya but also Isabela.
The extension of the trail from Campote into the Ilongot country beyond
Maquebenga has brought the people in that region under control, and the vil-
lages at the headwaters of the Cagayau River have made this year no hostile
demonstrations against the people of Campote and Casibu, who were formerly
their bitter enemies. Preparations are being made to extend the trail still
farther into the unexplored country, and it is hoped before long to bring a large
part of the Ilongot districts under control. The provincial governor and the
constabulary oflicers have been well received during their expeditions into this
territory. A number of the principal Ilongots came to Bayombong for the first
time and intend to repeat their visits.
The Negrito settlement at Calabgan, on the east coast, continues successful,
and it has been proved that the Negrito, under proper supervision, can be per-
suaded to till the soil and give up his nomad life.
The Igorots in the vicinity of Imugan are raising coffee of an excellent grade,
which commands a good price.
The increase in live stock of all kinds is very gratifying, and the provincial
authorities are showing great- energy in improving the breeds of cattle and
horses.
The Ilocanos, who are constantly arriving, are being assisted to take up home-
steads, and the.inamigrants are contented and prosperous. Almost all the fam-
ilies have their own individual small holdings, and very few people are dependent
upon others for employment. Irrigation ditches have been constructed in many
places through voluntary labor, and much land is being leveled for irrigation.
The people continue to secure Torrens titles.
Digitized by VjOOQIC
128 REPORT OF THE PHILIPPINE COMMISSION.
There are no established Industries, although cloth and blankets are woven in
many families for domestic use, and some pottery, baskets, and furniture are
made.
The Province operates a sawmill, which provides all the necessary lumber for
provincial projects and will soon be in a position to fill private orders as well.
The interest in education still continues, and Nueva Vizcaya still maintains its
record of having a greater per cent of school children in attendance in the
schools than in any other unit of the bureau of education. The provincial
authorities are cooperating in securing suitable buildings, and liberal aid is
given from township and provincial funds.
The settlement farm schools at Campote and Maquebenga, in the Ilongot
country, are doing excellent work in civilizing the people, and it has been
planned to establish others in the near future.
The health of the Province continues satisfactory, as there was no outbreak
of contagious disease. The district health oflacer is maintaining an efllcient
inspection, and sanitary conditions are constantly improving. '
No serious crime was known to have been, committed in the Province, and not
a single known crime of any kind was committed by the Igorot population or
in any of the Ilongot rancherias under government supervision.
Locusts are one of the principal difficulties of Nueva Vizcaya, as they breed In
the adjoining uninhabited cogon areas and descend in enormous swarms upon
the cultivated fields. During the first eight months of the year the people were
constantly at work and spent the equivalent of 200,218 days' labor, killing 23,354
cavans of hoppers and 16,839 cavans of flyers. Since September there has been
but very little trouble.
In spite of the quarantines maintained at Imugan and San Luis, rinderpest
appeared at Solano, and afterwards spread to Bayombong and Bagabag.
The disease was finally eradicated at the end of about four months through
the energy of the provincial officials, after there had been 147 cases and 84
•deaths.
The baguios of October and November blew down many buildings, and did
much damage to the crops and live stock. The most serious calamity was
the drought extending from July to October, which is the usual rainy season
when the crops are customarily planted. However, energetic work on the part
of the people, when the rains finally began, secured a fair crop.
A severe fire in Solano destroyed many of the principal buildii^gs, including
the Roman Catholic Church and the primary school building.
The Province contains about 19,396 Christians and 6,152 Igorots, besides
about 10,000 Negritos and Ilongots, although the latter figure is only an esti-
mate.
MiNDOBO.
Although the Province contains very large areas of extremely fertile lands, it
imports annually about ^00,000 worth of rice, because the absence of roads
makes these lands inaccessible. The liberal appropriations made by the legis-
lature have made it possible to construct new roads in many places, which
will bring into cultivation 30,000 hectares of arable tracts, 2,000 hectares of
which will produce all the rice which is now imported and make large exports
of rice possible.
Work is progressing on a number of reinforced schoolhouses, and many
towns are accumulating funds for presidencias of strong materials.
Agriculture is progressing well, the Province is rapidly becoming self-sup-
porting and, is in a fair way to take its place in the list of regular Provinces.
The total revenue collections for 1915 increased M5,269.81 over 1914. During
the last year 660,339 coconuts were planted, which is an increase of 89,986
over 1914. The palay harvest for 1915 was 194,314 cavans, being almost double
the harvest of the previous year, which was 102,071 cavans. Sugar was ex-
ported to the extent of 2,000 tons, and much abaca and copra were also sold.
A coffee nursery was started, and an attempt will be made to produce this
•crop. One of the principal industries is the export of cattle, of which there
are 43,060 in the Province.
The growing interest in education is plainly shown by the increase in aver-
age attendance of 29 per cent over 1914.
Public order has been satisfactory, as only five criminals were sentenced by
the court of first instance during the whole of the year.
The Province was practically free from locusts during the year, as the few
which appeared were immediately destroyed. Rinderpest was entirely absent,
but there were some outbreaks of surra among the horses^
REPORT OF THE SECRETARY OF THE INTERIOR. 129
Two slight outbreaks of cholera were also promptly checked by the vigilance
of the health officers.
Many settlers are constantly coming in from the neighboring Provinces, and
2,268 homesteads have already been taken up. The Agricultural Bank has
assisted with a number of loans, and the people are appreciating the value
of titles, as 82 of them were granted in 1915, as compared with 10 in 1914.
In view of the fact that the existence in the Philippines of large plantations
is considered undesirable, it is interesting to note that the San Jose sugar
estate has decided to abandon the policy of raising its own cane, and will sub-
divide its 23,000 hectares of land into small plantations, which, are to be sold
to the occupants. Planters, mostly from Negros, have already ^ contracted
for 4,000 hectares, and they are already cultivating 1,500 hectares.
Palawan.
The new water system and dock at Puerto Princesa have been completed, as
well as the concrete school building at Cagayancillo. The wells and tanks in
Cagayancillo have been repaired with concrete, and new wells dug in order to
increase the water supply. This still continues inadequate, and further plans to
increase it are under consideration, although the problem is difficult, as it is
unlikely that artesian wells will be successful.
Construction has continued on the system of roads and trails, and many
points are connected by telephone.
Although the main island of Palawan contains much fertile land, timber, and
other natural resources, it is practically undeveloped, owing to lack of commu-
nications and the scarcity of inhabitants. Plans are under consideration to
transfer some of the excess population of the densely populated islands of
Cuyo and Cagayancillo to suitable locations on the island of Paragua, especially
in the Tayta.^ Valley, which has already been explored and found to be well
adapted for the purpose.
Practically the only communication with the Province is maintained by the
Panglima, but this year the provincial boat Florence has been used with con-
siderable success in conveying goods from one place to another, and especially
in carrying the surplus rice of the southern towns to the northern places where
the rice crop was insufficient.
Special attention is being paid to the development of agriculture, as over 95
per cent of all the rice planted is under the caiiigin system, which involves con-
siderable destruction of the forests. In cooperation with the local representa-
tive of the bureau of forestry, a determined effort is being made to terminate
this practice, and to persuade the people to use plows instead. The results are
gratifying. The planting of coconuts, tobacco, cacao, and coffee is increasing,
and 191 applications for homesteads were filed during the past year, while
three times this amount are pending.
Forest products are the chief exports, and amounted in 1915 to K33,652.57.
Cattle, edible birds' nests, and poultry are also exported, together with sea
shells of various kinds, which are used in the manufacture of buttons. Ar-
rangements have been made, also, to foster the rattan industry, since Palawan
produces the best rattan in the world.
There is much interest in education, and in many towns the people are willing
to raise voluntary contributions and to furnish labor and materials for the con-
struction of schools and the purchase of equipment.
Considerable success has attended the worlc of the district health officer and
of the sanitary inspectors, while a female nurse has been stationed at Brookes
Point to assist the Moro women. With the exception of dysentery in a few
places, there has not been any serious outbreak of disease in the Province.
The condition of public order was satisfactory, and there were no crimes or
disorders of any importance.
The Province has been fortunate in being free from locusts and rinderpest,
and an efficient quarantine against imported animals seems likely to continue
successful. The only damage to crops has been from worms and mice.
Secretary-Treasurer Ambroslo Pablo assumed the duties of acting governor
upon the departure of Acting Governor H. J. Detrick, who left on April 6 for the
United States on leave, but has since resigned.
Mr. Anastaslo Manalo, of Puerto Princesa, was elected third member of the
provincial board under the new law making the third member elective. Town-
ship officials were elected for the newly organized townships of Agutaya, Bacult,
and Cagayancillo. ^ t
Digitized by VjOOQIC
Digitized by VjOOQIC
REPORT OF THE SECRETARY OF COMMERCE AND POLICE.
FISCAL YEAR ENDING DECEMBER 31, 1915.
Department of Commerce and Police,
Mamla^ March 30^ 1916.
Gentlemen : There is submitted herewith the report of the depart-
ment of conimerce and police for the year ending December 31, 1916.
The imdersigned was designated acting secretary of the depart-
ment, effective April 5, 1915, by executive order No. 25, series of
1915, during the absence of the Hon. Clinton L. Eiggs. Secretary
Riggs resigned on October 31, 1915, and the undersigned continued
to serve for the remainder of the period covered by this report.
This department has executive control and supervision over the
Philippine Constabulary, the bureau of public works, the bureau of
coast and geodetic survey, the bureau of posts, and the bureau of
labor. It has general supervision of all corporations except banking
corporations.
PHILIPPINE CONSTABULABY.
Chief of constabulary: Brig. Gen. Herman Hall, January 20 to
December 31, 1915.
Acting chief of constabulary : Col. Wallace C. Taylor, January 1
to 19, 1915.
Officers and employees of the bureau at the close of the year 1915
1915).
(Dec. SI,
Americans,
1915.
^^'
Total,
1915.
Total,
1914.
Director (chief)
1
10
1
11
Asffffftant directors (ftssfstant chiefs)
1
10
1
212
8
117
75
11
3
1
29
3
329
83
11
7
1
30
6
317
Clfirks
08
Kail carriers
7
Stenograi^ers
4
7
Trwnsifttws
2
Agents
1
3
29
ItfiifKM^IIaiieoiis
7
Total
239
240
479
448
CHANGES IN PERSONNEL.
Appointments
15
25
63
78
2
35
87
lapped
TVjtfwtatwnents
4
Reliefs (United States Army officers)
It^O^ftVl . '. '. . ^ X
2
10
iie<»<gDat<ons
60
Retired
Transfers to bureaa
3
Transfers from bnreati x
Deaths
131
Digitized by VjOOQIC
132
REPORT OF THE PHILIPPINE COMMISSION.
Capt. James C. Ehea, United States Army, was relieved from duty
as inspector for constabulary on June 5 by operation of an act of
Congress. It is sincerely regretted that the law does not permit the
detail of other Army officers for this class of work. The constant
inspection of the constabulary by experienced officers is believed to
be essential for the maintenance of its efficiency.
Col. Edward W. Griffith resigned on March 20. Col. Thomas I.
Mair was burned to death upon the destruction by fire of his resi-
dence in Iloilo on July 30. The tragic death of Col. Mair and the
resignation of Col. Griffith caused a great loss to the constabulary.
Both entered the service in 1901 and held many important and re-
sponsible positions with credit and success. Throughout their 14
years of service they contributed greatly toward establishing law
and order in these islands.
The policy of Filipinization was continued with increasing vigor,
34 Filipinos, including 6 sergeants, and 14 Americans being ap-
pointed third lieutenants during the year.
Statement of number of American and Filipino officers and employees at the
time of rendering reports submitted to show relative numbers of Americans
and Filipinos employed.
Americans.
Filipinos.
Total.
269
259
528
306
221
527
286
107
392
285
125
410
286
105
391
285
113
397
295
93
388
298
104
402
291
121
412
319
146
465
258
190
448
239
240
479
e^cpenditures.
Jnne 30, 1905
June 30, 1906
Jnne 30, 1907
June 30, 1908
June 30, 1909
June 30, 1910
June 30, 1911
June 30, 1912
June 30, 1913
Dec. 31, 1913.
Dec. 31, 1914.
Dec. 31, 1915.
P-1,135,716.83
l,142,6ia05
1,163,327.86
1,187,160.38
680,118.76
1,302,365.47
3,009,623.56
1 Figures for these years are not available.
The increase noted in salary expenditures for the year 1915 is
due to a different method of accounting made by the insular auditor,
whereby certain items were transferred from " Contingent expenses "
to "Salaries and wages." These items include rent and commuta-
tion of rent of officers' quarters, subsistence and clothing allowance
of enlisted men, and labor employed in the construction and repair
of temporary buildings. As a matter of fact, the salary expendi-
tures during the year show an actual reduction of 1P4,300 over the
amount corresponding to the year 1914, notwithstanding the fact
that three additional companies were organized during the year.
Digitized by VjOOQIC
EEPOBT OF TH5 SECBETABY OF COMMEECE AND POLICE. 133
Strength of enlisted force Dec. SI, 1915,
Officers.
Enlisted
men.
Headquarters:
Lme
9
2
46
3
57
2
34
2
48
2
66
6
12
Medical division
District of northern Luzon:
Line
736
Medical division
15
District of central Luzon:
Line
1,123
23
Medical division
District of southern Luzon:
Line
638
Medical division
15
District of Visayas:
Line
838
Medical division
19
District of Mindanao:
Line
1,230
25
Medical division
Santa Lucia Barracks:
Line
Medical division
6
5
21
1
3
148
Constabulary academy:
Line
11
Medical division
Palawan:
Line
61
Medical division
2
Absent with leave:
Line
80
1
3
Medical division
On detached service from constabulary, Including band en route from United States.
79
Total :
341
4,961
V
Medical Division.
strength: 19 officers and 110 enlisted men.
Constabulary cases treated in hospital 846
Constabulary cases treated in quarters 3, 782
Miscellaneous cases other than constabulary 12, 645
Members of constabulary treated by othet than constabulary medical
officers 217
Days lost in hospitals » 11, 606
Days lost in quarters 22, 837
Malaria is at the top of the record with the largest number of
cases, with venereal diseases second.
Statement of accounts, 1915,
DEBIT.
Appropriation, Act. No. 2431:
Salaries and wages W, 055, 870. 31
Contingent expenses 520, 093. 85
Purchase of equipment— 90, 000. 00
W, 665, 964. 16
Appropriation, Act No. 2611 27, 000. 00
Brought forward for insurance claims 2, 500. 48
Service Income 7, 812. 29
Sales of fixed assets 15, 511. 24
Gain on sales of supplies 158. 87
Supplies taken up ^-_ 56, 288. 80
Insurance claims set up 4, 050. 24
Total 3, 779, 286. 08
Digitized by VjOOQIC
134
BEPOBT OF THE PHILIPPINE COMMISSION.
CBEDIT.
Total expenditures 3, 577, 344. 30
Reversions to general fund 198, 370. 67
■Carried forward for insurance claims 3, 571. 11
Total 3, 779, 286. 08
Statement of assets and liahilities,
ASSETS.
Heal estate (land) 99,759.72
Plant and equipment:
Buildings and improvements f^l2, 361. 84
Water craft and appurtenances—^ ^- 72, 561. 77
Motor vehicles and accessories 41, 479. 20
Land transportation (other than motor) 99,799.42
Industrial machinery and implements 4,486.79
Hand tools - 15, 612. 21
Furniture and office equipment - 351,483.01
Ordnance equipment 377,862.55
Miscellaneous equipment 50, 039. 30
^- 1,625,686.00
Supplies and materials 497, 241. 89
Accounts receivable 11, 166. 99
Insurance claims- 3, 571, 11
Oash: 14,738.10
Insular treasury 501, 898. 52
Collecting and disbursing officers 304, 102. 95
197, 795. 67
Prepayments 2. 00
* Total 2, 039, 632. 23
LIABILITIES.
Accounts payable 86, 989. 26
Accrued leave payable 223, 626. 05
Bond fund. Act 1954 100, 000. 00
Net worth— - ^ 1, 629, 016. 92
Total 2, 039, 632. 23
Summary of licenses issued by the chief of constabulary under Act No. 1780, to
possess or carry firearms, to Dec, 31, 1915,
Rifles.
Revolvers.
Shotguns.
Total.
Dec. 31, 1915
Dec. 31, 1914
Increase, 1915
Decrease, 1915
Net increase, 191£^. .
505
511
2,637
2,268
369
4,397
4,265
132
7,589
7,044
501
6
495
Conditions as to Peace and Order bt Districts.
District of northern Luzon, — Col. Edward W. Griffith was in
charge of this district until March 15, when he was relieved by Lieut.
Col. Charles E. Nathorst.
Subiigay, a troublesome outlaw of Apayao, was killed January 6,
and three of his followers were captured on October 5* These out-
laws have been wanted for a number of years and their apprehension
had a beneficial effect upon local peace conditions.
Digitized by VjOOQIC
EEPOBT OF THE SECBETABY OF COMMEBCE AND POLICE. 135
The opening of roads and trails in the north and the extension of
telephone conunnnication has greatly facilitated the maintenance of
law and order.
^ There have been more killings in the Mountain Province this year
than during the' preceding one, but that fact is not significant.
Twenty were reported in 1913, 14 in 1914, and 27 in 1916. These
crimes among the semicrvilized are largely actuated by supersti-
tious causes, such as a belief that taking human life will bring
rain, and it is known that during 1915 very little rain fell in that
locality. Furthermore, governmental influence has been further ex-
tended during the vear, and it is probable that more information
has been obtamed about such crimes than heretofore.
The establishment of a station at Macabenga, Neuva Vizcaya, dur-
ing 1914, has done much toward exercising control over tne resi-
dents that live near the headwaters of the Cagayan River.
District of ceTvtral Luzon, — ^Lieut. Col. Charles E. Nathorst was
in charge oi this district imtil January 20, when he was relieved by
Cd. Wallace C. Taylor.
In general, law and order conditions have been excellent. There
were a number of arrests and convictions in connection with the
Ricarte movement during the early part of the year.
On July 29, a band of robbers from Imus, Cavite, made a bold
assault on the town of Binan, Laguna. The leader surrendered and
others of the band were captured.
In November and December, the vicinity of San Pablo, Province
of Laguna, was the scene of a number of robberies and assaults, so
that it became necessary to station a general service company at that
point. Conditions there are- now normal.
District of southern Luzon. — Col. Charles C. Smith was in charge
of this district.
There are no organized bands of outlaws in this district, but rem-
nants of the Otoy band are still living in the interior of Samar.
They commit no depredations, but have not yet settled down under
the supervision and control of the government authorities. Efforts
are bein^ made to accomplish this. The district has been extremely
law abiding.
District of Visayas. — Col. Thomas I. Mair was in charge of this
district until his death on July 30. On August 5^ Lieut. Col. John
J. Gallant was temporarily assigned to this district, being relieved
by Col. Marcus D. Cronin on October 15.
The mountain leader and reputed ladrone, Oto Derable, is still at
large on the Antique-Iloilo border. He commits no depredations but
is a menace to the established settlements, and controls from 10 to
20 firearms. Numerous efforts have been made to induce him to
present his arms and accept government control, but thus far with-
out success. Law and order conditions throughout the district have
been excellent
District of Mindanao, — Col. Peter E. Traub was in charge of this
district.
Great progress has been made during the year in the maintenance
of law and order and establishment of government control over the
outlying sections of Mindanao. This is particularly true in the dis-
tricts of Lanao and Sulu, the most difficult to handle in past yeara.
The constabulary and other government agencies have extended their
61»g8-ie— 10 Digitized by GoOgle
136 REPORT OF THE PHILIPPINE COMMISSION.
influence into the interior and established contact with large sections
not heretofore controlled. This applies not only to Lanao and
Sulu, but to all districts. Cordial cooperation has existed between
all branches of the government, and in many instances constabulary
officers exercise dual positions, such as district governors, deputy
governors, justices of the peace, and district health officers.
Three additional companies have been sent to Mindanao during
the year and one new one organized. Two more companies are being
organized, and another company from the north will be sent, while
companies serving there will be slightly increased in number. This
is about all the appropriation will permit during the year 1916. It
is not th0 intention to organize new companies to replace those
taken from northern Provinces. Every effort has been made to keep
Mindanao supplied with officers and men, and to help in every way
possible the splendid work being done.
There are no outlaw organizations in Agusan, Bukidnon, Cotabato,
Misamis, Surigao, or Zamboanga.
In Davao, the Limbasan band, numbering about 100 Mandayans
living on the upper Agusan and Hijo Rivers, and a small band of
about 20 Atas living on the upper Davao and Lasanga Rivers, have
caused some trouble from time to time, but are now partially con-
trolled and are establishing settlements.
In Lanao one active outlaw band is being constantly pressed, and
a number of expeditions have been made against it. The band con-
sists, in part, of 6 deserters from the Fifty-second Company Philip-
pine Scouts, who deserted April 30 from Camp Keithley. They have
m all about 20 men and 12 rifles. Operations against the band have
been expensive, but the work should not lag. The leader, Ampuan
Agaus, known for so many years in Lanao, is still at large, nonactive,
but independent of government control. He has about 25 firearms
and occupies the Sungad country to the west of Pidatan. New trails
and telephone lines in Lanao are aiding greatly in the maintenance
of order.
In Jolo there about three small bands of outlaws still at large.
The killing of the prominent outlaw leader, Amdad, by the constabu-
lary on December 22 will have a marked and beneficial influence
upon the question of good order. New stations have been established
in the interior of Jolo, and with the cooperation of the peacefully
inclined residents, which is now being liberally given, and the exten-
sion of roads and telephones, it would appear that the establishment
of perfect order may soon be expected.
Work for Other Bureaus.
Throughout the year the constabulary has given a great deal of
assistance in the destruction of locusts and suppression of rinderpest.
Some cholera quarantine work and guarding of the Manila water-
shed also has been done.
It is believed that the constabulaiy should lend all possible assist-
ance in such matters and aid local omcials in the betterment and im-
provement of conditions.
Municipal Pomce.
A steady improvement in the municipal police is noticeable. How-
ever, each year fewer ineligibles should be appointed to Ijie various
Digitized by VjOOQi _
BEPORT OF THE SECRETARY OF COMMERCE AND POLICE.
137
forces, more care exercised in the selection of chiefs, salaries gradu-
ally increased, and local politics eliminated from appointments. This
is being done, and the good work should continue. When the police
attain a high standard of efficiency, the constabulary can be gradu-
ally reduced and expenses curtailed.
There are, in all, 5,995 municipal police, armed with 4,854 swords,
1,838 revolvers, and 78 other firearms. The number of revolvers will
be steadily augmented as efficiency advances.
Complaints are often heard that the police are not adequately
armed, but it should be noted that some municipal police forces in
other parts of the world carry no firearms. The chief of constabulary
does not favor arming police with rifles or shotguns; they are cum-
bersome and not useful for police purposes.
Arms in Tianda of municipal police.
Carbines.
Revolv-
ers.
Shot-
guns.
Total.
Owned by municipalities Dec. 31, 1915 .
Owned by municipalities Dec. 31, 1914.
Increase, 1915
Decrease, 1915
Net increase, 1916
1,671
1,446
225
1,731
1,471
280
20
Arin8 owned hy Provinces,
Rifles 3
Carbines 57
Revolvers 304
Shotguns 353
Total 717
Constabulary arms used hy municipalities.
Carbines 9
Revolvers 18
Shotguns 3
Cannon, brass 2
Total 32
Z' RECOMMENDATIONS.
The chief of constabulary again recommends the adoption of a pen-
sion law. He believes the constabulary pension fund, created by
assessment, is inadequate for the needs oi the service. Men who have
risked their lives and health after years of service and who have done
so much toward making the islands prosperous and peaceful, he
states, deserve the recognition of the government. They have no
other calling to fall back upon when their active work is ended, and
their salaries are too small from which to make an adequate saving.
BUREAU OF PUBLIC WORKS.
Director of public works: Warwick Greene, January 1 to May
20, 1915.
. Acting director of public works: Charles E. Gordon, May 21
to September 24, 1915; Ernest J. Westerhouse, September 25 to
December 31, 1915.
Digitized by VjOOQIC
138
REPOBT OF THE PHILIPPINE COMMISSION.
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Digitized by VjOOQIC
REPORT OF THE SECRETARY OF COMMERCE AND POLICE.
139
Pj:rsonnel.
Number of American and Filipino officers and employees.
Date.
Americans.
Fil^)inoB.
Total.
Dec. 31, 1913
Dec. 31, 1914
Dec. 81, 1915
186
124
124
241
229
241
377
353
366
In numbers, the working force of the bureau remained about the
same for 1915 as for the preceeding year. At the same time the work
of the bureau materially increased through having its activities ex-
tended to the department of Mindanao and Sulu and to the Prov-
inces of Mindoro and Palawan. While the district engineers ac-
complished the actual field work without detriment to the efficient
and expeditious handling of projects, the increased demands upon
the designing division, together with the reduced engineering per-
sonnel, overtaxed the designing engineers to such an extent that
plans for both buildings and bridges were delayed from six to nine
months. The work of adjudicatmg water rights was still more
seriously delayed because of the limited engineering personnel. It
is not anticipated that this condition will prevail for 1916.
FILIPINIZATION.
As vacancies occurred in the technical positions, these were filled
by the appointment of qualified Filipino engineers, when available.
The FiUpmo engineers already in the service have been given greater
responsibility in all cases where technical training and experience
warranted such action. The highest standard in both construction
and design is being maintained imder this policy.
The Filipinization of the engineering force has enabled the bureau
to substantially reduce the average salary paid engineers, and a
further reduction is expected for 1916.
ARCHITECTS.
The following two tabulations give essential facts in connection
with the employment, by the bureau, of architects, architectural
draftsmen, and assistant architectural draftsmen :
Fiscal (calendar) year.
Total number
all individual
architects em-
ployed during
the year.
Total number
Filipino
ar^teots em-
ployed during
the year.
1914..
1915..
Fiscal (calendar) year.
Average
yearly salary
all architects
employed
during year.
Average length of service
all architects employed
during year.
1914..
1915..
¥-4, 14a 68
4,382.36
4 years 1 month 27 days.
4 years 8 months 25 days.
Digitized by VjOOQIC
140 REPORT OF THE PHILIPPINE COMMISSION.
Number of individual engineers employed by fiscal years 1911 to 1915, inclusive.
June 30,
1911.
June 30,
1912.
June 30,
1913.
Dec. 31,
1913.
Dec. 31,
1914.
Dec. 31,
1915.
Total number of engineers not natives of
Philippine Islands ,
143
10
128
13
108
18
80
21
81
24
83
Total number of Filipino engineers.
35
Total number of engineers
153
141
126
101
105
98
Average salary of individual engineers fiscal years 1911 to 1915, inclusive,
June 30, 1911 f'S, 983. 51
June 30, 1912 4, 146. 20
June 30, 1913 4,194.36
Dec. 31, 1913 4, 221. 65
Dec. 31, 1914 1 4, 336. 08
Dec. 31, 1915 - 3, 961. 92
Average length of service of individual engineers fiscal years 1911 to 1915,
f inclusive,
June 30, 1911 2 years 15 days.
June 30, 1912 2 years
June 30, 1913 3 years
Dec. 31, 1913 3 years
Dec. 31, 1914 4 years
Dec. 31, 1915 4 years
Extension and Activities.
9 months.
2 months 20 days.
7 months 11 days.
2 months 3 days.
2 months 21 days.
"All insular and provincial public works projects shall be carried
out under the supervision of the bureau of public works."
This item of public law, appearing first m the general appropria-
tion act for 1914, was continued By Acts Nos. 2431 and 2540, the
appropriation acts for the subsequent years. By virtue of this pro-
vision, public works in Mindoro and in the seven Provinces of the
Department of Mindanao and Sulu are now in charge of district
engineers of the bureau of public works ; a district engineer has been
placed at Bontoc, the capital of the Mountain Province, and another
will be assigned immediately to the Province of Nueva Vizcaya. An
assistant engineer has been assigned to Palawan. The jurisdiction
of the bureau is, therefore, to-day for the first time practically
coterminous with the geographical limits of the Philippine Islands.
It is onl^ a question of time before the supervision of the bureau over
engineering works in the remote Provinces is as effective as it is
to-day in the Provinces easily reached from Manila.
PANAY AUTO LINE.
In 1912 the bureau began the operation of an automobile line in
the Province of Iloilo, island of Panay. This administration service
was discontinued on December 31, 1915. The equipment of the line
has been let to a contractor, who will continue the service.
HYDROGRAFHIC DATA.
No fimds were provided for carrying on this work in 1916. Since
a similar situation existed in 1914 and 1915, there results a bad break
Digitized by VjOOQIC
REPORT OF THE SECRETARY OF COMMERCE AND POLICE. 141
in bureau hydrographic records, which are essential to the design of
irrigation work which shall at one and the same time be both safe
and economical. Until this lack is repaired it is certain that it will
be exceedingly diflScult to induce engineers to associate themselves
with any large irrigation work.
* TESTING MATERIALS.
The work of testing the materials of engineering has been extended,
with the cooperation of the bureau of science, to concrete used in
reinforced steelwork, and to the sand and gravel contained therein.
BENGUET ROAD.
The attitude of the insular government toward this road is out-
lined by Acts Nos. 1959, 2414, and 2535, and Executive orders Nos.
100, 119, and 121, series of 1914. Briefly, tolls collected from the
traffic must maintain the bridges and the road. If under this ar-
rangement the funds are not sufficient to maintain the highway in
safe condition, the road is to be declared closed. Act. No. 2535 was
enacted November 2, 1915.
The Work in General.
Comparison of total expenditures supervised.
July 1, 1910, to June 30, 1911 ?9, 793, 119. 59
July 1, 1911, to June 30, 1912 9, 720, 441. 83
July 1, 1912, to June 30, 1913 10, 285, 591. 99
July 1 to Dec. 31, 1913 5, 407, 466. 45
Jan. 1 to Dec. 31, 1914 9, 894, 293. 00
Jan. 1 to Dec. 31, 1915 1 11, 181, 282. 45
Road Work. '
Length of road in existence.
Dec. 31,
1915.
Dec. 31,
1914.
Increase.
"First class »
Kilometers.
» 3,067. 7
2,082.2
3,051.7
Kilometers.
2,564.0
2,024.3
2,875.7
Percent,
20
Second class •
3
Third class 4
6
Total
6 8,201.6
7,464.0
10
1 First-class roads: Well graded and surfaced, thoroughly drained and constantly maintained. Bridges
and culverts are usually complete and permanent, and when missing their places are almost always sup-
plied by ferries capable of carrying automobiles weighing 2 tons or more. These roads are continuously
passable at all times with possible exceptions during typhoon periods.
* This figure includes the section (3.2) of the llanila-North Road in the subproyinceof Amburayan and
0.5 kilometer at the southern end of the Benguet Road in the Mountain Province which are not desig-
nated as first class.
* Second-class roads: Fairly graded, partially or naturally surfaced, and generally intermittently main-
tained. Bridges and culverts are usually complete but, in part, are temporary structures. These roads
are continuously passable for vehicle traffic during the dry season, but more or less impassable during the
rainy seascm.
« Third-class roads: All traffic routes for carts not inchided in the first and second class roads. Such
roads are usually narrow, poorly graded, or not graded, and generally impassable in the rainy season.
» In addition to this length of road 518.2 kilometers of trail in the Mountain Province, in Mindoro, and
in the Department of Mindanao and Sulu were under the supervision of the bureau at the end of the year.
Digitized by VjOOQIC
142
REPORT OF THE PHILIPPINE COMMISSION.
Type of surfacing.
Dec. 31,
1916.
Dec. 31,
1914.
Increase.
gtone
KiTometers.
1,074.3
2,249.9
958.3
3,919.1
KilomeUra.
890.4
2,126.6
896.5
3,560.5
Pereeni.
21
Gravel ».,
6
Coral
7
Unsorfaced
10
Total .1
8,201.6
7,464.0
10
Relation of first-class road construction and maintenance.
Designated
first-class
road at end
of year.i
First-class
road con-
structed dur-
ing year.*
Average
maintained
throughout
the year by
the caminero
system.
June 30, 1908
June 30, 1909
June 30, 1910
June 30, 1911
June 30, 1912
June 30, 1913
Dec. 31, 1913 (period of 6 months)
Dec. 31, 1914
Deo. 31, 1915
Kilometeri.
397.0
553.5
916.6
1,423.6
1,780.3
2,035.4
2,171.6
2,495.5
3,064.0
Kilometers.
(*)
(»)
249.0
357.4
291.4
257.6
136.5
330.2
499.5
Kilometera.
1,441.7
1,785.3
1,976.3
2,146.3
2,317.5
2.732.4
> The term "designated first-class road'' means surfaced road maintained by the caminero (cantonnier)
system under specific agreement between the insular government and each separate Province.
s The length of first-class road constructed yearly is not identical with the difference between successive
yearly totals of designated road, principally for the reason that the first-class road in the special Provinces
18 not yet entirely covered by special agreement.
■No data.
PROGRESS IN ROAD CONSTRUCTION.
Joint resolution No. 12, First Philippine Legislature, dated May
21, 1908, required that the extent and condition of the existing roads
be ascertained, and that an estimate be made of the cost of building -
a road system adequate to the needs of the islands at that time,
including therein provision for effective maintenance as the work
progressed.
It is of interest to compare the situation in 1908, as indicated by
the report made by the bureau of public works in consequence of
this joint resolution, with the situation to-day, and to note the ad-
vance actually made in road and bridge work by seven years of an
uninterrupted, vigorous, and practical road policy.
The principal figures are as follows :
Kilometerage.
In existence Jan. 1,
1909.
Estimated
asnecessarv
for the needs
ofJan. 1,1909.
In exist-
ence Jan. 1,
1916.
First class
There were practically
no modem roads , ex-
cept some 500 kilo-
meters of 80-gaied
first-class road re-
Quiring reoonstrao-
2,837
3.351
3,022
3,068
a.082
3,052
Second class
Tliifd class
Total
9.210
8,202
T
Digitized by VjOOQIC
KEPOBT OF THE SECKETABY OP COMMERCE AND POLICE. 143
ExpenditurCB,
Estimated cost of producing a road system sufficient for needs
evident Jan. 1, 1909 :
Construction f^, 500, 000
Maintenance 21, 000, 000
Total estimated cost of system 74, 500, 000
Actual cost of road construction and maintenance under the bu-
reau of public works, 1909 to 1915, inclusive 37, 000, 000
Time allowed in the report for the completion of the system was
17.2 years. The system has practically been completed in 7 years.
The estimated cost of the work was ^4,500,000, and 1^37,000,000 have
actually been spent. The result, recorded as then desirable, has
therefore been secured in about 41 per cent of the time and at a
cost not exceeding 50 per cent of the original estimate. This result
has been possible mainly because of the immediate, persistent, and
cordial response of the Filipino people to the propaganda for good
roads, to the elimination of elaborate projects, imnecessarily elaborate
types and widths of roads, and to a high degree of efficiency in organ^
ization and methods.
It must not be assumed that the system which the bureau en-,
gineers estimated would suffice for the needs of 1909 is sufficient
for the rapidly expanding needs of 1916. One of the factors which
has greatly accelerated the progress of our road project in the past
seven years, viz. motor- vehicle traffic, has also increased our needs far
beyond those oi seven years ago. The opening of many new sources
of supplv of stone and the development of reinforced concrete bridge
work, wnile markedly reducing construction and maintenance costs,
have also operated to develop a great demand for similar work in
territory unopened by the Spanish administration and not covered
bv the report of 1909. Reference is here made to the Mountain
^Province, to Nueva Vizcaya and Mindoro, and to the Department of
Mindanao and Sulu. None of this territory, comprising 37 per cent
of the total area of these islands, was included in the report made
to the Assembly in 1909. The development of long roads, such as
the Manila-North, and the development of extensive railways also
were not taken into consideration in the report. To sum up the
present situation, while the road system, as it stands to-day, un-
doubtedly jBUs the greater needs of 1909, yet since then the country
has greatly developed and the need for new roads and better roa(W
has grown correspondingly. The fact that pressing needs have been
attended to has relaxed the pressure upon the engineers for rushing
the road work and is enabling them to give even closer study to the
many road and bridge projects now in progress. The present de-
velopment, while more moderate in impetus^ is both more compre-
hensive and more rapid, and, while bemg rigidly justified step by
step, bids fair to rival the development of 1909-1915.
ROAD BUIIiDINO AND TRAFFIC.
In view of the fact that the fear has been expressed that recent
road building in these islands was not justified by the traffic and that
the maintenance would become burdensome, attention is once more
Digitized by VjOOQIC
144
BEPOBT OF THE PHILIPPINE COMMISSION,
invited to certain principles of the road policy which were laid down
in 1908, promulgated to the engineers, and since adhered to steadily :
(a) Koad and bridge construction work must be justified by traffic
which is not only in existence but is also productive. It will not
include projects whose only merit is the development of the country.
(&) Road-construction projects will not start until funds for their
subsequent maintenance are assured.
The application of these principles in detail was assured by the
adoption of a form of indorsement accompanying the estimate of
cost of road projects. It involves consideration at length of the
Questions of population, amount of traffic as shown by actual count,
tne products of the country traversed, the interest on the funds in-
vested in the construction, the cost of maintenance, etc. This ar-
rangement is thoroughly practical and operates to inhibit altogether
the road-building projects which are not justified by traffic, except
in the rare case of an autonomous board overruling the engineers.
The good-roads system is not burdensome to the country, as is
shown, first, by the regular adoption twice yearly for many years in
fhe autonomous provincial boards of resolutions insuring jthe main-
tenance of first-class roads under the system specified by the insular
fovernment ; second, by the fact that the annual provincial road-and-
ridge fund to-day exceeds the amount required for maintenance
alone by over ^1,000,000. Allowing for an average annual mainte-
nance charge of ^500 per kilometer, it is evident fliat the Provinces
can maintain not less than 2,000 additional kilometers of first-class
road, and this without allowing for natural growth in wealth and
population and disregarding tne increase in the road-and-^ridge
fund which will follow upon the reassessment of land values now
nearly completed.
Roctd maintenance.
Year.
Method.
Average
number of
kilometers
maintained.
Average
cost per
kilometer.
Total cost
1914
Camlnero system
2,317.6
2,418.8
¥-473. 80
164.82
¥-1,098,082.54
398,655.30
ftftiig system
Total
4,736.4
1,496,737.84
p.^mlpei*') system.
1915
2,732.4
2,692.2
460.43
147.44
1,258,114.15
396,930.57
Qang system
Total
6,424.6
1,655,044.72
The above figures are obtained from the regular monthly reports,
which are begun in each Province to which the work of the bureau
is extended as soon as conditions permit. Reports for the Mountain
Province and for the Department of Mindanao and Sulu began
January 1, 1916, and these maintenance figures are therefore not in-
cluded above. From another source they are in' part available as
follows :
Digitized by VjOOQIC
REPORT OF THE SECRETARY OF CK)MMERCE AND POLICE.
145
1914
1915
Mountain Province (portion only):
Benguet Road
Naguilian Road (under construction).
CityofBaguio
Department of Mindanao and Sulu
¥-51,836.01
33,754.77
66,751.67
¥■53,036.04
76,772.59
42,187.70
82,383. 11
The length of road designated first class and the length of road
under caminero maintenance are as nearly identical as conditions
permit. No reports have been received from Mindoro, Palawan,
or Nueva Vizcaya.
Manila-North Road.
This project, extending from Manila to the northern end of Luzon Island, and
connecting the important towns of eight different Provinces, is the most im-
portant road project. Its present status is as follows :
Kilometers.
Percent.
Percentages
on Dec. 3,
1911.
First-class road
401.6
126.3
41.0
12.0
69
22
7
2
42
Secfflid-class road
33
Third-class road
20
Trail and T«nirvey
5
Total
580.9
100
100
The present route follows the coast north of Pangasinan while the 1911
figures were via the Benguet road and Baguio.
CehU'North and Cebu-West Coast roads.
^Kilometers.
Percent.
PercentMes
on June 30,
1912.
First-class road
134.6
178.2
28.8
39
52
9
19
Second-class road
24
Third-class road
67
Total
341.6
100
100
Manila-South road (to Nasugbu, Batangas).
Kilometers.
Percent.
Percentages
on June 30,
1912.
First-class road
167.29
8.36
27.51
81
5
14
61
Second-class road.
39
Third-clft«» road .,,,., ,
10
Total T
193.16
100
100
It is quite probable that this road will be entirely first class on December
31, 1916.
Digitized by VjOOQIC
146 report op the philippine commission,
Bridges.
Durable bridges and cult^erta in existence and increases by years.
Year ending—
All durable structtires.
Total
number.
Increase
during
year.
Percent
increase.
Deo. 31, 1913.
Dec. 31, 1914.
Deo. 31, 1915.
5,901
6,206
6,640
305
434
Note.— The term "durable bridges and culverts'' includes structures of reinforced concrete, steel, brick,
and all substantial stone structures whether of adobe or other material. The increase in the number of
structures is not identical with the number of structures built, not onlv because with the ext«ision of the
work of the bureau to new territory the old work existing is reported for the first time, but also for other
reasons. The above figures are obtained from semiannual reports of district engineers, which are sub-
mitted for new territory at the earliest date permitted by conditions. Reports have been received from
all Provinces covered by organization of the bureau, also for the section of the Manila-North road In
Amburayan, but it is doubtful if certain portions of the outlying territory has been covered in the^ reports.
Reinforced-concrete structures in existence.
Fiscal year ending-
Total
number.
Total
meter
span.
June 30, 1911
June 30, 1912
June 30, 1913.
Dec. 31, 1913.
Dec. 31, 1914.
Dec. 31, 1915.
2,004
2,350
2,854
3,046
3,247
3,090
7,7W
9,216
11,224
11,984
13,071
14,416^
Note.— All of the reinforced-concrete structures have been buOt under American administration, together
with a large number of steel and miscellaneous structures.
THE ARTISTIC SIDE OF BRIDGE DESIGN.
Rigid economy in material and labor used on bridge work, espe-
cially in concrete form work, required the adoption, some years ago,
of standard plans. Perhaps 90 per cent of recent reinforced
concrete bridge work is either wholly standard or an adaptation of
a- standard design. It naturally came about in the period 'of great
activity following the adoption of the reinforced-concrete type of
construction, that the esthetic side of bridge design was somewhat
neglected, the designing force being insufficient to complete the neces-
sanr designs without unduly delaying construction.
In the past year and a half efforts to add the lacking artistic
element have met with distinct success. Special attention is now
given to the general outlines of bridges, the natural setting which
they will have, and to the detail of the portions above the roadway
level. It is, of course, highly desirable that the bridge appear well,
both when viewed from the highway, and from the side. Arch
tyi)es, while more expensive, are also more durable and fill the con-
dition of being pleasing to the eye. As a general thing, they are
used by the bureau when conditions as to foundation and clearance
above stream bed permit. Other types of bridges are not susceptible
of great esthetic improvement. The flat concrete beam or slab
bribes can never be made anything but utilitarian in general out-
Digitized by VjOOQIC
REPORT OF THE SECRETARY OP COMMERCE AND POLICE. 147
line, but the introduction of better types of balustrade greatly im-
SrovQ$ their appearance to one passing along the highway. Another
eparture, or rather a reversion to the older Spanish bridge archi-
tecture, is the use of flaring approach walls. This not only gives
a sense of width and security to one approaching the bridge but
does away with the abruptness of the older concrete balustrades.
To insure conformity of the work with the drawings, the bureau
has acquired cast-iron baluster forms, which are loaned to Provinces
' without cost. The results obtained have amply justified the expendi-
ture, and the forms have been in constant use since their purchase.
Economy, in the sense of lowest ultimate cost for service rendered,
has^ not been lost sight of. Where natural conditions permit a
choice between various types of structure, costs are carefully com-
pared prior to preparation of plans.
With the increase in driving power of the available concrete pile
eguipment it has been found possible to increase the ordinary length
of span to 9 meters (2 meters more than the usual rule in the past) ,
at a relatively slight increase in cost per linear meter of structure.
Since the increase of span reduces the channel obstruction, and the
greater length of pile required for bearing power will permit deeper
scour without causing the loss of structure, it had been found feasible
to uijB a larger proportion of structures whose substructures are con-
crete piles. The low first cost justifies assuming a greater hazard
of loss by flood than is desirable m the case of more costly structures.
For the extension of less traveled roads and for the development
of sparsely settled country, timber bridges have been found advis- '
able. Plans have either been prepared or are now in course of prepa-
ration for a comprehensive series of standard timber structures,
adaptable to a wide variety of conditions. The great increase in
ocean freights has made it desirable to avoid as much as possible the
use of imported materials, while the abundance of durable hardwoods
in the Philippine Islands makes for increased present use of timber.
In the past, cheap and inadequate details have resulted in discredit-
ing such construction. In the newer designs, a great deal of care
has been given to the matter of securing adequate and stiff con-
nections, with the result that the normal life will be increased three
to four fold, the increase of cost not exceeding 30 per cent over the
figure for wooden structures heretofore. In the past many timber
bridges have been lost by fire, but such danger may be practically
eliminated by keeping vegetation out back from the ends of these
structures. This is easily accomplished by the regular road main-
tenance force, and coupled with careful design and construction,
guarantees 10 to 15 years' useful life of timber structures. For nearly
all cases where a roadway as narrow as 3 meters is sufficient to ac-
commodate traffic the service cost, including maintenance, and re-
newals, will not exceed 75 per cent of the cost for steel or concrete
bridges.
IMPORTANT BRIDGE PROJECTS.
No large projects were done by administration. Principal among
those projects completed by contract were the following:
1. Agno River bridge, at Bayambang, Pangasinan, four 130-incb steel truss
spans on concrete piers resting on wooden piles.
Total span, 158.6 meters. Total cost, f«6,451.
Digitized by VjOOQIC
148 REPORT OF THE PHILIPPINE COMMISSION,
2. The Balanac River bridge, Pagsanjan, Laguna, one 192-inch one-half steel
truss on steel cylinders with two 8-meter approach spans on I-beams.
Total spans, 74.53 meters. Total cost, M6,959.05.
3. The Bacolod-North bridges, Occidental Negros, three reinforced concrete
arched bridges, each of 13 meter span.
Total spans, 39 meters. Total cost, ^41,895.14.
Building Work.
There are no comprehensive statistics on the total number of build-
ings in existence completed under American administration. This
is because upon completion of the structures they usually pass into
other hands and their status is no longer reported; also the amount
of building work intrusted to the bureau of public works and* its
predecessor has varied, at times, from none at all to perhaps 80 per
cent of the durable work. The municipalities and special Provinces
particularly have done a large amount of building work without
supervision by this bureau. This statement is merely to prevent the
assumption that the following figures include all government build-
ing work in the Philippine Islands.
The Philippines have never had anv characteristic style in archi-
tecture other than Spanish Colonial, whose development in the
islands under Spanish rule was more or less analogous to its devel-
opment in Mexico, the west coast of the United States, an'fl in
Spanish South American possessions. If there is any distinctive
feature of this style in the Philippines it is found onlj in minor ele-
ments of the domestic architecture, and the adaptation of these to
modern building conditions has been attempted where conditions
have been favorable, as in the Normal Hall in Manila. In most of
our problems, however, this has not been possible, and inspiration
has been sought in the aTchitecture of Spain and Italy, the source
from which the Spanish Colonial architecture was drawn.
There are two leatures, partly structural and partly architectural,
which have been introduced this year and used consistently in our
permanently constructed buildings.
1. Hollow exterior concrete walls. — ^These have the practical ad-
vantage of making a cooler and dryer building, and, architecturally,
have the advantage of permitting the use of adequate reveals in door
and window openings without undue additional cost.
2. Tile roofs laid over concrete slabs, — In this type of construction
the rafters and tile purlins are omitted and thin concrete slabs span
the distance between the main purlins. This method of construction
will produce, it is believed, an absolutely water-tight and permanent
roof and at the same time permit again the use of the old Spanish
tile, by far the most architecturally pleasing of all the roof coverings
available where the roof in the completed building will be visible.
One or both of these features will appear in the Postigo Building,
shops of the School of Arts and Trades, kitchen at San Lazaro Hos-
pital, Sorsogon provincial building, and the Iloilo customhouse.
The plant arrangement of the Sorsogon provincial jail and court-
house should be noted, as it is a departure from the arrangement of
the provincial jails designed in past years in having the barracks in
an isolated building within the jail wall. It is believed that this
change will result in improved ventilation for the prisoners and
easier control for the prison authorities.
Digitized by VjOOQIC
REPORT OF THE SECRETARY OF COMMERCE AND POLICE.
149
In addition to schools, markets, and presidencias, the following
important projects are imder construction from plans prepared by
this office :
Iloilo customhouse, estimated cost =P200, 000
Shop building, Philippine School of Arts and Trades 200, 000
Sorsogon provincial building 80, 000
Alterations to Postigo Building 65,000
Sorsogon jail and courthouse i ^__ 65,000
Kitchen, San Lazaro Hospital 25, 000
Power house, bureau of printing 16, 000
Engineering laboratory, University of the Philippines 35,000
The chemical laboratory. University of the Philippines, was begun
and completed during 1915 at a cost of approximately 1P55,000*
The figures in the tabulations below exclude all structures of less
than 100 cubic meters in content :
All durable buildings completed.
Year ending-
Total
number.
Total
content
(cdbic
meters).
Present
reinforced
concrete
(by con*
tent).
June30, IMI
June 30, 1912
June 30. 1913 ,
Dec. 31; 1913 (6 months' period)
Dec. 31, 1914 ,..
Dec. 31, 1916
158
181
144
54
136
154
255,640
409,025
184,160
370,723
522,746
64
72
85
'92
92
76
Buildings in these tabulations are classified as reinforced concrete
when the outside walls or, in the case of markets, the interior posts
are of that material.
Number of markets and schools completed.
Calendar year.
Markets
and
tiendas.
Schools.
1913
37
61
54
51
1914
69
1916 .. .
72
Regular reports of building work supervised by the bureau are
being received from all Provinces except the Mountain Province,
Palawan, and Nueva Vizcaya.
Water Supply.
ARTESIAN WELLS.
Successful deep wells driven^ by fiscal years.
1905-
1906-
1907_
1908-
1909-
1910-
2 1911 17
3 1912 41
12 1913 92
8 1914 (6 months) 55
11 1914 (calendar year) 103
15 1915 (calendar year) 139
Total to December
Digitized
%^m^
498
L _
150
REPORT OF THE PHILIPPINE COMMISSION.
Expended upon completed wells.
1915
1914
Pesos.
Per
cent.
Pesos.
Per
cent.
Soooessful wells
215,920.49
53, 673. 00
80
20
218,267.03
66,312.45
77
UnsuQOttssful wells ....
23
Total
269,593.49
100
284,679.48
100
Summary of deep well driving, 1915
Num-
ber.
Total
depth.
Total flow
mmute.
Suooessful:
Flowing , . ,
39
100
Meters,
4,108.8
8,388.4
OalUmt.
1,492.5
Piiniplng .
3,417.0
Total successful
139
16
12,497.2
2,603.1
4,909.5
Total uTimiccessftil .
A considerable number of wells, perhaps 700 to date, have been
driven by jet boring rigs, working to depths of less than 300 feet,
under various branches of the government. The cost of the major-
ity of these wells falls below the ^500 set by law as the limit of proj-
ect expenditure permitted Provinces without supervision of this
bureau. For these reasons the collection of statistics on them has
been attended with difficulties quite disproportionate to their prob-
able value, and their compilation has, thereiore, ceased. In addition
to the deep well and jet rig well activities of the government there
is some well driving by firms and private parties which in the aggre-
gate has noticeably aided the efforte of the government toward needed
improvement in drinking-water supply.
MUNICIPAL WATERWORKS.
The artesian wells indicated above are usually connected directly
with the town hydrants, with or without the pump, as the case may
be. The more prosperous communities aim at something better,
either in storage or in distribution system, or by using springs as a
source of supply, with dams, reservoirs, etc. The more important
projects of this class, completed during 1915, are the following :
Municipality and Province.
Popula-
tion
supplied.
Cost.
Vigan, nocos Sur...
Taal, Batangas.
San Pablo, Laguna.
Subic, Zambales . . .
8ibonga,Cebu
10,000
10,000
10,000
2,000
4,000
y 116, 000
83,000
70,000
10,000
3Q,000
Motor Vehicles.
The drivers of motor vehicles continue to be licensed by the bureau.
Photographs of the drivers are now attached to the licenses.
Digitized by VjOOQIC
BEPOBT OF THE SECRETABY OF COMMEBCE AND POLICE. 151
A summary of the motor-registration business in the Philippine
Islands, which work the law continues to impose upon the bureau, is
. as follows :
Vehicles.
Registered during 1915 1, 020
Registered prior to 1915 ^ 3,420
Total to Dec. 31, 1915 4,440
Estimated number of registered vehicles withdrawn from service 500
Approximate number of motor vehicles in service in the Philippine Islands
on Dec. 31, 1915 3, 940
Of this last figure, 1,099 vehicles are motorcycles, package car-
riers, and other motor vehicles having less than four wheels.
Chauffeur licenses.
Applicants exanflned July 1 to Dec. 31, 1915 .: 611
Chauffeurs licensed during same period 50
These figures are exclusive of renewals of licenses.
River and Harbor Work.
new cx)ncrete wharf, manila harbor.
This project involves the expenditure of approximately ^25,000
for the construction of some 222 linear meters of plain and reinforced
concrete wharf parallel to the present bulkhead wall between Piers
3 and 5, in the outer harbor, and the fill necessary to connect it to
the land. Bids were called lor and opened on April 7^ 1915. Con-
tract was entered into on June 16, 1915, and construction work im-
mediately started, and on December 31, 1915, was approximately 37
per cent completed. The project will afford wharfage space for ves-
sels drawing up to 22 feet of water at mean lower low water and will
greatly decrease the congestion at Piers 3 and 5, also relieving some-
what the congestion on the Pasig Kiver.
The project further contemplates the erection of a cargo shed for
the entire length of the wharf to facilitate the handling and tem-
porary storage of cargo. This will involve an additional expendi-
ture, if the present plans are carried out, of approximately ^27,500.
EXTENSION OF ILOILO WHARF.
At Iloilo the section of reinforced concrete wharf built by admin-
istration, along the right bank of the river above the customhouse was
extended 100 meters farther upstream. The structure is of rein-
' forced concrete throughout with the exception of the foundation of
timber piles.
The work was completed in December, 1915, under contract dated
June 5, 1915, the total cost being ^^67,282.22.
MOLO JETTY.
A rubble mound jetty 495 meters in length was built at the mouth
of Iloilo Creek, near Jiiolo, to check the coast erosion which at that
point had destroyed a considerable area of private property and
threatened to destroy the provincial road.
The structure was completed on November 6, 1915, under contract
approved August 17, 1914. The total cost was f=49,869.80.
6198a-16_ll Digtized by Google
152
REPORT OF THE PHILIPWNE COMMISSION.
Dredging operations.
Gnbic meters dredged.
1902 to
December,
1913.
1914
1915
Total.
M?mlla
6,493,658
19,094
454,913
979,535
25,580
297,861
1,041,010
109,410
273,550
8,514,203
Cebu.
154,084
Hollo
1,026,324
Total
6,967,665
1,302,976
1,423,970
9,694,611
The larger results of the year's work.
Surfaced road constructed and designated first class kilograms— 499. 5
Compared with 1914 this is an increase of 51 per cent.
Reinforced concrete bridges and culverts completed number— 371'
Compared with 1914 this is an increase of 26 per cent.
Successful deep wells completed do 139
Compared with 1914 this is an increase of 35 per cent
Reinforced concrete buildings completed, Including only buildings of over
100 cubic meters capacity. number.. 127
Compared with 1914 this is an increase of 2 per cent.
Expenditures supervised during the year.
Total expenditures ?11, 181, 282. 45
Compared with 1914 this is an increase of 13 per cent.
Total expended upon road and bridge work 5, 872, 056. 81
Compared with 1914 this is an increase of 4 per cent.
Total expended upon building work 2, 478, 030. 29
Compared with 1914 this is a decrease of 8 per cent.
Total expended upon port works 812, 944. 60
Compared with 1914 this is an increase of 108 per cent.
Total expended upon water supply 633, 006. 58
Compared with 1914 this in an increase of 40 per cent.
Expenditures on miscellaneous items account for the balance.
Eighty-two thousand three hundred and two and sixty-seven one-
hundredths pesos of the above jfigure for port works came from a loan
from the gold-standard fund. All other funds expended were de-
rived from current island revenues.
Statement of Appropriations.
Income and expensey Jan. 1. to Dec, SI, 1915,
DEBIT.
Reversion of unexpended balance operating ap-
propriation «, 148, 129. 30
Reversion of unexpended balance of administra-
tive appropriation 91, 607. 11
Reversion of extraordinary income 46, 729. 02
Reversion of balance of appropriated surplus 43, 094. 38
Reversion of receipts 2, 085, 454. 84
^4, 415, 014. 65
Expenditures operating capital offset by receipts. 1, 651, 870. 70
Expenditures administrative appropriation 818,014.09
Outlay purchase equipment 13, 815. 75
Depreciation of ordinary equipment 51, 954. 60
2,535,655.14
Balance of equipment appropriation brought for-
ward to 1916 5, 184. 25
Total -_:. 6, 955, 854. 04
Digitized by VjOOQIC
BEPOBT OP THE SEORETABY OP COMMERCE AND POLICE. 153
CBEDITS.
Appropriation for operating capital, act 2431 (expenditures
oflCset by income) W, 800, 000. 00
Appropriation for administrative expense of bureau of public
works (expenditures partially offset by surcharges collected,
act 2431) 928,621.20
Receipts — ^prime cost of works . 1, 651, 870. 70
Receipts — surcharges 403, 593. 18
Receipts from operation — ^miscellaneous 27, 994. 49
Extraordinary income 46, 729. 02
Gain on supplies sold , 1,877.24
Gain on equipment sold 119. 23 "
Inventory adjustments 95, 048. 98
Total 6, 955, 854. 04
Transactions affecting principal account surplus {fixed assets) during 1915.
DEBIT.
Principal account surplus, Dec. 31, 1914 K, 037, 373. 42
Equipment purchase 13, 815. 75
Equipment acquired by transfer 41,921.45
Equipment found at station 769.83
Total 2, 093, 880. 45
CREDITS.
Equipment sold ^22, 542. 80
Equipment dropped and charged to depreciation 28, 216. 39
Equipment dropped by transfer 30,328.05
Equipment transferred to supplies 139. 56
Depreciation written off 107, 221. 99
Principal account surplus Dec. 31, 1915 1, 905, 431. 66
Total 2, 093, 880. 45
Balance sheet, Bureau of Public Works.
Dec. 31, 1914.
Dec. 31, 1915.*
CUBEENT ASSETS.
Cft.<ih f col1w?tiT)fir and dishursinp office*^)
T-106,31Z28
470,201.31
T^, 022. 47
Supplies and '"ftterials r , x - ,
442,040.37
ciftims rp^^ndin? adliistTnent) ^ r
1,299.76
Accounts receivable ..-
247,025.43
744,149.18
^221,356.68
248,276.78
Investments and securities
400.00
FIXED ASSETS.
754,894 51
Equipment
^2,185,89L48
(Less depreciation)
1,293,224.24 928,132.34
1,035,354.33 1,150,537.15
2,860,912.44
2,630,471.04
CXTRBENT UABHITIES.
Treasury overdraft
566,686.69
256,852.33
None.
2,037,373.42
479,640.02
Accounts navable
91, 148. 00
Accrued l^ve i>ayable
149,067.02
SURPLUS.
Appropriated surplus (for purchase of equip-
5,184.25
Prindpal account surDlus f fl'xed assseta) ,
1,905,431.66
2,860,912.44
2.630,471.04
Digitized by VjOOQIC
154 BEPOET OF THE PHILIPPINE COMMISSION,
BUREAU OF COAST AND GEODETIC SURVEY.
Director of coast surveys: W. C. Hodgkins, January 1 to Decem-
ber 31, 1915.
Officers and employees of the bureau at t?ie close of the year.
Americans,
1915.
Filipinos,
1915.
Total,
1915.
Total,
1914.
Director
Accountant
Draftsmen-cartographers .
Clerks....
Junior draftsmen
Messenger
1
1
2
3
30
1
CHANGES IN PERSONNEL.
Appointments
Re&statements
Removals
Resignations v
Transfers:
To bureau
»2
2
From bureau
Deaths
1 On account of positions being abolished Dec. 31, 1915, 1 clerk and 1 cartographer (Americans) resigned.
Statement of number of American and Filipino officers and employees in the
bureau of coast and geodetic survey at the time of rendering reports sub^
mitted to show relative numbers of Americans and Filipinos employed:
Dates.
Americans.
Fil^inos.
Total.
19
22
19
22
21
24
22
27
22
27
24
28
25
28
23
27
24
28
24
28
23
27
23
27
Salary ex-
penditures.
June 30, 1905
June 30, 1906
June 30, 1907
June 30, 1908
June 30, 1909
June 30, 1910
June 30, 1911
June 30, 1912
June 30, 1913
Dec. 31, 1913.
Dec. 31, 1914.
Dec. 31, 1915.
P-25,840
25,840
26,360
34,960
35,596
34,864
33,304
36,404
37,504
U8,852
87,344
1 Six months.
The above statement does not include the director of coast surveys,
^ho is an officer of the United States Coast and Geodetic Survey, nor
per diems paid by the government of the Philippine Islands to the
officer detailed to said position by the superintendent of tiie United
States Coast and Geodetic Survey.
General.
During the year covered by this report no change was made in the
general plan of operations nor in the previously existing arrangement
for the division of expenses between the Federal and the insular
governments.
The jfive steamers in the servic of the bureau were kept at work in
the field as continuously as was possible under the limit of^the funds
Digitized by VjOOQIC
EEPOET OP THE SEORETABY OP COMMBEOE AND POLICE. 155
provided by the annual appropriation bill and under the necessity for
occasional repairs.
Special attention is invited to the recommendation of the command-
ing officer of the steamer Fathomer that a light should be established
on Sombrero Eock, in the Sulu Sea.
Field Operations.
As in the preceding year, the party on the Faihomer was employed
in surveying the extensive region surrounding the Cuyo and Quini-
luban groups, and especially the passages between those islands and
the larger islands of Mindoro and Panay. In those waters the labor
of several years was crowned by the completion of the survey of the
deeper areas and the main passages, though some relatively small
areas in the vicinity of the two groups of islets still remain to be
sounded. Such work, among the coral reefs, has to be done from
onall boats and therefore requires good weather and smooth water.
steamer " MARINDUQUE."
During the first part of the year the Marvnduque underwent repairs
and then proceeded to the Calamian Islands to take up the survey
of the regions east of Coron and Busuanga, islands forming the
approaches to Coron Bay from the eastward. The completion of
those surveys furnished the remaining material needed for the con-
struction of a new chart of the eastern part of Coron Bay and Pas-
sage, which will soon be published.
In mid-autumn the vessel was moved to the western entrance of
Coron Bay and pursued similar investigations until the close of field
work on December 16, 1915, when she returned to Manila.
As usual, the Pathfmder has been employed during the past year in
, several widely separated localities.
After the completion of repairs which were in progress at the
beginning of the year, she first proceeded to Moron Rock, near the
southern point of Subic Bay, and made a careful reexamination of
that shoal to determine the least depth of water over it.
From there she proceeded to Parang, Mindanao, making a track
survey on her course through unsounded waters. At Parang, an
astronomical azimuth was measured at a station near the old astro-
nomical station, and the azimuth so obtained was transferred to th»
main scheme of the triangulation of the previous year.
The general survey of the coast between the Cotabato region and
Sarangani Bay was then taken up. The topographic survey of the
shore and the nydrography close along shore progressed with reason-
able rapidity, but the lack of results in the triangulation was even
more marked than in the preceding year. In 1914 that work had
been hampered by rain and mist, while in 1915 it was totally pre-
vented by smoke and haze caused by a prolonged drought and
numerous fires in the forests and the eogon patches. ^ ,
Digitized by VjOOQIC
156 REPORT OF THE PHILIPPINE COMMISSION.
As no improvement in the local conditions was apparent at the
end of April, work in that region was stopped in May and the vessel
next proceeded to Palmas Island, taking several deep soundings on
the way.
After making a survey of that island and the surrounding waters,
the ship ran a line of soundings to Cape San Affustin and surveyed
a small area just east of that cape which had theretofore remained
incomplete.
Touching at Cebu for coal and supplies, the Pathfinder next took
up the resurvey of San Bernardino Strait, in which passage two
or the United States Army transports had struck obstructions.
That work was in progress from May 26 to July 16, when the
Pathfinder proceeded to Manila and Olongapo for docking and
minor repairs. Inspection at that time showing the need of more
extensive repairs, these were made later in the year by the Vara-
dero de Manila at the Canacao yard of that company.
Pending communication with Washington in regard to that con-
tract the ship was employed in a survey of- the southern entrance
to Manila Bay, which work was stopped on September 22, 1915, to
begin the repairs.
After their completion, the Pathfinder left Manila on December
10 for Balabac to take up the survey of that region. Track surveys
in the Sulu Sea were executed while on the way to the working
ground and at the end of the year the work of clearing a base line
on Mantangule Island was in progress.
At the beginning of the year, the Research was at Manila, under-
going repairs. After their completion she proceeded to the work-
ing ground between southeastern Luzon on the one side and Mas-
bate and Burias on the other side, including Ticao Island and the
water passages between those several islands.
The surveys were advanced with good success and at the end of
the year the topograph on Masbate, Ticao, and Burias had been
completed, as also all of the coast of Luzon included within the
region assigned to this party, with the exception of some small por-
tions of Sorsogon Bay. ,
The hydrography of the passages had also been finidied except
a small area east of the northern part of Burias. Sorsogon Bay
also remained to be sounded.
At the beginning of the year the Romhlon was undergoing re-
pairs at Engineer Island, Manila. Upon their completion, she left
Manila on February 23, 1915, for work on the coast of Palawan.
This included the completion of several previously unsurveyed
areas in the vicinity of Dumaran Island, in Taytay Bay, north of
Hoc Island, and along the main shore of Palawan from Binulbulan
Island around the northern cape of Palawan and down the western
coast as far as Bacuit, together with hydrography west of Linapa-
can Strait. The commanding officer calls attention to the com-
plexity and difficulty of the hydrography due to the numerous
Digitized by V^OOQIC
REPQBT OP THE SEOEETABY OF COMMEBGE AND POLICE. 157
shoals and frequent coral heads. The completed survey of the
coast of Palawan now extends continuously from Bacuit on the
west coast to Flechas point on the east coast.
Maps.
The topographic maps thus far issued on the uniform scale of
1 : 200,000, the latest to appear being that of Cebu and Bohol, have
been well received by the people of the islands.
The bureau is now engaged in the preparation of a topographic
map of the entire archipelago, on the scale of 1:1,000,000, which
will probably be ready for issue in 1916.
Summary of work accomplished
by the different ships from Jan, 1 to Dec. SI, 19 J 6.
Path-
finder.
Fath-
omer.
Marhi-
duque.
Rom-
blon.
R«y.
search.
Totals.
TRIANOULATION.
Sqiiarfl infl^s of arfta covonwl ^ .
286
21
20
18
184
14
12
9
1
134
35
17
37
129
9
16
18
670
67
22
67
1,403
146
Simals and scaffolds erected
Stations occupied (horizontal angles)
Qeographical position determtned
86
149
1
Base lines measured
1
1
1
Azimuth stations occupied
1
Stations occupied (vertical angles)
5
3
366
342
41
5
16
1,041
4,683
50,002
1
5
fiench marks established
3
TOPOORAPHT.
Sauare miles of area covered
167
181
8
9
14
4,199
6,500
34,598
5
1
20
4
16
54
117
1
5
3
500
5,406
76,505
77
119
1
6,668
775
Miles of coast line surveyed
Miles of rivers and creeks surveyed
51
Miles of roads surveyed
19
Topographic sheets completed
4
3,064
9,384
76,433
11
4
1,108
8,600
165,907
41
HTDROORAPHT.
Pfltiare miles of area souiidedr
9,912
34,573
403,445
16
M)les mn whi^e sounding- r , , . , r .
Numbw of soundings made
Tidal stations established
Current stations
12
Hydrographic sheets completed
5
221
13
278
16
289
54
Number of davs in the field
221
251
1,260
Note.— All distances are in statute miles.
Statement of accounts, 1915.
DEBIT.
To appropriation Act. No. 2431 «94,879.40
To emergency resolution (B. A. File 33787), "For plant and equip-
ment repair service " 10, 000. 00
To emergency resolution No. 28, " For consumption of supplies and
materials ** 1, 400. 00
To sales of fixed assets 05. 50
To service income (receipts from sales of maps, etc.) 552.20
To incidental receipts (sales of waste property) 15.00
Total 206, 942. 10
CBEDIT.
Total expenditures «02, 696. 93
Unexpended balance 3, 582. 47
Receipts from sales of fixed assets, service income and incidental
receipts reverted to the treasury 662. 70
Total -r"^» ^^' 10
Digitized by VjO
168 BEPOBT OF THE PHILIPPINE COMMISSION.
Statement of assets and liabilitieSy Dec. 31, 1915,
ASSETS.
Water craft and appurtenances ^186, 874. 07
Hand tools 640. 83
Furniture and office equipment 12, 350. 56
Miscellaneous equipment 2, 420. 15
f^2, 285. Ql
Supplies on hand -• 1, 935. 36
Cash:
In hands of chiefs of parties 11, 000. 00
In treasury (deduct) 4,479.09
6, 520. 91
Total 210, 741. 88
LIABILITIES.
Accounts payable , ^. 33
Accrued leave payable 8, 452. 94
Net worth 202, 285. 61
Total 210, 741. 88
BUBEAXJ OF POSTS.
Director of posts: Egbert M. Shearer, July 12 to December 31,
1915.
Acting director of posts: William G. Masters, January 1 to July
11, 1915.
Assistant director: William G. Masters, January 1 to December
31, 1915.
Officers and employees of the bureau at the close of the year were :
Americans.
FiUpinos.
Total,
1915.
Total,
1914.
^
Classi-
fied.
Unclas-
sffied.
Classi-
fied.
Unclas-
sified.
Director
1
1
6
1
1
1
9
1
1
Assistant director
1
Superintendents
3
6
Cashier
1
Disbursing officer
1
District in!niAP.tnrff , . - , . x . . . ,
12
6
2
14
241
11
8
1
692
259
13
294
8
14
31
557
163
16
327
13
Clerks
224
11
6
1
1
' ii
'"'673'
246
8
259
7
14
""*657*
d63
16
321
241
Railway postal clerks ^
11
stenographers
2
10
TranslatM's
2
Postmasters
2
16
• 13
3
34
1
684
Operators
252
Mechanics
2
1
U(
Linemen
299
Engtnemen
8
Drivers
14
Letter carriers — Manila
31
30
Letter carriers, provincial offices
549
Employees.. . .'.'.
164
Stamp agents
16
6
318
Total
34
76
277
2,276
2,661
2,637
P Note.— One disbursing officer and two American clerks in 1914 report are carried as superintendents in
this report.
Digitized by VjOOQIC
REPOET OF THE SECEETABY OP COMMEBOB AND POLIOB. 159
Changes in personnel, not including mail contractors and messengers.
Americans,
1915.
"*?^r''
Total,
.1915.
Total, ,
1914.
Appohitments
6
797
2
128
632
803
2
129
652
1
2
8
1,010
Removals
1
2Q
1
148
Resignations
848
Transfers:
To bureau .
6
From bureau
2
8
5
Deaths
8
Number of American and Filipino officers and employees^ exclusive of mail
contractors and messengers, at the time of rendering reports submitted to
show relative number of Americans and Filipinos employed.
Amaricans,
Filipinos.
Total.
Expenditure,
sauries and
wages.
June 30, 1905
June 30, 1906
June 30, 1907
June 30, 1908
June 30, 1909
June 30, 1910
June 30, 1011
June 30, 1912
June 30, 1913
Dec. 31, 1913.
Dec. 31, 1914.
Dec. 31, 1915.
156
223
210
237
201
191
194
190
179
178
117
103
456
780
881
1,128
1,166
1,380
1,704
1,858
2,047
2,128
2,202
2,231
612
1,003
1,091
1,365
1,367
1,571
1,898
2,048
2,226
2,306
2,319
2,334
y439,161.33
531,959.57
628,422.88
756,142.94
742,842.68
790,512.63
879,794.92
932,243.69
1,290,754.09
679,656.98
1,267,278.56
1,210,770.63
The expenditures shown for the years prior to 1913 do not include
salaries and wages of teamsters and chauffeurs, cable employees, me-
chanics, linemen, and laborers, nor the money value of unpaid
accrued leave.
The number of Americans employed at the close of the year 1915
was 14, or 12 per cent less than the number employed at the begin-
ning of the year.
The increase in the number of Filipinos employed was 29, or 1.32
per cent.
Number of post offices, money-order, s&vings-bank, and telegraph offices, and
municipalities with free-delivery service in each Province at the close of the
year.
Province.
Number
ofpost
offices.
Number
of
money-
order
Number
of
offices.
Number
of
tele-
graph
offices.
Number
of munici-
palities
withftee-
delivery
Service.
Agusan
Albay
Ambos Gamarines
Antique
Bataan
Batanes
Batangas
Bohol
Bulaoan
Cagayan
Capiz
Cavite
Cebu
Department of Mindanao and Sulu
19
15
18
7
8
1
12
8
15
14
17
8
29
12
Digitized
2
14
20
3
7
byCbogl
11
5
18
6
9
15
28
160
BEPOET OF THE PHILIPPINE COMMISSION.
Number of post ojSfices, money-order, savings-hank, and telegraph offices, and
municipalities with free-delivery service i» each Province at the close of* the
year — Continued.
Province.
Number
ofpost
offices.
Number
of
money-
order
offices.
Number
of
savings-
bank
offices.
Number
of
tele-
graph
offices.
Number
of munici-
palities '
with free-
delivery
service.
Hocos Norte
14
22
23
9
24
13
40
1
7
13
9
18
6
24
17
6
22
42
22
28
19
9
12
30
14
4
7
6
6
11
6
18
3
5
12
5
4
2
22
6
5
8
16
5
18
17
1
8
20
9
5
13
10
8
16
9
26
3
6
12
6
9
5
22
8
5
18
41
11
20
18
3
9
20
9
11
18
12
22
16
19
17
20
12
Bocos Sur
12
Hoiio
11
Isabela
7
lAgrima. t ..,.,- t t ,. .
22
La^nion
11
Leyte
20
Manilft, ...
1
Mindoro
2
Ui5iftTnl«..
8
M<wintain
4
NuevaEcija
13
Nueva Viscaya
2
Occidental Nttzros
23
Oriental Negros
16
PftlAWAn ,r X . . r r ,
1
PampangA
18
PATigasinan
30
Rlzal
22
Samar
14
8 orsogon
18
Surigao
2
Tarlac
10
Tayabas
18
Zambales. . .........
9
Total
693
685
311
302
473
439
311
303
451
Ntifnt^^i* T>flc 31, 1914
447
ncrease
8
9
34
4
In General.
increase in united states parcel post.
The number of insured parcel-post packages from the United
States increased from 8,742 to 11,556, or 32 per cent, due largely to
the fact that Philippine merchants are utilizing this method of trans-
portation in view of the scarcity of vessels and prohibitive freight
rates.
MONEY ORDERS.
The total number of money orders issued in the Philippines was
353,911, amounting to ^19,001,020.56, an increase of 28,348 orders
and ^316,299.48 over the preceding year. The fees paid for the above
orders amounted to ^110,558.22.
TELEGRAPH AND CABLE LINES.
The telegraph division shows a decrease of 34,462 messages sent,
with a consequent loss in revenue of ^4,451.48. While the greater
part of this loss may possibly be attributed to business depression,
the inability of the bureau, due to the sale of the cable ship, to
promptly restore interrupted cable communication has also been a
factor. The cables connecting Luzon with Catanduanes and Ma-
rinduque with Mindoro have been interrupted for several months and
can not be restored until the new cable ship is available for service.
Digitized by VjOOQIC
BEPOET OF THE SECRETABY OF COMMEBCE AND POLICE, 161
^ In the belief that the time had arrived for a complete reorganiza-
tion of the telegraph and cable system, a comprehensive plan was sub-
mitted to the present Legislature. This plan contemplated :
(a) The substitution of present land lines for cable lines wherever
they are approximately parallel.
(6) The construction of new land lines wherever it is possible by
so doing to parallel cable lines.
{c) The installation of several radio stations to enable the aban-
donment and recovery of cable lines.
(d) The shortening of present land lines made possible by the
construction of new roads and trails.
(e) Using ^me of the recovered cable to connect up a number of
important islands now without telegraphic communication with the
outside world and whose importance did not justify the purchase of
new cable for the purpose.
(/) The relaying of cables in use in shallow water, thus materi-
ally reducing the cost of maintenance. ,
Iff) Dispensing with a number of repeater and relay stations, thus
reducing expense and obtaining direct communication for longer dis-
tances.
The maintenance of the present submarine cables is very expensive,
necessitating not only the retention of a large cable ship which is not
used for cable purposes on an average of more than one month
each year but also the continual purchase of expensive submarine
cable.
The relocation of the cables would reduce their length from 1,100
miles to about 500.
The change from cable to land lines will not only radically reduce
the expense of maintenance but it will reduce the long periods of de-
lay, now of frequent occurrence, when a cable is interrupted, due to
inability to get the cable ship to the point of interruption promptly or
the frequent inability of the cable ship to promptly locate and re-
move the interruption. Interruptions of land lines can be promptly
located, easily and cheaply removed, and without the use of expen-
sive equipment.
To carry into effect all the changes recommended would cost ap-
proximately ^^00,000, but as the work naturally divides itself into
several projects, any one may be completed and be immediately
effected without reference to the others.
RADIO STATIONS.
The island of Cuyo has a small radio station and is also connected
with San Jose, Antique, by a cable 83 miles long. By establishing
a medium-powered radio station at Iloilo connection could not only
be made with the radio station at Cuyo, thus enabling the recovery
of the 83 miles of cable between Cuyo and San Jose, but the Iloilo
radio station could also work with the radio stations at Corregidor,
Jolo, and Zamboanga, and thus in an emergency would make radio
communication possible between Luzon, Eomblon, Panay, Cuyo,
Palawai^, Mindanao, and Jolo, and through their cable and land
lines with practically all the adjacent islands.
Digitized by VjOOQIC
162 EEPOET OF THE PHILIPPINE COMMISSION.
OPENING OF NEW POST OFFICES.
In the Philippine Islands there are now 693 post offices where
stamps may be boujght, mail received and dispatched^ and articles
registered; 473 saving bank offices; 311 telegraph offices; and 311
money-order offices. Every one of the 109 municipalities now with- '
out service is entitled at least to a post office where stamps may be
purchased, mail received and dispatched, and articles registered, and
upon recommendation of the bureau of posts an appropriation was
made for the purpose. It is hoped to have all these offices in opera-
tion in a few months. As conditions justify, savings banks and
money-order offices can be established in these municipalities with
practically no additional cost.
NEW POST-OFFICE BUILDING FOR MANILA.
The most crying necessity which confronts the bureau of posts
now is the need for, a modern, up-to-date, fireproof building to house
the Manila post office. This need was recognized when a bill author-
izing the insular government to borrow ^00,000 from the postal
savings bank for the purpose of constructing such a building, repay-
able in 10 equal installments, was introduced in the Philippine As-
sembly. Unfortunately the price of building material had so ad-
vanced as a result of the European war that it became apparent that
the cost of a suitable building at this time would be prohibitive, and
the matter was allowed to drop for the present.
The present building, which served as a cuartel and stable for the
Spanish cavalry, is in very bad repair. It is too small for the pur-
pose for which itns being used, is insanitary, and, being constructed
largely of Oregon pine and corrugated iron, is dangerously exposed
to fire. As a precaution against absolute paralyzation of the cable
and telegraph service there has been stored in the bureau of supply
bodegas a complete duplicate of the Manila telegraph office, includ-
ing instruments and batteries, but it is, of course, out of the ques-
tion to store there a complete duplicate of the entire Manila post
office.
It is feared that any fire that might start in the building would,
owing to its highly inflammable nature, unless discovered in its iiv-
cipiency, result in total and complete loss of the structure and its
contents. The loss to the government would probably approximate
a million pesos, and the loss of ordinary and registered mail and
parcel-post packages to the patrons of the office would be incalculable.
Every precaution, however, is. being taken to prevent such a catas-
trophe, two 80-g3,llon chemical engines having been recently installed.
CHANGE IN THE ACCX)UNTING SYSTEM.
A great deal of time has been devoted to an exhaustive study of the
accounting system now in vogue in the bureau of posts and the vari-
ous post offices. It was adapted to the requirements of the service
when it was in its infancy and has not kept pace with the vastly in-
creased number of offices now in operation or the enormous business
being handled by them. A new system is now being worked out
which it is believed will make for greater economy and much more
Digitized by VjOOQIC
BEPOET OF THE SECBETABY OF COMMEBCE AND POLICE. 163
satisfactory service. The new system will be put in operation during
the coming fiscal year.
NECESSirr FOR AN ORGANIC ACT.
The bureau of posts was originally established and opened by the
United States Post Office Department. Upon the establishment of
civil government in the Phihppine Islands the bureau was trans-
ferred bodily to the Philippine service, and consequently there was no
urgent necessity at the time for an organic postal act. The postal
business, however, has now developed to such an extent and has so
many problems to solve that are not covered by the precedents, law,
and postal reflations of the United States Post Omce Department
that an organic act of our own is imperative. To this end a very
carefully prepared act has been submitted to the code committee, and
it is hoped that it will be enacted and become effective at an early
date. (See ch. 35, Administrative Code, Act No. 2657.)
Postal Division.
Free delivery letter carrier service was established in four munici-
palities, making a total of 451 municipalities in which this service
was in operation on December 31, 1915. The cost of this service, out-
'fiide of Manila, was ^1,516.42, an increase of ^405.35, or 0.4 per cent,
over the previous year.
The letter, carriers in the city of Manila delivered 2,963,106 pieces
of mail, an increase of 0.1 per cent over the previous year, and col-
lected 2,638,376 pieces from street letter boxes, a decrease of 1.2 per
cent.
The number of articles bearing special-delivery stamps and de-
livered by special messenger in Manila amounted to 22,565, an in-
crease.of 18 per cent over the previous year.
The mail advertised in Manila amounted to 20,951 pieces, of which
1,628 pieces were subsequently delivered, the balance being turned
into the dead-letter office for disposition.
During the year 20,936 coUect-on-delivery packages were handled,
an increase of 10,000, or 91 per cient, while the collections amounted
to W55,990.24, an increase of ^9,782.79, or 67 per cent.
Durinff the year one branch post office was established in the city
of Manila for the transaction of all classes of postal business, and in
addition there were in operation 1 branch post and telegraph office
and 16 substations. The number of articles registered at the 2 branch
post offices and 16 substations was 7,368, and the revenues received
from these offices and substations amounted to ^1,299.08.
For the convenience of the public, 1,955 parcels were wrapped or
prepared for mailing at the Manila post office. The revenues derived
from this service amounted to ^61.76.
During the year a parcel-post convention was executed with
Australia for the exchange of parcels between the two countries, and
negotiations were carried on for such conventions with Japan,
Singapore, and Spain, and in addition for money-order conventions
with Japan and Spain.
The exchange of parcels through the medium of the United States
with Germany, Austria-Hungary, and Italy was resumed, this serv-
ice having been discontinued on account of the European war, but
Digitized by VjOOQIC
164
BEPORT OP THE PHILIPPINE COMMISSION.
the exchange of parcels with Belgium, Turkey, and northern and
northeastern France remained discontinued.
The exchange of parcels with Gibraltar and the Argentine Re-
public was made possible by the conventions entered into between
the United States and those countries under the provisions of which
the Philippine Islands are permitted participation.
At the beginning of the year 73 publications printed in the islands
were listed as second-class matter, and 6 newsdealers held permits
to mail publications at the second-class rate of postage. During the
year 18 new publications were admitted and 10 publications were dis-
continued, so that on December 31, 1915, there were 81 second-class
publications and 6 registered newsdealers. The amount of second-
class postage paid was W8,488.87, an increase over the previous year
of ^6.11, or 4 per cent.
The following is a summary of the registered mail handled :
Fiscal
year 1914.
Fiscal
year 1915.
Increase
(+) or de-
Pieces of mail repistered at Philippine offices
Pieces received from the United States
Pieces received from foreign countries
Pieces sent to the United States
Pieces sent to foreign countries
Pieces sent from one Philippine office to another Philippine office
Pieces handled hy the Manila post office
Insared parcels from the United States addressed for delivery in Manila.
644,494
27,738
70,010
72,481
52,972
519,041
647,959
8,742
641,823
26,295
58,192
71,663
48,126
522,034
611,735
,556
Per cent.
- 0.4
- 6.0
-16.8-
- 1.1
- 9.1
+ .6
- 5.6
+32
The exchange of mails with the United States and foreign coun-
tries is summarized as follows:
Fiscal
year 1914.
Fiscal
year 1915.
Mails dispatched from the United States, and received at Manila.
By transports.
By liners
Arrivals
Pouches of letters received from «he United States
Pouches and sacks of registers received from the United States. . ..
Sacks of papers and merchandise received from the United States.
Mails sent to the United States
By transports.
By liners
Arrivals therein
Pouches of letters sent to the United States
Pouches and sacks of registers sent to the United States
Sacks of papers and merchandise sent to the United States
Bags sent to United States ships and troops in foreign countries
Bazs received from United States ships and troops in foreign countries .
Mailsreceived from foreign countries
Bags received from foreign countries
Mails sent to foreign countries
Bags sent to foreign countries
Net weight of letters sent to foreign countries (grams)
Net weight of other articles sent to foreign countries (grams)
Parcel-post packages sent to foreign countries
Parcel-post packages reoeived from foreign countries
97
105
12
OS
964
1,247
24,764
84
69
1,095
1,072
25,425
77
12
66
70
849
2,343
2,687
313
251
■ 699
8,302
543
3,605
9,724,502
24,1(»,400
3,286
5,968
71
849
3,20(h
2,296
620
601
616
7,382
615
3,137
8,860,069
21,465,580
3,17a
5,975
While there was an increase in the number of mails received from
and dispatched to foreign countries as compared with 1914, there
were 920 bags less received and 468 bags less sent. There was also
Digitized by VjOOQIC
REPORT OF THE SECRETARY OF COMMERCE AND POLICE.
165
a decrease in the net weight of letters sent to foreign countries of
864,433 grams and of other articles of 2,637,820 grams. This condi-
tion was due to the interruption of regular service as a result of the
European war.
The following is a summary of articles received and disposed of
in the dead-letter office:
Registered
articles.
Ordinary
letters.
Ordinary
packages.
Total.
Articles received from—
United States
6
31
330
1,809
2,176
53,622
3,132
7
135
1,158
1,821
Foreign countries
2,339
Maiiila post office and other Philippine sources
55,110
3,132
Again returned to dead-letter office after attempt to
find senders - - ., , ,-,-,.,-,,--,
Total accounted for
366
^,738
1,298
62,402
Disposition made:
Returned to United States
3,101
3,041
2,494
28,647
40
1
23,352
52
10
136
297
116
105
3,237
Returned to foreign countries '.
3,338
Request matter returned to senders in the Philippines..
Oi)ened and returned to senders
59
2,609
28,752
40
Containing money, drafts, stamps, etc., returned to
senders
Containing other valuable matter returned to senders. .
1
627
2
Destroyea
41
24,020
Containing money, drafts, etc., filed
52
Containing other valuables filed
266
16
292
Total accounted for - - r - r r - - . r
366
60,738
1,298
62,402
At the close of the year there were on file in the dead-letter office
700 registered articles and 97 letters containing money, drafts, or
stamps, and 603 letters and packages containing other valuables.
During the year money to the amount of ^86.20 was taken from
letters sent to the dead-letter office and deposited in the insular
treasury to the credit of the trust fund.
MONET-ORDER SERVICE.
The following is a comparative statement of the money-order
business for the years 1914 and 1915 :
1914
1915
Number of orders issued payable in the Philippines
Amount of same
Fees on same
Number of orders issued payable in the United States and other countries. .
Amount of same
Fees on same
Number of Philippine orders paid and repaid here
Amount of same
Number of orders of the United States and other countries paid in the
Philippine Islands
Amount of same
Amount of Philippine orders paid in the United States and other
countries ,
Deposits of money-order funds received at Manila from provincial offices. .
254,880
ri4,880,007.02
172,685.42
70,683
r3, 804, 714. 06
r33,389.92
255,070
n4,869,831.82
10,448
r547,852.74
r3, 846, 930. 66
ril,420,832.26
285.057
n5, 453, 467. 04
r79,178.16
68,854
r3,547,5M.52
r31,380.06
282,627
n5, 246, 115. 30
11,237
r587,233.62
r4, 245, 414. 02
ril,314,923.6»
The money-order service was established at 10 additional offices^
and 1 office was discontinued. The total number of all- orders issued
was 353,911, an increase of 28,348, or 8.7 per cent, and the amount of
these orders was 1^19,001,020.56, an increase of f«16^99.48, or 1.6
per cent. The fees amounted to W10,558.22, to which should be
added 1^95.17, covering the net gain on bank exchange in settlement
Digitized by VjOOQIC
166
REPORT OF THE PHILIPPINE COMMISSION.
of balances due Hongkong. This gain resulted from the depreciation
of the English pound sterling.
The foregoing statistics of money orders issued and paid in the
islands include 9,545 telegraphic transfers by means of the money-
order service, amounting to ^,233,910.32, upon which the money-
order fees amounted to ^8,009.44 and ^15,389.07 for the telegrams
required to make the transfers. The business as compared with 1914
shows a decrease in amount* of over 5 per cent; in money-order fees,
of 7.9 per cent; and in telegraph tolls, of 4.7 per cent.
The total annual amount of money orders sent out of the islands by
means of the money-order service was ^,547,553.52, being a decrease
of over 3 per cent. As the amount of United States and foreign
orders paid in the islands was only ^587,233.62, the balance against
us is ^,960,319.90.
Telegraph Division.
The following is a summary of telegraph business :
Telegrams sent.
Insular provincial, and municipal, official <exchiding
weather bureau)
Weather bureau
Federal Government, official
Commercial
Total
Calendar year 1914.
Number. Value.
90,427
32,454
5,415
665,417
691,713
n03,267.26
57,891.62
8,294.24
509,095.26
678,548.38
Calendar year 1915.
Number. Value.
83,154
32,437
4,679
536,981
657,251
7-85,825.46
58,257.34
7,626.06
462,388.04
614,096.90
The total business for the year, as compared with that of the year
1914, decreased 34,462, or 4.98 per cent, in number of telegrams sent,
while the decrease in amount of revenue thereon was ^64,451.48, or
9.49 per cent. The insular, provincial, and municipal (official),
excluding the weather bureau, decreased 7,273, or 8 per cent, in num-
ber, while in value it decreased 1P17,441.80, or 16.98 per cent. The
weather bureau decreased 17 in number, but increased 1^365.72 in
value, the only increase that can be noted thereon. The Federal
Government, official, decreased 736, or 13.59 per cent, in number and
^^68.18, or 8 per cent, in value. The commercial decreased ^^436,
or 4.69 per cent, in number, while in value it decreased 1^46,707.22,
or 9.1 per cent.
The changes in the telegraph service are summarized as follows :
Telegraph lines built kilometers
Telegraph lines rebuilt do..
Destroyed by typhoons do..
Telegraph land lines abandoned do..
Telegraph cables laid do..,
Telegraph cables recovered do..,
Telegraph wires at close of year do..
Telegraph cables at close of year do..
Telegraph offices opened number
Telegraph offices closed do..
Telegraph offices at close of year do . .
543.8
812
100
16.1
78.9
134.32
7,977.86
1,816.74
14
4
Calendar
year
1915.
289.84
491.95
200
8
56.1
125.6
8,259.71
1.747.24
10
2
311
Digitized by VjOOQIC
BEPOBT OF THE SEOBETABY OP COMMEBCB AND PQJLIOB. 167
On December 81, 1915, there were 311 insular telegraph offices in
operation in the Philippine Islands, including wireless stations, as
compared with 303 reported as in operation December 31, 1914, and
293 on December 31, 1913. It will be noted that the number of tele-
graph offices increased by eight, two of which being wireless sta-
tions, between January 1 and December 31, 1915.
The above figures include two military offices which accept com-
mercial business; Manila having three omces, and Zamboanga, Jolo,
and Davao two each.
^ Insular government tvirelesa statioiM in operation^ Dec, SI, 1915,
stations.
Province or district.
Cuyo
Palawan.
Department of Mindanao and Sulu.
Do.
Do.
Do.
Do.
Palawan.
Mindoro.
Department of Mindanao and Sulu.
I^avao
Isabels de Basilan
Jolo
Malabang
Margosatubig
Puerto Piincesa
p?^n Jnse ...
ZamboMiga
\
BEPAIKS AND RELOCATION OF GABLES DURING THE YEAR.
Owing to the destruction by typhoons, it was necessary to recon-
struct 200.48 kilometers of line. In addition, 291.46 kilometers of
line were rebuilt and materially strengthened.
The submarine cable between Ormoc and Mandawe, Cebu, which
had been in service for many years, became interrupted and on*
account of the inability of the bureau to repair same at the time of
its interruption, due to lack of surplus cable, it was recovered and
relaid between Palompon and Catmon. Two serious cable interrup-
tions occurred during the latter part of the year to the Legaspi-
Bacon and Sorsogon-Masbate cables, thus rendering unserviceable
one of the southern trunk circuits. TTiese interruptions have not yet
been repaired as a result of the fact that the cableship Bizal was
disposed of before another cableship was made available for cable
work. In order to restore communication over this route it became
necessary to construct a land line between Legaspi and Putiao, which
will be completed about February, 1916.
Two new wireless stations were erected, one at Margosatubig and
the other at Isabela de Basilan, Department of Mindanao and Sulu.
No interruptions of any moment occurred in the radio service during
the year, except at San Jose, Mindoro. This station was out of com-
mission from October 25 to November 21 on account of the tower
being wrecked by a severe typhoon.
Postal Savings Bank Division.
The following statements show the work and business of the bank
for the last three years. Wherever possible, for comparative pur-
poses, the business for the calendar year 1913 is also shown. The
61988—16 12
Digitized by VjOOQIC
168
BEPOBT OP THE PHIUPPINB COMMISSION.
gain in Filipino depositors with open accounts at the close of the
year was over 12.2 per cent. More than 85.4 per cent of all depositors
are Filipinos. The number of new accounts opened during the year
was over 0.7 per cent less than the number of new accounts opened
during 1914, while the number of accounts closed during the year
increased over 15.7 per cent. However, there is an increase of 11.3
per cent in the number of accounts open at the close of the year
and of 1.1 per cent in the amount due depositors. The number of
deposits made in the bank during the year increased over 6.1 per
cent, while the amount of deposits made decreased nearly 4 per cent.
The number of withdrawals made during the year increased 14.4
per cent, while the amount of same increased 5.7 per cent. Accounts
open at the close of the year having balances of less than !^50jeach
amount to over 79.4 per cent of all accounts. Comparing the fiscal
year ended December 31, 1915, with that ended December 31, 1914,
there was an increase of over 7.3 per cent in the amount of interest
paid on accounts closed and an increase of over 52.2 per cent in the
amount added to accounts open at the close of the year. The extra
large per cent increase in the amount of interest added to accounts
open at the close of the year is due to a recent ruling by the insular
auditor, }fi which the amount of ^0,000 as estimated accrued interest
to December 31, 1915, on firearms deposits outstanding was ordered
taken into account. The foregoing mentioned ruling likewise re-
duces the net earnings of the bank by 1P20,000. The earnings of the
bank increased over 14.8 per cent and the expenses 18.2 per cent.
The amount of ^,975.46, net earnings in excess of the cost of admin-
istration of the bank, was set aside as a reserve fund, in accordance
with the provisions of section 20 of Act 1493.
Summary of the postal savmgs hank service.
Calendar year.
1913.
Fiscal year
1914.
Fiscalyear
1916.
Bank offices at close of year:
First class 1
Second class
Third class
40
268
129
271
168
304
160
Total.
437
439
473
New accounts opened during the year
Accounts closed during the year
Accounts open at close of the year
Increase over prior year
Averi^e amount of each open account at close of year —
Deposits during the year
Average amount of deposits -- .
Total deposits made by depositors
Annual accrued interest placed to credit of depositors at
close of the year
Withdrawals during the year
Average amount of withdrawals
Total amount of withdrawals
Savings bank stamps sold
Savings bank stamps redeemed
Savings bank stamps outstanding
9,947
6,751
42,271
r66.76
60,716
r61.28
rS, 113, 236. 40
32,952
r86.64
r2, 854, 828. 28
ri9,077.80
ri9,665.00
r7,618.20
12,622
6,017
48,876
6,605
r64.81
72,080
r50.62
r3, 649, 034. 93
r45,101.29
39,092
r86.65
r3, 348, 253. 68
r21,519.20
r20,948.00
r8,189.40
12,524
6,966
54,434
6,558
r58.85
76,538
r45.84
r3, 508, 851. 96
r68,671.22
44,728
r79.19
r3, 541, 949. 27
f-15,318.85
ri4,926.00
r8,582.26
Digitized by VjOOQIC
BEPOBT OF THE SEOBETABY OF COMMEBCE AND POLICE. 169
ClaaHficatUm of depoHtors. ^
Open
accounts
Dec. 31,
1914.
New
accounts
opened
during
year.
Account^;
dosed
during
year.
Open
accounts
Dec. 31,
1915.
NATIONALITT.
Americans.
FlUpinos...
Europeans.
Asiatics
Societies...
OCCUPATION.
Professional
Clerical ,
Students
Mercantile
Agriculture
Artisans
Domestics
Laborers
Soldiers and sailors
Policemen and firemen
Women, no occupation
Children
Miscellaneous, unclassified.
Male....
Female..
MABBZAOX BXLATION.
Married....
Unmarried.
5,337
41,414
1,219
846
60
6,177
6,667
18,453
2,103
2,164
3,078
2,044
3,347
2,918
912
1,202
1,604
247
37,912
10,904
12,881
35,935
2,637
9,449
273
257
8
2,230
4,371
210
149
6
6,644
46,492
1,282
954
62
1,088
703
6,562
1,466
740
6,383
3,172
2,196
19,430
496
289
2,309
531
196
2,600
824
326
3,577
718
311
2 451
1,026
392
3,980
2,026
1,268
3,686
279
161
1,040
312
220
1,294
462
143
18^
128
38
337
9,981
5,433
42^460
2,636
1,627
il,912
3,708
1,707
14,882
8,808
5,263
39,490
Statement of income and expenditures of the Postal Savings Bank.
From July 1
to Dec. 31,
1913.
Fiscal year
1914.
Fiscal year
1916.
Earnings for year collected during year
Accrued earnings uncollected at dose of year account not due.
Total
Net defidency
yiO,653.95
56,914.61
SXPBNDITUBE8.
Salaries and wages
E^roenses, p«rs<ninel
Ofnce expenses
Rentals :
Inudental expenses
Pro rata share of general administrative expense
Total operating expenses
Interest paid on closed accounts
Interest added to accounts at close of year as deposits.
Total
Nfttniplus
66,668.66
5,425.86
40,078.82
160.93
5,929.14
1,443.49
411.55
48,023.93
1.869.65
22,100.83
71,994.41
r92,686.68
61,176.36
^•112,108.26
64,519.27
163,762.94
72,485.14
2,566.45
12,142.00
2,728.16
38.95
89,960.70
7,590.10
45,101.29
142,652.09
11,110.85
176,627.53
68,553.67
406.00
11,408.34
2,960.55
63.22
8,454.23
91,836.01
8,144.84
68,671.22
168,652.07
7.975.46
Digitized by VjOOQIC
170
REPOBT OF THE PHILIPPINB COMMISSION.
Investment of bank funds at close of year.
Dec. 31, 1913.
Dec. 31, 1914.
Dec. 31, 1915.
LOANS TO BANKS.
International Banking Corporation, at 3i per cent
Hongkong & Shan^ai Banking CkniMiratfon, at ^ per cent. .
ChartereaBank of India, Austndia, and China, at a| per cent
BONDS.
Philippine Ry . Co. bonds, at 4 per cent
Manila R. R. Co. bonds, at 4 per cent
City of Manila bonds . 4 per cent
Real estate mortgages, 8 and 10 per cent
Total
r70,ooo.oo
170,000.00
490,000.00
905,000.00
323,875.50
460,000.00
751,380.00
r70,000.00
170,000.00
640,000.00
505,000.00
323,875.50
460,000.00
887,500.00
r60,000.00
40,000.00
440,000.00
505,000.00
323,875.50
460,000.00
1,278,950.00
2,770,255.50
3,056,375.50
3,107,825.50
Assets and Uahilities of the bank.
Dec. 31, 1913. Dec. 31, 1914. Dec. 31, 1915.
Loans to ba^ks
Bonds
Real estate mortgages
Interest account
Cash in hands of postmasters.
Cash In insular treasury
Total.
LI ABILITIES.
P-730,000.00
1,288,875.60
751,380.00
55,914.61
33,104.22
r880,000.00
1,288,875.60
887,500.00
61,176,36
68,217.34
1,546.46
^540,000.00
1,288,875.60
1,278,950.00
64,519.27
13,605.71
45,307.40
2,859,274.33
3^187,315.66
3,231,257.88
Deposit fund— :due depositors
Stamp fund — stamps outstanding
Reserve fund — earnings in excess of ejqpenditures
Insular treasury— <jasn advanced from general fund to pay
expenses
2,822,132.77
7,618.20
3,168,015.41
8,189.40
11,110.85
3,203,589.32
8,682.25
19,086.31
29,523.36
Total.
2,859,274.33
3,187,315.66
3,231,257.88
Revetmes {exclusive of the Postal Savings Bank).
BY ITEMS.
Stamp sales for postage, registry fees, and commissions on C. O. D. parcels.
Second-class postage
Box rents
Money-order fees
Cash postage ( Postal Savings B ank)
Stamp sales for telegrams
Telegrams paid in cash
Sales of supplies
Sales of fixed assets
Telephone service
Fines.
Miscellaneous receipts.
Prior year income
Construction receipts...
Total.
BT DIVISIONS.
Postal division
Telegraph division
Construction receipts..
Total.
Fiscal year
1914.
r704,825.97
18,412.76
31,089.03
105,549.05
4,928.28
610,838.20
67,710.18
1,240.68
493.82
3,465.66
347.44
2,217.12
864.70
1,561,982.88
867,045.22
684,937.66
1,551,982.88
Fiscal year
1915.
P-731,817.44
18,488.87
31,868.25
110,267.19
5,400.00
645,060.28
69,036.62
656.77
478.36
648.34
633.08
2,127.08
38,908.76
1,655,391.03
899,694.06
616,788.22
38,908,75
1,655,391.03
Comparing th6 fiscal year 1915 with the fiscal year ended Decem-
ber 31, 1914, shows a gain of 1^32,648.84, or 3.765 per cent, in the
postal division, and a loss of ^8,149.44, or 9.95 per cent, in the
o
BEPOET OF THE SEOBETABY OF OOMMEBOE AND POLICE. 171
telegraph division. The total revenues, exclusive of the ^8,908.75
shown as construction receipts in 1915, decreased ^5,500.60, or 2.29
per cent, while there was a decrease in the expenditures of ?261,-
144.74, or 13.6 per cent. The expenditures for the year 1914 ex-
ceeded the revenues by 1^362,955.72, or 23.4 per cent, while the
expenditures for the year 1915 exceeded the revenues by 1^137,311.58,
or 9.05 per cent. It will be noted that in the above figures, the con-
struction receipts of ^38,908.75 in 1915 are always eliminated, for
the sake of comparison.
Comparative statement of expenditures, bureau of posts, fiscal years 1914 o,nd
1915,
Aooounts as classified by the insular auditor.
Fiscal year
1914.
Fiscal year
1915.
A. Permanent improvements and equipment:
72. Buildings and improvements
73. Wharvesand docks
76. Telegraph and cable lines
85. Motor vehicles and accessories
86. Land transportation equipment
87. Industrial machinery and implements. .
88. Hand tools
89. Furniture and oflSce equipment
91. Miscellaneous equipment
Total.,
Salaries and wages
B. Rentals
F. Freight, express, and delivery service ,
.Q. Contingent service
H. Electric current
K. Telephone, telegraph, and cable service
M. Kepahs and maintenance of:
72. Buildings and structures ,
73. Do(*8 and wharves
76. Telegraph and cable lines
85. Motor vehicles and aooessories
86. Land transportation equk>ment.^
87. Industrial machinery and implements.,
88. Hand tools
89. Furniture and office equipment
9L Miscellaneous equipment
Total..
P. Printing and binding sad poscbase of stamps. ,
T. Expenses of personn^
64g. Extraordinary or prior year expenses
X. Consumption of supplies and material
I. Cost of goods sold ,
Z. Capital value of fixed assets sold
Total expenditures
CI. Supplies
t-52,905.99
1,843.00
40,255.61
25,838.67
646.85
28,921.38
22,701.10
r357.03
16,779.56
42,722.99
34,949.13
81,294.64
2,334.32
81,143.90
10,140.11
121,435.26
32,866.97
1,194,793.42
27,584.70
293,234.30
5,834.07
11,396.38
2,153.99
1,760.89
125,901.96
3,100.40
172.00
2,256.09
3,809.10
1,120,206.05
26,409.38
293,937.53
6,161.61
11,501.54
1,795.10
2,716.23
330.00
56,713.92
2,129.94
298.88
298.72
1,935.80
6,356.18
4,137.82
137,090.43
16,608.88
49.530.40
6,121.66
48,421.57
1,240.68
492.86
74,917.49
1,276.54
46,773.^
1,515.37
38,379.28
656.77
427.74
1,914,938.60
1,653,793.86
44,304.86
35,403.07
Summary of accounts Dec, SI, 1915.
DEBIT.
6enei:al appropriation, Act 2431 1M, 775, 705. 15
5 per cent unreleased 88, 788. 25
M, 686, 976. 90
Special appropriations:
Act 2264 23,457.75
Act 2378 20,000.00
Act 2407 23,014.21
Act 2423 25,000.00
Act 2494 80,600.06
171, 471. 96
Appropriated surplus (supplies taken
up) 297. 72
■ P-L 858, 746. 58
Digitized by VjOOQIC
172 REPORT OP THE PHILIPPINE COMMISSION.
Receipts : ^
Stamp sales T\ 276, 877. 72
Second-class postage 18, 488. 87
Box rents 31, 868. 25
Money-order fees 110,267.19
Cash postage (postal savings
bank) 5,400.00
Cashtelepams 69,036.62
Construction receipts 38, 908. 75
Sal^ of supplies 656.77
Sales of fixed assets 478.36
Telephone service 648.34
Fines * 633.08
Miscellaneous receipts 2, 127. 08
ri, 655, 391. 03 ri, 555, 391. 03
Total 3,414,137.61
CBBDIT.
Total expenditures n, 653, 793. 86 n, 635, 793. 86
Unexpended balances:
Act 2264 - ^9,914.37
Act 2378 14,480.75
KAct2407 15,966.64
t Act2423 12,797.45
Act 2494. 79,404.00
P^ 132,563.21
Reversions:
Unexpended balance, general
appropriation Act 2431 72, 389. 51
Revenues 1, 555, 391. 03
1,627,780.54
^ 1, 760, 343. 76
Total 3,414,137.61
S^iUmmt oftmeti and lia^ilttiet, Dee. SI, 1916.
A8SBT8.
Permanent improvements, plant and equipment:
Buildings and structures ^30,856.95
Docks and wharves 1,843.00
Telegraph and cable lines 1,670,747.86
Motor vehicles and accessories 42, 722. 99
Land transportation equipment 5, 314. 89
Industrial machinery and implements 74, 118. 70
Hand tools 20,449.23
Furniture and office equipment 283, 773. 34
Miscellaneous equipment 38,038.86
r 2, 067, 886. 81
Supplies on hand 171,268.40
Accounts receivable 7,327.33
Prepayments 27. 00
In treasury 33, 001. 89
In hands of postmasters 82,792.07
In hands of O. P. Ankerson ^l, 263. 46
In hands of Otto W. Buhler 600. 00
In hands of James G. Minor 750.00
2,613.46
108,307.42
Total 2,364,805.96
UABILinBS.
Accounts payable 1^286,920.16
Net worth, bureau of poets, Dec. 31, 1916 2,067,886.81
r— — 2,354,806.96
Digitized by ' _ - _
EEPOET OF THE SECBETABY OP OOMMEBOE AND POLICE.
BTJBEATJ OF LABOB.
173
Director of labor: Bernardino G. Monreal, January 1 to Decem-
ber 31, 1915.
Assistant director : Faustino Aguilar, January 1 to December 31,
1915.
Officers and employees of the bureau at the close of the year :
»
Americans,
1915.
Fflipi-
nos,1915.
Total,
1915.
Total,
1914.
Director
1
1
1
1
1
3
5
19
6
1
19
Assistant director
Chief clerk :
Attorney
Chiefs of division
InspActors ,
Superintendents
Clerks
18
Messengers '. .
Chawffeprs
CHANGES IN PERSONNEL.
Appointments:
Classified service
»6
8
6
8
1
Undassifled service ,
Dismissals:
Classified service
Undassifled service
1
3
1
3
%
Resignations (voluntary):
Classified service
Unclassified service
7
Resignations due to economy:
Classified service
UTidassifled MTvloe
1
Transfers:
To bureau
4
4
From bureau ,
Deaths
1 These were formerly rendering services as temporary employees, but were made permanent upon quali-
flcation by examisAtion in the civil service.
Statement of ivumber of American and FiUpino officers and employees at the
dates indicatedf submitted to show relative numbers of Americans and Fili-
pinos employed.
Dates.
Ameri- .
cans.
Fili-
pinos.
Total.
Amounts ex-
pended for
salaries.
June 30, 1910
26
28
30
30
38
17
22
36
28
30
30
38
P-16,374.24
June 30, 1911
25,406.50
28,778.68
June 30, 1912
June 30, 1913
29,224.00
Dec. 31, 1913
16,684.08
Dec. 31, 1914
38; 149. 48
42,725.52
Dec. 31/1915
Digitized by VjOOQIC
174
EEPOBT OP THE PHILIPPINE COMMISSION.
The following comparative statement shows the personnel of the
bureau during the last two fiscal years :
Divisions.
1915
Officers
and em-
ployees.
Messen-
gers.
1914
Officers
and em-
ployees.
Messen-
gers.
Central offl ce
Employment agency, Manila..
Seamen's employment aeency.
Employment agency, Cebu....
Employment agency, Doilo ...
Empl03rmeiit agency, Ilocos . .
Total
18
2
2
1
2
1
2
1
1
25
Employment Agencies.
On January 23, 1915, by Act No. 2449, the employment agencies
of the bureau, which theretofore had rendered services gratmtously,
were authorized to charge and collect fees from employers for such
services. To this change are due the decreases noted in the following
tables :
Statement ahoiving the activities of the 4 employment agencies of this hureav.
duri/ng the last 2 calendar years.
Employment agencies.
Laborers registered .
Percent-
age of
decrease.
Laborers placed.
Percent-
age of
decrease.
1915
1914
1915
1914
Manila
" 789
1,036
374
?,200
3,387
60B
63
329
26
63
1,414
490
680
373
2,599
3,163
884
* 528
84
Cebu
534
noilo
28
Ilocos
61
Total
4,161
8,501
104
2,975
7,173
141
Statement showing the number of emigrants to other parts of the islands sent by
the 4 employment agencies of the bureau during the last 2 calendar years.
Employment agencies.
1915
1914
Percent-
^ageof
decrease.
Manila
144
465
312
164
213
3,065
327
423
48
Cebu
557
noilo
5
Ilocos
159
Total
1,085
4,028
270
seamen's employment agency.
This agency was originally established by the bureau of customs
for the purpose of facilitating the placing of unemployed seamen
and settling small differences arising between seamen and shipping
Digitized by VjOOQIC
REPORT OF THE SECRETARY OF COMMERCE AND POLICE. 175
firms. On January 1, 1915, the appropriation act transferred it to
the bureau of labor.
During the year the agency placed 203 seamen in private steamers
and 2 in a government steamer. It intervened in the making of con-
tracts of 3,533 seamen who had presented themselves directly to the
shipping concerns.
The agency attended to 51 complaints from mariners having
claims amounting to W,158.33. The total amount was recovered by
the claimants.
A fee of ^O.IO was collected for each seaman placed in a private
ship.
Emigration of FiiiiPiNo Laborers.
On February 5, 1915, the Legislature passed an act (No. 2486)
imposing an annual tax of ^,000 upon every person or entity
engaged in recruiting or contracting laborers in the Philippines for
service aboard, in addition to another tax of P500 for every Province
in which such person or entity operates. The bureau of labor is
vested with authority to supervise and intervene in the operation of
holders of licenses under the act. The contracting of minors under
15 years is prohibited, and minors undef 18 may only be recruited
upon^the written consent of their parents or guardians. The act
further authorizes the appointment of a commissioner or commis-
sioners for service outside of the Philippine Islands to look after the
interests of Filipino laborers residing in foreign countries. No
appointment was made under the act during the year.
Previous to the passage of this law the Hawaiian Sugar Planters'
Association, it is estimated, had sent over 19,000 persons to the
Hawaiian Islands from the time it entered the field in 1909. The
company continued to operate under the provisions of the act, paying
taxes to the Provinces of Cebu, Oriental Neg^os, Ilocos Sur, Ilocos
Norte, Bomblon, Capiz, La Union, and Mamla. Under its license
the. company sent 1,741 outside of the Philippines up to December 31,
1915.
There would seem to be no necessity for any Filipino laborer to
p abroad in search of employment. All of the available labor may
e utilized loQftUy, and under conditions, it is believed, not in any
way inferior to those prevailing in Hawaii, for instance. This
problem is receiving careful consideration and since the passage of
Act No. 2483 has shown a tendency to improve.
CiiAiMs AND Complaints.
At the beginning of the year there were 146 claims pending settle-
ment, amounting to 1^4,521.15. The bureau investigated 795 com-
plaints more during the year. These claims amounted to 1^22,860.64,
mostly for wages due, making an aggregate total of ^7,381.79.
Of this amount the bureau helped to recover ^8,486.55 through
amicable settlement and brought suit for ^21.31, the balance being
dismissed or withdrawn for various reasons. At the close of the
year there were i02 complaints pending settlement involving a
total amount of ^5,475.07.
Digitized by VjOOQIC
176 REPORT OF THE PHILIPPINB COMMISSION.
Labor Accidents.
The following statement shows the number of labor accidents
investigated by the bureau during the year :
Number of accidents a23
Number of victims 351
Number of deaths 56
Permanently disabled 12
Temporarily disabled 283
Number of victims indemnified 209
Number of victims not Indemnified 100
Indemnity claims pending at close of the year 42
Tot^l amount of Indemnity paid M, 669. 55
Strikes.
During the year the bureau intervened in 11 strikes, all of which
were for increase in wages. In eight of these the employers yielded
to the demand of the strikers, thereby terminating the strike; -in
the remaining three no settlement could be reached.
Expenditures.
As a result of the reorganization of the Philippine health service,
the bureau was compelled to vacate the premises formerly occupied
by it and leased office quarters elsewhere. This change exhausted
the total appropriation for the year, and the bureau appealed to
the emergency board, from which the additional sum of Pl,505 was
secured.
Statement of accountSy 1915,
DEBrr.
To appropriation Act 2431 :
Salaries and wages ^— , W3, 091. 00
For purchase of furniture and office equipment 1, 500. 00
Transportation of officers, employees, and per dlems
or allowance in lieu thereof 6,000.00
Rent of offices 1, 260. 00
Printing and binding 2,000.00 .
Freight, express, and delivery service 200. 00
Postal, telegraph, telephone, and cable service 1, 500. 00
Transportation of emigrant laborers 900.00
Illumination and power service 200.00
Equipment-repair service 400.00
Contingent service 760. 00
Ck)nsumptlon of supplies and materials 960. 00
5 per cent reserved (2, 938. 55)
W5. 882. 45
To appropriation emergency board:
For purchase of furniture and office equipment 355. 00
Rent of offices 1,000.00
Illumination and power service 150. 00
1. 505. 00
Receipts:
Licenses 6, 000. 00
Service income 692. 75
Sales of fixed assets 15. 25
Incidental 4.88
6.712.88
Total 64, 050. 33
Digitized by VjOOQIC
BEPOET OF THE SECEBTABY OF OOMMEBGB AND POLICE. 177
CBEDIT.
Total expenditure—^ W7, 293. 01
Unexpended balance : 6, 757. 32
Total 64, 050. 33
Statement of assets and liabilities.
ASSETS.
ISquipment:
Motor vehicles and accessories W, 961.14
Land transportation equipment ( other than motor ) 540. 70
Hand tools -. 42. 11
Furniture and office equipment 11,052.84
n6, 595. 79
Cash:
In treasury 9,508.51
In hands disbursing officers 354.56
9, 863. 07
Total - 26, 459. 86
LIABILITIES.
Accounts payable 2, 945. 45
Accrued leave payable 6,917.62
9, 863. 07
* Net worth - - 16, 596. 79
Total 26, 459. 86
THE IBBIGATION CGITNCIL.
The irrigation council held four meetings during the year. Eighty-
two applications for water rights were considered by the council, of
which number 69 were approved, 8 were disapproved, and 5 were laid
over for further study. At the request of the undersigned the council
also considered various matters relative to irrigation policy, and
made its recommendations thereon, which were later embodied in a
bill submitted to the Legislature.
The members of the^ council during the year 1915 were as follows:
Hon. Clinton L. Riggs, secretary of commerce and police, who was
sujcceeded by the undersigned as acting secretary of commerce and
g)lice; Hon. Melecio Severino, who was succeeded by Hon. Leon
orromeo as chairman of the committee on agriculture of the Philip-
pine Assembly ; Mr. Warwick Greene, director of public works, who
was succeeded by Mr. Charles E. Gordon, acting director of public
works, who was in turn succeeded by Mr. E. J. Westerhouse, acting
director of public works; Hon. Francisco Enage, who was succeeded
by Hon. Nicolas Capistrano as chairman of the committee on public
works of the Philippine Assembly; and Mr. Monico R. Mercado of
Pampanga, the agriculturist appointed by the Governor General.
At the close of the year, a total of 215 applications for water rights
had been considered by tne irrigation council since its formation in
1912, of which number 194 were approved.
COBPOBATIONS.
The following articles of incorporation, by-laws and certificates,
amendments and increases of capital were registered and filed in the
Digitized by VjOOQIC
178 REPOBT OP THE PHII.IPPINE COMMISSION.
division of archives, patents, copyrights, and trade-marks of the
executive bureau, upon payment or the fees noted :
10 articles of foreign corporations ^500. 00
91 articles of domestic stock corporations _^ 5, 950. 00
26 articles of domestic nonstock corporations .. 650. 00
4 articles of religious corporations 100. 00
8 articles of increase of capital , 125. 00
12 amendments of articles of incorporation 120. 00
70 by-laws of corporations 140. 00
18 amendments by by-laws 36. 00
3 appointments of superiors of religious corporations 20. 00
Total - 7,64L00
Respectfully submitted.
Jaime C. De Veyba,
Acting Secretary of Commerce (md Police.
To the Phujppinb Commission.
Digitized by VjOOQIC
REPORT OF THE SECRETARY OF FINANCE AND JUSTICE.
FISCAL YEAR ENDING DECEMBER 31, 1915.
Department of Finance and Jxtstice,
Manila^ May 2, 1916.
Sirs : I have the honor to submit for your consideration the follow-
ing report of the operations of the department of finance and justice
during the calendar year 1915.
JUDICIARY.
Supreme Court.
That the year 1915 has been the busiest for the supreme court
during the last six years is borne out by figures. A considerably
greater number of cases were disposed of in said year than in any
year of the last decade. Following is a comparative statement of the
docket for the last two years:
Q ComptLraiive statement of cases.
1914
1915
♦
De-
crease.
In-
crease.
Civil.
Crim-
inal.
Total.
Civil.
Crim-
inal.
Total.
Filed
538
363
389
462
927
. 825
584
618
393
423
977
1,041
50
Decided..-.
216
Pending decision
312
490
65
194
377
684
243
52^
39
190
282
715
95
Docketed but not heard
31
Total pending
802
259
1,061
768
229
997
64
Three hundred and twenty- four candidates for admission to the
bar were examined by the supreme court during the y^ar, as against
194 for the preceding year. Eighty-five passed the examination, as
compared with 54 who passed in 1914.
A large increase is also noted in the total amount of fees, fines,
and costs collected by the court during the year. As compared with
^=20,283,78 collected in 1914^, in 1915 there was collected ?=32,112.32,
of which ^11,730 represents the bar examination fees.
179
Digitized by VjOOQIC
180 repoet op the philippine commission.
Court of First Instance of Manila.
The following is a summary of the business conducted in the
Court of First Instance of Maiula during the calendar year 1915, as
compared with the work performed in 1914 :
1914
1915
Remarks.
ClVlli BBANCH.
Cases pending at beginning of year:
Ordinary civil
Probate and guardianship
Land re^tration (ordinary 40, cadastral 2) . .
Cases filed during the year:
Ordinary civil
Probate and guardianship
Land registration (ordinary 117, cadastral 9) .
Total to be disposed of..
Cases decided during the year:
Ordinary civil
Probate and guardianship
Land res:lstratlon (ordinary 117, cadastral 4) .
Cases dismissed during the year:
Ordinary civil
Probate and guardianship
Land registration (ordinary 3, cadastral 1) . . .
Total decided and dismissed.,
Pending at the end of the year:
Ordinary civil
Probate and guardianship
Land registration (ordinary 37, cadastral 6) .
Total pending.
CRIMINAL BBANCH.
Cases pending at the beginning of the year.,
Cases nled during the year
Cases to be' disposed of..
Cases decided dining the year ,
Cases dismissed during the year
Total disi>osed of
Cases pending at end of year
CUSTOMS APPEAL CASES.
Cases pending at the beginning of the year .
Cases nled during the year
Total to be disposed of
Cases decided during the year
Cases pending at the end of the year .
673
1,148
1,022
205
3,048
625
92
222
939
848
1,261
2,109
1,180
1,266
1,076
100
1,176
90
26
16
10
848
1,261
42
204
126
3,367
121
1,831
391
1,102
43
1,536
90
1,105
1,195
950
126
1,076
119
22
18
26 per cent increase.
10 per cent Increase.
13 per cent decrease.
9 per cent Increase.
265 per cent increase.
198 per cent increase.
54 per cent decrease.
13 per cent decreas^.
6.4 per cent decrease.
12 per cent decrease.
26 per cent increase.
8.5 per cent decrease.
32 per cent Increase.
No comment appears to be necessary regarding the above state-
ments. Where noticeable differences exist between 1914 and 1915
figures, the percentage of the increase or decrease, as the case may
be, has been noted in the column for remarks.
Courts of First Instance in teoj Provincjes.
The Hon. Dionisio Chanco, having reached the age limit fixed
by Act No. 2347, ceased to perform the duties of judge of the Court
of First Instance for the Eighth Judicial District on October 9,
Digitized by VjOOQIC
BEPOBT OP THE SECEETABY OF FINANCE AND JUSTICE. 181
1915, and tiie Hon. Carlos A. Imperial, formerly judge of the
municipal court of the city of Manila, was on October 19 of the
same year appointed as his successor in office.
The increase in the work of the courts of first instance pointed out
in previous reports has not abated during the year 1915, as will be
seen from the following figures:
There were filed during the calendar year 1915 in the various pro-
vincial courts of first instance, 4,838 civil cases, including probate
and ordinary land-registration cases, as compared with a total of
4,311 civil cases during the year 1914, an increase of 527 cases. ' There
were 4,366 civil cases disposed of, compared with 3,386 during the
calendar year 1914, showing an increase of 980 in the number of cases
disposed of. On December 31, 1915, there were pending 3,623 ordi-
nary civil, 2,891 probate and 953 ordinary land-registration cases, a
total of 7,467, as compared with a total of 6,987 cases in 1914, of
which 3,258 were ordinary civil, S,778 were probate and 951 were
ordinary land-registration cases, or an increase of 480 in the number
of civil cases pending.
There were 8,034 criminal cases filed during the year, as com-
pared with 7,799 for the year 1914, an increase of 235 cases. There
were 7,761 criminal cases disposed of during the year, compared with
7,887 during the calendar year 1914, a decrease of 126 in the number
of criminal cases disposed of. The number of criminal cases pending
at the end of the year was 2,411, as compared with 2,138 at the close
of the year 1914, showing an increase of 273 in the number of cases
pending.
One of the most noticeable differences between the amount of busi-
ness transacted in these courts during the calendar years 1914 and
1915 is the increase in the civil and land-registration work ; and while
the number of civil cases disposed of during the year 1915 (4,366) was
greater than that for the previous year ^3,386) by 980, yet there was
an increase of 480 in the number of civil cases pending at the close
of the year. Considering that 527 was the number of civil cases filed
during the year 1915 in excess of that for the year 1914, the increase
of 480 cases pending on December 31, 1915, is not without justifi-
cation.
GENERAL LAND REGISTRATION OFFICE.
The report of the chief of the general land registration office shows
that during 1915 the courts of first instance decided 1,047 ordinary
land-registration cases, as compared with 792 such cases disposed of
during 1914. This volume of work has only been exceeded during
two years since the institution of the present system of registration
of titles in 1903. Those years were 1909, with 1,153, and 1911, with
1,649 cases decided.
Since the inauguration of the cadastral system of land registration
147 such cases, including approximately 93,784 lots, have been insti-
tuted; 35 of these cases, including 17,836 lots, were filed during 1915
and 55 cases, consisting of 26,045 lots, were filed during 1914. A total
of 42 cases, composed of 19,723 lots, have been disposed of , leaving 105
cases of 74,061 lots pending on December 31, 1915. Of the 42 cadas-
stral cases disposed of 3 were decided during the six months ending
December 31, 1913, 12 in 1914 and 26 during 1915, consisting of 2,430,
2,858, and 14,485 lots, respectively.
Digitized by VjOOQIC
182 REPOET OF THE PHILIPPINE COMMISSION.
Against 36 civil and 1 military reservation proceedings, involving
60 parcels and an area of 142,835,522 square meters, instituted in
1914, there were also instituted 50 reservation proceedings during the
year 1915, of which 48 are civil reservaticms, containing 59 parcels,
with an area of 108,703,868.91 square meters, and 2 military reserva-
tions containing 2 parcels, with an area of 86,060 square meters.
The publication of notices issued by the general land registration
office and publii^ed in the Official Gazette has been made at a very
low cost during the calendar year 1915, 1,180 notices having been
published at a total cost of 1^18,726.36, against 891 notices published
m 1914, at a cost of ?^6,272.52, This saving in the cost oi publica-
tion of notices in land-registration cases is due to the plausible
amendment to the land-registration act to the effect that there shall
be inserted only in said notices a description of the property sought
to be registered, in general terms, omitting the technical description
by bearings and distances theretofore required, which was one of the
causes for the high cost of the publication in the past.
Great activity has been displayed in the dispatch of cadastral cases
during the year under consideration, several judges of the courts of
first instance having been assigned to other Provinces to assist in the
hearing of these cases whenever the condition of business in their own
districts permitted them to render this special service; and if the
report for 191? does not show a greater number of cases disposed of.
it is because while several cases were heard during the latter part oi
the year the decisions of the trial judges, due to the transcription of
stenographic notes, were not written up until the beginning of 1916.
Justice of the Peace Courts. '
The reports submitted by the judges of the courts of first instance
concerning the work of justice of the peace courts in their respective
districts show that during the calendar year 1915 there were filed
15,004 civil and 74,790 criminal cases, as compared with 11,560 and
65,840 cases, respectively, filed in 1914, showing a considerable in-
crease in the number of cases filed during the period under consid-
eration. There were decided 11,468 civil and 63,631 criminal cases,
a total of 75,099 cases, as against 10,960 civil and 57,873 criminal
cases, a total of 68,833 cases, for the year 1914. Eleven thousand
four hundred and eighty-two cases were otherwise disposed of, of
which 3,449 were civil and 8,033 were criminal, as compared with
10,406 cases, 3,488 civil and 6,918 criminal, for the year 1914.
At the close of the year 1915 there were 7,611 cases pending, of
which 534 were civil and 7,077 were criminal, compared with 6,996
cases pending on December 31, 1914, of which 2,544 were civil and
4,452 were criminal.
The amoimt of costs, fines, and fees collected during the year 1915
was f«04,802.18, against ^23,840.35 in 1914.
BUREAU OF JUSTICE.
The legal work performed by the bureau of justice during the
year 1915, as compared with the previous calendar year, is shown in
condensed form in the following summary:
Digitized by VjOOQIC
KEPORT OF THE SECRETARY OF FINANCE AND JUSTICE. 183
Ciases in the supreme court in which the attorney general presented briefs and argu-
ments , c ,
Cases in the supreme court in which the bureau of justice appeared by motion.
Land registration cases in which the bureau of justice appeared and opposed registra-
tion
Land registration cases examined by the bureau of justice in which no opposition was
presented.,
Cases conducted in the court of first instance
Cases conducted in the Justice of the peace court of Manila
Written opinions rendered by the attorney general to the chief executive, heads of
the four departments, chiefs of bureaus, and other oflicials...^
Calendar
year 1915.
408
182
36a
753
170
1,133
465
The difference in the amou;it of legal service rendered during the
past year in court proceedings, as compared with the preceding year,
is slight, but a great amount of time of the assistant attorneys oi
the bureau of justice has been devoted to administrative investiga-
tions. This is especially true of cases of charges filed against attor-
neys in private practice investigated by order of the supreme court.
Twenty-three such cases have been investigated. The number of
similar cases in past years have been small and have not been com-
mented on separately in annual reports.
Administration of Estates.
The number of estates of deceased American civil-service em- ^
l^loyees, the administration of which devolves upon the attorney
general under the provisions of Acts Nos. 1497 and 2136, decreases
from year to year. The number of such estates administered during
the period covered by this report was fewer than for any preceding
year.
Following is a list of officers and employees of the insular civil
service whose deaths occurred within the fiscal year 1915, and the
settlement of w^hose estates devolved upon the attorney general : John
H. Finnigan, bureau of education; Thomas Johnson (Kelly), Manila
Police Department ; Thomas I. Mair, Philippine Constabulary ; Allen
A. Helms, bureau of education.
Within the year the administration of estates of the following-
named deceased employees were terminated, viz: Isaac Williams,
bureau of public works; John H. Finnigan, bureau of education;
Lewis G. Wilford, bureau of agriculture; A. A. Helms, bureau of
education.
Estates of the following-named deceased employees of the Philip-
pine civil service remain unsettled December 31, 1915: Thomas L.
Carter, Charles D. Clifford, Arthur R. Travers, Manila Police De-
partment; John McDonald, department of engineering and public
works; Thomas I. Mair, PJiilippine Constabulary.
During the year 1915 the attorney general has taken charge of
estates of the following-named deceased civilian employees of the
United States Army, all of which are in process of settlement as of
December 31, 1915, viz : Armstead Gray," Silas McGowan, Thomas
J. Parry, Francisco Palarse, Peter G. Ferrel, Sidney L. Bayless,
M. H. Hamilton, James F. Shaw, William Connor, William Enger,
Albert Halcott, Ed. P. Luther, W. A. Wilder, J. M. Hooks,
William Saunders, Julius Weston, John Ronald, P. H. Sorrell, B.
McQuaid, Alvan Kenney.
61983—16-
-13
Digitized by VjOOQIC
184 REPOET OF THE PHILIPPINE COMMISSION.
Funds, estates of deceased employees.
Balance, Dec. 31, 1914 !M., 101.08
Receipts, fiscal year 1915 10, 887. 34
fll,988.42
Disbursements, fiscal year 1915 9, 530. 91
Balance, Dec. 31, 1915 2, 457. 51
11,988.42
BUREAU OP THE TREASURY.
Financial Statement.
The following statement shows the balances on hand at the close
of the fiscal year ended December 31, 1914, the receipts, withdrawals,
and currency exchanges during the fiscaj year imder consideration and
the balances on hand at the close of business on December 31, 1915 :
General funds:
Balance on hand at close of business Dec.
31, 1914 M3, 385, 908. 50
Receipts for fiscal year 1915, account of —
Cash deposits, all sources 63, 097, 764. 12
Currency exchanges 54, 368, 304. 68
Total ^130, 851, 977. 30
Expenditures for fiscal year 1915, ac-
count of —
Cash withdrawals, all sources 63,735,964.74
Currency exchanges 54, 368, 304. 68
118,104,269.42
Balance on hand Dec. 31, 1915 12, 747, 707. 88
Depository accounts —
Balance on hand at close of business Dec.
31, 1914 7, 918, 675. 02
Deposits during fiscal year 1915 —
Treasurer, United
States Ml, 236, 046. 18
United States dis-
bursing officers 47, 890, 904. 88
Insular disbursing
officers 43, 637, 923. 23
122,764,874.29
Total 130, 683, 549, 31
Withdrawals during fiscal year 1915 —
Treasurer, United
States ^27, 253, 826. 18
United States dis-
bursing officers 48, 508, 888. 08
Insular disbursing
officers 43, 613, 765. 47
Total 119, 376. 479. 73
Balance on hand Dec. 31, 1915 11, 307, 069. 58
Silver-certificates reserve account —
Balance on hand at close of business Dec.
31, 1914 33, 898, 721. 50
Certificates issued during fiscal year 1915- 8, 930, 000. 00
Total 42, 828, 721. 50
Certificates retired during fiscal year
1915 . 11, 715, 501. 50
Balance Dec. 31, 1915_- 31, 113, 220. 00
account-
55, 167, 997.
Digitized by VjOOQIC
Total €?f funds for which insular treasurer was account-
able Dec. 31, 1915 55, 167, 997. 46
KEPOBT OF THE SECRETARY OF FINANCE AND JUSTICE. 185
This balance was distributed as follows :
Distribution of funds.
United States
currency.
Philippine
currency.
Philippine
currency.
In treasury vaults •.
On deposit with local banks on open account
Time deposits with local banks
On deposit with authorized depositories in the United
States
1746,991.23
y38,341,396.73
1,973,937.83
4,693,849.76
4,382,415.34
^■39, 835, 379. 19
1,973,937.88
4,5^,849.76
8,764,830.68
Total..
6,129,406.57
44,909,184.32
55,167,997.46
The "general-treasury" balance of W2,747,707.88 in the fore-
going statement includes the cash balances of the following accounts :
General funds 92, 960, 807. 14
Gold-standard fund 8, 167, 638. 11
P'riar land bonds sinking fund, Act No. 1749 705. 076. 14
Public works bonds sinking fund, Act No. 1729 : 173,273.12
Manila sewer and waterworks bonds sinking fund, Act No. 1323 17, 808. 37
Cebu waterworks bonds sinking fund, Act No. 2009 667. 50
Money-order fund 614, 667. 00
Postal Savings Bank fund. Act No. 1493 34,065.05
Assurance fund, Act No. 496 55,818.56
Constabulary pension and retirement fund, Act No. 1638 22, 854. 07
Insular insurance fund, Act No. 1728 57, 099. 52
Fidelity fund, Act No. 1739.^ 52,132.34
Total 12, 747, 707. 88
The " depository balance " of ^11,307,069.58 in the same statement
includes the following accounts:
Agricultural bank of the Philippine GQvernment ?119, 838. 19
Burnham memorial fund 4, 000. 00
Fourth of July celebration fund 4. 368. 75
Manila Railroad Co. (contract No. 4) 20.00
Manila Railroad Co. (contract No. 9) 1,410.49
Manila Railroad Co. (contract No. 10) 7,325.96
Memorial monument fund, Act No. 1840 - 255. 52
Dental hygiene fund, section 3, Act No. 2490 305. 00
Treasury overage account 137. 43
Antituberculosis Society 9, 376. 18
Trust fund. Act No. 2392, Pototan Electric Light & Power Co 1, 000. 00
Trust fund, Act. No. 2393, Silay Electric & Ice Plant Co 1, 000. 00
Trust fund, section 2, Act No. 1510, Manila Railway Co 46, 162. 60
Cavite Electric Light franchise, section 2, Act No. 667 2, 000. OO
Trust fund, section 1, Act No. 1592, condemnation proceedings 293. 24
Insular disbursing officers 104, 605. 80
United States disbursing officers (Navy) 484,861.06
United States disbursing officers (Coast and Geodetic surveys )- 31.80
Treasurer of the United States 6, 096, 662. 50
United States disbursing officers (Army) 4,421,203.64
United States disbursing officers (Coast and Geodetic surveys). 2,204.16
United States disbursing officers (American consul) 7.26
Total 11, 307, 069. 58
The " certificate reserve fund " balance of ^31,113^20 in the state-
ment consists of silver pesos held in the treasury against which has
been issued an equivalent amount of silver certificates.
The sum of ^1,973,937.83 shown in the statement " distribution of
funds " as on open account with local banks pertains entirely to the
Digitized by VjOOQIC
186 BEPOBT OF THE PHILIPPINE COMMISSION.
general fund of the treasury and draws interest at the rate of 1 per
cent per annum. This is a working balance subject to withdrawal
at any time. The fixed, or time, deposits of ^4,593,849.76, with local
banks, appearing in the same statement, draw interest at the rate
of 1, If, 2, and 3| per cent per annum and pertain to the following
funds :
General fund at 1 per cent per annum 1W., 900, 000. 00
General fund at If per cent 300, 000. 00
General fund at 2 per cent 350, 000. 00
General fund at 31 per cent 2, 001, 827. 21
Fidelity deposits, section 11, Act No. 1510, at 3i per cent 42, 522. 55
Total 4, 593, 849. 76
In addition to the foregoing time deposits carried in the insular
treasurer's cash accountability, there is on time deposit with local
banks the sum of ^627,000 pertaining to the treasurer's investment
accountability. There is also on fixed deposit with these banks the
sum of ^4,080,000 of agricultural bank funds.
The total time or fixed deposits with local banks therefore amounts
to 1^9,300,849.76, of which ^1,900,000 draws interest at the rate of
1 per cent per annum, ^300,000 at the rate of If per cent per annum,
^350,000 at the rate of 2 per cent per annum, and ^,750,849.76 at
the rate of 3^ per cent per annum.
The amoimt with authorized depositories in the United States,
$4,382,415.34, consists of the following funds:
General fund $443, 109.62
Gold standard fund 3, 939, 305. 72
Total - 4, 382, 415. 34
Of the foregoing amount $4,193,109.62 draws interest at the rate
of 3 per cent and the remaining $189,305.72 at the rate of 2J per
cent per annum.
Fidelity Fund.
The fidelity fund which is a permanent reimbursable appropriation
administered by the insular treasurer, has for its purpose to indem-
nify the government against all losses, shortages, and defalcations
of its accountable officers and employees arising under the head of
fidelity insurance and to pay expenses of administration and opera-
tion of the fund that are incurred in carrying out the provisions of
the law creating the same. This fund now amounts to ^416,772.50,
and, as stated m previous reports, its annual earnings in the near
future will be more than sufficient to meet any defalcations likely
to occur.
The rate of premium for the insurance of the fidelity of officers
and employees in the fidelity fund has been fixed at one-half of 1
per cent per annum. Of this fixed premium, one-third is borne by
the bonded employee and two-thirds by the governmental unit to
which the bonded position pertains.
The total amount of bonds in effect on December 31, 1915, was
Wl,974,150.
During the fiscal year under consideration shortages in the ac-
counts ox the insular, provincial, and municipal officials amounting
to W2,724.82 were certified by the insular auditor and paid from the
Digitized by VjOOQIC
REPOBT OP THE SECRETABY OF FINANCE AND JUSTICE. 187
fidelity fund, and the total shortages during the period of eight years
the fund, as created by Act No. 1739, has been in operation amount to
approximately 1^143,600.
Assurance JFund, Act No. 496.
This fund which at the end of the year 1915 amounted to
W38,788.22, is provided for in section 100 of Act No. 496, commonly
known as the land registration act. A fee of one-tenth of 1 per cent
on the assessed value of the real estate is collected by registers of
deeds on the original registration of land under the act, and also
upon the entry of a certificate showing title as registered owners in
heirs or devisees.
There are no other sources of revenue, except income from invest-
ments of the fund. The purpose of the fund is to reimburse anyone
who may. unduly lose title to property registered under said act in
cases specifically provided by law.
Although the law has been in eflFect 12 years, no claims for reim-
bursement have yet been made on the assurance fund.
Banks and Banking.
agricultural bank.
The amount loaned by the bank during the year was 1^1,121,570,
against M,395,750 loaned during the preceding calendar year, or a
decrease of ^74,180. The number of applications was 441, and the
number of loans made was 247, as compared with 350 and 185, respec-
tively, for the previous year. Seventy-four loans amounting to
W12,210 were repaid; Six mortgages amounting to ?=48,350 were
foreclosed during the year, and delinquent interest to the amount of
1^67,125.85 remained unpaid at the close of the year, due principally
tOsthe typhoons and consequent loss of crops in many parts of the
islands. More than 50 per cent of the amount delinquent is due from
borrowers in Negros Occidental and is owing to the fact that the
sugar-milling season commences in December and the product is not
marketed until after the close of the year.
At the close of the year there were outstanding loans amounting to
1^5,082,560. The profit and loss account of December 31, 1915,
showed the net profits for the year to be 1^301,409.58.
PRIVATE BANKS.
During the calendar year 1915 the following institutions were
examined and reported on by deputies of the insular treasurer, who
under the law has supervision over trust companies, mutual-benefit
societies, building and loan associations, and banking institutions of
every kind ; the Hongkong & Shanghai Banking Corporation, Manila
and Iloilo branches ; the Chartered Bank of India, Australia, and
China, Manila branch and its subagencies at Iloilo and Cebu: the
International Banking Corporation, Manila branch and its subagency
at Cebu ; the Bank of the !rhilippine Islands, Manila, and its Iloilo,
Zamboanga, and Jolo branches; "El Hogar Filipino;" and Zaipbo-
anga Building & Loan Association.
Digitized by VjOOQIC
188
REPORT OP THE PHILIPPINE COMMISSION.
A comparative consolidated statement of the resources and lia-
bilities of all commercial banks in the islands at the close of business
on December 31 for the years 1914 and 1915 shows the following :
1914
1915
Increase.
Decrease.
TAtel rAiiAiirMM . . . . . .
r06, 639, 860.94
9,387,878.04
26,971,309.13
16,600,369.46
11,468,664.29
¥■71,542,868.99
9,393,279.03
29,600,567.61
15,616,968.79
15.042,159.63
¥■4, 903, 002. 05
5,400.99
2,719,258.48
Loans and disoounts.
Ovordrafts
,
(liirrant AtHioiintfl
r984,400.67
FixMl danosits
3,573,495.34
Guaranty of Interest on Bond Issues of Railwat Corporations.
Under authority of an act of Congress approved February 6, 1905,
the insular government guarantees 4 per cent interest for a period
not to exceed 30 years on the first-liea bonds issued by the Philippine
Railway Co. for the construction of certain lines in the islands of
Panay and Cebu. Under the same authority and like conditions
interest is also guaranteed on the 4 per cent first-lien bonds of what
are Imown as the southern lines of the Manila Railroad Co.
The combined issues of both companies on December 31, 1915,
totaled $19,126,000 United States currency, and the annual liability
of the insular government under its guaranty amounts to $765,040
United Stat^ currency.
Bond Issues. _
The total bonded indebtedness of the insular and municipal govern-
ments of the Philippine Islands at the close of the year 1915 was the
same as on December ,31, 1914, namely, ^32,250,000, distributed as
follows : Friar land bonds, 1^14,000,000 ; public works and permanent
improvement bonds, ?10,000,000 ; city of Manila sewer and water-
works construction bonds, ^8,000,000 ; city of Cebu bonds, f^50,000.
Under authority of an act of Congress approved July 1, 1902, the
government of the Philippine Islands issued $7,000,000 of 4 per cent
30-year bonds for the purpose of providing funds to acquire by pur-
chase certain lands in the Philippine Islands, generally known as the
" friar lands." Act No. 1749 of the Philippine Commission creates a
sinking fund for the purpose of redeeming this bond issue at ma-
turity, and the accretions to the fund consist of the proceeds of the
sale of said lands plus the interest or earnings of the fund's invest-
ments. If in any year the accretions to the fund from the foregoing
sources dfi not equal the sinking fund requirements for the year a
sum sufficient to bring the fund up to the requirements is transferred
thereto from a continuing appropriation provided for by said Act
No. 1749. The bonds mature in 1934.
A public-works-bonds sinking fund was created hj Acts' Nos. 1729
and 1954 of the Philippine Commission to retire at maturity
^'10,000,000 of public-works bonds issued under act of Congress
approved February 6, 1905. Said acts appropriated for this fund
the sum of ^404,204.13, and in addition thereto the sum of
^0,406.92 Philippine currency for each 1^1,000,000 of bonds issued,
Digitized by VjOOQIC
REPORT OP THE SECRETARY OP FINANCE AND JX7STI0E. 189
said amount to be available upon each anniversary date of issue of
said bonds.
Act No. 2425 repeals the first sentence of section 1 of Act No. 1729
and all other acts in conflict with this act and requires this fund to
be adjusted annually so that the amount thereof on each anniver-
sary of the issue of the bonds shall equal an annuity of f=19,371.33
for each ?=1,000,000 of bonds outstanding, together with interest
at the rate of 3J per cent per annum counting from the date of issue
of said bonds.
In accordance therewith the sum of fir,332.93 has been reverted
to unappropriated funds of the government at the close of the fiscal
year 1915.
The Congress of the United States in the a^t of July 1, 1902,
authorized the insular goverment on behalf of the city of Manila
to incur a bonded debt of ^=8,000,000 for the purpose of furnishing
the city with a new and adequate water supply and sewerage system.
Act No. 1323 of the Philippine Commission provides for a sinking
fund for the retirement of these bonds at maturity.
The Congress of the United States in the act of July 1, 1902, au-
thorized the insular government on behalf of the municipality of
Cebu, Province of Cebu to incur a bonded debt of $125,000 for the
purpose of furnishing the mimicipality with a new and adequate
water supply and sewerage system and to construct necessary mu-
nicipal school buildings. Act 2009 of the Philippine Legislature
provides for a sinking fund for the retirement of th^se bonds at
maturity.
Gold Standard Fund.
Under Act No. 2083 of the Philippine Legislature enacted Decem-
ber 8, 1911, the gold-standard fund has a fixed status, namely, 35
per cent of the money of the government of the Philippine Islands
m circulation and available for that purpose, the surplus to be trans-
ferred to the general fund.
On December 31, 1915, the Philippine coinage in circulation and
available therefor amounted to ^=52,912,826.07, requiring under the
foregoing provisions a gold standard fund of ^=18,519,489.12. Eef-
erence to the operation statement ' which follows shows the balance
in the fund to be the amount required by law. Under the provisions
of law providing for the transfer to the general fund of all accre-
tions in excess of the 35 per cent referred to, the sum of ^=851,189.39
which accumulated during the fiscal year 1915 was transferred to
the general fund, as against ^861,238.39 transferred during the pre-
ceding year, making the total amount thus transferred since the
passage of Act No. 2083 f=6,569,147.83.
Act 2083 also authorizes the investment of 60 per cent of the gold
standard fund in loans for periods of not i;o exceed 10 years to
Provinces and municipalities and in short-term loans to the Manila
Kailroad Co. for the purpose of completing certain sections of new
Unes of railroad. This act was later amended by Act No. 2344, en-
acted February 28, 1914, and by Act No. 2465 enacted February 5,
1915. This latter act increased the portion of the fund available
for investment from 50 to 80 per cent thereof and provided for addi-
tional forms of investment. The forms of investment, amounts made
Digitized by VjOOQIC
190
REPORT OF THE PHILIPPINE COMMISSION.
available, time, and interest rates provided for by the foregoing acts
are briefly as follows :
(a) Loans to Provinces and municipalities for periods of not to
exceed 10 years to a total of not to exceed f=4,629,8t2.28. The inter-
est rate is fixed at 3 per cent per annum.
(6) Loans on security approved by the Governor General to the
Manila Eailroad Co. to complete certain sections of railroad 05
the southern or government-guaranteed lines to a total of not to
exceed 1^4,^27,000. The rate of interest on these loans is fixed at 5
per cent per annum, and the loans are made for periods of not to
exceed 30 months.
(c) In extending additional credits on security approved by the
Govjemor General to the Manila Eailroad Co. to be utilized in equip-
ment and construction work on its southern lines. The amount made
available under this provision is limited to ^,500,000, and the inter-
est rate is fixed at 5 per cent per annum. These loans are for
periods of 30 months, and the Governor General is authorized to
extend them for a further period of 30 months from the date on
which they fall due.
(d) Loans to the insular government for the construction of
-insular public buildings or other public works not to exceed
^,000,000. These loans are to be repaid to the gold-standard fund
in 10 equal annual installments with interest at the rate of 3 per
cent per annum.
(e) In the purchase of interest-bearing first-mortgage bonds of
corporations organized for erecting and operating sugar centrals,
manufacturing copra and coconut oil, and manufacturing hemp
and products derived therefrom. The amount available for invest-
ment under this provision is limited to P^,000,000, and the interest"
rate is fixed at 5 per cent.
(/) In loans for the establishment and operation of agricultural
colonies established under the provisions of Acts Nos. 2254 and 2280
to a total amount of not to exceed 1P150,000. These loans are for
periods of not to exceed 10 years and are guaranteed by the insular
government and bear interest at the rate of 4 per cent per annum.
(g) Loans upon proper security to corporations or associations
organized for the purposes of completinff, maintaining, and improv-
ing irrigation systems. Such loans to Dear interest at the rate of
4 per cent per annum and to be repayable within 15 years from the
date made. The law does not specify the amount available under
this provision.
The following statement shows the condition of the fund at the
close of the fiscal years 1913, 1914, and 1915 :
1913
1914
1915
Loans to Provinces and municipalities
¥■3, 746, 876. 00
^3,816,040.00
^-3, 930, 148. 00
150,000.00
,^226,000.00
4,627.000.00
TjOatir in Asrrirailtnm.1 nolnniest. .'.
Loans to insniar govemment ,, ^
Loans to Manila Railroad Co
3,900,000.00
4,627,000.00
Credits to Manila Railroad Co
1,010,000.00
8,677,341.12
Caish and accounts receivable
10,755,596.75
10,013,149.45
Total
18,402,472.75
18,456,189.45
18,519,480.12
Digitized by VjOOQIC
REPORT. OP THE SECRETARY OP FINANCE AND JUSTICE. 191
The gold-standard fund legislation in -effect at the end of the
fiscal year 1915 authorizes the investment of the 80 per cent of the
fund in the various projects cited above and contemplates that the
remaining 20 per cent be held in liquid cash. If the full amount
were invested as authorized, over W4,800,000 of the fund would be
thus utilized and approximately ^,700,000 held in cash. This
latter amount, under careful administration, would be sufficient to
carry on the ordinarjr exchange operations which are a factor of
importance in the maintenance of the parity of the currency with
gold, but would not be sufficient to maintain confidence in our cur-
rency system or to meet emergencies or abnormal conditions should
they arise. With this in mind, and notwithstanding the legislation
above referred to, it has been decided to postpone indefinitely some
of the contemplated investmeilts and to abandon others entirely.
In this connection projects D, E, and G outlined above have been
either postponed or abandoned, and it has been definitely decided
to limit investments to the extent of 65 per cent of the fund, retain-
ing the remaining 35 per cent in cash. This amount even under
adverse circumstances, and with the existing power to issue tempo-
T^ry certificates of indebtedness for the purpose of acquiring gold,
is in the opinion of the undersigned ample to meet all demands on
the fund and will enable it to fully perform the functions for which
it was created.
The amount of exchange on New York sold through the fund
during the year was f^2,021,461.02, as compared with ^22,016,056.58
for the preceding year. The exchange sold on New York was offset
bv credits amounting to f^3,000,000 furnished in Manila to the
Treasurer of the United States in exchange for an equivalent amount
placed to the credit of the Philippine Government in gold dollars in
New York. The earnings of the fund from the sale of exchange,
interest on deposits, interest on loans and sei^iiorage amounted ta
^97,763.48 for the year under review, as agamst f=l,0l7,109.2^ for
the preceding year, and the net income of the fund from all sources
was ^=914,489.06, as con^pared with ^=914,955.09 for the preceding
year.
Circulation.
The net exports of Spanish-Filipino and Mexican currency, both
by the government and commercially, during the period July 1, 1903,
to December 31, 1915, are as follows :
CJommercial Pfs. 17, 082, 349. 40
Governmental 16, 686, 552. 29
Total - 83, 768, 901. 60
If to the foregoing is added Pfs. 330,000, the amount estimated
held -in the islands at present and notes of the Banco Espanol-Fili-
pino, amounting to f^ ,057,000, we reach a total of over Pfs. 36,000,000,
representing approximately the amount of Mexican and Spanish-
Filipino currency in circulation in the islands at the time of the
change in the cilrrency system in 1903.
The withdrawal from circulation of the Philippine silver currency
of the first issue and its recoinage into coins oi lesser weight and
Digitized by VjOOQIC
192
BEPOBT PP THE PHILIPPINE COMMISSION.
fineness, as provided for by an act of Congress approved June 23,
1906, and by Act No. 1564 of the Philippine Commission, is progress-
ing satisfactorily. During the year under consideration 1^122,000.00
"Was withdrawn from circulation and forwarded to the San Francisco
Mint for recoinage. The total silver coinage of the first issue
received was ?=32,T79,281.8a Of this ^30,482,603.40 was returned
to the mint for recoinage, leaving a balance in circulation of
^2,296,678.40.
The total silver coinage of the present authorized weight and fine-
ness received from the United States Mint amounts to 1^50,617,076.27.
Silver certificates to the amount of 1^31,113,220 were in circulation,
and ^=16,320,471.50 were in the treasury vaults on December 31, 1915.
The total amount of bank notes issued by the insular treasurer to
the Bank of the Philippine Islands for circulation amount to
^^5,327,492.50.
The total amount of money in circulation at the xylose of the
calendar year 1915 was ^51,284,906.76. Based on the census of 1903,
which gave the population of the islands at 7,635,426, the per capita
circulation of the islands on December 31, 1915, was ^.72.
BXTBEAXT OF CUSTOMS.
General Trade Conditions.
The following comparative statement shows the values of imports,
exports, and the total trade for the past two years:
Calendar
year 1914.
Calendar
year 1915.
Increase.
Imports
Exports
Total trade
^97, 177, 306
97,379,268
^98, 624, 367
107,626,008
yi, 447, 061
10,246,740
194,556,574
206,250,375
11,693,801
The value of the total trade for the year 1915 was larger than in
any calendar year in the history of the islands, with the sole excep-
tion of 1912, in which year the total trade value, ^=233,182,402, was
inflated by the largest rice imports on record, amounting to
f^6,017,012.
TRADE BALANCE.
Notwithstanding abnormally heavy rice imports and the adverse
factors of higher average prices paid for imports and the decline in
prices of staple exports, except sugar, the year 1915 closed with a
iubstantial trade balance of ^9,001,641 in favor of the islands.
EFFECT OF DISTURBED CONDITIONS ABROAD.
The check upon the islands' foreign commerce which marked the
last four months of 1914, due to the European war, having been over-
come to some extent, the effects traceable in 1915 trade returns are
A shifting of trade channels and a general falling off of imports from
•ources other than the United States, together with hirixpr average
Digitized byVjOOQl _
BEPORT OF THE SECRETARY OF FINANCE AND JUSTICE. 193
prices of imported merchandise, with the exception of cotton goods.
Trade with Germany, Austria-Hungary, and Belgium ceased almost
completely, while other European countries have surrendered, prin-
cipally, to the United States, a considerable^ share- in import and a
smaller share in the export trade. Exports to the United Kingdom
and Japan, which materially decreased during the latter half of
1914, resumed practically the same values in 1915 as in 1913, while
those to Italy largely exceeded any previous year.
TRADE WITH THE UNITED STATES.
The volume of trade with the United States, exclusive of Hawaii,
Porto Rico, and Guam, in relation to total trade value, and as com-
pared with corresponding figures for the previous year, is as follows:
1915
Percent-
total.
1914
Percent-
age of
total.
Increase
(+) or de-
crease (-).
y62,762,138
47,306,422
53.49
43.95
¥-48,022,802
48,855,420
49.41
50.17
+¥■4, 739, 336
- 1,548,998
Total
100,068,560
48.72
96,878,222
49.79
+ 3,190,33«
The value of the trade with the United States for the past year
represents the highest figure ever reached for any calendar year.
Imports.
The increase in total value of imports over previous year's figures
was due mainly to large rice importations, which shows the greatest
increase of any single commodity. Eliminating rice imports, care-
ful comparison of quantities and average prices, from available
figures, reveals a decrease in value and a proportionately greater
decrease in actual quantities of other imports from 1914 figures and
an even larger decrease when compared with 1913 figures, as well
as more or less marked rise in average prices since 1914.
Imports of cotton goods again reached approximately the same
high mark as in 1913, showing the second largest increase over 1914
for any group. The only other increases were in wheat flour and
other breadstuffs, cattle including carabao, chemicals, oils other than
illuminating, tobacco and manufactures, silk and manufactures, agri-
cultural implements, and papers and manufactures, in the order
named.
COTTON GOODS.
The value of imports of cotton and manufactures amounting to
^3,582,828 exceeded tl^t for the previous year by f=3,670,340.
This increase was in imports, principally of cotton piece goods from
the United States, whose share of this trade was W7,223,686, or
73 per cent of the total, a remarkable gain over the previous year
of f=5,571,020. The United Kingdom fell back to third place among
principal countries of origin, being represented with only 9 per
cent of the total value, having surrendered an increasing share of
this class of imports to the United States since 1913. The value
of imports from Japan, which country holds second place with 11
Digitized by VjOOQIC
194 BEPORT OF THE PHIUPPIKE COMMISSION.
r cent, shows no marked change from the previous year and is
ut P213,826 higher than in 1913.
IRON AND STEEL.
/
This group shows a marked decrease since 1913, the total value for
1915 of ^8,860,142 being ^5,106,746, or nearly 37 per cent less than
the corresponding value for the previous year, and ^8,367,666, or
nearly 48 per cent, less than 1913 value. More than 60 per cent
f^,766,668, of the total decrease from 1914 was sustained by the
United States, which country supplied about 73 per cent of the total
value of imports under this heading. The decrease was general
for nearly all classes of articles in this group, but most marked in
steam and other power engines and other machinery, structural iron
and steel, sheets and plates, and rails. The only country that made
a noticeable gain in this class of imports was Japan, which shows
an increase of ?=89,090, almost entirely made up of imports of enam-
eled ware. ♦
RICE.
The value of imports, 1P13,448,551, for 1915 represents an increase
of ^6,896,255 over the previous year's import value. This increase,
which is the largest for any group of imports, was consequent to
low yield of the local rice crop, season 1913-14, due to damage by
drought and typhoons.
Exports.
The total value of exports, ^107,626,008, was higher than that
for any previous calendar year since 1899, except 1912, and exceeded
the value of the 1914 exports by ^0,246,740 and those of 1913 by
^12,080,096. This increase was made up principally of increased
shipments of copra and hemp — smaller increases in value of other
exports, chiefly in sugar, coconut oil, embroideries, and maguey
being offset by decreases in exports of cigars and other tobacco,
knotted hemp, coconut cake, and lumber. Prices of nearly all export
commodities, except sugar, show a continuous decline since 1913, so
that an increase in exports measured by actual quantities is propor-
tionately greater than an increase in value shown. The total value
of exports includes an amount of ^1,104,252, representing value of
foreign merchandise reexported.
HEMP.
Exports of hemp, comprising about 40 per cent of the total
exports, amounted to 142,010,431 kilos, valued at ^42,678,200 and
exceeded the exports for the previous year by 25,623,856 kilos, and
in value by ^=4,288,570 — the second largest increase during 1915 in
any export product. The average value per metric ton declined
from ^=352.54 during 1913 to f=329.85 during 1914 and f=300.53 dur-
ing 1915.
Fifty-three per cent of hemp exports during the past year were
to the United States, the United Kingdom standing second in order
of countries of destination with 30 per cent, Japan being third
with 9 per cent, and Australasia fourth with 2 per cent. Exports
to the Netherlands, mostly intended for central European States,
Digitized by VjOOQ I _
BEPOBT OF THE SECBETABY OF FINANCE AND JUSTICE.
195
were about 70 per cent less than during the previous year and
amounted to about one-sixth of the corresponding volume for 1913,
while exports to Spain show 100 per cent increase over the previous
year. The followmg table shows quantities and values of hemp
exports by grades established by Act No. 2380 of the Philippine
Legislature, for the year 1915, no comparison with previous years
being possible, as 1915 is the first full year during which this classifi-
cation was effective :
Grade.
Quantity.
Value.
Average
value per
1.000
kilos.
Grade A, extra prime . .
Grade B, prime
Grade C, superior current..
Grade D, good current
Grade E, midway
Grade S-1, streaky No. 1 . .
Grade S-2, streaky No. 2. .
Grade S-3, streaky No. 3 . .
Grade F, current
Grade G, seconds
Grade H, brown ,
Orade O, strings
Grade T, tow ,
Grade I, ffood, fair
Grade J, fair
Grade K, medium
Grade L, coarse....^
Grade M, coarse brown . . .
Grade 00, strings
Grade Y, damaged
Not graded
Total.
l.iKV^
3-^n.
12
2
2
l,«Hj:i.013
14, 2^-K 109
3, ^W-i'
2,.;i'.i
,1130
;i96
•23
1T^■
12.117^
4,.i£,i,4l7
11,994,718
6,001,833
13,788
134,569
46,329,768
n, 004, 986
1,382,770
1^796,449
2,428,988
4,323,298
757,922
660,667
304,246
4,718,454
987,954
543,744
86,310
14,773
2,995,307
3,321,461
1,029,684
2,364,845
1,081,135
2,178
13,026
12,830,003
142,010,431
42,678,200
n,ooi
657
469
396
359
336
302
286
330
284
248
123
84
315
275
235
197
180
158
97
277
301
SUGAR.
Twenty-two million six hundred and twenty thousand four hun-
dred "and thirty pesos was the total value of sugar exported during
the year 1915, as compared with ?^2,119,186 in 1914, or an increase
of ^501,244. This was due to the higher prices which this product
commanded in the world's markets during the past year. The quan-
tity exported, 211,012,817 kilos, was 25,485,184 less than the corre-
sponding quantity for 1914. This decrease in quantity is due to the
fact that a large part of the 1914-15 crop could not be shipped owing
to a lack of ocean tonnage and was at the close of the year still held
in warehouses.
Shipments to the United States to the value of M0,283,159 in 1915,
while less than during the previous year by ^,200,547, amounted to
more than three times the value of those during 1913. Exports to
the United Kingdom, which country appeared as a new market for
Philippine sugar in 1914 trade returns, increased from ^565,144 for
that year to ^1,819,640 for 1915 ; while volumes of exports to other
princijftil coimtries of destination, Hongkong, Japan, and China,
show no marked change from the previous year.
COPRA AND OTHER COCONUT PRODUCTS.
Copra shows the largest increase of any export product by ^6,262,-
669. The amount exported during 1915 was 139,092,902 kilos, valued
at 1^22^23,109, against 87,344,695 kilos, valued at ?15,960,5403 for
Digitized by VjOOQIC
196
KEPOBT OF THE PHILIPPINE COMMISSION.
the previous year. The average value per 1,000 kilos shows a de-
crease from ¥=182.73 during 1914 to W59.77 during 1915. The in-
crease was general, but proportionately greater in exports to Spain
and the United Kingdom than in those to other countries.
Notwithstanding the large increase in copra exports, there was an
increase of ^402,637 in value of exports of coconut oil from ^5,238,-
366 for 1914 to 1^5,641,003 for 1915, the increase being in shipments to
the United States, which country received about 99 per cent of this
product. The average value for 1,000 kilos declined from ^438.60
during 1914 to ^418.96 during 1915.
There were no transactions in coconut cake, exports of this product
to Germany having ceased with the outbreak of the European war.
TOBACCO PRODUCTS.
Cigars show a decrease in value of ^515,713 from 1^4,630,318 for
1914 to ¥=4,114,605 for 1915. Exports to the United States, which
constituted approximately 56 per cent of the total, show a slight
decrease in value but an increase in the number of cigars of nearly
5,000,000, the general decrease being principally in shipments to Aus-
tralasia, United Kingdom, and Spain.
An increase of ^7,544 in value of exports of cigarettes is almost
entirely absorbed in the exports to China ; increases in shipments to
the United States and Hawaii being offset by a loss in this trade with
Japan, the United Kingdom, and other countries.
Other tobacco shows a decrease in value of ^437,027, due to de-
creased shipments of leaf tobacco to Spain, which country received
more than 50 per cent of the total exports of this product.
GOU) BULLION.
<
The exportation of gold bullion during 1915 reached the value of
^,611,982, compared with ^,430,964 in 1914.
CUSTOMS; COLLECTIONS.
The following fi^reg show the gross collections of the bureau,
exclusive of the division of vessels, lighthouses, and marine railway
and repair shops, by sources, for 1915 as compared with those for
1914:
Sources.
1915
1914
[ncrease(+)or
decrease (— ).
Import duty
Export duty i
Wharfage
Licenses, coastwise
Fines and seizures
Storage
Immigration dues
Auction sales u
Arrastre and piers collections
Various other sources
Total
no, 940, 208. 41
15,8.31.78
1,088,480.18
101,223.37
22,671.57
19,913.60
91,728.00
840.11
224,081.42
303,400.11
no, 069, 002. 97
1,128.36
1,050,976.60
109,375.84
34,354.55
18,800.23
89,504.00
1,592.76
266, 155. 12
256,201.95
+ r871,205.44
+ 14,703.42
+ 37,503.68
- 8,152.47
-• 11,682.98
+ 1,113.37
+ 2,224.00
752.66
- 42,073.70
+ 47,198.16
12,808,378.55
U, 897, 092. 28
+ 911,286.27
» Collected on hemp reexported from the United States.
Digitized by VjOOQIC
REPORT OF THE SECRETARY OF FINANCE AND JUSTICE. 197
The total increase of ^911,286 {Practically represents the increase in
collections of import duty, which is 1^871,205. This amount is only
about 36 per cent of the increase in duty collected on rice, which is
^,423,987 more than for 1914. The duties on other imports are less
by ^1,552,524 than for the previous year, owing to the general falling
off during 1915 of other dutiable imports from countries other than
the United States as a foreseen effect of the European war. The
relatively flight increases and decreases in the collections from the
various other sources compensate each other and leave the total for
1915 of such other collections practically the same as the correspond-
ing total for 1914.
Besides the gross collections shown in the foregoing table, the
bureau of customs collected during the pa^t year the amount of
1^1,581,204 internal revenue taxes on imported merchandise under
Act No. 2432, as amended by Act No. 2445 of the Philippine Legis-
lature, compared with ^=295,062 collected from the same source
during the period from July to December, 1914, under Act No. 2339.
Coastwise Shipping.
The records for the past year show an increase in the total number
of vessels engaged in coastwise and in lighterage and harbor trade,
although the total net tonnage of these vessels is less than that for
the preceding year, due to the fact that one of the largest coastwise
steamers and one sailing vessel w^ere withdrawn from the coastwise
trade and that two steamers of a combined net tonnage of 2,351 tons
were transferred from foreign to Philippine register and licensed
in 1914 for the coastwise trade, but have never operated therein.
They were not relicensed in 1915 and were still out of commission at
the close of the year.
ENTRANCES AND CLEARANCES.
There were 11,990 entrances of coastwise vessels at all ports and
12,046 clearances, against 11,034 entrances and 11,074 clearances dur-
ing 1914. That the total registered net tonnage of vessels entered and
cleared does not show a corresponding increase, but a slight decrease,
from 2,968,487 tons for 1914 to 2,837,571 for 1915, is due to the
reason above explained. No figures are available showing the num-
ber of passengers and the actual amount of freight carried between
coastwise ports.
DOCUMENTATION AND LICENSING.
The total number of vessels documented was 499. Of this number,
75 vessels of 2,064 gross tons entered the coastwise trade and 425
vessels of 2,714 gross tons entered the lighterage and harbor trade.
Licenses were issued to 3,040 vessels of an aggregate net tonnage
of 87,790.
INSPECTION OF VESSELS.
During the past year inspections were made by the hull and boiler
inspectors of 395 vessels, compared with 404 for the preceding year.
Of the total number inspected, 8 were steamers of more than 1,500
Digitized by VjOOQIC
198 REPORT OF THE PHILIPPINE COMMISSION.
tons, 26 steamers and 8 sailing vessels of less than 1,500 but more
than 500 tons; 27 steamers and 20 sailing vessels of less than 500 but
more than 300 tons ; 45 steamers of less than 300 but more than 100
tons; and 194 steam vessels and 67 sailing vessels of less than 100
tons. Twenty-two steam vessels were awaitmg inspection at the close
of the year, and 12 steam vessels and 9 sailing vessels were exempt
from inspection by reason of having been placed out of commission.
Reports were received of 95 vessels wrecked and lost during the
year. All of these were small craft exempt from inspection, except
2 steamers that were wrecked by typhoons.
ADMEASUREMENT.
Admeasurements were made of 3 steamers, 2 launches, 46 sailing
vessels, 14 motor boats, 40 scows and barges, 87 bancas, 3 cascos, 2
auxiliary motor vessels, 4 motor launches, 13 boats, and one vessel
of less than 1 ton, a total of 215 V-©6sels, which was 42 more than were
admeasured during 1914.
MARINE OFFICERS,
The Board on Philippine Marine Examiners, which was reorganr
ized by Act No. 2507 of the Philippine Legislature of February 5,
1916, examin^d 177 candidates for marine licenses of all grades, of
which number 114 passed and 49 failed, the grading of examination
papers of 14 not having been completed at the close of the vear.
The total number of licenses and certificates issued was 902. Or this
number, 387 were licenses issued for the coastwise trade under Act
No. 780, 491 were licenses entitling the holders to coastwise and
ocean service, issued under authority conferred by the aforesaid Act
No. 2507, and 24 were certificates of service issued to officers not
citizens of the Philippine Islands or of the United States. The
total number of marine officers holding unexpired licenses at the close
of the year was 772, the difference between this number and the total
number of licenses and certificates issued during the year, being due
to the fact that in some cases, where licenses had lapsed several years,
two or more renewal licenses were issued to one person. However,
in addition there were 980 expired licenses of all grades outstanding
on December 31, 1915, most of which were subject to renewal.
SHIPMENT OF SEAMEN.
The office of the former official shipping agent of the bureau of cus-
toms, whose functions were the shipment of crews on vessels in the
Philippine coastwise trade and the adjustment of minor disputes be-
tween masters and seamen, was transferred, on Januarjr 1, 1915, to the
administrative jurisdiction of the bureau of labor, by virtue of Act No.
2431 of the Philippine Legislature.
Arrastre Division.
The work of this division, which handles the discharge, ware-
housing, and delivery of ocean freight at the port of Manila, is
shown in the figures that follow :
Digitized by VjOOQIC
BEPOBT OF THE SECRETARY OF FINANCE AND JUSTICE.
199
Years ending Dec. 31—
1915
1914
Years ending June 30—
1913
1912
Arrastre collections
Arrastre expenditures
Arrastre net receipts
Cargo handled tons
P-218,663.73
P-161,129.10
r67,524.63
236,359
P-214,367.50
n68,613.87
r45,753.63
237,721
P-213,619.60
P-221,775.66
P-8,126.16
261,184
P-186,085.00
P-167,272.54
ri8.812.46
248,006
Division of Vessels.
During the year there were operated by this bureau the cable ship
Rizal^ four cutters, one seagoing launch, four harbor and river
launches (in addition to those used exclusively for customs pur-
poses), two cutters operated by the bureau of coast and geodetic
survey, and one by the Department of Mindanao and Sulu.
The cable ship Rizal was, at the close of the year, disposed of to
the Compaiiia (Jeneral de Tabacos de Filipinas at a price highly
advantageous to the Philippine government, which received in ex-
change ^^10,000 and the modern steamship J, Bv^tamante^ valued
at^P=250,000.
The cost of operating the above-mentioned vessels and receipts
from operation from 1912 to 1915, inclusive, are shown in the fol-
lowing table :
Years ending Dec. 31—
Years ending June 3(V-
1915
1914
1913
1912
Expense of operation
f762,345.52
244,336.47
P-819,273.61
309,656.01
n, 164, 565. 63
409,428.51
^1,404,720.74
Income from operation
423.144.75
Net expenditures
506,009.05
509,617.60
755,137.12
981,575.99
The decrease in receipts from operation in 1915 over the preceding
year is due mainly to the fact that the cable ship Rizal was out of
commission for a period of approximately two months while under-
going repairs.
Division Of Lighthouse Maintenance.
There were nine acetylene and three oil lights established as aids
to navigation at important points during the year, which has ma-
terially decreased the danger attending navigation in Philippine
waters.
The lighthouses and lights now in operation in the islands number
160, and additional lights will be established where most needed
during the ensuing year.
. The lighthouse stations have been supplied and the lights main-
tained by the use of two or more steam tenders, which have also
furnished the requisite transportation for construction and repair
crews.
61983—16 ^14
Digitized by VjOOQIC
200 BEPOBT OP THE PHIUPPINB COMHISSIOIT.
The cost of maintaining the lights in the Philippine Islands during
1#16 and, for purposes of comparison, during the three preceding
years is shown m the following table :
Year ending Dee. 31, 1915 , «95,270.24
tear ending Dec. 31, 1914 180, 233. 09
Year ending June 30, 1913 244, 884. 51
Year ending June 30, 1912 228, 037. 89
The increase in expense of maintaining the lights in Philippine
waters for 1915 over the preceding year was due to the cost of acety-.
lene lights and apparatus therefor.
Marine Railway and Repair Shops.
The operation of the marine railway and repair shops has been
confined to work required by the Federal, insular, provincial, and
municipal governments, and has been performed under the provisions
of Act No. 1416, which prescribes the method in which the marine
railway and repair shops shall be conducted.
The receipts and expenditures of this department of the bureau
are shown in the following table, which also contains a comparison
of the figures for the three preceding years :
Years ending Dec. 31—
Years ending June 30—
1915
1914
1913
1912
Incomfi from oDeration ^,.-,-^
^723,874.36
646,104.70
^602,173.19
654,641.51
^677,680.68
614,113.47
r-764,029.67
Expense of operation
078,460.21
Profit from operation
77,769.66
47,631.68
63,567.11
85,569.36
Consular Duties.
'^The insular collector of customs, acting as American consul under
authority contained in section 84 of the act of Confess of July 1,
1902, during the year 1915 provided board and lodging and secured
transportation from Manila to the United States for four destitute
American seamen, the expense being borne by the Department of
State, Washington. Seven hundred and thirty American seamen
were shipped and 727 discharged during the year.
BUBEATT OF INTERNAL REVENUE.
Collections.
The following is a summary of the collections made by the bureau
of internal revenue during the calendar years 1914 and 1915 :
itBm.
1914
1915
Alcohol and tobacco products removed or imported for comsumptiOD
in the Philippine Islands:
Manufactured in the Philippine Islands
Imported
Denatured alcohol, domestic
Denatured alcohol, imported
Kerosene or iwtroleum, imported
Naphtha, gasoline, etc., imported
Luoricatmg oils, imported
Coal and coke, imported
r?, 986, 137. 52
672,517.36
^•7,833,151.31
673,881.07
6,29&49
.29
653.021.26
26(^^066.76
84,490.42
357,491.66
Digitized by VjOOQIC
BEPOBT OP THE SECBETABY OP FINANCE AND JUSTICE.
201
Item.
Licenses:
Dealers in alcohol and tobacco products ,
Merchants, manufacturers, common ccuriers, etc
Occupations, trades, an d pr of essi ons
Banks and bankers
Insurance companies ,
Mines ,
Documentary-stamp taxes
Cedutos
Forest products ^
Miscellaneous stamp collections
United States internal-revenue taxes collected on Philippine tobacco
products shipped to the United States
Income taxes
Registered dealers in prohibited drugs
veights and measures ,
Franchise taxes
Justice of peace fines and fees
City of Manila taxes and revenues (various acts of the Philippine Com*
mission) ,
San Lazaro estate (Executive Order No. 15, series 1906)
San Lazaro estate, court costs
Sales of public mineral lands (act of Congress approved July 1, 1902)
Sisiman Matadero
Subscriptions to publicity fund
Total.
1914
r715,806.64
2,175,586.11
717,104.96
255,307.67
43,40a92
261,084.43
4,090,130.00
442, 660. 61
363,398.19
285,932.85
39,220.92
135,280.13
211,772.37
, 373,272.46
3,709,159.75
» 6, 188. 60
» 163. 40
2,7a3.^
61,062.91
2,207.81
22,550,109.37
1915
?-814,996.63
5,116,193.75
846,143.95
267,750.18
43,975.39
18,822.66
250,809.80
4,296,765.00
425,817.22
32.53
408,353.34
481,010.24
2,350.51
10.723.29
129,627.35
208,594.86
387,075.81
3,782,062.77
28,887.52
2f7,388,394.06
1 These collections made by the director of lands since Feb. 20, 1914.
The foregoing table shows that the total amount collected during
the jear 1915 was 1^27,388,394.055 as compared with a total collection
during the calendar year 1914 of f^2,550,109.37, an increase of
P'4,838,284.68, or about 21.5 per cent. This increase is due to the
new and additional taxes created by Act No. 2432.
Apportionment op Internal-Revenue Taxes.
Under the apportionment provisions of Act. No. 1189, the internal-
revenue law of 1904, as amended, internal revenue^ exclusive of
franchise taxes and revenue from opium, collected during the calen-
dar years 1914 and 1915, accrued to the various treasuries as follows :
Item.
1914
1915
^-9, 399, 611. 16
^13,613,636.21
To the provincial treasm-ies:
One-half of the regular cedula taxes
1,035,215.75
2,019,698.50
1,582,628.49
67,640.07
1,088,794.00
N 2,119,177.00
1,604,735.88
64,813.68
AH road and bridge cedula taxes
Share of other collections ^
Weifhts and measures
Total
4,705,182.81
4,877,520.56
To the municipal treasuries:
One-half of regular cedula taxes
1,035,215.75
736,521.68
1,650,955.11
67,640.06
1,088,794.00
852,529.50
Share of other collections
1,582,041.77
Weishts and measures
64,813.67
Total
3,390,332.60
3,588,178.94
Grand total
17,495,026.57
22,079,335.71
Digitized by VjOOQIC
202
REPOBT OF THE PHILIPPINE COMMISSION.
The following statement shows the insular government's share of
all collections reported to the bureau of internal revenue during the
years 1914 and 1915 :
ItMn.
1914
1915
Philippina internal leyenne
United States internal reyenne
Income taxes
Registered dealers in prohibited drugs.
FrsuichJse taxes
Opium
Justice of peace fines and fees
San Lazaro estate rentals
San Lazaro estate court costs
Sales of public mineral lands
SisimanMatadero
r-9,399,611.16
363,398.19
285,033.39
131.924.94
38,620.86
353,536.26
6,188.50
163.40
2,703.64
61,062.91
nS, 613, 636. 21
408,353.34
480,210.94
2,350.51
131,477.43
9,373.29
377,246.*83
28,887.52
Total.
10,642,143.25
15,051,536.07
Cost of Collection.
The net cost to the Government of making the above collections,
including the operation of the bureau of internal revenue, during
the year 1915 was ^=567,163.24, as compared with ^551,795.10 for
the year 1914, or an increase of ^15,368.14. The total collections
for 1915, including the city of Manila municipal revenue, being
f^7,388,394.05, this makes the cost of collection 2.07 centavos for
each peso collected, as compared with 2.45 centavos during 1914,
2.64 centavos during 1913, and 3.08 centavos during 1912.
The increase of W5,368.14 during the year under consideration
over th^ net cost of operation of the bureau of internal revenue in
1914 is due to the collection of new and additional taxes created by
Act No. 2432, which made necessary the expenditure of ^14,718.57
to meet additional cost of printing, stationery, supplies, postage, etc.
It is gratifying, however, to observe in this respect that while the
Legislature provided an emergency fund of ^8,000 to be used in
connection with the collection of said taxes, scarcely one-third of that
amount was expended.
Alcohol Products.
DISTILLED SPIRITS.
The total output from registered distilleries during the calendar
year 1915 was 7,164,723 pfoof liters, compared with 11,847,354 proof
liters in 1914, a decrease of 4,682,631 proof liters. This decrease is
due principally to the fact that distillers made excessive removals
in December, 1914, in anticipation of the increased tax rate on dis-
tilled spirits effective January 1, 1915, and postponed the removals
of distilled spirits in December, 1915, until January 1, 1916, when
the reduced rate went into effect. The quantity of denatured alcohol
used for industrial purposes was 801,428 proof liters, as compared
with 820,148 proof liters so consumed during 1914.
On December 31, 1915, there were in operation throughout the
islands 75 registered stills of modem type as compared with 79 in
operation December 31, 1914, and 75 in operation December 31, 1913.
One hundred and three illicit stills were captured by internal-revenue
Digitized by VjOOQIC
REPORT OF raE SECRETARY OF FINANCE AND JUSTICE. 203
agents during the year 1915, of which 3 were captured in Agusan,
11 in Cagayan, 3 in La Laguna, 46 in Pangasinan, 29 in Samar, 9
in Tayabas, and 2 in Zambales. During the year 1914 there were
captured 66 illicit stills, of which 1 was captured in Albay, 18 in
Cagayan, 8 in La Laguna, 36 in Pangasinan, 2 in Tayabas, and 1 in
Zambales.
WINES.
There were removed for domestic consumption during the year
1915, 925,978 gauge liters of still wines and imitation wines, as
compared with 1,000,331 gauge liters removed during 1914.
Taxes to the amount of ^87,627.81 were collected also on imported
wines and imitation wines in 1915, as against ^101,040.69 collected
in 1914.
FERMENTED LIQUORS.
The following comparative statement shows the quantity in gauge
liters of domestic and imported beer on which taxes were collected,
also the quantity exported free of taxes during the calendar years
1914 and 1915:
1914
1915
Domestic
3,916,000.00
479,155.60
3,667,703.00
271, 153. 70
Imported
Total
4,394,155.60
3,938,856.70
Exported
79,387.00
76,121.80
Tobacco Products and Matches.
SMOKING AND CHEWING TOBACCO.
The following comparative statement shows the quantities of
domestic smoking and chewing tobacco on which taxes were col-
lected during the calendar years 1914 and 1915 :
Kind.
Smoking...
Chewing...
Total
Taxes were also collected on 348,190 kilos of imported smoking and
chewing tobacco in 1915, as compared with 273,772 kilos in 1914.
During the year under consideration 1,085,441 kilos of waste tobacco
were exported, compared with 413,338 kilos in 1914.
In addition to the domestic smoking and chewing tobacco con-
sumed in these islands on which the tax was paid, the exports of
smcking tobacco during the calendar year 1915 to other countries
amounted to 67,630 kilos, as compared with 42,603 kilos in 1914.
Digitized by VjOOQIC
204 BEPORT OF THE PHILiPPINE COMMISSION.
CIGARS.
The total production of cigars during the year 1915 was 184,-
308,392, against 243,134,200 in 1914, a decrease of 158,825,808. Of
the first number 46,384,157 were consumed in the Philippine Islands,
70j662,690 were exported to foreign countries, and 67,261,545 were
shipped to the United States, as compared with 90,624,757, 93,171,150,
and 59,338,293, respectively, in 1914.
The decrease in the amount of cigars consumed in the islands is
due chiefly to the increase in the tax rate on cigars of the lower
grades, and the decrease in the amount of cigars exported to foreign
coulitries can be attributed to the European war, which has greatly
affected the cigar trade with Europe and Australia. The decrease in
this trade equals the total decrease in the exports of cigars to
foreign countries.
As was pointed out in the report of this department for the year
1914, it is in the United States to which our tobacco growers must
look for a market for the cigars which, due to the present war, find
no outlet to Europe and Australia. The United States offers such
a boundless* market for our cigars that it would be a great mistake
not to endeavor to promote the trade of this staple with that country.
Bearing this consideration in mind, the Legislature passed Act
No. 2613, entitled "An act to improve the methods of production and
the quality of tobacco in the Philippines and to develop the export
trade therein," which went into effect February 4, 1916, and which
it is hoped will in the near future largely contribute to the material
increase of trade with the United States in Philippine tobacco
prqducts.
CIGARETTES.
The total production during the year was 3,859,607,265 cigarettes,
as compared with 4,411,923,312 during the preceding year. Of the
first number 3,814,861,007 were consumed in the islands, 38,876,038
were exported to foreign countries, and 5,870,220 were shipped to
the United States, as compared with 4,366,293,508, 41,818,279, and
3,810,525, respectively, for the calendar jrear 1914. About two-thirds
of the cigarettes exported went to China, 27,018,536 having been
shipped to that country during 1915, compared with 20,421,310 cig-
arettes in 1914.
MATCHES.
The quantity of matches consumed in the islands during the year
was 884,167.35 gross boxes, of which 514,901.65 gross boxes were of
domestic manufacture and 369,265.70 gross boxes were imported, as
compared with 899,504.48 gross boxes for the year 1914, of which
527,875 gross boxes were of domestic make and 371,629.48 gross boxes
were imported.
License Taxes.
dealers in alcohol, tobacco products, and manufacturers of and
wholesale dealers in motor spirits and oils.
There were collected as specific license taxes during the calendar
year 1915 ^814,996.63, as against ^15,806.64 collected during the
Digitized by VjOOQIC
EEPOBX OF THE SECBETABT OF FINANCE AND JUSTICE. 206
year 1914. Of this amount 24.2 per cent was paid by dealers in dis-
tilled and manufactured liquors, 43.9 per cent by dealers in tobacco
products, 27.9 per cent by dealers in beer, tuba, bassi, tapuy, etc.,
3.9 per cent by manufacturers and peddlers of liquors and tobacco,
and one-tenth of 1 per cent by manufacturers of and wholesale deal-
ers in motor spirits and oils.
MERCHANTS, MANUFACTURERS, AND COMMON CARRIERS.
There were collected as percentage taxes during the year 1915
^=5,116,193.75, as against f^,175,566.11 collected during the year 1914.
Of this amount 95.3 per cent was paid by merchants, manuf acturers,\
and peddlers, 2.6 per cent by common carriers, and 2.1 per cent by
publishers, contractors, warehousemen, restaurants, etc. Although
the increase in the percentage tax on sales by merchants, msCliufac-
turers, etc., from one- third of 1 per cent to 1 per cent took effect
January 1, 1915, the collections made during 1915 represent one
quarter's tax collections at one-third of 1 per cent and only three
quarters' tax collections at 1 per cent. These taxes are paid after
the close of the quarter. Taxes accruing during the last quarter of
1914 were paid during the first quarter of 1915. Taxes on business
done during the last quarter of 1915 are paid during the first quarter
of 1916.
OCCUPATIONS, TRADES, AND PROFESSIONS.
There were collected as specific occupation license taxes during the
year 1915 ¥=846,143.95, as against f^l7,104.96 collected during 1914.
Of this amount 69.6 per cent was paid by the proprietors of cockpits
and 30.4 per cent by lawyers, doctors, civil engineers, surveyors,
photographers, and other occupation-license taxpayers. JBy the pro-
visions of the internal-revenue law the license-tax collections from
owners of cockpits and the taxes on cockfights accrued intact to the
treasuries of the various municipalities in which such taxes were
collected. Six hundred and fifty-one municipalities availed them-
selves of the provisions of the law authorizing the imposition by mu-
nicipal councils of additional taxes on cockpits. The rate of the ad-
ditional license taxes thus imposed ranges from T2 to ^12,500 per
year. There were 23 municipalities iit which ne cockpit licenses were
issued during the period covered by this report.
CEDUIiAS.
There were collected from the sale of cedulas personales during the
year ^4,296,765, as compared with ^4,090,130 during the vear 1914,
an increase of ^06,635. There were sold 94,170 more cedulas during
the year than during 1914.
Banks and Bankers.
The following comparative statement, based upon the taxes as-
sessed and collected, shows the average amount qf capital emj^loyed,
average amount of deposits, and averaore amount of circulation by
Digitized by VjOOQIC
206
BEPORT OF THE PHILIPPINE COMMISSION.
banks during the period from July 1, 1913, to June 30, 1914, and from
July 1, 1914, to June 30, 1915 :
July 1, 1913, to
June 30, 1914.
July 1, 1914, to
June 30, 1915.
Average capital 1 ni,925,970.07
Avera'»e deposits I 29,006,255.90
Average circulation 5,353.973.89
^•12, 695, 869. 47
30,640,653.53
5,346,210.12
Insurance Companies.
The following table, based on tax statements rendered, shows the
total amount of each kind of insurance on which premiums were paid
and the average rate of premiums paid during the calendar years
1913 and 1914:
Kind of insurance.
Total amount of
insurance, 1913.
Average
rate of
premium.
Total amount of
insurance, 1914.
Average
rate of
premium.
Fire
Marine
Life
Accident
Fidelity and surety
Tvphoon and earthquake
liotorcars
Personal baggage
P160,462,784.91
140,514,668.95
32,842,491.00
1,161,345.00
4,469,374.67
1,635,075.00
187,510.00
9,850.00
Percent.
1.2
.4
.86
.8
.5
5.2
1.9
P-149,140,192.92
134,547,962.21
35,515,233.83
942.633.00
4,612,849.53
1,340,450.00
365,922.00
20,900.00
Per cent.
1.2
.5
.7
.9
.5
3.9
1.4
Franchisb Taxes.
Of the amount of franchise taxes collected during the year 1915,
^131,477.43 accrued to the insular treasury, ^2,691.48 to Manila and
other municipal treasuries, and ^4,425.95 to provincial treasuries.
Income Tax.
There was collected as income tax during the calwidar year 1915
^481,010.24, as against ^85,932.85 collected during the calendar
year 1914, an increase of ^196,010.24. The increase was due in part to
the fact that collections made in 1914 represented taxes accrued
during 10 months only of 1913, while the collections in 1915 repre-
sented taxes for the entire year 1914, but principally to a better
understanding of the provisions of the income-tax law throughout
the Philippine Islands.
The income-tax law is a complicated one, and as most delinquencies
were incurred through ignorance and misunderstanding of its pro-
visions, only small amounts were imposed as penalties for such de-
linquencies.
Revenue From New and Increased Taxes.
Under Act No. 2432, which provided for increased and new taxes
to be in force during the entire calendar year 1915, there was collected
during the year additional revenue amounting to ^4,459,535.32. In
Digitized by VjOOQIC
BEPOBT OF THE SECBETABY OF FINANC?: AND JUSTICE. 207
anticipation of the increased rates which took effect January 1, 1915^
there were removed during the last 10 days of December, 1914, ab-
normal quantities of distilled spirits, cigars, and cigarettes. The
tax on these excess removals amounted to ^315,054.09 on distilled
spirits, ■P'11,778.94 on cigars, and «?148,540.10 on cigarettes, a total of
^^475,373.13. If this amount be deducted from the 1914 collections
and added to the 1915 collections, the increase in revenue for the
year's operation under Act No. 2432 would be ^5,410,281.58.
Respectfully submitted.
ViCTORiNO Mapa,
Secretary of Finance and Justice.
To the Philippinb Commission,
ManUa^ P. /.
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Digitized by VjOOQIC
REPORT OF THE SECRETARY Of PUBLIC INSTRUCTION.
FISCAL YEAR ENDING DECEMBER 31, 1915:
Department of Public Instruction,
Manila^ P. /., July i, 1916.
Gentlemen: In compliance with the provisions of law, I have
the honor to submit the fifteenth annual report of the department
of public instruction covering its operations for the period from
January 1, 1915, to December 31, 1915.
During the absence of the undersigned in the United States his
excellency the Governor General, acted as secretary of public in-
struction to February 6, 1915, and'from that date until my return
on March 27, 1915, the Hon. Rafael Palma, commissioner, acted in
that capacity.
BUEEATJ OF EDUCATION.
The report of the director of education covers the school work
for the calendar j^ear 1915, which includes the close of one school
year and the beginning of another. Consequently, many of the
school statistics must be for the school year ending in March, 1915,
though wherever it is advisable and practicable the data have been
brought up to the close of the calendar year, December 31. 1915.
This period has seen the substantial progress reported lor several
years past continued along the lines which have been determined upon
during the past decade and a half.
Progress has been made during the year in making a wider use
of school plants and the public school personnel. The year wit-
nessed fhe extension of public welfare work, including the play-
ground movement, social activities, care of children, health and sani-
tation, athletics, public amusements and entertainments, and the
improvement of home conditions through the influence of school
industrial work.
The rapid progress during the past six years in school industrial
work brings the school authorities face to face with the new prob-
lem of further commercializing instruction in the schools.
It is with great satisfaction that we find among legislators and
other public men a firm reliance upon the schools of to-day as the
foundation upon which to build, and upon the ability of the schools
to carry to a happy conclusion the constructive work to which the
past decade and a half have been dedicated. To these inen the public
may look with gratitude for the preservation of the school system.
The number of schools in operation in December, 1915, was 4,386,
and the total annual enrollment for that month reached 606,597.
209
Digitized by VjOOQIC
210 REPORT OF THE PHILIPPINE COMMISSION.
These figures show increases over corresponding figures for pre-
vious years. Even greater increases have taken place in the aver-
age monthly enrolhnent and in the average daily attendance, which
is the most important of all. For the school year 1914-15, the per-
centage of attendance was 89 per cent, an increase of 1 per cent over
.that for the previous year. The number of teachers actually on
dutj at the close of December, 1915, was 488 Americans and 10,214
Filipinos. At the close of the school in March, 1915, 538 Americans
and 9,307 Filipinos were on duty, while for the preceding year the
figures were 612 and 8,850, respectively.
Considerable progress was made during the year in the program
for adequate school buildings and sites. The number of adequate
school sites continues to be about one-third of the total number of
sites belonging to the school, authorities. At the close of December,
1915, 109 standard-plan permanent buildings were under construc-
tion.
Organization.
Organization has been fully discussed in previous reports. There-
fore, in the present one only changes effected during the year are
noted. Beginning with January 1, 1915, the director of education
assumed administrative control over the public schools in the Depart-
ment of Mindanao and Sulu. Some changes have also taken place
in the general office organization, which resulted in a considerable
reduction in the clerical personnel. On January 1, 1915, aside from
directors, the personnel of the general office consisted of 8 American
and 101 Filipino clerks and 17 American and 18 Filipino teachers.
On December 31, 1915, the force included 8 American and 94 Filipino
clerks and 8 American and 16 Filipino teachers.
PERSONNBIi.
There has been no change in the directorate of the bureau of edu-
cation during the past year. Mr. Frank Linden Crone has been the
director since August 18, 1913, Mr. Charles Henry Magee assist-
ant director since the same date, and Mr. Walter William Marquardt
second assistant director since July 23, 1914.* Mr. Magee was absent
from the Philippine Islands from November 24, 1914, until Septem-
ber 8, 1915, in charge of the Philippine bureau of education exhibit
at the Panama-Pacific International Exposition in ^slti Francisco,
Cal. Mr. Crone went to the United States on May 25, 1915, leaving
Mr. Marquardt as acting director. Mr. Crone relieved Mr. Magee at
San Francisco, and Mr. Magee in turn relieved Mr. Marquardt on
September 8, 1915, since which time he has been acting director.
From the beginning of the present school regime we have been
building with the idea of using Filipino teachers in constantly en-
larging fields of activity. The past 12 or 15 years have seen Filipino
teachers take over all of the primary work and practically all of the
intermediate work; still more recently, they have taken over the
greater part of the supervising and industrial work, and they are
1 Since the writing of this report Mr. Magee was appointed purchasing agent for the
Philippine government, taking over that position on Jan. 15, 1916. The new third mem-
ber of the directorate had not been named at the time of preparing the final copy of this
report.
Digitized by VjOOQIC
EBPOBT OF THE SECBETARY OF PUBLIC INSTRUCTION. 211
now entering largely into the secondary teaching service. One school
division has been placed entirely in their hands, with Mr. Camilo
Osias as division superintendent. He has the high honor of bein^ the
first Filipino to hold that important position. The Filipinos have
entered upon school work among their own people with enthusiasm
and seriousness, and the success of the experiment in the Province
of Bataan seems assured.
The report for 1914-15 shows 7,656 Filipino teachers in the pri-
mary grades, 833 in the intermediate, 17 in the secondary, 726 in indus-
trial instruction, and 175 in supervising positions. The rapid change
that is taking place is seen from the fact that in December, 1915, the
number of Filipino teachers in the intermediate grades had increased
to 1,004, that in the secondary grades to 61, and that in supervising
positions to 200.
Notwithstanding the rapid increase in, the number of Filipino
teachers assigned to more advanced and responsible work and the
general success with which this movement has been accompanied, it
has been found necessary every year to bring over a number of new
teachers from the United States. The increased need of teachers of
advanced academic attainments is seen from the fact that during the
past five years the number of pupils in the intermediate grades has
about doubled while the number in the years of the secondary course
has more than doubled.
A steady increase in the salaries paid to Filipino teachers has taken
place, though this increase is not so great as the bureau desires.
Salaries are still lower than in other lines of work requiring no
greater preparation and no more energy or ability. Since 1910 the
average salary paid to Filipino teachers has increased from ^44.66
to ^5.6.32 and that paid to municipal teachers from ^18.29 to ^6.35.
It is sincerely hoped that it will soon be possible to further increase
these salaries, especially those of municipal teachers.
The personnel in the schools of the city of Manila has been
improved by requiring greater preparation from teachers and the
quality of the service rendered has improved accordingly.
Schools and Attendance.
Reports for December, 1915, shows that, as compared with similar
figures for the previous years, there has been an increase of 143 in
the number of primary schools, of 41 in that of intermediate schools,
and of 1 secondary school. Comparisons for the same period show
that both the average monthly enrollment and average daily attend-
ance have increased by more than 30,000.
Emphasis has been placed upon maintaining primary schools.
The increase in the number and enrollment of intermediate schools
is accounted for largely by the establishment of a number of sub-
scription schools. Compared with conditions in the United States,
the percentag:e of pupils found in the primary grades in the Philip- .
pine Islands is very large, despite the rapid increase in the number
of intermediate and secondary pupils. This percentage is also very
much larger than that which is found in Japanese schools.
Seven night schools were maintained in Manila, with an enroll-
ment of approximately 8,500. ^
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212 BEFOBT OF THE PHILIPPINE COMMISSION.
At the present time the percentage of pupils in the primary, inter-
mediate, and secondary courses is as follows :
Primary 91^ 9
Intermediate :. 6. 9
Secondary 1. 2
In all courses the girls constituted only 39 per cent of the total
enrollment and twice as large a proportion of bovs entered the inter-
mediate grades as of girls, and the proportion of boys who go to the
high school is three times as great as that of the girls.
In 1907 the proportion qt annual enrollment that was held in
school throughout the year was only 58 per cent, while for the
school year 1914r-15 it was 73 per cent. This gain of 15 per cent in
eight years is evidence both of the increasing emciency of the schools
and of the greater desire of the people for education. ,
Further evidence is found in the fact that the percentage of at-
tendance has increased from 80 to 89 per cent in the past five years.
Academic Instruction.
A very vital problem confronting the bureau of education to-day
is that of improving academic instruction, especially in the primary
schools. In solving this problem the improvement in English is
f imdamental. The changes in the course of study effected during
the year provided a means for securing better English. In the
schools of the city of Manila, where this new course was first put
into effect, very good results in increasing the amount of English
spoken by pupils have been secured.
During the year the effectiveness of academic instruction was also
increased by improving the courses of study in drawing, in music,
and in phonics by the publication of more definite outlines; hj pro-
viding for a better organization of classes by the publication of
"Suggested Programs for Primary Schools"; and by improving
methods of teaching through the suggestions embodied in the new
course of study. Further improvement is highly desirable and will
depend largely upon the amount of real supervision that can be
secured.
Physical Education.
Physical education is one of the three phases of school work in
the curriculum prescribed for Philippine schools. It is considered an
essential part of the course of study, and plans are made so that it
is possible for practically all of the pupils enrolled to take advan-
tage of the course. Specialized sports, track and field events, group
games, color competitions, and calisthenics all have a place in
physical education, and thus the personal capacities and preferences
of pupils may be taken into consideration in determining what kind
of work they shall perform. From 95 to 100 per cent of the pupils
received training during the school year.
Excepting in the city of Manila, not much attention has been
given to the equipment of school playgrounds. The requirements for
standard building sites for all public schools, however, give ample
space for playgrounds and, although not a great many provincial
sites have playground equipment, it is recognized as desirable, and
will be provided as rapidly as possible.
Digitized by VjOOQIC
EEPOBT OF TH£ SECBETABY OF PUBUC INSTRUCTION. 2 IS
The public schools are one of the members of the Philippine Ama-
teur Athletic Federation and many of the representatives of the
Philippines who competed against China and Japan in the Far
Eastern athletic meet held in Shanghai in May, 1915, were pupils
in the public schools.
The mtroduction of athletics among girls has been very successful*
During the year, the niunber of inter-provincial athletic associations
has increased from 9 to 11. One of J;he new associations includes
territory inhabited by Moros among whom athletics have achieved
considerable popularity.
Industrial Instruction.
The aims of industrial instruction are educational, economic, and
vocational. Economic aims may be subdivided into raising the home
standards of living, providing by home manufacture the articles
improve
from abroad such necessities and comforts as can not be made in
the Islands. What are called direct betterment courses have been
organized to attain the first end. These include housekeeping, cook-
ing, sewing, garment making, loom weaving, woodwork, bamboo-
rattan furniture, and gardening. The indirect betterment or com-
mercial courses embrace needlework, hand weaving, loom weaving,
carving, furniture making, pottery, and other special courses. Chief
emphasis has been placed upon plain sewing tor girls and garden-
ing for boys.
The European war has resulted in an unusual demand for Philip-
pine embroidery and has also given considerable impetus to the bob-
bin lace industry. During the year, basketry has also shown good
progress and the making of mats from coconut fiber has advanced
greatly.
The vocational aim of industrial work is seen in the special inter-
mediate courses which prepare pupils for definite work. The farm-
iujg course is of great importance, and at least four new farm schools
will probably be organized within the near future. Agricultural
schools should also increase in number since they give valuable train-
ing in farm activities. The trade course, which gives training chiefly
in woodworking and in ironworking, is given in 19 provincial trade
schools and in a number of provincial school shops. The course in
housekeeping and household arts has shown a great increase in stu-
dents during the past year. At Olongapo the pupils of the interme-
diate school are enabled, by virtue of an agreement between the di^
rector of education and the commandant of the yard craft shop of
the Olongapo Navy Yard, to secure practical instruction in carpentry
and blacksmithing and in the operation and repair of launches, steam
engines, boilers, pumps, etc. This experiment has been very suc-
cessful so far. Shoemaking has been taught with success in the
Mariquina Trade School.
During the year representatives from important firms in the
United States came to the Philippines in search of embroidery and
while here also became interested in lace and hand- weaving products.
Digitized by VjOOQIC
214 EEPOBT OF THE PHILIPPINE COMMISSION.
These visits resulted in many requests and propositions of a com-
mercial nature being made to the bureau of education. However,
only a few orders could be accepted in the field, these constituting a
mere fraction of the embroidery and lace desired by the buyers. How
best to handle the commercial undertaking authorized by recent legis-
lation is one of the big problems for the coming year to decide.
Insiilar Schools.
No great change has taken place in the Philippine Normal School
during the year. It is planned, however, to thoroughly reorganize
the courses of study in this institution. Sixty-nine were graduated
from the four-year course and 28 from the two-year domestic science
course in March, 1915, making the total number of graduates 497.
During the period from June to December, 1915, 1,632 pupils were
enrolled.
The Philippine School of Arts and Trades has continued to crowd
its buildings, but hopes to move into the new shop building in June.
The enrollment in the Philippine Nautical School for the present
year is 58, of whom 25 will complete their second year ashore in
March, 1916.
During the year, the Philippine School of Commerce has offered
courses of instruction in stenography, bookkeeping, typewriting, and
general commerce to more than 400 students in the day school and
approximately an equal number in the night school. The average
salary of graduates of this school is !^1.49.
The present plan pursued in the school of household industries is to
select from 15 to 20 young women in a town for attendance at this in-
stitution where they are taught embroidery, lace marking, and gar-
ment making. After graduation, each gl'oup of graduates returns
to its home town accompanied by a representative of the general
office to supervise the beginning of the commercial work.
At the Central Luzon Agricultural School 130 hectares out of the
657 hectares included in the farm have been under cultivation during
the year. Two hundred and eighteen pupils of intermediate status and
159 of secondary grade were enrolled during the period from June to
December, 1915. This school is giving a very thorough and valuable
training to students who are prepared to undertake agriculture with
profit, and the graduates of this school have made very good records
wherever they have been sent. A large number of them nave gone to
out-of-the-way places in the Department of Mindanao and Sidu and
have in every case made good. A noteworthy feature of this school
is the extent to which its personnel cooperates with the people in the
community in developing an irrigation system and in furnishing im-
' proved varieties of farm animals.
The school for the deaf and the blind aims to make the unfortunate
{)upils self-reliant and self-supporting men and women. The out-
ook for the future of deaf graduates is very hopeful, and though it
is not so easy to find work for the blind, some of them may become
economically independent.
School Work Among Non-Christian Peoples.
During the past three years, there has been a veir earnest attempt
made^ oring about closer relations between the Christian Filipinos
Digitized by _ _ _ _ _
REPOBT OF THE SEOBETABY OF PUBLIC INSTBUOTION. 21^
and their more primitive neighbors. In accordance with this policy,
attention has been given to providing educational facilities for noti
Christians. While practically no increase in the amount of money
appropriated for schools in Christian territory has been made during
the past few years, the appropriation for non-Christian schools has
almost doubled. In the present session of the Philippine Legislature,
1^1,000,000 were set aside for such schools in the Department of
Mindanao and Sulu, in addition to the regular appropriation for
non-Christian school work.
Each of these non-Christian peoples presents its own peculiar prob-
lem and courses of study have been adtipted to meet the conditions ob-
taining among each. Settlement farm schools have proved efficacious
means of leacEng nomadic peoples to settle in permanent homes. In
some sections, women have been taught loom weaving for the purpose
of making their services so valuable that they would no longer be
employed as field laborers. Not taking into consideration the De-
partment T)f Mindanao and Sulu, there was an increase of 40 in the
number of schools for non-Christian peoples and an increased en-
rollment of 2,551. In the Mountain Province the increase was over
100 per cent and during the year the first school was opened in the
sub-Province of Apayao. In March, 1915, the first mtermediate
fraduating class completed the course in the Baguio Industrial
chool. A majority of this class were Igorots. In Nueva Vizcaya,
73 per cent of the school population was enrolled in the public schools.
In this Province seven settlement farm schools are maintained for
Ilongots, Igorots, and Negritos. The Provinces of Agusan and
Bukidnon experienced a number of serious handicaps, including
droughts, locusts, and malaria, but in spite of such conditions, farms
have been enlarged, more land has been put under cultivation, and a
number of suitable school buildings have been constructed. The set-
tlement farm school is particularly well adapted to the needs of the
people of these Provinces.
A large number of non-Christian pupils are provided for in terri-
tory included in Christian Provinces. For such pupils there are 44
schools in the sub-Province of Abra, 2 in Palawan, 1 in Zambales,
and others in Camarines, Eizal, Antique, Mindoro, Nueva Ecija,
Pangasinan, Sorsogon, and Tarlac. During the present school year
liberal provincial appropriations from special non-Christian funds
made possible the establishment of 6 new schools for non-Christians
in Capiz, 1 in Oriental Negros, and 2 in Samar.
Department of Mindanao and Sulu.
In this extensive territory, it is necessary to adapt the school sys-
tem to the peculiar economic and social needs of the various locali-
ties, and, accordingly, settlement farm schools and sea gardens have
been established, and instruction in the preparation of sea products
and special schools to teach and improve the industries long known to
the people have been provided. Already in some localities public
schools have come to take a large place in the life of the community.
For 1915, the total of insular and department appropriations
for public instruction was ^86,165.45, as compared with f^49,888
for 1914. During the year, municipal school funds were set up in
all organized municipahties, and the territory not comprised in such
61983—16 ^15 Digitized by GoOglc
216 REPOBT OF THE PHILIPPINE COMMISSION.
municipalities was divided into municipal districts with the idea
of developing them into municipalities. In December, 1915, there
were 273 teachers as compared with 239 in 1914. During the year
82 additional teachers were brought from the northern l^rovinces,
making a total of 189 so imported. Teachers who have come to the
department from the northern Provinces have entered upon their
new duties with a courage and determination entirely commendable.
With very few exceptions, they have won the confidence and support
of the datus and headmen, without which their efforts would be of
little avail.
In addition to the dispensaries administered by the Philippine
Greneral Hospital School of Nursing, nine special dispensaries were
administered by regular teachers who had received special instruc-
tion in dispensary work. The value of the service rendered by these
dispensaries to pagan and Mohammedan communities is great, and
it is planned to extend this service as rapidly as possible.
The introduction of group games and athletics generally in the
schools of the department has proved popular. The department
te^ms participatea in the East Visayan athletic meet held in Cebu,
this being the first Moro participation in interprovincial athletics.
The schools of Sulu, which are for the most part located upon
coral islands that have no agricultural land, have adopted as ,their
industrial work the improvement of the methods employed in pre-
paring the various sea products for the market. Trepang and
sponges are the two most important products.
The industrial work in pagan and Mohammedan schools has been
limited almost entirely to agriculture for boys and plain sewing for
girls. In the schools for Christian Filipinos the minor lines of in-
dustrial work have been followed with success. It has been definitely
decided that the practical way. to reach Mohammedan and pagan
girls is through dormitory schools.
Funds have recently been appropriated which will make possible
a considerable extension of the school organization of the depart-
ment, and it is planned to open 150 new primary schools, many of
which will be of the settlement farm type.
Buildings and Grounds.
During the year it has not been possible to furnish insular aid for
all school buildings for which it was requested. Consequently,
available funds were devoted to the larger projects. In most parts
of the islands reinforced-concrete construction costs but little
more than hardwood construction, and the bureau has given
most favorable consideration to projects for standard-plan build-
ings. From considerations of economy, temporary construction
is favored for small schools rather than semipermanent build-
ings of mixed material.
At the present time 723 buildings are classed as permanent. Of
this number 327 buildings are of reinforced-concrete construction
according to standard plans of the bureau of education. During
1915 the construction of 68 new buildings with 389 rooms was
- authorized and 58 buildings with 251 rooms were completed. In
December, 1915, 109 permanent buildings were under construction.
The most pressing building needs of the schools at present are
buildings for farm schpols. It is believed that this need will not be
Digitized by VjOOQIC
BEPOET OF THE SECRETARY OF PUBLIC INSTRUCTION. 217
satisfactorily met until legislation provides for a provincial school
fund for each Province. Such legislation should provide that a con-
siderable percentage of .provincial revenue shall be devoted to school
purposes.
Health of School Children.
The health of school children has^always received the attention
of this bureau. The efficient service in this regard rendered by
the bureau of health and other agencies is appreciated. Informa-^
tion distributed throughout the schools concerning the prevention
of epidemic and other diseases, the regular class-room instruction
in hy^ene and sanitation, and the emphasis placed upon physical
education have produced noticeable results in better health condi-
tions among the people. All that has been done, however^ falls far
short of what is needed, and it is urged that the Philippine health
service be placed in a position to carry on a systematic medical
inspection of all school children. Some advance was made in this
respect during the past year. A series of forms for reporting the
health of school children was prepared by the Philippine health
service, and medical inspection was extended wherever possible.
Courses of Study.
The balanced curriculum in force in the Philippine public schools
includes academic instruction, industrial work, and physical train-
ing. Social conditions have made it advisable to group the 11
years of public-school instruction in three periods — a four-year
primary course, several three-year intermediate courses, and a four-
year secondary course. These are sometimes referred to as the
"three units" in the Philippine system of education since each
course gives a training that is in a sense complete, and yet per-
mits anyone who is financially able to enter upon more advanced
instruction.
School Libraries.
The importance of the establishment of school libraries through-
out the islands is evidenced by the fact that outside the city of
Manila there are no libraries open to the public. School libraries
furnish the only available reading material m English for the rising
generation and the general public. Libraries are now maintained
in practically every secondary school, in most intermediate schools,
and in a few primary schools. During the year the number of
libraries reached 329, an increase of 66, and the number of volumes
reached 88,539, an increase of 21,933 lor the year. During the year
this office subscribed for 352 copies each of two magazines, enough
to furnish one copy of each to every school of intermediate or
secondary status.
Vacation Assemblies and the Training of Teachers.
The eighth teachers' vacation assembly, held at Baguio, was a
success in every respect. A new feature of the assembly was a
rery successful class for Filipino supervising teachers.
Digitized by VjOOQIC
218 EXPORT OF THE PHILIPPINE COMMISSION.
The Filipino teachers' assembly held at the Philippine Normal
School and the Philippine School of Arts and Trades was attended
by teachers from all divisions who had been selected to take the
various courses in industrial, professional, and academic subjects.
The Exhibit at the Panama-Pacific International Exposition.
The exhibit of the Philippine public schools installed at the ex-
position not only set forth the operation of the public school system,
but also correlated very closely with the general industrial and com-
mercial purposes of the entire Philippine participation in the expo-
sition. The exhibit covered approximately 10,000 square feet of
space and was the largest single exhibit in the department of
education.
The exhibit consisted of charts, written work, publications, refer-
ence books, statistics, compilations, textbooks, models, designs and
plans, research work, school library work, school museum work,
scientific and technical displays, graded industrial courses, trans-
parencies, photographs, lantern slides, moving pictures, an industrial
working exhibit, a force of demonstrators, and the sales department
of school-made articles. These exhibits served the purpose of show-
ing the complete public school system.
Some of the features which were most favorably commented upon
by visitors at the exposition were the centralized system of control,
the adaptation of textbooks to Philippine needs, the emphasis placed
upon games and athletics, the instruction in citizenship and in good
manners and right conduct, the differentiation in the work for boys
and girls, and the vocational specialization in the intermediate
grades.
The Philippine public schools not only received the highest award
in the department of education, but also received signal honors in
the departments of social economy, liberal arts,, and manufactures,
the number of awards in these four departments being 51, 9, 3, and
12, respectively. The awards granted included 4 grand prizes,
15 medals of honor, 37 gold medals, 13 silver medals, 2 bronze
medals, and 4 honorable mentions. Eepresentatives of the bureau
spoke at 17 congresses and associations held in connection with the
international congress on education and the meetings of the National
Education Association. In addition they gave frequent talks upon
the Philippines before school bodies, societies, and clubs at the ex-
position and in the vicinity of San Francisco.
Financial Support of the Schools.
For the year 1915 educational work under the administrative con-
trol of the bureau of education was maintained from funds provided
from the following sources:
INSULAR — current EXPENSES.
Exclusive of the Department of Mindanao and Sulu, ^4,199,365
was provided by Act No. 2431 and by a later appropriation of
^0,000 by the emergency board. This method of appropriating
funds for the bureau in a lump sum was a radical departure froin
the former practice of supplementing the general appropriation by
a number of special bills for particular projects. Expenditures from
Digitized by VjOOQl _
REPORT OF THE SECRETARY OF PUBLIC INSTRUCTION. 219
these funds amounted to 1P42,645.45 for the purchase of equipment,
P2,661,262.48 for salaries and wages, ^=516,966.15 for the purchase
of supplies, ^554,400 for insular aid to provincial and municipal
governments, and ^398,832.46 for miscellaneous current expenses, a
total of ^4,174,106.54. An unexpended balance of ^5,258.46 was
reverted to the insular treasury and the income from sales of sup-
plies and services amounted to ^^25,799.02, so that the net expendi-
tures were f^,948,307.52.
INSUIiAR — PERMANENT IMPROVEMENTS.
For permanent improvements a total of 1P269,000 was trans-
ferred as aid during the year in accordance with the provisions of
Act No. 2494 and Act No. 2378. The final installment of ^50,000
under the provisions of Act No. 2029, increased by ^P67,393.89
brought forward from the previous year, made a total of ^317,393.89
available for permanent buildings from Act No. 2029.
Act No. 2494 also authorized the restoration of the sum of ^57,-
444.35 to the credit of the construction project for the new Philip-
pine School of Arts and Trades and on January 1, 1915, a balance
of 1P214,998.57 was brought forward from 1914, making a total of
^72,442.92 available for this project. Of this amount f=119,103.74
was expended during the year, leaving a balance on December 31,
1915, of f=153,339.18. Act No. 2480 appropriated n5,000 for the
establishment of a provincial agricultural school in Isabela Province.
These and minor balances brought forward from the previous year
made the total sum available ,f of permanent improvements ^897,-
080.70, of which ^31,189.62 was expended during the year and
1P3,500 reverted to the insular treasury, leaving a balance on De-
cember 31, 1915, of ^153,339.18 to the credit of the new Philippine
School of Arts and Trades project and a small balance of ^,061.90
to the credit of Acts Nos. 1801 and 2029 due to refunds from com-
pleted projects.
Private Schools.
During the past year the private schools have made noticeable
progress in the betterment of general school conditions. Special
stress has been laid upon the introduction of English as the official
and business language oi^ the schools. At present, of the approved
institutions, 4 colleges, 9 high schools, and 17 intermediate and
primary schools are giving all the required subjects in the English
language. In addition to this, there are a great many unapproved
primary schools recently established throughout the Archipelago
that are entirely on an English basis. Of the recognized colleges
and schools that are giving part of the work in Spanish, it maiy
be said that with a few exceptions they have gone ahead in the
introduction of English, and at present are giving the majority of
the required subjects in this language. A very friendly rivalry
exists between the diiferent schools and colleges. The system of
transfer which is now in force in nearly all the schools augurs much
for the furtherance of desirable relations between these institutions
and government schools. '
During the year nine new schools have been approved, one for
high school, three for intermediate, and five for primarv-^courses.
Digitized by VjOOQ IC
220
REPORT OF THE PHILIPPINE COMMISSION.
In addition, approval has been given for the high-school course in
five schools formerly granted intermediate recognition. There are
yet a great many schools that are not on the approved list. Scores
of primary schools have sprung up during the past year, principally
in the Provinces. It is estimated that there are some 70 or 80
of these schools on the island of Mindanao and in the non-Christian
Provinces of Luzon that represent an enrollment of approximately
10,000. While these schools are not as yet on the approved list,
it is believed that in nearly all cases they are making earnest efforts
to comply with the requirements of this department.
Three statistical tables are appended: (1) A list of private schools
and colleges which have received government approval; (2) a table
showing denomination and enrollment in approved colleges; and (3)
a table showing the enrollment by courses and the teaching force in
approved colleges.
Table 1. — Shotoing private schools and colleges which have received govern-
meni approval.
Schools and colleges.
Authority
granted.
Date of
approval
Location.
Ateneo de Manila
Silliman Institute
San Juan de Letran
San Beda
Assumption
Colegio Seminario
San Vicente de Ferrer
San Carlos
San Agustin
San Alberto Magno
San Jacinto
St. Vincent of Paul
St. Scholastica
La,Consolacion
Liceo de Manila
La Salle
Assumption
Colegio Mercantil
Colegio Seminario
Burgos Institute
Ntra. Sra. del Kosario
St. Bridget's Academy
Centre Escolar
Institute de MujerOs
Sta.Rosa
Del Beaterio
Sta. Mesa
Sta. Isabel
La Concordia
Rosary College
Sta. Catalina
InmaculadaConoepcion. . . .
Sta. Isabel
St. Agustin's School
San Jose '.
Jaro Girls' Academy
IndustrM School Rep
Sacred Heart
Academia de Sta. Ines
Holy Ghost
Our Lady of the Angels
San Nicolas
St. Agnes
Bacolod Private Academy..
Institute de Manila
Catholic Central School
Tondo Convent
Holy Ghost
Light of To-morrow
Sacred Heart of Jesus
St. Louis School
Sta. Rita
Pugo School Corporation. .
Conoepcion Private
.A...
..do.
..do.
..do.
..do.
..do.
..do.
..do.
..do.
..do.
..do.
..do.
..do.
.8...
.do.
..do.
..do.
..do.
..do.
..do.
..do.
..do.
..do.
..do.
..do.
do
do
do
....do
....do
Intermediate..
....do
....do.. ......
....do
....do
....do.
....do.
....do.
....do.
....do.
....do.
....do.
....do...
....do...
....do...
....do...
Primary.
do...
....do...
....do...
....do...
....do...
....do...
....do...
July 31,1908
Jan. 11,1910
Apr. 8, 1910
Mar. 12,1910
June 11,1910
Jan. 16,1911
June 16,1911
Feb. 19,1912
Dec. 2, 1912
Jan. 15,1913
June 6, 1913
Nov. 19,1913
Dec. 22,1914
Feb. 4,1910
May 3, 1910
Feb. 19,1912
Feb. 23,1912
May 21,1913
Jan. 15,1913
Jan. 20,1913
do..
June 18,1913
Dec. 23,1913
Jan. 15,1914
Mar. 15,1915
Mar. 11,1915
July 26,1915
Sept. 10,1915
do
May 10,1915
Sept. 13,1915
June 28,1911
Jan. 15,1913
do
Feb. 16,1912
Feb. 26,1913
....do
Aug. 16,1913
Dec. 2, 1913
June 22,1914
July 1,1914
Aug. 21,1914
Mar. 10,1915
do
Apr. 15,1915
Nov. 22,1915
Feb. 26,1913
Aug. 16,1913
Dec. 16,1913
Feb. 1, 1915
Mar. 16,1915
Mar. 25,1915
Mar. 29,1915
Sept. 25, 1915
Dumagaete.
Do.
Do.
Vigan.
Jaro.
Cebu.
Hoilo.
Dagupan.
Tueuegarao.
CalDayog.
Manila.
Do.
Do.
Do.
Iloilo.
Manila.
Naga.
Manila.
Do.
Batangas.
Manila.
Do.
Do.
Do.
Mandaloyan
Manila.
Do.
Vigan.
Manila.
Cebu.
Naga.
Tagudin.
Jaro.
Do.
Do.
Tuguegarao.
Albay.
Atimonan.
Surigao.
Lipa.
Bacolod.
Manila.
Tabaco.
Manila.
Tayum.
Malabon.
Lucena.
Baguio.
Manila.
Pueo.
Malabon.
Digitized by LjOOQIC
REPOBT OF THE SECEETABY OF PUBLIC INSTBUCTION. 221
Table 2. — Showing denomination and enrollment in approved colleges.
CoUeges.
Character of
school.
Denomination.
Enroll-
ment.
Ateneo
Men
Roman Catholic
Presbyterian
1,145
717
SillimftTi
do
San Juan de Letran
do
Roman Catholic
.do
725
San Beda
do
469
Assumption
Women
do
187
Col^lo Seminario
Men
.. .do
371
San Vicente de Ferrer
do
do
478
San Carlos
do
., .do
306
San Augustin
do
do
265
San Alberto M^no
.do
do
141
St. Schoiastica."
Women
do
181
San Jacinto
Men ..
.do
153
San Vicente de Paul
do
do
211
La Consolacion
Women .
do
237
Liceo de Manila '.
Co-ed
Women
Men
Secular
888
Santa Rosa
do
281
Colegin SftTTiinarlft. . , , , ,
495
..do . .
do
313
Colegio Mercantil
Co-ed
Women
do
Secular
307
Assumption (Iloilo)
Roman Catholic
Secular
80
Inst.it.ntft <1« MnJAres
146
Burgos Institute
Co-ed
do
405
Ntra. Sra. del Rosario
Men
Roman Catholic
do
128
DelBeaterio :
Women
87
St. Bridget's Academy
do
....do
154
Centre Escolar
do.. ..
Secular
567
Santa Mesa College
Men
Roman Catholic
.do
74
Santa Isabel (Manila) .......... .
Women .
411
La Concordia
do
do
147
Rosary College
do
do
174
Santa Catalina
do
do
162
Inmaculada Concepcion
do ..
do
208
Santa Isabel (Naga)
do
....do
214
St. Agustin's School
Co-ed
do
1.508
San Jose
Women
..do
164
Industrial School Republic
Men
Protestant
508
Jaro Girls* Academy
Women
.. .do
31
Sacred Heart
do
Roman Catholic
do
101
AcadftmiA de Ranta Tnes
Co-ed
94
Catholic Central School
do
do
335
Holy Ohast (Manila) _
Women
do
109
Our' Lady of the Angels
Co-ed
do
91
San Nicolas
do
do
215
St. Agnes
do
do
95
Bacoiod Private Academy
do
Protestant
163
Institute de Manila
do
Secular
260
Tondo Convent
.. ..do
Roman Catholic
do
424
Holy Ghost
do
201
Light of Tomorrow P.
do
Secular
137
Sacred Heart of Jesus ^...
do
Roman Catholic
....do
215
St. Louis School
.. ..do
301
Santa Rita
Women
do
83
Pugo School Corporation
Co-ed
..do
410
Conception Private School
do
Secular
221
16,493
Table 3. — Showing the enrollment hy courses and the teaching force in approved
colleges.
Enrollment by eoursea.
Teachers.
fiohoolfl and oollegM.
Pri-
mary.
Inter-
medi-
ate.
Second-
ary.
Col-
lege.
Ameri-
can.
Euro-
pean.
Fill,
pino.
English
Ateneo
29
148
111
209
95
105
210
76
118
44
333
282
61
55
55
92
^S
80
36
378
246
440
171
37
138
57
123
51
49
405
42
113
34
36*
32
43
*16
12
io
2
1
23
19
20
16
16
11
12
10
17
9
15
10
13
^-^ 8
28
flflliTiiATi TnstH^ite
35
San Juan de Letran
8
San Beda
7
Assumption ,
16
Colegio Seminario
13
San Vincente de JFerrer
12
San Carlos
12
San Augustin
12
San Alberto Magno
t13
Digitized by VjOOQIC
222
EEPOBT OF THE PHILIPPINE COMMISSION.
Table 3. — Showing the enrollment hy courses and the teaching force in approved
colleges — Continued.
Enrollment by courses.
Teachers.
Schools and colleges.
Pri-
mary.
Inter-
medi-
ate.
i
Second-1 Col-
ary. I lege.
Ameri-
can.
Euro-
pean.
Fili-
pino.
English
St. Scholastica
94
77
104
158
93
225
268
190
31
46
107
70
55
54
120
253
39
333
100
111
128
160
178
1,475
13^
23
261
84
75
96
85
195
79
128
54
414
189
122
210
300
410
73
193
325
61
42
44
57
279
42
117
95
47
31
28
97
27
28
28
204
23
61
45
48
30
43
36
33
32
8
185
17
19
13
6
20
.16
35
60
10
12
15
5
1
16
34
39
22
516
14
70
28
229
3
10
238
46
6
6
90
12
17
2
15
4
10
16
8
8
i"
8
10
3
ii*
i'
1
8
5
10
16
9
8
1
20
i9'
16
19
15
27'
6
13
10
3
11
11
13
13
8
1
24
2
1
i'
4
2
8
27
2
6*
\
7
16
San Jacinto
8
San Vicente de Paul
24
46'
i'
1
1
¥
1
9
l.a Consolacion
8
Liceo de Manila :
12
Santa Rosa
16
Colegio Seminario
10
La Salle
11
Colegio Mercantil
19
Assumption (Iloilo)
8
Institute de Mujeres . . .^
1
1
13
Burgos Institute
u
Ntra. Sra. del Rosario
12
Del Beaterio
1
2
1
1
1
5*
3
8
13
12
7
9
9
3
14
1
5'
4
7
2
2
2
12
St. Bridget's Academy
7
Centre EscoBar
21
Santa Mesa College
9
Santa Isabel
24
La Concordia
22
Rosary College
1
1
1
10
Sant-a Catalina
12
Inmaculada Concepcion
12
Santa Isabel (Naga)
12
St. Augustine's School
10
San Jose
9
Jaro Girls' Academy
3
7
4
Industrial School Republic
62
31
Sacred Heart
7
Academia de Santa Ines
5
Holy Ghost
7
ur Lady of the Angels
3
San Nicolas TT
6
St. Agnes
1
2
5
Bacolod Private Academy. . .
10
Institute de Manila.
25
Tondo Convent
8
6
10
Holy Ghost
::::::::::::::
6
Light of Tomorrow
5
Sacred heart of Jesus
4
St. Louis
4
2
10
Pugo School Corporation
12
Santa Rita... . . .
10
28
10
8
Concepcion Private School
6
Catholic Central School
6
BUREAU OF AGRICULTURE.
The agricultural situation in the Philippine Islands for the year
1915 has been marked by the development of two important
movements.
Cooperation.
The first of these movements has been the rapidly increasing in-
terest on the part of the Filipino farmers in lines of organized co-
operative effort. A " farmers' congress," held in Manila from Au-
gust 21 to 28, was attended by 500 delegates representing nearly
every Province in the islands. Arrangements were made by this
congress for the maintenance of a permanent committee in Manila
to look after the interests of the farmers.
At the close of the year, 29 provincial and 295 municipal agri-
cultural societies, having a membership of more than 20,000 farmers,
had been organized by the bureau. The purpose of these societies
Digitized by VjOOQIC
BEPOBT OF THE SECRETARY OF PUBLIC INSTRUCTION. 223
is to carry on educational work among the farmers, to develop, an
interest in improved agricultural methods, and to promote the es-
tablishment of lines of cooperative work. Each of these societies is
furnished a weekly market report, and all members of the societies
receive from the government a monthly farm paper. In a number
of different localities cooperative business enterprises have been
started as a result of the work of the agricultural societies, breeding
animals have been purchased, and irrigation projects have been
started. In the campaigns carried on by the government to sup-
press rinderpest and locusts the cooperation of the agricultural so-
cieties has been a valuable asset.
Food Production.
In view of the fact that the value of the annual importations
of food products into the Philippine Islands amounts to approxi-
mately ^=30,000,000, or one-third of the total value of all imports,
the matter of promoting the more general planting of food crops
constitutes one of the most vitally important economic problems of
the islands. The so-called "food-production campaign," organized
by the bureau of agriculture in 1914, has been actively continued
with highly satisfactory results. Many thousands of farmers
throughout the islands, who were formerly one-crop farmers, have
been encouraged to plant such secondary rood crops a§ sweet pota-
toes, beans, and garden vegetables. The increased production of
these different food crops will not only tend to decrease the rice im-
portations, but will also materially improv^e the quality of our food
supply.
Crop Conditions.
. RICE.
The apparent rice shortage, the unusual conditions prevailing as
a result of the European war, and the rice campaign of the bureau
of agriculture gave an impetus to rice planting for the season of
1915-16. Had weather conditions been favorable the largest crop
of rice in the history of the islands would have been harvested.
The lateness of the season reduced the area that would otherwise
have been planted to rice, and both yield and quality of the crop
were affected by several destructive typhoons. The extent of the
damage done can not be fully ascertained until all crop reports for
the last quarter of the year have been received. It appears, how-
ever, that with an excellent crop of upland rice and a fair crop of
lowland rice the total yield will be as large as any rice crop yet
harvested in the islands.
CORN.
The prospective rice shortage during the latter part of 1914 re-
sulted in the planting of more corn than usual, and considerable'
land that was intended for rice was planted to corn during the latter
part of 1915. It is estimated that the corn crop of 1915 will show
at least a 10 per cent increase over that of 1914. Corn is rapidly
becoming an extremely important food crop in the Philippines, and
Digitized by VjOOQIC
224 REPORT OF THE PHIUPPINE COMMISSION.
there has been a remarkable increase in recent years both in the
production of corn and in the use of this cereal for human con-
sumption. In 1910 the corn crop was 2,467,574 cavans, whereas in
1914 more than 6,000,000 cavans were harvested.
COCONUTS.
The value of copra and coconut oil exported during 1916 was
^7,864,112, as compared with ?21,198,876 for 1914. Large areas
are being planted to coconuts each year, the crop reports for the
year ending June 30, 1915, showing 4,500,000 more coconut trees
than were reported for the preceding year.
TOBACCO.
Tobacco has suffered severely from unfavorable weather condi-
tions. In the Cagayan Valley the drought which occurred during
the latter part of 1914 destroyed a large part of the tobacco seed
beds. The crop reports for this section place the yield of the 1914-15
crop at about 40 per cent of a normal yield. The exports of tobacco
and tobacco products for 1915 amounted to ^,629,209, as compared
with ^8,355,064 for 1914.
SUGAR.
In practically every sugar-producing district a better crop is an-
ticipated than the one harvested last year. Large areas have been
planted and weather conditions have been generally favorable. The
value of sugar exports for 1915 was ^2,210,706, as compared with
^2,210,786 for 1914.
ABACA.
During the year the abaca plantations have largely recovered from
the effects of the droughts of 1913 and 1914, and production showed a
substantial increase until October of this year, when the abaca dis-
tricts of southern Luzon suffered from severe typhoons. The ex-
ports of abaca for 1915 were 142,008 tons, valued at ^=42,678,200, as
compared with 116,387 tons, valued at F38,389,630 in 1914. The
establishment of the government system of fiber grading and inspec-
tion has materially improved both the quality of fiber exported and
the market conditions in foreign countries.
MAGUEY.
As a result of an increased demand for this fiber, together with the
educational campaign carried on with the maguey planters by the
bureau of agriculture, the exports of maguey have materially in-
creased, and there has been a marked improvement in quality during
the year.
Personnel of the Bureau of Agriculture.
Mr. H. T. Edwards, director of agriculture, was on leave of
absence in the United States from April 16, to November 19, during
which period Mr. Adriano Hernandez was designated acting director
of agriculture. Mr. William E. Cobey, formerly chief clerk, was
appointed assistant director of agriculture on January 1, 1915.
Digitized by VjOOQIC
REPORT OF THE SECRETARY OF PUBUC INSTRUCTION. 225
There has been a reductioi^ of 17 employees in the American per-
sonnel, of which 9 were classified and 8 temporary, and an increase
of 73 employees in the Filipino personnel, of which 15 were classi-
fied and 58 temporary.
Organization.
The work of the bureau was reorganized on February 1, 1915, and
the number of divisions reduced from 11 to 6. The changes made
have resulted in a reduction in overhead expenses and have brought
the various lines of work into closer coordination.
Administration Division.
The central office of the bureau was entirely remodeled early in the
y^ear with a view of increasing space and improving sanitary condi-
tions. The steadily growing interest on the part of the public in
the work of the bureau is indicated by the fact that ^4,211 official
communications were handled by the central office during 1915, as
compared with 56,915 in 1914, an increase of 65 per cent in one
year.
The system of accounting was revised by the Insular Auditor at
the beginning of the year.
Office of American Colonies.
The majority of the colonists at the American colony at Momungan
have cleared and placed under cultivation from 5 to 15 hectares of
land. Unfavorable weather conditions and shortage of funds have
retarded the development of this colony, but in general fair progress
has been made. Regular shipments of sweet potatoes, corn, and pea-
nuts are now being sent from the colony to Manila, and money
crops to the value of approximately 1P20,000 have been produced
during the year. A school has been established at the colony by the
bureau of education. Health conditions throughout the year have
been excellent.
Animal Husbandry Division.
The demand for improved live stock, particularly cattle, swine and
poultry, is increasing each year. The resources of the bureau of
agriculture have been severely taxed to meet this demand and all of
the breeding animals that could be spared from the government stock
farms have either been sold or sent into the Provinces for public
breeding purposes. At the close of the year the bureau was main-
taining 26 stallions, 17 bulls, 37 hioars and 5 billies for public breed-
ing at 39 different places in 17 Provinces. Four hundred and eighty-
five head, principally breeding animals, were sold to the public from
the government stock farms during the year.
Veterinary Division.
rinderpest.
The control of rinderpest in the Islands continues to be a difficult
problem, and it is clearly evident that a well-organized and efficient
veterinary force must be maintained for many years to come. The
Digitized by VjOOQIC
226 REPORT OP THE PHILIPPINE COMMISSION.
total number of reported deaths from rinderpest for the year was
2,305 as compared with 2,715 for 1914. When it is considered that
there are nearly 2,000,000 cattle and carabaos in the islands, it is
apparent that the death rate from rinderpest is a comparatively
iiipignifieant factor in the live-stock industry. There is no doubt,
however, that any r(elaxation in the rinderpest control work will be
followed by a spread of the disease.
Immunizing work has been continued at one station in Pampanga
and at the Iloilo quarantine station. At the Pampanga station
the total number of cattle and carabaos immunized was 3,845 with
a mortality of 97, or 2.5 per cent. At the Iloilo station 3,469 animals
were immunized with a loss of 52, or 1.5 per cent. A limited amount
of immunizing has also been done at the Pandacan quarantine
station and on several ranches with satisfactory results. This work
is a very important factor in keeping rinderpest under control and
one which may eventually be of great importance in the eradication
of the disease.
LIVE-STOCK IMPORTATION.
On account of the fact that the supply of frozen meat available
in Australia for the Manila trade has been limited, it has been found
necessary to remove certain of the restrictions governing the impor-
tation of cattle from the China coast ports. On August 11, 1915.
an order was issued permitting the importation of cattle for slaughter
from Hongkong unHer the same restrictions as those from French
Indo-China. On November 23, 1913, the importation of cattle from
Tsingtau and Darien, for slaughter only, was authorized. Orders
have also been issued which authorize the importation of cattle of
Indian breeds for breeding purposes, and the slaughter of Indo-
Chinese cattle at the Iloilo quarantine station.
Plant Industry Division.
The major part of the work of this division has been concentrated
on the six staple crops of the islands. Important investigational
work with 61 varieties' of rice has been carried on at the Alabang
farm, while at the La Carlota station some two thousand cavans of
seed rice were produced. A total of 49,404 gantas of seed rice has
been sold and given away during the year.
In order to meet the increasing demand for seed corn, areas at
the La Carlota station have been planted monthly to provide a
constant supply of fresh seed. This station has furnished approxi-
mately 10 tons of selected seed com during the year.
The principal feature of the sugar-cane work at La Carlota is the
comparative analytical test which is now in the third year of opera-
tion. Thirty varieties of cane are now under observation at this
station. There has been a large demand for foreign varieties of
cane, and 153,700 points have been distributed.
The work with tobacco has been principally along the lines of
seed distribution, and the instruction of the planters in improved
cultural methods. Field experiments with tobacco were entirely de-
stroyed by a typhoon.
At the Lamao horticultural station and at the Singalong station in
Manila both experimental and propagation work are carried on.
Digitized by VjOOQIC
BEPORT OF THE SECRETARY OF PUBLIC INSTRUCTION. 227
Special attention has been given to citrus fruits, annonaceous fruits,
marang, pili, coffee, avocado, and mangosteen. The Lamao station
has furnished nearly 30,000 plants, and the Singalong station about
70,000 plants and cuttings, for distribution.
Forty-seven tons of seeds have been sold and distributed free of
charge, and about 100,000 plants and cuttings have been distributed
during the year. The greater part of the seeds distributed have been
selected varieties of the staple crops of the islands.
Fiber Division.
On January 1, 1915, Act No. 2380, which provides for a govern-
ment system of fiber-grading and inspection in the Philippine
Islands, became effective. The organization and administration of
this work has constituted the most important function of the fiber
division. By the enforcement of this law the grades of abaca, ma-
guey, and sisal have been standardized, the grading establishments
have been required to follow the official standard of grades, and a
system of inspection and supervision of all fiber-grading in the
islands has been instituted.
At the beginning of the year some difficulties were encountered, but
these difficulties have been largely overcome, and early in April, 1915,
the fiber-inspection system was in satisfactory operation.
It was necessary at the outset to select and train an efficient force of
fiber inspectors and assistants, to designate grading stations, and to
issue permits to grading establishments. Twenty-eight grading sta-
tions were designated, and 87 permits were issued to grading estab-
lishments.
During the year the fiber inspectors inspected, stamped, and ap-
proved 1,011,336 bales of abacd, and 59,940 bales of maguey. Thirty-
five thousand bales of abaca, or about 3 per cent of the total produc-
tion, were rejected and ordered regraded.
Demonstration and Extension Division,
office of agricultural demonstration.
The educational work of the bureau of agriculture is carried on
largely by a system of cooperative demonstration and extension work.
Sixty field inspectors have been employed during the past year,
wording with 4,000 cooperators in 22 different Provinces. The essen-
tial purpose of the demonstration work is to show the farmers in a
simple and practical way on their own farms the value of modern
agricultural methods.
During the months of April, May, and June a "rice special"
demonstration train was run over the lines of the Manila Railroad
Co. Stops were made in 45 municipalities in 10 different Provinces.
In each municipality visited the exhibits were explained, demon-
strations were made with modern implements and machinery, and an
illustrated lecture was given.
OFFICE OF PEST CONTROL.
The locust infestation of 1915 has been unusually severe and wide-
spread, nearly every Province having been infested at some time dur-
ing the year. The bureau of agriciSture has detailed traiped lociwt
^ Digitized by V:iOOQlC
228 BEPORT OF THE PHILIPPINE COMMISSION.
inspectors in 30 different Provinces, who have assisted the local offi-
cials in organizing and conducting the locust campaign. Allotments
of funds in the amount of ?'37,5G0, and distribution of equipment
valued at ^11,552, have been made to the l6cust-infested provinces.
At the close of the year the area of infestation had been largely re-
duced, and the locust situation was well under control.
Under the provisions of Act No. 2515 a plant-quarantine service
has been organized, and 205 certificates of inspection have been
issued covering shipments of plants made from the Philippines to
various places throughout the world.
The control of coconut bud rot has been an extremely important
phase of the year's activities. On April 27 General Order No. 38 of
the bureau of agriculture, dealing with the coconut bud-rot situation,
was issued. Inspectors were detailed on this work, and during the
remainder of the year 1,335,412 coconut trees were examined and 568
infected trees were destroyed. The indications are that this dan-
gerous disease has now been largely stamped out.
OFFICE OF COOPERATIVE ORGANIZATION.
The activities of this office have been fully discussed in this report
under " Cooperation."
OFFICE OF PUBLICATIONS.
The publications now issued by the bureau of agriculture include
The Philippine Agricultural Review, which has been changed from
a monthly to a quarterly ; The Philippine Farmer, a monthly farm
paper ; and miscellaneous bulletins, pamphlets, and circulars. During
the year 18,914 miscellaneous publications were distributed, and 1,079
books and pamphlets were accessioned to the bureau library.
OFFICE OF STATISTICS.
There have been received during the year from municipal presi-
dents 3,372 quarterly reports on crops and live stock, and from pro-
vincial governors 407 monthly reports on crop conditions. The data
contained in these reports are compiled in the office of statistics and
are widely distributed.
BUBEAU OF PRINTING.
Vocational Training.
The various classes were maintained with a sufficient quota to pro-
vide for all requirements of the service, and 173 advances were made
by apprentices and junior craftsmen during the year.
Personnel.
There were 414 employees on the rolls of the bureau of printing
on December 31, 1915. Of these 391 were Filipinos, 21 Americans,
and 2 East Indians. The number of employees on the rolls December
31, 1915, was practically the same as at the close of the fiscal year
Digitized by VjOOQIC
EEPOBT OF THE SECRETARY OF PUBLIC INSTRUCTION, v 229
1914, although the Filipino personnel increased 1.2 per cent. Fili-
pinos at the present time constitute 94.9 per cent of the total force.
Fiscal Operation.
The product of the bureau for the fiscal year 1915 amounted to
P789,119.30 and included 10,550 work orders, of which 6,375, amount-
ing to ^536,239.50, were for the insular government ; 2,878, amount-
ing to ^02,348.47, for the provincial governments, including the city
of Baguio; 744, amounting to ^7,120.73, for the city of Manila;
and for the Federal Government and others, 553, amounting to
^13,367.66. There were issued from stock documents and publica-
tions to the value of 1P4i,987.07 and stock forms to the value of
W77,536.59. The cost of printing paper and all other supplies re-
quired for operation was ^23,172.16.
Appropriation, Act No. 2431.
Act No. 2431 provided the bureau of printing with a net appro-
priation of ^18,473.11 for expenditures during the fiscal year 1915,
and the bureau was able to close the year without an appeal to the
emergency board.
BTTBEAU OF FBISONS.
On January 1, 1915, the San Ramon Penal Farm was trans-
ferred from the Province of Mindanao and Sulu to the jurisdiction
and control of the director of prisons.
Prison Population and the Status of Crime,
On December ,31, 1915, the prison population of the Philippine
Islands was 6,981.
This represents an increase of 218, or slightly more than 3 per
cent, as the number on December 31, 1914, was 6,763.
The number of insular prisoners on hand on December 31, 1914,
was 5,118 and dn December 31, 1915, 5,743. These prisoners are
insular only in the sense that they are Bilibid prisoners — under
the immediate control of the insular bureau headquarters and
either confined in Bilibid Prison or detailed from there to work
elsewhere.
The average number of insular prisoners in confinement daily
during the year was 5,618.75 while the average number during the
period covered by the previous report was 5,158.54.
The number of provincial prisoners on hand December 31, 1914,
was 1,645 and on December 31, 1915, 1,238, a decrease of 407.
Bilibid Prison, — ^The number of prisoners in Bilibid Prison on
December 31, 1914, was 2,609 and on December 31, 1915, 2,598, a
decrease of 11.
There was a daily average of 31.56 prisoners passing one way or
the other through the gates of Bilibid Prison, which is an increase
of 4 over the daily average of the preceding year.
The number of commitments by the court was 4,705, as against
3,890 for the year 1914.
Digitized by VjOOQIC
230 REPORT OF THE PHILIPPINE COMMISSION.
Of the 4,705 prisoners committed this year there were only 982
from the Provinces, while 3,723 were from Manila, as against 1,009
from the Provinces and 2,881 from Manila last year. Those commit-
ted from Manila include short-term municipal prisoners as well as
insular prisoners.
Prisoners' Court.
Prior to June 18, 1915, prisoners were tried for breaches of prison
discipline by the second assistant director who was designated sum-
mary court officer, but as the prisoners' court inaugurated by the
present director of prisons at San Ramon Penal Farm when super-
intendent there was productive of such eminently satisfactory re-
sults, a prisoners' court for Bilibid Prison, composed entirely of
prisoners, was appointed on the above-mentioned date consisting
of nine members; a president, four judges, one fiscal, one attorney,
and two sheriffs.
Offenders brought before this court are permitted to testify in
their own defense and are defended by the attorney. Witnesses are
called for both defense and prosecution, and the entire business of
the court is conducted in a manner as similar as circumstances will
permit to that of the regularly established courts.
Since its inception on June 18, 1915, to December 31, 1915, the
court has tried 2,022 cases, and a good idea of its efficiency may be
gained from the fact that in only 5 per cent of the total cases tried
were the findings in any way modified by the director.
Maintenance.
The per capita cost of maintenance during the year was ^.236603
per day which is a reduction of nearly 2^ centavos over last year's
per capita cost. This reduction was brought about by the strictest
economy practices only, as the great majority of the items required
for the maintenance of prisoners have materially increased in cost.
The net saving per prisoner for the year was slightly over 8 pesos.
The excellent physical condition of the inmates is the best proof of
the quantity and quality of the rations issued.
Eeligious Services.
Religious services have been conducted each Sunday by the prison
chaplain and by various visiting Protestant ministers.
Industrial Division.
As in former years, the principal aims of the industrial division
are, to teach useful trades to prisoners and useful methods that will
be of real benefit to the released prisoner; the use of home-product
material for manufacturing purposes; noninterference with local
manufacturing enterprises; to maintain the industrial division on a
self-sustaining and money-earning basis; and, as a new feature, to
enable prisoners to aid their families by paying the deserving classi-
fied workmen a certain percentage of the net earnings. On Decem-
ber 31 there were 1,219 prisoners working in the industrial division,
or nearly 50 per cent of the total Bilibid population. The princi-
pal home-product materials used are lumber and bejuco, and to en-
Digitized by VjOOQIC
REPORT OF THE SECRETARY OF PUBLIC INSTRUCTION. 231
courage the local bejuco industry a Chinese bejuco expert has been
employed. It i^ gratifying to state that the net earnings of the
industrial division for the year 1915 showed an increase of
^19,035.72, or about 60 per cent. In addition to this profit, ^37,-
635.98 was paid to the bureau of prisons for prison labor, making
a net income to the Government as a result of the industrial division
operations during the year 1915 of ^88,207.03.
Schools. *
Particular attention has been given to educational work during
the year under the supervision of the assistant director, and while
the number of inmates enrolled in the regular classes is considerably
less than on December 31, 1914, much better results are apparent.
After close observation it was learned that a great number of the
older men were merely taking up the time of the teachers and re-
tarding the progress of the younger men who were anxious to learn,
and the former were gradually eliminated and assigned to regular
hours in the different shops to learn trades which might enable them
to earn a livelihood after release. None, however, who manifested
a desire to remain were taken out of the school.
The academic work of the female inmates has been under the
supervision of a very able teacher detailed for one hour each school
day by the superintendent of city schools, while the industrial features
are in charge of the matron and one embroidery instructor.
Improvements and Repairs.
A number of much needed repairs and improvements have been
made during the year with no cost to the government except for the
necessary supervision and material. The most important of these
were the building of one concrete brigade for women; one target
butt; remodeling one cell-house; replacing old wooden floors in
assistant director's and accountant's offices with concrete floors, and
general repairs to, the administration building.
Health and Sanitation.
The chief of the prison sanitation division is under the direction
and control of the director of health.
We have enjoyed a year free from epidemics and the health of the
prisoners has been exceptionally good. The stringent five day's
quarantine of all new arrivals has been strictly maintained and
has prevented the introduction into the prison of numerous diseases
and afforded speedv relief to new arrivals proven, by blood and
other tests, to be infected. The total deaths for the year were 76, or
13.33 per 1,000, as against a total of 99, or 18.94 per 1,000, for the
preceding year, the chief cause of death, as in all former years,
being pulmonary tuberculosis.
IwAHiG Penal Colony.
The conditions existing at this successful colony are extremely
gratifying, and too much credit can not be given the colony officials
for their imtiring efforts in bringing about such conditions. The
average daily number of colonists shows quite a reduction over that
of the preceding year, owing to a considerably less number being
61983—16 ^16
Digitized by VjOOQIC
232
EEPOET OF THE PHILIPPINE COMMIS^ON.
eligible for transfer to the colony, the daily average for the different
classes being as follows:
Free colonists 37. 92
Penal colonists I-._IIII 1, 200. 64
Members of colonists' families I__I 50. 40
Total :. 1,288. 96
The increase in the total value of products raised at the colony
was approximately f=8,000 over the preceding year, the total value
for 1915 being approximately ^37,600. The daily per capita cost of
maintenance for 1915 was ^.240196 as against TOMOld in 1914; a
saving of nearly 7 centavos, this saving being accomplished partly
through increased production but principally through economy. The
health conditions at the colony may be considered good, the death
rate for the year being 22.25 per 1,000. There was a total of 31
deaths, 4 escaped colonists killed while resisting arrest, 17 of tuber-
culosis, 3 malaria, 2 black-water fever, and 1 each of rheumatism,
dysentery, apoplexy, pneumonia, and beriberi.
San Ramon Penal Farm.
Executive Order No. 102, dated November 23, 1914, transferred
the San Ramon Penal Farm to this bureau, effective January 1,
1915. There were in confinement on December 31, 1914, 472 prisoners,
while on December 31, 1915, there were 559, an increase of 87. This
increase is due principally to the transfer of 64 prisoners from
Bilibid Prison. The health conditions at the farm have been ex-
cellent, only three deaths having occurred during the year, one of
beriberi, one of pyrma, and one of pulmonary embolism. The daily
cost of maintenance per capita durmg the year was ^.28662. The
principal products of the farm are copra and corn, and the total
value of farm products was ^=35,600, of which approximately ^=21,000
worth were sold, and the balance was used for subsistence of
prisoners.
BUREAU OF SUPPLY.
The following summary outlines the operations of this bureau
during the year 1915 :
Total value of sales (5.54 per cent Increase over the year 1914) _> W, 292, 369. 32
Local purchases (67.74 per cent) 3,990,043. 57
Importations from the United States (30.88 per cent) 1, 818, 695. 89
Foreign importations (1.38 per cent) 8i, 521. 92
Total purchases . 5, 890, 261. 38
Comparison of percentages with those of the preceding year
shows the following result :
Foreign
importa-
tions.
United
States
importa-
tions.
Local
pur-
chases.
Jan. 1-Dec. 31, 1914.
Jan.l-Dec.31,1916..
Per cent.
10.18
1.38
Per cent.
28.44
30.88
Percent
61.38
67.74
The large reduction in percentage of foreign importations was
due to two factors: First, foreign purchases were abnormally iiigh in
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REPOBT OF THE SECEETARY OF PUBLIC INSTRUCTION. 233
1914 on account of importation of rice from Saigon at the beginning
of the European war, and second, purchases from continental Europe
have been practically suspended during the progress of the war.
Curtailment of the European market necessarily resulted in ^
greater dependence upon the United States as a source of supply for
goods formerly obtained from Germany, Austria, France, etc.,
which partly explains the increase of United States importations of
2.44 per cent. Goods were also ordered direct from the United
States during the early part of the year 1915 to take advantage of
low freight rate of $8 per ton, which expired June 30, 1915.
The above figures of total purchases are exclusive of direct-order
and payment-system purchases, which amounted to approximately
^900,000.
The gross income from surcharges, etc., during the year amounted
to ^369,777.24, an increase of 10.05 per cent over the eaj'nings for the
year ;1914. The cost of operation was 1^305,595.59 (a decrease of
14.89 per cent), leaving a net gain of ^64,181.65. Against this must
be placed an " extraordinary expense " charge of ^=59,751.68, making
the actual net -gain December 31, 1915, 1^4,429.97. This latter charge
is in the nature of a depreciation charge and does not represent
money paid out during the year.
The ratio of operating expenses to the net (cost) value of sales
was 5.21 per cent, which is the lowest for any year since the establish-
ment of the bureau, and compares with a ratio of 6.47 per cent for
the year 1914.
The cost value of merchandise on hand December 31, 1915, was
^1,965,966.18, or M6,853.72 less than the amount on hand at the
close of 1914 ; a nominal decrease indicating that a stock of approxi-
mately 1P2,000,000 in value should be carried to properly provide for
the Government's requirements. Segregating sales from stock and
" agency " sales (i. e., goods purchased from merchants to fill requi-
sitions and not taken into stock) shows the following result: Sales
from stock, f^,706,971.22 ; " agency " sales, ^3,186,380.04.
This indicates a stock " turnover " of practically one and one-half
times every year.
Division of Supplies.
The total tonnage of sliipments (to provincial points) and deliv-
eries (in the city of Manila) for 1915 was 115,507.812 metric tons;
receipts, 53,682.893 metric tons, making an aggregate tonnage han-
dled of 169,190.705. This compares with about 165,000 tons during
1914. Expense of handling this large tonnage was less than in 1914,
which in turn was materially less than in 1913.
Civilrservice changes.
Americans.
Filipinos
Appointments
Separations
Promotions
Reductions
Changes in temporary and emergency employees:
Appointments
Promotions
Separations
11
5
5
11
13
20
1 By transfer.
Digitized by VjOOQIC
234 report of the philippine commission. *
Division of Cold Storage.
Gross receipts were materially decreased from those of the pre-
ceding year, being f=436,324.69, against f=508,007.39 for 1914. The
largest decrease was ^8,508.83 for ice, whereas water sales increased
^3,913.15, or 11 per cent. The net decrease for 1915 was ^1,682.70.
Expenses for operation and maintenance were f=298,418.32, leaving
a net surplus of 1P137,906.37. This figure for 1914 was ^194,940.99.
The surplus for 1914, however, was reinvested in the plant, while
!P111,120.05 of the 1915 surplus was reverted to the unappropriated
surplus of the insular government.
General.
Abnormal conditions as a result of the European war caused
increased prices in the majority of lines, due both to advances in the
cost of the materials themselves and higher freights. It was also
impossible to secure as prompt deliveries as formerly.
Personnel.
On June 5, 1915, Maj. E. G. Shields, who had been purchasing
agent since the establishment of the bureau, left on a trip to the
United States for the purpose of closing out the property of the
sales agency still on hand there. He was obliged to relinquish this
work on account of poor health. Mr. Mills Dean was designated act-
ing purchasing agent on the departure of Maj. Shields, and continued
id so act until October 3, 1915, when he resigned from the Govern-
ment service. He was, however, commissioned to complete the work
of disposal of the sales agency stock upon his arrival in the United
States. On October 5, 1915, Mr. J. W. B. Mannion, chief buyer of
the bureau, was made acting purchasing agent, which position he
held during the balance of the year.
PHILIPPINE LIBBABY.
The work of the Philippine Library was carried on successfully
during the year, although hampered by an insufficient personnel, due
to the absence on leave of five of its officers. On January 15, 1915,
Dr. James A. Eobertson, librarian, went to San Francisco to take
charge of the library exhibit at the Panama-Pacific International
Exposition and Mr. Manuel Artigas, the assistant librarian and
chief of the Filipiniana division, assumed charge of the Library
until the end of the year.
A comparative statement of the appropriations and expenditures
for the years 1914 and 1915 shows that, while the activities of the
Library were in no way curtailed, the actual expenditure for 1915
was ^9,642.87 less than for the previous year.
Digitized by VjOOQIC
REPORT OF THE SECRETARY OF PUBLIC INSTRUCTION. 235
Comparative statement of appropriations j fiscal years 1914 and 1915,
1914.
Act No. 2319 rrO, 747. 86
Act No. 2059 21, 247. 95
91, 995. 81
1915.
Act No. 2431 f 76, 237. 86
Deduction as per sec-
tion 10 3, 811. 89
Net appropriation 72,425.97
Balance of Act No. 2059- 11, 693. 38
Total appropria-
tion 84, 119. 3a
1915. 1914.
'I'otal net expenditures pertaining to fiscal years f^5, 429. 83 ^76, 068. 65
Trior year expense" 1,022.03 26.08
Total expendit\ires 66, 451. 86 76, 094. 73
FiLiPiNiANA Division.
The constant demand for the material in this division made neces-
h:i\vj a change in the hours during which it is open to the public, it
now being accessible three hours per day longer than heretofore.
During the year 755 books were added to the already splendid col-
lection and 21,499 volumes are now housed by this division. Among
the valuable materials purchased were the manuscripts of Apolinario
Mabini.
Circulating Division.
This division received its greatest patronage from the students of
the public schools and colleges, with insular employees next and
business men and their families third. The indiscriminate choice of
reading matter by young people has given the employees of the divi-
sion much concern and in consequence student and school children
privileges have been limited to one fiction card and one nonfiction
card in an attempt to lead them from the cheaper forms of literature
to the higher types having real literary value.
The total book circulation for the year stood by cards 106,299;
deposit libraries 3,941; issued to reading room 1,243; memorandum
receipt 940 books; mailed to Provinces 198, with a total of 112,621.
There were 435 letters written and 12,572 post-card notices mailed
out; 4,357 periodicals sent to the enlisted men of the United States
Army and 11 boxes of magazines shipped to hospitals and prisons.
The fines and payment on books lost and damaged amounted to
n,456.25.
On December 31, 1915, there were 12,572 indexed library cards.
The year showed an increase of 6,062 cards issued, the greater number
to English-speaking Filipinos.
Public Documents Division.
This division had 2,119 readers during the year as against 1,317
for 1914, an increase of 802.
Aside from the books read in the division, 5,073 documents were
loaned duryig the year as against 3,667 during the year 1914. The
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236 BEPOBT OF THE PHILIPPINE COMMISSION.
division has been particularly useful to members of the Legislature
in their study of laws of other countries.
Catalogue Division.
The work of cataloguing has gone on steadily, 3,686 books being
catalogued, but at the end of the year 5,841 boots were left on the
shelves uncatalogued. This is a result of the lack of trained assist-
ants in the division.
Periodical and Reference Division.
The eagerness with which the public seeks news of the outer world
places this division second in popularity with the other divisions
of the library, 74,069 readers having availed themselves of the period-
icals and reierence books on file. Twenty-one thousand and ninety-
seven periodicals were received, either through subscription or by
donation, and placed at the disposition of the public.
PUBLIC WELFARE 30ABD.
The public-welfare board continued its work during the year
along the lines upon which it was organized. Its principal activities
have been in the matter of systematizing and coordinating the work
of charitable organizations in the islands and in an attempt to secure
a more businesslike use of the money devoted to public- welfare pur-
poses. Particular attention should be called to the " better babies ^'
show in Rizal Province, which is described in the' report of the
bureau of education. The public-welfare board made an appro-
priation from its funds and used its influence in organizing a baby
show, probably the first one held in the Orient. Particular attention
should also be called to the T^lanks which were prepared by a com-
mittee of the board for the purpose of securing reports irom the
various organizations that receive government aid in various kinds
of charitable work. The reports establish a unit and require state-
ments showing the unit cost. It is believed these reports will show
a wide diflference in the unit cost and it is also believed that the
board will be enabled to secure a much greater degree of eflSciency
in a business which has always been honest but not very efficient.
The Legislature appropriated ^00,000 for charitable work. The
appropriation was made in a lump sum, the allotment to be made by
the public-welfare board. Judging from the interest displayed by
the different members of the* board and the gradual cooperation
of the organizations which receive government aid, there is no
doubt of the usefulness of the public-welfare board.
BECOMMENBATION.
I have decided to make only one recommendation, hoping thereby
to enliance its chance to receive favorable consideration.
That recommendation is in connection with the schools. While
the islands are not as well supplied with schools of the academic
type as we could wish, our equipment compares favorably with the
schools of most other countries, and my recommendation is that for
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BEPOBT OF THE SEOBETABY OF PUBLIC INSTBUOTION. 237
the immediate future, after providing for the maintenance of thd
schools we now have, we devote our entire resources available for
school purposes to the establishment of agricultural schools. The
basis of the system should be the Muiioz type. There should be
enough schools of that type in each Province to accommodate* the
young men of the Province. Each school of that type should be
conducted in connection with a well-equipped farm of sufficient size
to occupy the major part of the boys' time in actual farm work,
leaving only a minor fraction for academic studies.
Above the tyije which I have described there should be in each
Province a provincial agricultural school where the more ambitious
of the boys m the lower schools might have opportunity to continue
their farm training and, incidentally, their studies. The provincial
school should also be conducted in connection with a well-equipped
farm. The agriculfural college at Los Bafios would furnish a
suitable finish for the system.
All the above schools should be supplied with dormitories where
the boys may live. My judgment is that the buildings should, for
the present as least, be of cheap construction.
It would be desirable, of course, to have the boys take the full
course in the three schools, but I believe the primary purpose in the
management of the schools should be to make farmers, leaving the
question of a full course to the individual young man.
The course which I am recommending is open to the objection
that it does not provide for the girls. I think, however, that the
result of the establishment of the proposed system would be that a
sufficient number of boys would withdraw from the academic school
to make room for all the girls who desire to attend.
Respectfully submitted.
H. S. Martin,
Secretary of Public Instruction.
To the honorable the Phiuppinb Commissioi^.
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Digitized by VjOOQIC
DEPARTMENT OF MINDANAO AND SULU.
The Government of the Phh^ppine Isiands,
Office of the Governor,
Zamboangg.^ P. /., January W^ 1916.
The Governor General of the PHHiipPiNE Islands,
Manila^ P. I.
Sir: I have the honor to submit the following report of affairs of
the Department of TMindanao-Sulu for the fiscal year ending De-
cember 31, 1915 :
In the last annual report, in addition to the recital of certain his-
torical and fundamental facts, there were discussed at length many
matters of policy and information otherwise presented to assure a
comprehensive view and correct understanding of the present gov-
ernment in Min^anao-Sulu, its undertakings, and results. In the
interest of brevity and for other sufficient reasons it seems unneces-
sary to repeat matter contained in a previous report, which it is
suggested he considered the basis for this and subsequent reports.
Therefore the text of the present report will be limited, so far as
possible, to the statement of occurrences of noteworthy significance
during the year 1915, which, it is to be noted, is at the same time both
the calendar and fiscal period, as is the practice of the Philippine
Government and all its subordinate branches.
The same chapter titles or subject heads are used in this report as
in the preceding one.
1. Area.
There has been no change in the area or territorial extent of the
department during the year.
2. Population.
There has been no authorized census or enumeration of the popu-
lation during the year warranting a modification of the tables given
in the 1914 report. However, it is believed that the estimated popula-
tion of 626,086 stated in that report is materially less than the actual
number of inhabitants within the seven Provinces of the depart-
ment. This belief is premised upon personal observations of the de-
partment governor and his associate and subordinate officers, who, in
their inspection trips, have now not only visited every village and
settlement of importance but also practically every hamlet and in-
habited locality. Furthermore, not only the constant net increase —
excess of births over deaths — ^but also considerable omissions made
in the 1903 census and later estimates, and especially the very con-
siderable immigration from Luzon and Visayas by small native
239
Digitized by VjOOQIC
240 REPORT OF THE PHILIPPINE COMMISSION.
crafts, without government aid or statistical notation, all contribute
to render certain the inadequacy of the figures cited in the 1914
report.
In view of the uncertainty as to when a general census of the
Philippine Islands will be taken, it is the purpose of the department
government to begin during 1916 a systematic enumeration of the
people and establisn a statistical basis which will be authoritative and
of material service in the future.
3. Legislation.
There was no action of this character taken by the administrative
council during the year, except the adoption of estimates and appro-
priation of imnds pursuant to the requirements of the Philippine
Commission, and the fixing of the hours of employment in the va-
rious offices in the department and its subdivisions at eight hours
daily with a reduction of one hour in the middle of the day during
the so-called "hot season." While these hours are materially in ex-
cess of those required in the insular, bureaus and offices in which the
statutory requirement is six and one-half hours and during the
"hot season" merely a morning session of five hours, yet the results
of two years' experience seem to indicate that the approximation to
the commercial requirements as to hours of labor has been without
prejudice to the health and efficiency of the employees, as it certainly
has met the compelling necessity of reasonably prompt dispatch of
official business by the very small personnel available in the several
offices.
There have been no removals of officers or employees requiring
action by the council.
The following is a list of titles of acts passed by the Philippine
Commission constituting special legislation for the department dur-
ing the year 1915:
No. 2513. An act making appropriations for the maintenance of a hospital
ship for use in j;he Department of Mindanao and Sulu, and for other purposes.
No. 2514. An act amending act numbered Twenty -two hundred and eighty-
three, entitled "An act making appropriations for public works and permanent
improvements in the Provinces of Agusan and Nueva Vizcaya, the Mountain
Province, and the Moro Province."
No. 2520. An act providing for the selection of assessors for courts of first
instance and justice of the peace courts in the Department of Mindanao and
Sulu, and for a special procedure for the determination of civil and criminal
cases in which the parties are Mohammedans or pagans.
No. 2521. An act appropriating the sum of two thousand five hundred pesos
for the bureau of forestry, for expenditure in the Department of Mindanao
and Sulu.
No. 2523. An act appropriating the sum of twenty thousand pesos for the ex-
termination of locusts and the suppression and prevention of rinderpest in the
Mountain Province, the Province of Nuev^ Vizcaya, and the Department of
Mindanao and Sulu, and for other purposes.
No. 2525. An act appropriating the sum of ten thousand pesos, or so mudi
thereof as may be necessary, for combating cholera in the Department of Min-
danao and Sulu.
No. 2531. (Philippine Legislature.) An act to appropriate one million pesos
for primary schools and purposes related therewith in the territory inhabited
by Mohammedans or other non-Christian Filipinos.
No. 2533. An act amending act numbered Three hundred and twenty-four 6f
the Legislative Council, entitled "An act providing for the levy, assessment,
and collection of an ad valorem tax on real property in the D^artment of
Mindanao and Sulu, creating the position of assessor for the department, and
Digitized by VjOOQIC
BEPORT OF THE DEPARTMENT OF MINDANAO AND SULU, 241
defining the powers and duties of such oflScer^ and repealing existing incon-
sistent legislation."
No. 2543. An act mailing appropriations for current expenses and public
works and permanent improvements in the Department of Mindanao and Sulu
for the fiscal year ending December thirty-first, nineteen hundred and sixteen.
The f ollowingis a list of acts of the Philippine Commission ex-
tending to the Department of Mindanao-Sulu certain acts of the
Philippine Legislature of general application :
No. 2517. An act extending with certain amendments the provisions of act
numbered Twenty-four hundred and thirty-two (internal-revenue law), as
amended, to the territory inhabited by Moros or other non-Christian tribes.
No. 2518. An act extending to the Department of Mindanao and Sulu the pro-
visions of act numbered Twenty-four hundred and ninety-five, etitled " An act
to amend certain sections of act numbered Twenty-three hundred and forty-
seven, entitled 'An act to provide for the reorganization of the courts of first
instance and of the court of land registration,' by changing the dates of the
terms, the seats, and the jurisdiction of certain courts, and for other purposes."
No. 2522. An act making applicable to the Department of Mindanao and
Sulu 'act numbered Twenty-four hundred and seventy -two (entitled "An act
repealipg acts numbered Eight hundred and seventeen. Eight hundred and
thirty-four, and Twenty-one hundred and twenty-one by changing the method
of appointment of locust boards, and by defining the relation of the bureau of
agriculture to locust boards, to be known as the * Locust Act ' ").
No. 2530. An act ncDaking applicable to that part of the Philippine Islands in-
habited by Moros or other non-Christian tribes act numbered Twenty-five hun-
dred and fifteen of the Philippine Legislature (entitled "An act to prevent the
exportation of infested or diseased plant material from, and the introduction of
plant pests and diseases into, the Philippine Islands, and to provide for the con-
trol of such plant pests and diseases as may already exist therein: Provided^
That, so far as the Department of Mindanao and Sulu is concerned, the ports of
Zamboanga and Jolo shall be considered as such for the purposes of this
act"), ♦ ♦ ♦.
No. 2536. An act making applicable to the property of the Government of
the Department of Mindanao and Sulu the provisions of act numbered Seven-
teen hundred and twenty-eight, entitled "An act to provide for insurance of
the insular, provincial, and municipal governments against loss from damage
or destruction of government vessels and craft, government machinery, and
permanent public buildings and government property therein, by earthquake,
fire, lightning, flood, typhoon, tornado, hurricane, or cyclone," as amended, and
for other purposes.
No. 2539. An act making applicable to that part of the Philippine Islands in-
habited by Moros or other non-Christian tribes certain acts of the Philippine
Legislature :
No. 2254. ♦ * ♦ appropriating the sum of four thousand pesos for the
establishment of colonies and plantations for the cultivation of rice and other
food cereals, for the better distribution of the population of these islands, and
for other purposes, * * *.
No. 2419. * * * extending the provisions of act numbered Seventeen
hundred and twenty-eight as amended to property acquired by or under the
control of the board created by act numbered Twenty-one hundred and sixty-
three, and for other purposes.
No. 2424. * * * amending act numbered Eighteen hundred and twenty-
nine entitled "An act providing for popular civico-educational lectures In the
municipalities and principally in the barrios of the Philippine Islands."
No. 2426. * * * governing the exportation from the Philippine Islands
during the year nineteen hundred and fifteen of Philippine fibers which come
under the provisions of the act numbered Twenty-three hundred and eighty of
the Third Philippine Legislature, and which may have been graded and baled
prior to January first, nineteen hundred and fifteen.
No. 2427. * * * revising the insurance laws and regulating insurance
business in the Philippine Islands.
No. 2430. * * * amending section one hundred and ninety-two of act
numbered Twenty-four hundred and twenty-seven, entitled "An act revising
the insurance laws and regulating insurance business in the Philippine Islands,"
by providing that the prohibitions contained in said section shall not affect the
Digitized by VjOOQIC
242 REPORT OF THE PHILIPPINE COMMISSION.
right of an owner of property in the Philippine Islands to apply for and obtain
for himself policies in foreign companies, In cases where said owner does not
make use of the services of any agent, company, or corporation residing or
doing business In the Philippine Islands.
No. 2433. * * * amending act numbered Twenty-three hundred and eighty-
seven relating to the qualifications necessary for the api)olntment of notaries
public by extending said privilege to persons who have passed the examination
for clerk of the court or deputy clerk of the court or who have held said offices,
and for other purposes: Provided, however , That the officers of the Bureau
of lands In charge of cadastral work, homestead applications, and free patents,
may be appointed ex ofl^clo notaries public In all matters connected therewith,
and no fees shall be charged for services rendered therein.
No. 2436. * * * creating the fidelity fund and repealing act numbered
Seventeen hundred and thirty-nine, as amended.
No. 2449. * * ♦ to amend subsection (e) of section two of act numbered
Eighteen hundred and sixty-eight, entitled "An act creating the bureau of labor,
under the department of commerce and police," by providing that a fee may
be charged employers for services rendered by employment agencies of the
bureau of labor.
No. 2450. * ♦ * amending section eighteen of act numbered Fourteen hun-
dred and ninety-three, entitled " The Philippine postal savings bank act,*' as
amended, by providing for an Increase from twenty -five to forty per cent of the
amount available for Investment of the total deposits In the postal savings
bank.
No. 2451. * * * amending paragraph eight of section twelve of act num-
bered Eleven hundred and forty-eight by providing that all timber cut In public
forests shall be measured in the round, and specifically authorizing a reasonable
deduction for certain natural defects, except as herein otherwise provided.
No. 2452. * * * to amend section eight of act numbered Fourteen hundred
and fifty-nine, known as " the corporation law," as amended, by providing a
fee to be collected for the filing of articles of Incorporation by nonstock cor-
porations, and for other purposes.
No. 2453. ♦ * * further amending section thirty-four of act numbered One
hundred and ninety, known as " code of civil procedure," as amended by section
one of act numbered Nineteen hundred and nineteen, by fixing the qualifications
f.nd the maximum fees which may be charged by procur adores judlclales, and
for other purposes.
No. 2454. * * * amending sections thirteen and fourteen of act numbered
seventeen hundred and three, as amended, by authorizing the confinement,
under certain conditions. In municipal jails of persons held pending Investiga-
tion or trial by courts of first Instance and of short-term prisoners, and for
other purposes.
No. 2456. ♦ * * to abolish the privilege of gratuitous medical attendance
of officers and employees and their families in the Philippine Islands, under
certain conditions.
No. 2458. * ♦ * authorizing the registers of deeds of the Philippine Is-
lands to open a daybook in their offices for commercial registry and prescrib-
ing the fees to be paid with regard to commercial documents.
No. 2459. * ♦ * to provide for the Issue of bonds in lieu of destroyed or
defaced bonds of the government of the Philippine Islands under certain con-
ditions.
No. 2460. * * * to amend act numbered six hundred and sixty-six, en-
titled "An act defining property in trade-marks and In trade names and pro-
viding for the protection of the same, defining unfair competition and provid-
ing remedies against the same, providing registration for trade-marks and
trade names, and defining the effect to be given to registration under the
Spanish royal decree of eighteen hundred and eighty-eight relating to the
registration of trade-marks, and the effect to be given to registration under
this act," by forbidding the importation of certain merchandise, and for other
purposes.
No. 2461. ♦ ♦ ♦ to prevent the spread of hydrophobia or rabies and
providing punishment for Infraction of the provisions of this act.
No. 2462. * * * providing new regulations for the examination of den-
tists and the practice of dentistry in the Philippine Islands, and for other
purposes.
No. 2464. ♦ ♦ ♦ to amend section six of act numbered One hundred and
forty-six, entitled "An act creating the ofl[ice of the insular purchasing agent
Digitized by VjOOQIC
REPORT OP THE DEPARTMENT OP MINDANAO AND SULXJ. 243
for the government of the Philippine Archipelago, defining the duties of such
officer, and making an appropriation of one hundred thousand dollars for
the purpose of carrying said act into effect,*' as amended, by authorizing the
chiefs of bureaus and offices of the insular government to make requisitions
for supplies without the approval of the heads of departments, and for, other
purposes.
No. 2465. * * ♦ to amend act numbered two thousand and eighty-three
as amended, entitled "An act to fix the amount of the gold-standard fund,
created under act numbered Nine hundred and thirty-eight, authorizing the
deposit of the excess of the amount so fixed to the credit of the general fund
of the treasury, and authorizing the investment of a portion of the said gold-
standard fund" so as to authorize additional investment.
No. 2467. * * * to reorganize the Philippine Training School for nurses,
to establish a school of midwifery, and for other purposes.
No. 2469. * * * to facilitate cadastral survey work of the Philippine
Islands.
No. 2473. * * ♦ to facilitate to laborers the exercise of their rights
in all cases falling under the provisions of act numbered Eighteen hundred
and seventy-four.
No. 2476. * ♦ ♦ to amend subsection (a) of section four of act num-
bered Twenty-three hundred and eighty, entitled "An Act providing for the
inspection, grading, and baling of abacfi, (manila hemp), maguey (cantala),
sisal, and other fibers," by authorizing grading establishments to have private
brands.
No. 2482. ♦ ♦ * amending section one of act numbered Twenty-one hun-
dred and forty-six, entitled "An act authorizing the Provinces and sub-Provinces
of the Philippine Islands to appropriate from their funds certain sums for
the purpose of granting allowances to young Filipinos in their respective juris-
dictions to enable them to follow a career in the University of the Philip-
pines or any other governmental educational institution in Manila," by pro-
viding that provincial treasurers shall make the payment of the allowances
provided in said act.
No. 2484. * * * further amending section five of act numbered Eighteen
hundred and seventy-five, as amended by act numbered Nineteen , hundred and
thirty-seven and Twenty-two hundred and fifty-nine, providing special pro-
ceeiiings for the settlement and adjudication of land titles.
No. 2487. ♦ * * to amend section fifty-five of act numbered Twenty-three
hundred and thirty-nine, providing that no specific tax shall be collected on
articles sold to the bureau of coast and geodetic survey, purchased with funds
furnished by the Government of the United States.
No. 2489. * * * authorizing special compensation, credits, and modifica-
tion in the sentence of prisqners as a reward for exceptional conduct and
workmanship, and for other purposes.
No. 2490. * * * to create a board of dental hygiene for the purpose of
establishing and maintaining free dental clinics for children matriculated in
public and private schools of primary instruction in the Philippine Islands,
and for other purposes.
No. 2493. * * * to amend act numbered Three hundred and ten, regu-
lating the practice in the Philippine Islands of medicine and surgery in all
their branches, to rex)eal section one of act numbered Sixteen hundred and
thirty-two and act numbered Sixteen hundred and fifty-one, and to provide
for the examination and registration of nurses in the Philippine Islands.
No. 2496. * ♦ * to amend section fifteen of act numbered Fifteen hundred
and eight, entitled " The chattel mortgage law," by establishing a new schedule
for the registration of chattel mortgages.
No. 2497. * ♦ ♦ appropriating the sum of twenty-five thousand pesos or
so much thereof as may be necessary, from funds in the insular treasury not
otherwise appropriated, to be devoted to the increase of domestic breeding and
.work animals and creating a board to determine the location of stock farms
and for other purposes.
No. 2503. * * * to amend section one hundred and sixty-five of act '
numbered Twenty-three hundred and thirty-nine, entitled "An act revising
and consolidating the laws relative to internal revenue."
No. 2504. ♦ * * amending act numbered Eighteen hundred and ninety,
entitled "An act authorizing the Governor General to convey or lease to the
Provinces and municipalities the private property of the insular government,"
Digitized by VjOOQIC
244 REPORT OF THE PHILIPPINE COMMISSION.
by authorizing the Governor General to convey or lease real property owned
by the insular government to cities within the Philippine Islands.
No. 2507. * * * providing for a board of marine examiners for tl\e ex-
amination and licensing of watch officers and engineers on Philippine vessels
in the coastwise trade and for the high seas, license fees, compensation, and
penalties, in certain cases, and repealing certain acts relating thereto.
No. 2508. * * * regulating the creation and operation of "rural agri-
cultural cooperative associations," and for other purposes.
No. 2509. * ♦ ♦ to amend certain sections of act numbered Eleven hundred
and twenty, and for other purposes.
No. 2510. * ♦ * for the purpose of establishing a public welfare board
for the Philippine Islands and deflning its powers, functions, and duties.
No. 2516. ♦ ♦ ♦ to amend act numbered Twenty-two hundred and thirty-
eight, entitled "An act to provide for the revision and correction of land-tax
assessment, the valuation of newly declared real property for the purposes of
taxation, and other purposes," exempting fruit trees from being considered as
Improvements under certain conditions.
No. 2532. ♦ ♦ ♦ to amend act numbered Fourteen hundred 'and seven, by
extending to fifteen years the time during which timber, firewood, resins, stone,
earth, and other forest products may be cut in or taken from the public forests
free of forestry charges and for other purposes.
No. 2448. * * * amending subsection (g) of section forty and subsection
(e) of section forty-three of act numbered Eighty-two as amended by section six
of act numbered Seventeen hundred and ninety-one, by authorizing municipal
councils to malie and collect charges for water supplied by the municipality to
its inhabitants.
No. 2502. * * * to amend subsection (b) of section twenty-one of act num-
bered Eighty-two, known as the municipal code, by providing that the municipal
treasurer may pay the salaries of the municipal officers, employees, and teachers
without the necessity of the pay roll being previously approved by the municipal
council.
4. Policy of Government.
There has been no change during the year in the general policy of
the government in any of its activities.
5. Organization.
There has been no change during the year in the organization of
government which demands attention in this report. There have
been minor changes in the organization of municipal districts, and
these will necessarily continue until the eventual development, of
these districts into organized municipalities.
6. Finance.
Under the terms of the organic act, customs and internal-revenue
collections have been, since January 1, 1915, covered into the insular
treasury, and the entire system of distribution of public revenues
has gone upon a basis identical with that which obtains throughout
the remainder of the Archipelago. Thus the department government
itself is deprived of all revenues derived from taxation and becomes
accordingly dependent upon appropriations from the insular treas-
ury just as any other branch of the insular government.
The department government closed the year 1915 with a balance
of 1^127,051.06, of which ^96,158.88 was available for appropriation.
The Philippine Commission by Act No. 2423 made tne following
Digitized by VjOOQIC
REPORT OF THE DEPARTMENT OP MINDANAO AND SULU. 245
appropriations for the department government and its subordinate
divisions for the fiscal year 1915 :
For the expense of the department government, including the
offices of Jhe governor and members of the administrative council,
and otherwise as the public service may require: Provided, That
the Governor General may require the department secretary or
an assistant to the department governor to perform the duties
of department treasurer or department attorney as in his dis-
cretion may be to the greatest advantage to the public service W12, 000
For aid in the current expenses of the provincial government of
Agusan and the newly organized Provinces of Bukidnon, Cotabato,
Davao, Lanao, Sulu, and Zamboanga 365, 000
For superintendence, maintenance, and other expense of primary
schools, including educational work among adults in elementary
civics, agriculture, and household industries 225,000
For superintendence, maintenance, and other expense of dispensary
stations, public hospitals, and health service 130, 000
For aid in the provision by artesian wells or otherwise of potable
water for municipalities ; for the construction and improvement of
bridges, roads, and trails; provision of landing facilities in the
form of piers, wharves, and otherwise at minor ports ; removal of
obstructions to navigation; and the extension of telephone lines;
for the maintenance of wharves and mooring buoys at the ports of
Jolo and Zamboanga and the reconstruction of the wharf at Zam-
boanga, including the repayment to insular trust funds of the
sum of ^32,000 and interest thereon, which was loaned to the Moro
Province and expended for the improvement of that port of entry. 300, 000
For the payment to Insular trust funds of the loan of ?15,000
with interest thereon, and refund to the municipal government of
Dapitan of payments made on these accounts, for the insular
project of the Rizal memorial at Dapitan 16, 000
For the installation and operation of small radio stations, telegraph
lines, marine cables, and other extensions of the insular tele-
graph service to be expended by the director of posts under the
supervision of the secretary of commerce and police. 25, 000
Total of appropriations by this act 1, 273, 000
and on August 2, 1915, by Act No. 2525 made a further appropria-
tion of ^10,000 for the purpose of combating cholera in Mindanao-
Sulu. Pursuant to the provisions of the above Act No. 2423, these
appropriations were allotted in detail by th'e administrative council
for the purposes for which expenditure was authorized, and the reso-
lutions of the council as approved by the Commission became the
financial (expenditures) program for the year.
Provincial and municipal budgets uniform with those prescribed
by the insular auditor for the regularly organized Provinces were
prepared and as approved for 1915 have constituted the financial
programs for those governments.
The bases for the provincial and municipal budgets have been the
revenues pertaining to those governments supplemented by such in-
sular aid as could be made available by apportionment from the ap-
propriations mentioned in a preceding paragraph.
This year is the first in which the systems of taxation and account-
ing are practically in exact accord with the systems in force in the
regularly organized Provinces. It is not practicable to make a com-
parative study in detail of revenue and expense for 1915 and preced-
ing years without entering into an extended analysis and discussion
of items which would be inappropriate in a general report of this
Digitized by VjOOQIC
246
EEPOBT OF THE PHILIPPINE COMMISSION.
character. However, it may be stated in summary that collections
of local revenues, both provincial and municipal, for 1915 have gen-
erally exceeded collections on corresponding accounts for 1914. The
cedula or capitation tax is and for some years must continue to be the
chief source of revenue from direct taxation. The tax on real estate
in all the Provinces except Davao and Zamboanga will necessarily
be a negligible factor for some years. This will continue to be the
case until by permanent settlement of the people with their holdings
defined, if possible, by surveys and documented with titles in accord-
ance with law, such property may be brought on the assessment lists
and as local conditions warrant this important source of revenue be
developed not only in the outlying districts of the organized munici-
palities but throughout the municipal districts as well.
The revenue collections by Provinces on account of the cedula, the
land tax and other taxation sources may be found in detail in the
auditor's report unless it be found convenient in ther office of the
.Governor General to add the necessary statistical tables to this re-
port after the data shall have been compiled by the insular auditor.
It is impossible at this date to secure complete data from deputy
provincial treasurers stationed in the more remote municipalities and
districts.
The following statement for the department government (exclud-
ing provincial and municipal governments) is taKen from the balance
sheet furnished by the auditor :
Department of Mindanao and Siilu {Central Government) balance sheet.
ASSETS.
Current assets unencumbered:
Cash
Advances to dishursinpr oflQcers
Supplies and sales stock
Accounts receivable
Industrial products
Total current assets
Deferred charges
Cash for current liabilities
Cash for public and private tnists
Term assets: Loans to municipalities
Fixed assets:
Land
Buildings and improvements
Waterworks
Docks and wharves
Total value of plant
Water craft and appurtenances
Motor vehicles and accessories
Land-transportation equipment
Industrial- machinery and implements
Hand tools
Furniture and oflEice equipment
Miscellaneous equipment
Total value of equipment
Total fixed assets
Total assets
Dec. 81,
1914.
DeC'Sl,
1915.
(¥^0,662.44)
1,044.02
20,860.78
91,812.80
29,150.35
^•60,243.28
2,477.97
17,346.01
25,648.64
21,412.08
112,215.51
127,127.98
677.77
17,499.34
65,242.90
15,000.00
(76.92)
54,34L14
44,212.90
...
117,040.60
407,820.11
1,781.63
199,346.66
83,672.72
336,443.03
232 218.76
725,988.79
652 334.51
33,951.75
14,371.00
23,042.51
7,126.74
3,384.90
68,094.28
12,390.72
32,527.21
6668.00
6 05a 81
102.09
340.90
60,912.60
8; 251.22
162,361.90
114,852.83
888,350.60
767,187.34
1,088,886.21
992,792.44
Digitized by VjOOQIC
REPORT OF THE DEPARTMENT OF MINDANAO AND SULU. 247
Department of Mindanao and Sulu (Central Government) balance sheet — Con.
Dec. 81,
1914.
Dec. 81, -
1916.
LIABILITIES.
Current liabilities: Accounts payable
fl7,499.34
\
f64,341.14
Public and private trusts:
Deposit and trust funds . .
48,666.07
6,676.83
44,212.90
Insular and special disbursing accounts
Total public and private trusts
65,242.90
44,212.90
Term liabilities: Loans payable
42,000.00
■
Total UabiUties
114, 742. 24
98,554.04
NET WORTH.
Current surplus:
General fund-
Appropriated
30,892.18
96,158.88
Unappropriated
109,920.27
Total general fund
109,920.27
127,051.06
Road and bridge fund —
UnaiJpropriated
2,873.01
Total road and bridge fund
2,873.01
Total current surplus .7 ;» . .
112,793.28
861,350.69
127,051.06
767,187.34
Principal account surplus, represented by:
Term and fixed assets less term UabiUties
Total net worth
974,143.97
894,238.40
Total UabiUties and net worth
1,088,886.21
992, 792. 44
With but a small fraction of the population sufficiently advanced
in civilization to exercise the political rights and bear the financial
burdens of organized government, as is decidedly the case in all
the Provinces of the department except Davao and Zamboanga, and
to a very great extent in these two Provinces, there is no escaping the
fact that insular aid in considerable sums must be voted annually to
the maintenance and extension of government, especially public
schools, homestead and free patent surveys, the closer and permanent
location of the more backward elements of population who at present
are shifting and shiftless elements, the aid and direction of immigra-
tion from Luzon and the Visayas, the improvement of navigable
streams by the removal of nonrecurring obstacles to navigation, and
the construction to the necessary extent of trails and in a more
limited way of second-class roads.
This financial dependence of the seven Provinces of this depart-
ment upon the insular treasury for material grants in aid may be
continued indefinitely unless a plan of systematic development work
be determined upon and the necessary funds therefor be provided.
The Mountain Province and the specially organized Provinces of
Mindoro, Nueva Vizcaya, and Palawan, after fifteen years of in-
adequate annual, but almost appalling aggregate, appropriations of
aid from the insular treasury are understood to be dependent still
upon the continuation of such aid. A similar financial history must
be that of Agusan and Bukidnon as well as the five Provinces for-
merly comprised in the Moro Province unless a well-considered plan
61983—16 17
Digitized by VjOOQIC
%
248 BEPOBT OF THE PHILIPPINE 00MMI8SI0K.
be followed and adequate appropriations for development work be
made.
The financial independence of these seven Provinces may be accom-
plished in five years, or a longer period be required to bring them
upon the basis of financial self-support comparable to that of the
regularly organized Provinces. Experience has now been had and
facts are available as to successful methods, unit cost of expense, and
other factors necessary to the formulation of a program when re-
quired for any one or all of the provinces of the department.
7. Public Order.
A state of peace has continued to exist throughout Mindanao-
Sulu.
Public-order conditions generally throughout the department have
improved during the year by reason of the continued well-directed
activity of the constabulary, the increasing cooperation of the massjof
the people with the constabulary, the addition of four organized
companies and some increase in the strength of certain companies
already stationed in the department.
None of the outlaws who had surrendered in previous years has
broken faith by any serious misconduct. The two scout deserters in
Sulu have been eliminated, one by capture and the other killed by
another outlaw. Amdad, the last remaining outlaw of note in Sulu,
was killed by the constabulary on December 22.
Minor incidents of lawlessness among Mohammedans and pagans
have occurred during the year and are reported in detail by the
constabulary. Not one of these incidents has been of especial sig-
nificance. All have been of the character typical since time im-
memorial among these people and of mere local significance. The
constabulary and other government agencies have been successful in
preventing many others of these occurrences and in all cases in which
advance information was obtainable. Where crimes of violence were
committed the agencies of government have been prompt and gen-
erally successful in the apprehension of the criminals and their de-
livery to the courts for trial and punishment.
The most serious occurrence of the year was the desertion of six
scout soldiers (Mohammedans) with their rifles and ammunition
from the Army garrison at Camp Keithley on April 30. These de-
serters were pursued by both Army and constabulary forces but were
able to escape to the eastward into the then practically unexplored
interior district where Bukidnon, Cotabato, and Lanao Provinces
join. This uncontrolled mountainous district has from time imme-
morial been the refuge of lawless characters from the settlements of
central Mindanao. While it has been traversed by individual gov-
ernment agents and by Army and constabulary organizations, it has
never been brought under government control nor made accessible by
opening up of roads and improved trails.
The pursuit of the scout deserters was continued by the con-
stabulary so far as possible with the limited number of such forces
available. In this great unmapped and practically unknown moun-
tainous district the pursuit promised to be a practically- interminable
imdertaking. Accordingly it was decided to adopt a program of
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REPORT OF THE DEPARTMENT OF MINDANAO AND SULU. 249
exploration, mapping, trail and telephone construction, and addi-
tional constabulary stations, which would result in opening up this
district and bringing it definitely under governmental control. The
beginning of the execution of this program has been made, the con-^
stabulary forces being gradually augmented as available with due
regard to maintenance of public order and government control else-
where. The capture of these deserters, together with other lawless
characters and the disarmament of the people by taking up un-
licensed firearms, should be accomplished before the end of 1916,
The fact that crimes of violence have been comparatively few
in number during the year is especially noteworthy because of the
great shortage in foodstuffs, due to the great drought of the pre-
ceding year, recovery from which did not occur until well toward
the middle of 1915, and the large number of unemployed because
of the reduced operations or entire cessation of most of the saw-
mills, pearl fishing, and other enterprises caused by the disturbance
of commerce and reduced demand of foreign markets incident to
the European war.
During the year there were captured by or surrendered to the
constabulary 120 rifles, 17. shotguns, and 74 muskets, revolvers, etc.,
a total of 211; an aggregate of 678 firearms captured and sur-
rendered since January 1, 1914. It is obvious in view of the general
disarmament of the people concluded by the Army in 1913 that the
firearms taken up since then have been the most difficult to secure^
The greatest credit for this important work is due the constabulary.
There were issued during the year 200 licenses for firearms and
l42 special permits to government officers and employees. The total
number of firearms held on regular licenses and special permits
December 31, 1915, was 79 rifles, 454 revolvers, and 711 shotguns,
the holders being government officers and employees (other than
constabulary), planters, and other authorized private persons.
To an increasmg degree during the year 1915 the depastment gov-
ernor has refrained from intervention in directing the use and control
of the constabulary, this course being in accord with the policy of
the discontinuance of the department government as soon as there
may be created a situation as to public administration analogous to
that existing in the regularly constituted Provinces. In so far as
concerns the constabulary, progress in this regard has been remark-
able during the year, for which the greatest credit is due Col. Peter
E. Traub, the district chief, whose work at all times has been dis-
tinguished by keen understanding and close adherence to the funda-
mental principles and the objectives of the present government,
activity, enthusiasm, and the high degree of efficiency which he has
communicated to senior inspectors and junior officers.
The constabulary has borne many burdens not directly its duties,
has cooperated with and in emergencies performed the duties spe-
cifically assigned to other branches of the service.
Special mention should be made of the constabulary officers acting
as provincial health officers of Cotabato, Lanao, and, during a con-
siderable portion of the year, of Sulu; as deputies of the governors in
several Provinces ; and in the arduous and exhausting work of cholera
quarantine and the destruction of locusts.
Digitized by Google
250 EEPORT OF THE PHILIPPINE COMMISSION.-
Due to the continued lack of constabulary it has been necessary
for some of the provincial ^ovemments to maintain mounted or
special police, as stated in the report for 1914. The maintenance
of such forces is not a proper charge against provincial revenues,
but it is obviously unavoidable in such cases as tnat of the Province
of Zaraboanga, for which the total constabulary force available is still
limited to one companv of 48 men.
The organization of municipal police for duty in municipal dis-
tricts and the improvement of the police in organized municipalities
have received due attention and progress has been made durmg the
year. These activities are coordinated with or under the immediate
supervision of the constabulary.
The increase of four companies which has been made in the con-
stabulary organizations assigned to duty in this department and the
further increase of three companies announced for early in 1916 will
greatly increase the efficiency of government in Mindanao-Sulu and
permit the more urgent extensions of control in hitherto unoccupied
districts. Further increases, however, of company organizations and
of land and water transportation must be made if the territory of this
department is to be brought within a definite period on to a basis
of administrative control similar to that obtaining in the remainder
of the archipelago.
United States troops in Mindanao-Sulu, except individual mem-
bers of the service and staff corps, consist of Philippine Scouts only.
Of these, eight battalions are stationed as post garrisons, as follows:
Camp Overton (1) and Camp Keithley (2) in Lanao; Ludlow Bar-
racks (2) at Parang, Cotabato; Augur Barracks (2) at Jolo, Sulu;
and Pettit Barracks (1) atZamboanga.
Except for the field work during a brief period of the garrison at
Camp Keithley in pursuit of its deserters, the Army has not had
occasion to participate in the maintenance of public order during the
year. Capl. Allen S. Fletcher, of the scouts, who had continued on
special duty with the civil establishment and acted as deputy of the
provincial governor of the district lying to the eastward of Lake
Lanao, was relieved on December 31, 1915, to enable him to comply
with orders of the commanding general to resume his military duties.
The enlisted man of the Army Hospital Corps who had been on
special duty in dispensary and public-health work in the district un-
der Deputy Governor Fletcher's jurisdiction was also relieved to re-
sume his military duties. There remains now on civil duty no com-
missioned officer and but one enlisted man of the Army — ^the corporal
of the Hospital Corps on dispensary and public-health work in the
Cotabato River Valley. The department government appreciates
highly the courtesy of the commanding general in permitting the
continuance of Capt. Fletcher and these men on civil duties. They
have rendered service of great value in the organization and estab-
lishment of the present government under the most trying conditions,
involving privations and frequently great personal danger.
The conunanding general, post commanders — ^in fact, the military
establishment in general — ^have extended innumerable courtesies and
offers of material assistance to the department government and its
subdivisions. The great assistance extended by the Army in the
maintenance of the Overton-Keithley road which is so essential to
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REPORT OF THE DEPARTMENT OF MINDANAO AND SULU. 251
the maintenance of public order and in fact to the entire government
establishment in the interior of the Province of Lanao, merits espe-
cial mention and is highly appreciated.
Mindanao-Sulu waters having been at times the scene of patrol
operations by belligerent war vessels, requests have been made by this
office to the (xovernor General for an adeqjiate representation in these
waters by the United States Navy, to insure maintenance of our neu-
trality. Due and conservative reports have been made by this office
of the situation here and of the necessity for the presence of Ameri-
can naval vessels. This matter seems to be one properly for report
by the Governor General.
8. Justice.
There has been no change in the organization of the courts, the
office of the department attorney, nor of the office of the register of
deeds during the year.
Anticipatmg the eventual organization of the Provinces into fiscal
(i. e., prosecuting attorney) districts and also the designation of a
register of deeds for each Province, the budget of 1916 has been
drawn in such a manner as to distribute the cost of these services as
now rendered by the office of the department attorney proportionately
among the Provinces as nearly as may be in accord with the division
of expense which will occur upon such reorganization.
The most important features of the administration of justice dur-
ing the year covered by this report may be summarized as follows :
1. The extension of general laws relating to justice of the peace
courts and the consequent abolition of tribal ward courts. The latter
had been in operation in Mindanao-Sulu for several years prior to
the organization of the department government. Tribal ward courts
were presided over by provincial governors, scout and constabulary
officers, all Americans. Mohammedans and pagans were not per-
mitted to submit their case to a justice court presided by a Christian
Filipino.
Christians and Mohammedans are now tried by the same courts
of justice, and Mohammedans Iiave shown willingness and readiness
to have their cases submitted to Christian Filipino justices of the
peace. The number of cases disposed of in our courts have ac-
cordingly increased. In Sulu and Lanao, centers of Mahommedan-
ism, Mohammedans have submitted to Filipino justices of the peace
questions affecting domestic affairs, hitherto decided and regulated
only by their own spiritual mentors.
2. The welding of our jurisprudence with Mohammedan laws and
customs is being gradually accomplished, through the wisdom of the
Commission in enacting Act No. 2520, authorizing our courts in
deciding cases in which the parties are Mohammedans or pagans to
modify the application of our laws and take into account local laws
and customs. Our courts of first instance have disposed of adminis-
tration cases having in mind Mohammedan inheritance laws.
Usually this objective is attained by the employment of two learned
Mohammedans as assessors, who advise the court on local laws and
customs. Our courts of justice have evidently given satisfaction by
upholding native institutions and practices so far as they are con-
sistent with or not opposed to morality, public policy, or positive
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252 BEPOBT OF THE PHILIPPINE COMMISSION.
m
law. In this respect our judges have shown themselves to be imbued
with true missionary spirit, and wherever the strict interpretation of
the law would work hardship have been inclined to be governed by
the priixciples of justice and equity.
3. The Sultan of Sulu has from time immemorial assumed and
exercised the power to try and decide civil and criminal causes, as
inherent to ecclesiastical authority vested in him as the supreme
head of the Mohammedan Church in Sulu. Although this was ex-
pressly recognized in the so-called Bates treaty, the government has
insisted that the enforcement of criminal laws is essential and in-
herent to the exercise of sovereign power, and trial and adjudication
of civil and criminal causes is vested exclusively in government
courts of justice.
The recognition by the Sultan and dignitaries of the Mohan^medan
Church of this fundamental exercise of sovereignty by the govern-
ment is a signal victory for the administration of justice in this
territory. The fact that in the Mohammedan mind law is only a
particular phase of religion has made it extremely difficult and
delicate to divest Mohammedan Church dignitaries of judicial
powers heretofore exercised by them. However, domestic affairs-
marriages, adoptions, inheritances, etc. — continue to be regulated by
their own spiritual guides, save those cases voluntarily submitted to
our courts.
The following is a brief statement of the operations of the de-
partment attorney's office during 1915, compared with the previous
year :
1914
1«15
Criminal cases
468
8
537
Civil cases
23
476
549
In addition to the foregoing, the attorney's office represented the
insular government in various land registration cases and one cadas-
tral case affecting over 1,500 property owners in the municipalities
of Dapitan and Dipolog, Province of Zamboanga.
A summary of the operations of the office of the register of deeds
follows :
1914
1915
Number of documents recorded
855
^855
1,194
Fees collected
r-4,047
9. PuBMC Health.
Progress has been made during the year in the extension of organi-
zation and efficiency of personnel and equipment of the public-health
service.
The Sulu Public Hospital at Jolo was formally opened on Novem-
ber 7, 1915, the occasion being made a public festival to which were
attracted large numbers of Mohammedan natives to^whom were
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REPOBT OF THE DEPABTMBNT OF MINDANAO AND SULTJ. 258
explained the opportunities offered by the hospital for medical and
surgical relief. The capacity of the hospital is 50 beds, there being
wards for both male and female patients, as well as private rooms.
It is provided with modern conveniences and ample medical and
surgical equipment and supplies. The cost of the building was
^30,000 and of the equipment about ^10,000. Applications for ad-
mission of patients began immediately, and the capa^city of the
hospital has at times proved hardly adequate. Patients come from
great distances of their own volition seeking admission to the hos-
pital. Mohammedan women as well as men are included among the
patients. The hospital staff comprises, in addition to the provincial
health officer, who has supervisory control, two resident physicians,
one male and one female; also three graduate nurses, one male and.
two female; the male nurse, having had postgraduate training and
practical experience in hospital administration, acts as superintend-
ent.. The female nurses have had postgraduate instruction or special
training in midwifery and general obstetrical and gynecological
work. The hospital is equipped with laboratory apparatus for the
necessary bacteriological work in diagnoses, especially of dangerous
communicable diseases. The Sulu Public Hospital during the period
November 15 to December 31, 1915, treated a total of 67 patients
admitted to hospital. Out-patients are included in the statistics for
dispensary cases and treatment.
There is also at Jolo a provisional hospital for communicable dis-
eases, in which are treated all cases of venereal disease occurring
among prostitutes and such others as apply for treatment or are
otherwise discovered. A distinct reduction in the prevalence of
venereal disease has resulted.
There were in operation during the year in Sulu Province 11 dis-
pensaries, an increase of 2 over the preceding year. These dispensa-
ries are located at Jolo (hospital out-patients), Maimbung, Taglibi,
Bual, Bongao, Parang, Indanan, Siasi, Cagayan, Laminusa, and
Tulayan, the last 2 having been established during the year. The
Sulu dispensaries gave medical and surgical reliel to 13,823 indi-
viduals, to whom were given an aggregate of 36,103 treatments.
To combat and so far as possible to eradicate the prevalent water-
borne diseases, especial attention is directed to the improvement of
water supplies. In view of the impossibility of immediate installa-
tion of a general municipal supply of potable water for the village of
Jolo and its adjacent barrios, the provincial health officer successfully
provided pure drinking water by excavating, curbing with concrete,
and closing over local springs in which pumps were mstalled. Such
action was taken in the barrios of Busbus, San Baymundo, Maubug,
and Tulay, with the result that dysentery and other water-borne dis-
eases have practically disappeared in these barrios in which formerly
they were very prevalent. An apparently ample and easily protected
supply of water for the walled town and all the barrios of the munici-
pality of Jolo has been located at a distance of approximately 2 kilo-
meters from the municipal center, and it is hoped that financial and
other arrangements may be concluded and the project completed by
the close of next year — December, 1916.
The Cotabato Public Hospital nas continued in provisional form
in the town of Cotabato, occupying the old buildings purchased from
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254 EEPOET OF THE PHILIPPINE COMMISSION.
the Army. The personnel of the hospital has included, in addition
to the provincial health officer who has supervisory control and has
given much personal attention to the hospital, a resident physician
and one graduate nurse (female). During the year there have
been treated in this hospital 296 cases. The accommodations are in-
adequate and otherwise unsatisfactory, but are serving a valuable
purpose pending the availability of the new hospital building for
the construction of which all preliminary arrangements have now
been concluded. A site has been generously ceded by the constabu-
lary from its reservation on the hi^ ground on the siae of the village
opposite the river front. The financing of the project was made pos-
sible by the liberality of the director of health, who granted an allot-
ment of ^18,000 from his appropriation for the construction of
provincial hospitals.
During the past year there have been established in Cotabato
Province one additional dispensary, making a total of 11 dispen-
saries in the entire Province, whijch are located as follows : Cotabato
(hospital out-patients), Parang (municipal health officer, graduate
physician in charge), Glan (municipal health officer, graduate phy-
sician in charge), Buluan, Pagalungan, Kidapawan, Peidupulangi,
Eeyna Regente, Kudarangan, Bacolod, and Maganoy, the last named
having been established during the year. The dispensary at Glan is
under the supervision of the public health officer (a graduate phy-
sician) who is in charge of the sanitary district comprising Glan
and adjacent territory. During the year 11,678 individuals applied
at the Cotabato dispensaries tor medical and surgical relief and
received 43,170 treatments.
Potable water supply in this Province continues to be one of the
great problems in public-health work. Aside from the municipality
of Parang, which is supplied under a joint arrangement with the
military authorities at the adjacent Army post of Ludlow Barracks,
there is no modern system of supply. At Cotabato town, the pro-
vincial capital, every practical inducement is offered the people to
use distilled water from the ice plant which is operated there by
the provincial government, the local water supply from both the
river and surface wells being unsafe for use without the exercise of
the utmost care in boiling and sterilization of containers. An ar-
tesian-well apparatus has been in operation during the year in the
upper valley of the Rio Grande at important centers of population,
but without success.
The Lanao Public Hospital has been enlarged by additional con-
struction, bringing it up to the capacity of the Sulu Public Hospital
and into accord with the standard plan adopted in this department.
This construction work is complete except the operating room, for
which there has been delay in the receipt of certain materials. While
the majority of patients treated in this hospital have been local
Mohammedan natives, some Christians have been admitted from
coast towns and the adjacent Province of Misamis. The hospital
staff comprises, in addition to the provincial health officer, who has
given much personal attention to the hospital, a resident physician
and three graduate nurses, of whom one is male and two are female.
Mohammedan as well as Christian women seek treatment in this
hospital. The total number of cases treated in hospital during the
year has been 880. rr^r^n]o
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REPORT OF THE DEPARTMElTT OF MINDANAO AND SULU. 255
There have been in operation during the year 11 dispensaries,
located at the provincial capital, Dansaian (Lanao Public Hospital-
out-patients), Iligan (municipal health officer, a gradua^te physician
in charge), Tamparan, Momungan, Malabang, Ganassi, Lumbatan,
Komain, Kolambugan, Tugaya, and Mumungan, of which the last
two were established during the year. During the year 15,999 in-
dividuals applied at the Lanao dispensaries for medical and sur-
gical relief and received a total of 50,512 treatments.
At Davao the government maintains no hospital. There is a
miseion (Congregational) hospital at the provincial capital, which
is available to all who apply. It is repprted that there were treated
in this hospital during the year 472 patients, and at its dispensary
13,241 individuals. Dr. C. T. Sibley, who for some years with great
success administered this hospital, is understood to have resigned
to return to the United States and has been relieved by Dr. Lucien S.
Case. To both of these talented gentlemen and to the philanthropy
upon financial support of which the hospital and dispensary are
dependent, the community of Davao and the 'government are deeply
indebted.
The government maintains in the Province of Davao a pro-
vincial health officer at the capital, a public health officer in charge
of the sanitary district of Bagangaand adjacent municipalities in
that section of the Pacific coast, and, by arrangement with the con-
stabulary, the latter's medical officer at Mati supervises dispensaries
Vid renders service as public health officer in charge of the sanitary
district of that municipality and adjacent territory.
There are 13 dispensaries maintained in this Province by the
government of which 2 were established during the year. These
dispensaries are located at Holy Cross, La Union, Baganga, Caraga,
Cateel, Madaum, Bunaw.an, Monkayo, Santa Cruz, Malita, Davao,
and Mati, the last 2 being those established during the year. At
these dispensaries 5,983 individuals applied for medical and surgical
relief during the year and received a total of 19,965 treatments.
Potable water supply in this generally mountainous Province is
more satisfactory than in most of the other Provinces. However, at
the provincial capital and for the municipality of Mati there is
'urgent need for municipal water supply, and investigations are in
progress by the representatives of -the public health service and of
the bureau of public works.
At Zamboanga the government maintains only a hospital (pro-
visional) for the treatment of dangerous communicable diseases and
a laboratory for diagnostic work, other bacteriological examinations,
and the checking of the work of the provincial laboratories, one of
which is located at each of the three hospitals mentioned above and
in the municipality of Parang. Dispensaries are maintained at^the
following-named points: Zamboanga (municipal health officer, a
graduate physician in charge, assisted by two district (graduate)
nurses) ; Dipolog (municipal health officer, graduate physician in
charge), Curuan, Recodo, Isabela de Basilan, Margosatubig, Dapi-
tan, Panabutan, Manikaan, Lubungan, Lamitan, the last three hav-
ing been established during the year. During the year 5,824 indi-
viduals-applied at these dispensaries for medical and surgical relief
and received a total of 19,459 treatments.
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256^ EEPOBT OP THE PHILIPPINE COMMISSION.
A general campaign against intestinal parasites was begun in the
town of Zamboanga in October, 1915. Involving, as this did, a bac-
teriological survey of the entire population, some popular oppo-
sition was manifested at the outset. This, however, gradually disap-
peared with a better understanding of the purposes of the govern-
ment. From the beginning in October to the end of December 1,838
examinations had been made by the government laboratory, and of
this number 1,058 persons were found infected with intestinal para-
sites, an average of 57.5 per cent. Practically all the persons thus
found infected have received treatment at the government dis-
pensary. It is planned to continue this work and there seems rea-
son to anticipate an increasing favorable attitude on the part of the
people with consequent reasonable anticipation of material improve-
ment in the health and economic efficiency of the community. .
There is noted most encouraging apparent iinprovement in the
sanitary' conditions of all municipalities. Ordinances have been
enacted and are enforced requiring the collection and proper dispo-
sition of human excreta as well as the cleaning of streets and private
premises and the collection of garbage. In all organized municipali-
ties, except the recently organized municipality of Lubungan, fly-
proof privies are required, and the requirement is enforced even in
the remote municipalities on the Pacific coast of the Province of
Davao. At the provincial capitals of Cotabato, Davao, and Zambo-
anga public comfort stations or privies are maintained.
A definite program is being followed systematically for the secur-
ing of vital statistics. Such statistics are now reported with prac-
tical accuracy as to deaths and with, increasingly approximate com-
pleteness as to births in the Christian communities and especially
the organized municipalities. Because of illiteracy and for other
obvious reasons, considerable difficulty is encountered in securing
such statistics for the municipal districts, the population of which is
wholly or in greatest part Mohammedan and pagan. However, en-
couraging progress in these units is noted in this regard. This mat-
ter is discussed in detail, and statistical tables are given in the report
of the chief health officer for the five Provinces of the depart-
ment which fall within his jurisdiction. For the Provinces of
Agusan and Bukidnon statistics may be found in the report of tne
director of health. .
The most prevalent diseases in Mindanao-Sulu during the past year
have been slnn diseases (among Mohammedans and pagans), malaria,
and dysentery. Yaws appears to be quite common among Moham-
medans and pagans. For the combatting of these most prevalent dis-
eases, ample supplies of medicines and special instructions have been
given to the nurses and attendants in charge of dispensaries by the
responsible provincial health officers in accordance with the plan of
the chief health officer of the department. With the exception of the
valley of the Agusan, when malaria of malignant type was unusually
prevalent during a portion of the year and in the combating of
which the constabulary, medical, and other personnel rendered the
greatest service, there appears to have been a general decrease in
prevalence of this disease as compared with the preceding year.
Marked success has been had in the treatment of the usual sMn dis-
eases which by Americans are currently termed dhobie's itch with re-
sulting general demand for such treatment. In the^reatment of
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BEPOBT OF THE DEPARTMENT OP MINDANAO AND SULU. 257
yaws, because of the increased cost of both forms of salvarsan, the
use of this remedy has been limited to those cases in which great
urgency existed because of the physical condition of the patient, or
the propaganda of government medical relief would be given special
impulse by impressively quick results in the cure of a datu or other
individual of extraordinary influence in the community. For financig^l
reasons it has been necessary to use in the treatment of the majority
of cases of yaws the protoiodide of mercury treatment, which, while
more slow, has proven not less effective than salvarsan in effecting
cures. The invariably successful treatment of yaws has greatly im-
pressed the Mohammedan and pagan elements of population, and is
accordingly facilitating the extension of public health control and
work.
Dysentery is a frequent if not prevalent disease clearly due in
greatest part to infected water supplies occasioned by the universal
custom of Mohammedan natives, and to a great extent of pagans,
in defecating in the rivers and streams, which are at the same time
their most accessible and usual sources of water for other domestic
uses. The firm belief of the Mohammedans that it is a fundamental
requirement of their religion that they cleanse themselves in running
water after the ejection of excreta is a serious obstacle to preventing
contamination of the customary sources of drinking water. In some
of the more important centers of population, as has already been
stated in a previous paragraph of this report, a pure water supply
is being afforded by the opening of springs or wells and the use of
concrete curbing and modern pumps to give permanent assurance,
so far as possible, against contamination. To provide, however, for
all such caters of population and for the hundreds smaller ham-
lets constitutes perhaps the greatest problem of public health here.
Fortunately, bacillary dysentery has onlv occurred during the year
to a limited extent, the largest number or cases having been in Sulu.
It is noteworthy that no case of this disease occurred in the barrios
which have been provided with an assured protected water supply.
Two suspected cases of typhus fever were reported at Dansalan,
Lanao. Due to transportation difficulties, it was not possible for
the department bacteriologist to reach Dansalan until the patients
had become convalescent. It is regretted that it was not possible
to have had timely laboratory investigations made in confirmation
of the clinical diagnoses, as there appears to be doubt as to these and
perhaps as to the cases reported in 1914. No other suspected case
has since occurred.
Smallpox in mild form appeared in eastern Sulu in the latter
part of November, 1915. Especial attention was given to systematic
vaccination and the work pushed forward as rapidly as possible.
A total of 25,614 vaccinations against smallpox were made during
the year in the Provinces of Cotabato, Davao, Lanao, Sulu, and Zam-
boanga. Of these, 7,312 were in Sulu. There is a general antipathy
on the part of Mohammedan natives to vaccination, it bein^ a fre-
quent practice, if not general custom, among them during epidemics
of smallpox to inoculate from the pustules of persons sick with the
disease. This situation is being met by the selection and training of
Mohammedan natives of intelligence and local prestige, who, imder
appointments as sanitary inspectors, are now beginning work on a
general vaccination, which, it is hoped, may be comprehensive of the^
258 REPORT OF THE PHILIPPINE COMMISSION.
entire population of the Sulu Archipelago. This is a difficult, and,
in fact, great undertaking at this time, but is of urgent importance,
because out a very small percentage of the Sulu people have ever
submitted to vaccination against smallpox, and the disease, although
as yet mild in form, is apparently extending, and a serious epidemic
may occur.
Local epidemics of chicken pox, measles, and whooping cough have
occurred during the year, but practically without deaths.
The most serious problem of dangerous communicable disease with
which the public health service has had to contend during the year
has been the epidemic of Asiatic cholera which apparently entered
the archipelago from Borneo, the first case having occurred on the
island of Sitankai, which is the most southern inhabited island of
Mindanao-Sulu and is in frequent and easy communication by small
native boat with Borneo. However, these cases were not reported
promptly, as there was not at the time at Sitankai any representative
of government or other person who recognized the importance of
such action. The first cases reported (Feb. 3, 1915) occurred in a
coast barrio of Zamboanga, where it was undoubtedly introduced via
Sitankai or directly from Borneo by native fishermen or traders. In
this barrio there occurred a total of 12 cases and 9 deaths, the last
case February 18. From this time on an occasional case was dis-
covered within the municipal jurisdiction of Zamboanga. Some time
later the presence of cholera on the island of Sitankai was ascer-
tained, and the disease was found in the settlements to the north-
ward, spreading throughout the Sulu Archipelago and other islands
south of Zamboanga.
The efforts of the entire public health personnel were immediately
directed toward combatting and eradicating the disease. Temporary
sanitary inspectors and other necessary employees were secured, and -
everything humanly possible was done to check the epidemic. The
approved procedure of the insular bureau of health was followed and
every effective measure used, considerations of financisTl cost being
secondary. The disease naturally pursued the line of least resistance,
which was through the Mohammedan communities, especially those
more remote from the centers of established government control.
Due to the ignorance of the people and religious antipathies, definite
opposition in the form of passive and sullen resistance met the
efforts of the agents of the public health service in practically every
community. Even among the Christian population of Zamboanga
there was much opposition at first to the enforcement of the unac-
customed requirement of hospitalization of sick and segregation of
persons who had been exposed by contact with persons actually sick
with the disease. In many localities, especially in Cotabato and
Lanao, the custom previously mentioned of using the same rivers and
streams for the disposal of human excreta and as the source of water
for domestic use played a seriously important part in the prolonga-
tion as well as the extension of the epidemic. An important factor
in the latter also was the roving habit of life of a large portion of the
population, especially those engaged in trade, in the innuiiierable
vessels of the smallest coasting type, many of which are mere canoes
but famous for seaworthiness and speed under sail ; and to this ele-
ment was added a very large number of people following the im-
memorial custom of fleeing from epidemic disease. Thus mnumer-
Digitized by VjOOQIC
BEPORT OF THE DEPARTMENT OF MINDANAO AND SUXrU. 259
able carriers of cholera spread through the islands of the Sulu
Archipelago and along the south coast of the great island of Min-
danao penetrating into the interior, especially up navigable streams
and into the lake region of Lanao.
The last case of cholera occurred in the Province of Sulu June
30, and the disease gradually disappeared thereafter in the other
Provinces. The last case in the Province of Davao occurred August
31, in Zamboanga September 24, and in Cotabato November 14,
but still persists in the partially explored and controlled district to
the east of Lake Lanao.
As occurs even in the most highly civilized countries through-
out the world, so in the towns of Zamboanga and Jolo, and to a
lesser extent, at the other Provincial capitals for a time following
the appearance of cholera, a state almost of panic existed, to which
some individuals of reputed intelligence and undoubted influence
contributed. Even the most alarming rumors twice repeated often
became popularly accredited facts. The credulity of even the more
intellectual elements of population was an interesting psychological
phenomenon and under other circumstances would have been ludi-
crous when considered as a result in comparison with the credibility
of the information cause* Irresponsible critics, popularly though
incorrectly considered qualified, seriously embarrassed and at times
otherwise handicapped the work of the chief health officer and his
subordinate officers and agents of the public-health service in combat-
ing the epidemic. In the light of experience had in previous cholera,
epidemics in Manila and elsewhere in Luzon and the Visayas, in-
cluding, and since the great epidemic of the year 1902, responsible
authority charged with the public-health service of Mindanao-Sulu,
and consequently the combating and eradication of the cholera epi-
demic of 1915, accepted with patience the mental vagaries and panic
of persons whose education and positions in these communities
made them logical aids rather than the obstacles they were to the
serious work in hand. Recognizing the tendency of persons of
even the highest intellectual type to collective fright and panic and
the consequent unfortunate results on the mental attitude of the
mass of the people, the most outrageous misstatements of fact and
eveil obviously malicious determination in some instances to dis-
credit the personnel and work of the public-health service were
ignored except by a systematic course or publicity of all facts of
popular interest concerning the cholera situation and a kindly toler-
ant attitude toward the use of inocuous or possibly helpful domes-
tic remedies customarily used for intestinal ailments, especially those
which were invariably administered in the form of infusions and
decoctions which necessarily resulted in the substitution through
them of boiled water for other and perhaps dangerously contami-
nated liquid for drinking purposes.
As to the statistics of cholera cases and deaths, as well as the
territorial extent of the epidemic, no effort was spared to ascertain
all the facts promptly and to give full publicity thereto, as well as
to inform the insular authorities at Manila. Detailed information
was thus given to the local press and forwarded by telegraph and
mail to the director of health at Manila. For due protection and
so far as possible to anticipate the spread of the disease, suspicious
Digitized by VjOOQ^IC
260
EEPOBT OF THE PHIUPPINE COMMISSION.
cases of which at least diagnoses by graduate physician or other
competent person could not be had, were considered and reported
as cholera. I(; was deemed fortimate, in a minor way, that this
radical course was pursued when charges were made that facts as to
number of cases and extent of the epidemic had been suppressed.
The falsity of such statements was apparent upon the most super-
ficial inquiry or investigation.
The lessons of the cholera epidemic have been of immeasurable
benefit not only to the mass of the people but to the classes of higher
intelligence as well. While the loss of life is greatly to be deplored,
yet the net result to the public health can not be other than greatly
advantageous because of the generalization of information as to the
methods of prevention of the spread of dangerous communicable
diseases, especially cholera; the importance of immediate report of
suspicious cases to the public-health authorities; and the greater
confidence now generally felt by the people in this branch of the
public service.
Great material assistance was rendered the health authorities by
the constabulary, the ofiicers and employees of the public schools,
as well as by provincial and municipal authorities generally. Espe-
cial mention should be made of the work done by the constabulary
and the administrative and teaching forces of the public schools con-
tinuously throughout the epidemic in every infected district. They
subordinated their regular duties and all other interests to the suc-
cessful meeting of the emergency and without consideration of per-
sonal danger, convenience, or other interest, devoted themselves
wholly to the service of the sick and the prevention of the spread
of the disease.
The complete list of the personnel of the public-health service, with
the rarest exceptions, would properly be a roll of honor because of
the excellence of work done.
The following table is the official statement by Provinces of cholera
cases and deaths, but, as has been stated in a previous paragraph,
includes a considerable unknown factor of sickness and death from
intestinal and other diseases in all cases reported as cholera, but for
which no qualified diagnostician was present — ^it is known that not
only were included dysentery and even more benign ailments of the
intestinal tract, but undoubtedly even fatal cases of other diseases :
Cholera during the fiscal year 19X5.
Cases.
Deaths.
Mortal-
Ity.
Cotabato
766
146
159
1,247
1,255
694
77
94
1,085
970
78.67
Davao
52.74
Lanao
69.12
Sulu
87.00
^amboanea. .
77.29
^ Total
3,673
2,820
78.n
Public-health work in the Provinces of Agusan and Bukidnon has
continued during the year under the jurisdiction of the director
of the insular bureau of health. The public-health service in the
Provinces formerly comprised in the Moro Province — Cotabato,
Digitized by'vjOOQlC
BEPOBT OF THE DEPARTMENT OF MINDANAO AND SULU. 261
Davao, Lanao, Sulu. and Zambounga — has been organized in accord
with the plan of the bureau of health; the laws and regulations of
that bureau are now in force, and the bureau's procedure is followed
throughout these five Provinces. However, the chief health officer
of the department exercises the powers and performs the duties of
director of health as provided in the organic act of the department.
The preliminary work of organization and establishment of the
public-health service in Mindanao-Sulu has been concluded. It is
recommended to his excellency the Governor General that by execu-
tive order, as contemplated by the organic act, the jurisdiction of the
director of the insular bureau of health be extended to these Provinces
and the public-health service throughout the department be brought
thus upon a uniform basis. Experience has demonstrated that for
administrative efficiency there should be stationed in the department,
preferably at Zamboanga, a representative of the director of healtii,
with delegation of ample powers to act in the name and behalf of the
director. The seven Provinces of the department, together with
the Provinces of Misamis and l^urigao, should constitute a division
of the bureau of health as for administrative purposes they comprise
a division of the bureau of public works, a district of the bureau
of constabulary, and a district of the bureau of forestry. To avoid
confusion and otherwise assure orderly progress of events, especially
as to accounting and finance generally, it is recommended the ex-
tension of the bureau's jurisdiction be made either July 1 or January
1, and with at least 60 days' notice, if possible, the latter being
important to better assure correct coursing of vouchers and segrega-
tion of accounts. With the extension of the jurisdiction of the
director of the bureau of health, Mindanao-Sulu will have been
brought within the jurisdiction of all the insular bureaus the same
as the regularly organized Provinces.
Expenditures on account of public health in Agusan and Bukid-
non, in so far as concerns insular funds, may be found in the reports
of the insular auditor and of the director of health.
Expenditures from insular aid on accoimt of the public health
service, includinff construction, equipment, maintenance, and opera-
tion of public hospitals and dispensaries, in the remaining five
Provinces of the department during the year 1915 amounted to
^169,611.31.
The annual report of the chief health officer of the department,
containing statistics and a more detailed discussion of the under-
takings and results of the public health service during the year, will
be furnished the director of the insular bureau of health.
The officers of the public health service in the five Provinces cov-
ered by this report are as follows:
Chief health officer, Jacobo Fajardo, M. D.
Department bacteriologist, Martin Baltazar, M. D.
COTABATO.
Provincial health officer, First Lieut. Liborio Gomez, M. D., medical inspector,
Philippine Constabulary.
Resident physician Cotabato Public Hospital and municipal health officer,
Cotabato, Vicente Kierulf, M. D.
President sanitary district of Glan, Julian Pilares, M. D.
Municipal health officer, Parang, Gregorio B. Roque, M. D.
Digitized by VjOOQIC
262 BEPOBT OF THE PHILIPPINE COMMISSION.
DATAO.
Provincial health officer, Sixto Villavlcenclo, M. D.
Municipal health officer, Davao, Antonio Vlllavlcencio, M. D.
President sanitary district of Baganga, Graciano Nolasco, M. D.
Special medical Inspector of sanitary district of Mati and vicinity, Second
Lieut. Jesus V. de Leon, M. D., medical inspector, Philippine Ck)nstabulary.
LANAO.
Provincial health officer, Capt. E. W. Ames, M. D., surgeon, Philippine Con-
stabulary.
Resident physician Lanao Public Hospital and municipal health officer of
Dansalan, Hilarlon Feliciano, M. D.
SULU.
Provincial health officer, Marcellno Gallardo, Ph. C, M. D.
Resident physician Sulu Public Hospital and municipal health officer of Jolo,
Sixto Orosa, M. D.
Asi^stant resident physician Sulu Public Hospital, Severina Luna de
Orosa, M. D.
ZAMBOANOA.
Provincial health officer and municipal officer of Zamboanga, Mariano
Atlenza, M. D.
President sanitary district of Dapltan, . Dipolog, and Lubungan, Patricio
Zaldarrlaga, M. D.
The officers, trained nurses, and other representatives of public
health service have greatly extended to the people during the year
the availability of medical" and surgical relief and at least a begin-
ning of the understanding of modern hygiene and sanitation. They
have carried their work into remote localities, in which often they
have at first encountered the suspicion and opposition of ignorance.
With rare exception such situation has quickly changed to one of
grateful appreciation and disposition to extend material assistance
wifhin the resources of the people, especially in the contribution of
labor and materials of local production for the establishment of dis-
pensary stations and otherwise in the furtherance of the service.
The contribution by this branch of the public service to the general
progress* of government here during the year has been of prime im-
portance, especially in the establishment and maintenance or amicable
relations with and assimiliation of the Mohammedan and pagan ele-
ments of population. The service continues to involve great personal
sacrifices not only of convenience and opportunities for customary
social life and of loss of the emoluments of private practice for per-
sonal gain, which is prohibited by the terms of appointment here, but
also in the almost constant exhausting fatigue and extraordinary
exposure of health and life incident to field work, in which, without
exception, all the officers and most of the subordinate personnel neces-
sarily participate and to which most give the greater portion if not
their entire time.
The Philippine Commission, by act No. 2513, appropriated for the
maintenance and operation of a hospital ship, destined to service
of the numerous native villages south of Zamboanga and especially
in the Sulu Archipelago, which, aside from the island of Sulu, com-
prises no island of considerable size, on which settlements are located
in the interior as well as on the coasts. This project was initiated
Digitized by VjOOQIC
BEPORT OP THE DEPARTMENT OF MINDANAO AND SULU. 263
by Bishop Brent and definitely proposed by the International Health
Commission (Rockefeller Foundation) on the recommendation of
the director for the Orient, Dr. Victor G. Heiser, whose name is
most prominently connected with health work in the Philippines by
reason of his having rendered distinguished service for many years
in the office of director of health. It is proposed to convert one of
the insular government's coast-guard cutters, at the expense of the
private philanthropy known as the Rockefeller Foundation, into a
hospital diip, adapted and equipped for the specific service contem-
plated. It will be necessary to secure marine engines and other
equipment from the United States or Europe^ and this it is feared
will involve considerable delay. However, it is hoped that the ship
will be available for service some time during the coming year. It
is planned to operate this hospital ship from Jolo as its home port
and the Sulu Public Hospital as the base hospital on regular sched-
ules through the Sulu Archipelago. This should be a factor of great
value not only in affording medical and surgical relief to the people,
but in the furtherance of civilization and government control.
10. Public Instruction.
The most serious and urgent problem of government in Mindanao-
Sulu is the extension of public schools — ^primary and intermediate
agricultural.
The jurisdiction of the bureau of education was extended to all the
Provinces and municipalities of the department on Januarjr 1, 1915,
thus putting Mindanao-Sulu in this activity of public service on the
same basis as the regularly organized Provmcea
In as much as school statistics are compiled for the school year,
which ends in March, it is not possible to embody in this report data
of this character in exact accord with the figures which will be given
for the school service in Mindanao-Sulu by the director of education,
in whose report complete authoritative data should be sought.
However, for the school year 1915 exact information compiled
from the most authoritative sources is herein given.
There were available for expenditure for public instruction in the
department during the year 1915 ^=391,068.67, of which ^25,000
were derived from the insular treasury by the special appropriation
of this sum by the Philippine Commisaon ; ^4,000 from special allot- '
ment made by the secretary of public instruction for aid in the con-
struction of the central primary school building at Zamboanga ; and
^63,934.98 made available by the director of education from his
bureau's appropriation for operation expenses of schools in the Prov-
inces of Agusan and Bukidnon. Of the balance of ^98,133.69, ^37,-
968.24 was derived from municipal revenues; the remainder, ^^0,-
165.45, being balances from preceding years.
At the close of the fiscal year 1915 there were in operation a total
of 180 schools, of which 162 were primary schools, 13 primary agri-
cultural or farm schools, 2 intermediate agricultural or farm schools,
and 3 regular intermediate, an increase of 12 primary schools and
11 primary agricultural or farm schools as compared with the num-
ber in existence at the beginning of the same year. The number of
61983—16 ^18
' Digitized by VjOOQIC
264 BEPOBT OF THE PHILIPPINE COMMISSION.
teachers was increased during the year from 311 to 373, of whom 19
were Americans and 354 natives; of the latter, 341 were Christians
and 13 Mohammedans and pagans.
The total enrollment of pupils in the department has increased
from 14,800 to 16,019, and attendance from 8,914 to 10,106.
At the close of the fiscal year 1914 there were reported 157 schools,
311 teachers, and 14,800 enrolled pupils in the public schools of the
seven Provinces comprised within the department.
To provide for the training of selected individuals to become teach-
ers and in some instances for the education of boys selected for
other reasons, 43 scholarships were provided for resident students at
Zamboanga, where they are under the immediate observation and
influence of department officers and have the advantage of the best
educational facilities in t^ie department. These scholarships have
been filled by selection from the several Provinces formerly com-
prised in the Moro Province and include 41 boys and 2 girls, or whom
8 are Christians, 33 Mohammedans, and 2 pagans.
Scholarships have been authorized and filled in government insti-
tutions in Manila as follows:
CJoUege of agriculture 1
School of household industries 4
Training school for nurses 6
Philippine Normal School 4
Of the above, seven are boys and eight girls. Of the former, two
are taking the course in the nurses' training school, four at the nor-
mal school, and one at the college of agriculture, while of the girls
four are taking the nurses' training course in the Philippine General
Hospital and four in the school of household industries. In addi-
tion to the foregoing, five Mohammedan and three Christian girls
have been maintained by the department at the normal hall (govern-
ment girls' dormitory) attending public schools in Manila and
receiving additional instruction from special tutors. The foregoing
does not include scholarships filled by appointees from Agusan and
Bukidnon, concerning which data are not available here, but may
doubtless be found in the rej)ort of the director of education.
The program of school instruction as given in outline in the
report for 1914 has been pursued during 1915, having as its objective
vocational rather than mere academic training.
The popular demand for schools throughout the department, even
from the most remote localities, has continued with increasing force,
and the impossibility of meeting this demand is the source of much
embarrassment to department, provincial, and, in fact, all govern-
ment officers here, especially because of the fact that in almost every
instance the people oflPer to clear land, construct buildings for the
school and for teachers' residences, and in many cases have actually
done so, though, due to the lack of funds available for public instruc-
tion, it has not been possible to provide teachers.
The following paragraph is quoted from the annual report for
1914 as of even greater application, if possible, to the work of the
personnel of the bureau oi education stationed in this department
during 1915 :
It is impossible to exaggerate the credit due the supervising and teaching
forces, both American and Filipino, fgr the fearless self-sacrifice which had
uniformly distinguished their work in the organization ^nd conduct of the
Digitized by VjOOQIC
BEPOBT OF THE DEPARTMENT OF MINDANAO AND SULU. 265
public schools in this department. Filipino teachers from Lu^on and the
Visayas have accepted appointments and organized and conducted schools in
many instances at points remote from the protection of constabulary or other
armed forces of government. Notwithstanding the traditional fear they are
supposed to have of the Moro, these Christian Filipino teachers have gone
about their work without any assurance of immediate protection, unable at the
beginning to speak the local dialect, In most instances without frequent or cer-
tain mail communication, and often without food supply except the more or
less strange dietary of the locality. In no instance has a teacher been mo-
lested by the people. Very few have given up their work, and in those cases
none, so far as can be ascertained, because of fear as to personal safety, but
because of inability to adapt themselves to the utter loneliness of some of the
more remote places or the lack of customary food or because of homesickness
that could not be overcome. Considered in the light of experience in provid^g
American teachers for schools in the more remote communities in Luzon and
the Visayas in the years immediately following the organization of the bureau
of education, the results of the past year in the establishment of Filipino teach-
ers in public schools throughout pagan and Mohammedan territory in Minda-
nao-Sulu have been a distinct success.
The inadequacy of local revenues for the maintenance of existing
schools and the consecjuent hopelessness of extensions of public-
school organization without great financial aid from the insular
treasuiy constitute, as has been stated, the most serious problem of
government here. The liberal action of the Philippine Legislature
m appropriating, as it did in Act No. 2531, f=l,000,000 for primary
schools in Mindanao- Sulu and other specially organized Provinces
was the greatest encouragement to all here interestSi in public-school
activities and a conclusive proof of the determination of the people
of the regularly organized Provinces to spare no reasonable enort or
financial resource in expediting the realization of the unification
with the Christian of the Mohammedan and pagan elements of popu-
lation. It is understood to have been determined that 80 per cent
of this appropriation shall be available for expenditure in the Prov-
inces formerly comprised in the Moro Province, and as the appro-
priation is for the period of two years this should make available
for expenditure for 1916 the sum of ^400,000, and a similar amount
for the succeeding year, 1917. With these funds it is proposed to
augment by 150 the number of primary schools, of which ^0 will be
of agricultural type, and to provide at Zamboanga buildings of the
most economical type and most necessary for the normal-training
classes here, whose graduates are so urgently needed for the exten-
sion of primary schools in Mohammedan and pagan territory.
PRIVATE SCHOOLS.
The private schools described in detail in the annual report for
1914 have continued operation during the year 1915.
There is also to be noted the mission schools of the American
board of commissioners of foreign missions (Congregational) in
the Province of Davao, where instruction is given to a total of 120
pupils, of whom 80 are boys and 40 girls. These schools were not
mentioned in the last report for the reason that data regarding them
were not received in time.
It is estimated that the total enrollment in all private schools in
the department is approximately 4,500 pupils. The number of chil-
dren of school age (7 to 14 years) in the seven Provinces constitut-
Digitized by VjOOQIC
266 REPORT OP THE PHILIPPINE COMMISSION.
ing the department is estimated at 128,000; of these, 16,019 are en-
roUed in public schools and 4,600 in organized private schools.
The immediate compelling need for additional schools is obvious.
11. Prisons.
The penal establishment at San Ramon passed on January 1, 1915.
to the exclusive control of the director of the insular bureau oi
prisons, the authority of the department governor accordingly ceas-
ing. To this prison establishment are sent for execution of sentence
all convicts who are sentenced to imprisonment for more than one
year by the courts of first instance of the several Provinces com-
prised in the department.
Aside from the general improvement in the security and sanita-
tion of provincial and municipal jails there has been no noteworthy
change during the year.
In the Province of Zamboanga a trial will be made shortly of the
plan of using provincial prisoners who are under sentence for the
first time, and not charged with serious crimes, for the construction
of schoolhouses, trails, etc., on the island of Basilan. The method
will be the parole of the prisoner conditioned on his laboring satis-
factorily for a period equal to his sentence of imprisonment at hard
labor on public-works projects to which he may be assigned, and his
faithful compliance with all official regulations incident thereto.
The daily wage paid hired labor on such projects is now approxi-
mately 75 centavos. The cost of the paroled-prisoner labor should
not exceed 30 centavos daily for each such laborer. There is, of
course, no expense contemplated on account of ^ards. Supervision
of labor will be given by the same foreman who is in charge of wage-
paid laborers in the locality. Persons convicted under the more
serious criminal charges, and, as a rule, those who have served pre-
vious sentences for iniractions of law, will not be given the privilege
of serving their sentences without guards and under conditional
parole, but, as now, will be required to serve their sentences at hard,
labor under guard, either in the city of Zamboanga or at San Ramon
prison, by arrangement with the bureau of prisons.
In the Province of Sulu, and to a limited extent in other Prov-
inces, convicted prisoners serving sentence in provincial jails have
been used to labor under guard on road construction and other public
works. The cost of such labor, including guards, is not less than that
of wage-paid labor and probably not so efficient. If the plan of
using paroled-prisoner labor on public works proves more advan-
tageous than the present system, it will be extended throughout the
other Provinces so far as practicable.
12. Public Works.
The public-works activities which have received especial attention
during the year 1915 have been construction and maintenance of
roads and trails, potable water supplies, construction of telephone
lines, removal of obstacles to navigation of rivers, port improve-
ments and landing facilities, and construction and maintenance of
public buildings.
Digitized by VjOOQIC
BEPOBT OF THE DEPABTMENT OF MINDANAO AND SULU. 267
The total expenditure of jjublic funds under the control of the
department government and its subordinate units for public works
during the year 1915 was ^^607,435.34, distributed as follows:
Province of Agusan ' ?85, 627. 84
Province of Bukidnon 31, 399. 5^
Province of Cotabato 54, 791. 83
Province of Davao 53, 637. 01
Province of Lanao 51, 953. 65
Province of Sulu 133, 493. 32
Province of Zamboanga 199, 042. 66-
Department of Mindanao-Sulu 47, 489. 47
Total 607, 435. 34
These expenditures, as shown above, came from unexpended bal-
ances from Acts Nos. 2070, 2283, and 2194 of previous years, and
from Act No. 2423 for the Department of Mindanao-Sulu, and the
general appropriation bill. Act No. 2494, passed for 1915 expenditure.
From Act No. 2423 there was made available ^00,000 for general
public works, to be alloted by the administrative council, which was
distributed as follows:
Roads, trails, and bridges ¥103, 361. 77
Telephones 74, 000. 00
Wharves and port improvements 82,067.55
Waterworks and artesian wells ' 40,570.68
Total 300, 000. 00
while from Act No. 2494 there was allotted for roads, trails, and
bridges the sum of ^6,016 (per capita allotment), distributed as
follows:
Province of Augusan ! P5, 908. 89
Province of Bukidnon 5, 899. 87
Province of CJotabato 16, 287. 22
Province of Davao 1 18, 727. 11
Province of Lanao 14, 650. 76
Province of Sulu 18, 986. 28
Province of Zamboanga ^ 20, 555. 87
Total — 96, 016. 00
^120,312.96 from funds appropriated bv Act No. 2494 of the Legis-
lature for allotment by the secretary of commerce and police in nis
discretion and destined as follows:
Roads, trails, and bridges, Province of Zamboanga WO, 000. 00
For the construction, reconstruction, and improvement of wharves
etc.:
Province of Cotabato 5, 000. 00
Province of Davao 5, 000. 00
For maintenance and repairs of public buildings. Province of
Zamboanga 5, 3l2. 96
For artesian wells and waterworks systems 75, 000. 00
and ^0,349.82 from various school, hospital, public- works 6 per cent
refund, and department funds available for expenditure m Min-
danao-Sulu, an aggregate of financial aid from the insular treasury
of ?606,678.78, of which ^300,000 was by sjjecial appropriation by
the Philippine Commission on public works in the department, and
the remamder, ^306,678.78, being the sum of per capita and special
allotments from the general appropriation bill of the Legislature,
and other sources enumerated above. All this aid, however, was not
Digitized by VjOOQIC
268 BEPOBT OF THE PHIUFPINE 00MMI88I0N.
roent in 1915, due to delays in receipts of materials of construction,
therefore this total aid should not be considered for 1915 expenditure.
In addition to the above-stated insular aid, the public works fund
has been increased by one-half the cedula collections, a portion of
the internal revenue and land tax collections available for road, trail,
and bridge work only, department, provincial, and municipal appro-
priations from general funds, and donations from school and health
appropriations.
The following is the distribution of the expenditure of the simi
stated above:
Maintenance of roads, trails, and bridges ^4, 747. 00
Construction of roads, trails, and bridges 240, 050. 04
CJonstructlon of telephones 61, 665.50
CJonstructlon of wharves and other port improvements 50, 670. 39
Maintenance of buildings, parks, monuments, and public grounds 24, 565. 38
CJonstructlon of buildings 60, 324. 23
Construction of waterworks and artesian wells 61, 802. 14
Miscellaneous 33, 610. 66
Total 607, 435. 34
There existed in the department on December 31, 1914, approxi-
mately 90 kilometers of second-class roads, 199 kilometers of third-
class roads, and 2,400 kilometers of well-defined trails on which more
or less improvement work has been done.
During the year 1915 these roads and trails were maintained and
improved and extended so far as f imds available permitted, with the
result that on December 31, 1915, the road and trail system of the
department comprised 65.9 kilometers of first-class road, 114.9 kilo-
meters of second-class roads, 185.2 kilometers of third-class roads, 437
kilometers of improved trails passable at all seasons of the year for
horsemen and pack animals, and 2,000 kilometers of well-defined
trails on which some work has been done.
The more important construction projects which have been carried
on during the year are as follows:
In Agusan I^rovince the development of the artesian well pro-
gram merits praise. These flowing wells are encoimtered betweei
the 44 to 85 meters (137 to 278 feet) strata.
The progress on the Butuan-Cabadbaran road has been consider-
able during 1915. This extension through the virgin forest is fol-
lowed by rapid a^icultural development by homesteadera
In Bukidnon Province the road construction on the Misamis
Boundary road, south to Malaybalay, on the east of Cagayan, Misa-
mis Province, and to Talakag, Ticalan, and Kibaritan from Cagayan
as the port terminal, has received the most attention. These roads
are the main arteries for the pagan people of the interior of Bukid-
non Province to market their produce.
Another most important work in Bukidnon Province has been the
installation of gravity or hydraulic-ram pure water supplies for
seven large Manobo-Filipino settlements along the main traffic routes
into this county.
In Cotabato Province the principal work has been on the construc-
tion of the Cotabato-Tamontaka road, the securing of hydrographic
and topographic data for the irrigation of this vast agricultural valley,
in the extension of approximately 200 kilometers of telephone Ime
from Cotabato to FortPikit and Kabacan east and to BuluaUjOn the
Digitized by VjOOQIC •
BEPOBT OF THE DEPABTMBNT OF lilNDAKJkO ANl> SULU. 269
southern edge of the Liguasan swamps and the cOtQ]aiencenM$iit of ftn
artesian well program, which, though imsuccessful in its first well,
has attained distinct success.
In the Province of Davao there was constructed the first rein-
forced concrete structure for this Province — a large building for the
combined use of the Province and of the municipality of Davao.
The most important road work was in constructing a trail 23 kilo-
meters eastward from Mati for pack animals around the perpen-
dicular cliffs that rise from the Pacific Ocean.
For Lanao Province the enlargement of the Lanao Public Hos-
pital, the extension of the telephone system to connect Tamparan,
Ganasi, Lumbatan, and Malabang, important agricultural and law-
and-order centers on Lake Lanao and lUana Bay, and the first-class
road construction between Camp Overton and lligan comprised the
most important work accpmplished.
The public works of importance executed in Sulu Province this
year were the completion of the Sulu Public Hospital in Jolo, a
complete telephone system for Sulu Island, and the surfacing of the,
Jolo-Maimbung and Junction-Indanan-Parang roads so as to convert
them in part from second to first class highways.
For Zamboanga Province the important projects worked upon were
the beginning of the Zamboanga waterworks plant and irrigation
system for the municipality of Zamboanga ; the improvement of the
municipal streets; the construction of the Zamboanga-East Coast
road that passes through Mercedes on the way to Manicahan, Bolong,
and Kuruan, giving communication to a large agricultural popula-
tion that raises rice and coconujbs principally ; and the completion of
a municipal telephone system for Zamboanga that is of great service
as utilized by merchants and other private persons.
A veryuseful reinforced concrete mole to connect with the Zam-
boanga Wharf, now under construction, was finished; also the im-
provement of the department and municipal buildings and grounds
received' much-needed attention, which, combined with the other
improvements mentioned above, have converted Zamboanga into a
more attractive and pleasing city.
All public-works activities in the department are now definitely
under the control of the bureau of public works, as in the case of the
regularly* organized Provinces. The department, provincial, and
municipal governments are indebted to the officers and employees of
the bureau of public works for enthusiastic and hearty cooperation in
all matters of mutual interest. The work is well organized in each
Province, and both construction and maintenance activities are con-
ducted in a generally economic manner. It is important that a dis-
trict engineer be asdgned to the Province of Agusan, and that a
qualified assistant district engineer be assigned to Bukidnon, the
latter under the jurisdiction oi the district engineer of the Province
of Misamis, which comprises the territory to the northward and the
important commercial road connections to the produce markets of
Bukidnon. Also it is important that one or more qualified irrigation
engineers be assigned to duty in this department, especially m the
Provinces of Cotabato and Davao.
In order that the most satisfactory results may be had as speedily
as possible it is obvious that district engineers and assistants should
Digitized by VjOOQIC
270
BEPOBT OF THE PHUJPPINB COMMISSION.
be especially selected for assignment to the Provinces of Mindanao-
Sulu, and that they be not changed for some years to come, except
because of demonstrated unfitness or definite withdrawal from the
service. While in the Provinces of Luzon and the Visayas explora-
tion work has long since been concluded, and there is available m the
files of the bureau practically all information necessary for the pur-
poses of road location and construction and other problems probable
to demand solution by the bureau, and also orgamzed trainedTlabor
exists or may easily be assembled for projects, either small or of
much magnitude. None of these essential conditions exists in the
Provinces of the department which have so recently been taken over
by the bureau.
There should also be mentioned under this head the extension of
wireless telegraph stations, which, however, is a matter wholly with-
in the jurisdiction of the bureau of posts as to construction and
maintenance, as well as to operation. The existing stations at the
beginning of the year were located at Malabang, which is the south-
em termmal of the insular telegraph lines, Zamboanga, Jolo, and
Davao. The Philippine Commission by Act No. 2423 appropriated
for construction, maintenance, and operation of secondary stations
in Mindanao-Suiu during 1915 the sum of 1^25,000, with which it is
expected to provide stations as follows :
Isabela de Basilan, to communicate with Zamboanga ;
Margosatubig, to communicate with Malabang and Zamboanga;
Siasi, Bongao, and Cagayan de Sulu, to communicate with Jolo;
and
Cuabo, to connect Davao with north and south points on the east
coast of the gulf and via Mati with the municipalities to the north-
ward along we Pacific coast by telephone. The stations at Isabela
de Basilan and Margosatubig have been installed and are in satisfac-
tory operation, to the gresi advantage of commercial and other pri-
vate interests, but especially to the greater efficiency and economy of
govemm^t in the maintenance of public order and all other matters
of administrative concern which require speedy communication fa-
cilities, particularly in emergencies.
The following statements present in tabulated form statistical
data of expenditures for public works in Mindanao-Sulu during the
year:
Distribution of public works expenditures for 1915 in Department of Mindanao
and Sulu,
Provinces.
Roadoon-
struction.
Ro&d main-
tenance,
Building
oonstnio*
tion.
Mainte-
nance
buildings,
parks,
grounds,
etc
Agusan
Bukidnon..
Cotabato. . .
Davao
Sulu ,
Zamboanga ,
Department of Mindanao and Sulu.,
Total
^14,383.60
23,771.64
28,110.42
23,943.68
19,271.98
66,818.30
63,750.62
^"3, 944. 04
5,153.05
8,572.29
9,314.26
6,941.13
15,061.18
25,761.05
^10,616.17
432. 19
974.63
985.24
14,773.83
25,787.97
6,754.20
240,050.04
74,747.00
60,324.23
^975. 60
8,892.51
6,276.47
13,420.80
24,565.38
Digitized
byGoogh
REPOET OF THE DEPARTMENT OF MINDANAO AND SULU. 271
Distrihution of public works expenditures for 1915 in Department of Mindanao
and Siiiu — Oontinued.
Provluoes.
Telephones.
Wharves,
docks,
river, mahi
improve-
ments.
Water-
WOTksand
artesian
wells.
Miscella-
neous.
TotaL
Agosan
Bakidnon
Cotabato
Davao
Lanao
Sulu
Zamboanga
Department of Mindanao and Sulu.
^"33. 48
r2,664.00
9,635.13
10,792.86
6,746.27
6,626.14
29,932.62
6,602.63
4.407.16
2,104.22
4,866.16
^1,858.98
242.67
866.06
30,127.23
3,632.46
64,768.30
1,044.78
r2,127.67
1,800.21
631.68
3,218.22
3,117.22
8,009.60
11,809.40
2,806.66
P"36,
31,
64,
63,
61,
133,
199,
47,
627.84
399.66
791.83
637.01
963.66
493.32
042.60
489.47
Total.
61,666.60
60,670.39
61,802.14
33,610.66
607,436.34
The total provincial surcharge for all the Provinces which is used
to run the offices of the district engineers, exclusive of the salary of
the district engineer, was ^5,074.27.
The total bureau of public works surcharge, which pays salaries of
district engineers, makes all plans, and does other valuable adminis-
trative work for the Provinces and department, was W6,177.81.
Statement of Mindanao and Sulu public works aids and surcharges for 1915,
Provinces.
Act No. 2404.
Regular
allotiuent.
Special
allotment.
Other
insular
aids.
Act No. 2423.
6 per cent
aid
(insular).
Depart-
ment.
Agusan
Bukidnon
Cotabato
Davao
Lanao
Sulu
Zamboanga
Department of Mindanao and Sulu.
1^5,008.89
5,899.87
12,287.22
18,727.11
14,650.76
18,966.28
20,555.87
1^-5,000.00
5,000.00
^5,317.96
2,715.19
105,000.00
5^12.96
2,110.26
14,512.92
^2,127.67
1,800.21
8,018.42
3,918.22
3,117.22
8,000.60
11,809.40
2,849.82
^6,680.80
6, 68a 88
20,500.00
40,500.00
23,500.00
56,500.00
104,638.23
41,000.00
Total.
82,016.00
120,312.96
24,665.83
86,060.06
30o,ooaoo
Act No. 242»-<;oiitinQed.
Provinces.
Municipal
Provincial
surcharge.
Bureau (tf
public
works
surcharge.
School
depart-
ment.
Health
depart-
ment.
Agusan
Bukidnon
Cotabato
Davao
Lanoa.
Sulu
Zamboanga
Department ot Mindananao and Sulu. .
IP-14,854.67
1,914.82
264.37
16,059.81
19,654.06
IP-1,194.37
358.94
2,235.75
1,347.21
2,635.22
6,373.94
9,103.51
2,835.33
^914.26
732.50
1,609.22
1,387.67
1,396,63
3,551.93
5,385.40
1,300.20
1P-647.66
690.69
3,886.56
3,085.16
1M4,706.47
19,764.67
Total.
52,747.73
25,074.27
16,177.81
8,310.07
34, 47a 14
13. AORICUIiTURB.
Abundant rains terminated the prolonged drought which had per-
sisted during 1914 throughout the greater portion of the department.
While the locust plague persisted in some portions of the depart-
ment, less damage was done than in 1914. ^ I
Digitized by VjOOQIC
272 BEPOBT OF THE PHIUPPINE COMMISSION.
There has been no case of rinderpest in the department during the
year.
The total area planted to maize has been larger than ever before,
due to the urgent need of the people for a quick-maturing food crop
and the propaganda carried on by representatives of the government
generally throughout the department. Likewise the areas planted to
palay were also greater than in previous years. The harvests of
maize and palay nave more nearly met the local requirements gen-
erally than ever before. However, the surplus available for export
from the Cotabato Valley to adjacent Provinces in southern Min-
danao was materiallv reduced by the loss of a considerable portion
of the crop in the low-lying portions of the valley by reason of
floods during harvest time due to unseasonal rains in the mountains
on the upper reaches of the Rio Grande.
The production of abaca and coconuts was materially reduced be-
cause of the prolonged drought of 1914, which in some districts con-
tinued until well inSj 1915. This has aroused a more general interest
in irrigation and resulted in irrigation surveys for many of the
larger plantations in Davao, on some of which work has actually
been begun. Two large plantations at Talomo, Davao, now have
under construction a joint irrigation project, the completion of
which is assured for some time about the middle of 1916, at a cost
of approximately ^100,000. Other projects are delayed by reason
of difficulties in financing them at this time.
There appears generally to be sufficient labor available for planta-
tions, and extension work is being pushed as rapidly as financial
resources permit.
There is a marked increase in the number of small planters and
farmers due to more settled conditions generally throughout Min-
danao as well as in Sulu. The movement of agricultural home-
seekers immigrating into Mindanao from the -Visayas is certainly
increasing gradually. There is a large aggregate number of Moham,-
medans and pagans who have settled on excellent agricultural loca-
tions with the stated and apparent intention of remaining perma-
nently, now that public order conditions assure them satisfactory
security of life and property without the necessity of hiding in
mountains or constantly moving. On the island oi Sulu there is
apparent in practically every district a material increase in the
areas cultivated.
The rubber plantations in Basilan and Davao have increased
their output, as additional trees are coming into production and those
previously producing are increasing their yield. These plantations,
although on a comparatively small scale, are of sufficient size for
tapping and have now reached a stage giving results, which are con-
clusive proof that climatic, soil, and other conditions highly favor-
able to the production of both Para and Castiloa rubber are to be
found in Mmdanao-Sulu. These rubber plantations have also now
worked out satisfactorily all problems as to adaptability and ade-
quacy of native labor for all purposes of rubber plantations. It is
hoped that the success achieved by these enterprises may serve to
encourage the development of rubber plantations by local capital and
attract American capital to this highly profitable and important
branch of tropical agriculture.
Digitized by i^OOQlC
EEPOET OF THE DEPABTMENT OF MINDANAO AND SULU. 273
Coconut plantations generally throughout the department have
suffered less from the drought than have the abaca plantations.
However, a considerable time will necessarily elapse before produc-.
ing trees shall have come again into full production. The lesson of
the drought has been that greater care should be exercised in the
selection of plantation sites, especially in securing locations where
the underlying strata and the proximity of mountains assure subsoil
irrigation, i. e., water near enough to the surface of the soil to be
reached by the roots of the coconut palms, thus obviating entire
dependence upon local rains. Such locations are not difficult to find
and planters who have been so wise or so fortunate as to secure
such locations have suffered comparatively little loss from the
drought.
The beetle pest is a serious menace to the extensive coconut planta-
tiofis in the southern part of the Zamboanga Peninsula. General
ai)athy on the part of the great majority of the planters, who
with rare exception have but small holdings, has continued, not-
withstanding the warnings giveii by the government and by the more
intelligent element among the planters. There is a government
ordinance or regulation requiring the destruction of the beetles and
the maintenance of coconut plantations in proper order free from
decaying trunks and branches, which are the customary breeding
places of beetles. However, in the great area occupied by the ex-
isting plantations along the Zamboanga coastal plain and extending
up the mountain valleys and on the mountain sides it would be
futile for the government to imdertake the enforcement of the ordi-
nance did it not have the positive cooperation of the majority of
planters. Propaganda to this end has been carried on and for
1916 will be given increasing impulse by the government and, it is
hoped, by local argicultural associations in order to create popular
opinion which will compel the thorough cleaning of coconut groves
and their maintenance in that condition as the only known method of
eradicating or effectively controlling the pest.
Agricultural associations have been organized in various localities
in the department and the people are thus making the beginnings of
collective effort the lack of which is so great a handicap to agricul-
turists in most parts of the world.
In a tentative way effort has been made among the more backward
peoples, and with noteworthy success by the provincial governor
of Agusan, in the development of communal plantations of abaca and
other profitable crops with a view to the instruction and more rapid
economic development of the people as well as the provision of
financial resources for municipal district governments.
Mindanao-Sulu has no reason to envy any other district in the
Tropics as to climatic and soil Conditions highly favorable to agri-
culture. But to give impetus to the production of maize and palay
to take the place of the large importations of rice from foreign
countries there are lacking instruction and direction of the local
population, immigration from the densely populated districts of
Luzon and the Visayas under guidance, control, and, if possible,
with some financial aid at least to the extent of crop loans. It is
outside the customary activities and beyond the power of private
enterprise to undertake these activities of public service which clearly
X Digitized by VjOOQIC
274 EEPOET OF THE PHILIPPINE COMMISSION.
and of right demand attention of the government. It is hoped that
the program ofviihe insular government, taking cognizance of this
. situt^on in its signifinance to the insular wealth and revenues, may
include provision for systematic work during a period of several
years. The dependence of the Philippine Islands upon foreign re-
sources for food supply may quickly be terminated by the placing
of the surplus — and relatively unproductive — agricultural labor that
can well be spared from Luzon and the Visayas upon the practically
uninhabited and untilled virgin fields of Mindanao. In the valley
of but one of the great rivers and its tributaries preliminary survey
has been made of 400,000 hectares of first-class rice land, all of which
may be irrigated without encountering either serious enginering
problem or great expense. In this district, but very little of which
IS at present under cultivation, a yield of as much as 100 cavans
at one harvest from one cavan of seed is not unprecedented under
cultivation conditions involving neither irrigation, fertilization, nor
exceptional methods. This district alone, if brought under cultiva-
tion of no higher type than that customary in the rice-producing
districts of Ilocos, Pangasinan, and Nueva Ecija, would easily pro-
duce a quantity of rice generally quite equal to that ordinarily im-
ported into the Philippines from the British and French possessions
on the Continent.
The planting of abaci, coconuts, and rubber may be left in great
part to the initiative of private capital and enterprise, but the
government in its own interest should provide the scientific aids
necessary to enable private planters to make their locations wisely
and without avoidable waste, and to plant, bring to production, and
market their produce most advantageously. Such aids would con-
sist of a reconnoissance report and map of the island of Mindanao
by a man thoroughly grounded in the theory and of demonstrated
ability in the practice of tropical agriculture; of soil surveys and
maps for the best agricultural districts most accessible to existing
or easily provided transportation facilities; of correct information
and government intervention where necessary or requested in secur-
ing supplies of the best seed ; of periodical inspection of plantations,
helpful criticism, and advice as to methods by- competent inspectors
continued through the various operations from the selection of the
plantation location, clearing of the land, and planting, to the bring-
ing of the plantation into production, and thereafter m the prepara-
tion of products and their marketing so as to secure the maximum
return directly for the planter and indirectly for the government
and all incidental private commercial and industrial interests. Other
governments, and private enterprises in the form of fruit growers'
associations, etc., have demonstrated the positive value and highly
remunerative returns assured from such a program intelligently car-
ried out by the government or by planters coUectively. Neither the
? ►resent nor potential planters in the Philippines have succeeded thus
ar, except in rare instances, in achieving great success individually,
and nothing worthy of material import has as yet been accomplished
by the efforts at collective action. For the latter much time and
practice will be required, as has proved to be the case generally in
other countries.
The development of agriculture, the economic independence of the
Philippines, awaits action by the government.
Digitized by VjOOQIC
EEPOET OF THE DEPAETMENT OF MINDANAO AND SULtJ. 275
14. FOBESTS.
The economic exploitation of the forests of the department has been
almost at a standstill during the year, due to the great reduction in
the demand for lumber in foreign markets. This unfavorable condi-
tion in the lumber business has been further accentuated by the in-
creasing lack of shipping to afford transportation not only to such
foreign market^ but also by reason of the withdrawal of some vessels
from the coastwise trade to engage in more profitable foreign trade.
Of the 11 sawmills located in the department, all have endeavored
to continue operation during the year at least to the extent sufficient
to retain their skilled^employees and at least a skeleton of their labor
organization. But one mill was entirely closed down at the end of the
year. The total capacity of these mills is stated at 51,360,000 board
feet, or 205,440 cubic meters, per annum. The total timber produc-
tion for the year 1915, including stocks on hand for which transporta-
tion has not yet been secured, is reported as 53,745 cubic meters, as
compared with 67,125 cubic meters for the year 1914.
Mmor forest products such as almaciga and gutta-percha, depend-
ent upon foreign markets, have suffered from the same obstacles
which have so seriously handicapped the lumber industry. Fire-
wood and other minor forest products which find their markets in
the Philippine Archipelago appear to have somewhat exceeded the
production of the preceding year, due to increasing demand in other
Provinces and in considerable part, doubtless, to the fact that they .
are largely transported on the small native sailboats, of which there
is no lack.
As to the conservation of the public forests, it is of interest to note
that the conclusions of the local officer of the bureau of forestry, after
a comprehensive inspection of the department during the year, is to
the effect that the extension of cogon or grass lands by reason of de-
forestation is making but little advance. It is anticipated that as a
result of the increasing control being exercised by the inspectors and
rangers of the bureau of forestry and the cooperation of local officials
forest destruction by the native clearing of land not best suited for
permanent agricultural use is in a fair way to cease.
15. Mineral Products.
In addition to the gold, coal, petroleum, quicksilver, copper, plati-
num, and iron deposits mentioned in the report for 1914, there is to
be noted a manganese deposit of undetermined extent in the Sulu
Archipelago which is reported by local natives. Sample of the ore
was reported upon by the bureau of science after analysis as follows :
" Sample is psilomelane. manganese dioxide, MnOg and MnO. Car-
ries from 66 to 77 per cent manganense when pure as sample."
The exploitation of the mineral resources of Mindanao-Sulu has
remained dormant during the year. Development work in the placer
districts of Agusan appears to have come practically to a standstill,
due to the lack of funds, which ceased to oe available by reason of
the European war, the financing of the projects having been depend-
ent upon foreign capital.
Digitized by VjOOQIC
276 BEPOET OF THE PHILIPPINE COMMISSION.
16. Marine Products.
During 1915 a beginning was made in the commercial exploitation
of the extensive sponge beds of the seas of Mindanao-Sulu. The
Philippine Sponge Fishing Co., a corporation of American capi-
talists resident in Manila, organized under the Philippine corpora-
tion law, began operations on a limited scale in the vicinitjr of Siasi.
Also, a few individuals of experience in the sponge fisheries of the
Mediterranean have operated under deep-sea fishing licenses in the
vicinity of Zamboanga. The total value of sponges taken during
the year, however, has been less than ^100,000, due to the fact that
operations were not begxm until the year was well advanced and con-
siderable time was necessarily consumed in the securing of equip-
ment, etc. There has, however, been demonstrated beyond dispute
that sponges of good quality and in profitable commercial quantity
are available in these waters.
Pearl fishing has practically come to a standstill because of the lack
of market for pearls and the reduction of price of pearl shell to a
point rendering fishing unprofitable. This situation appears to have
been occasioned in greatest part by the European war, and probably
will continue until some time after its termination.
The taking of fish for local Consumption and distribution to inte-
rior and other points in th^ department in dried form has continued
as in previous years. Efforts have been continued to interest local or
American capital in the erection of one or more canneries to sup-
ply sardines and other varieties to take the place of imported sardines
and salmon, the value of which according to customs reports of im-
portations is approximately ^1,500,000 annually. An apparently in-
exhaustible supply of fish for these purposes exists in the waters of
Mindanao-Sulu.
The public schools have proceeded in an experimental way in the
program of sponge and shell culture as indicated in the report for
1914.
Through the courtesy of the Hongkong government and the assist-
ance of the insular bureau of science, a quantity of carp fry was in-
troduced in the swamp lakes in the valley of the Eio Grande de Min-
danao. It is of course impossible as yet to state definite results beyond
the fact that this valuable food fish not only survived the period and
incidents of transportation but seems to have established itself in the
new location. There seems now good reason for the belief that this
extraordinarilj^ prolific food fish will become an important and per-
manent factor in the food supply of the people of the greaf Cotabato
Valley.
The system of licensing of pearl fishers, especially those operating
with schooners and armored divers, has been the subject of much
complaint by the licensees because of the fact that the licensing power
is the local government, and as a consequence when changes in mon-
soons, the discovery of new beds, and other reasons compel pearling
boats to move to other and oftentimes remote new locations, the
taking out of new licenses is required by reason of coming within the
jurisdiction of another municipal government. Ordinances and regu-
lations frequently of a seeming complex and vexatious character are
reported, which some licensees alleged were especially directed at the
Digitized by VjOOQIC
BEPORT OF THE DEPABTMENT OF MINDANAO AND SULU. 277
exclusion of other than local fishing enterprises. Also as regards
the taking of other shells of commercial value and spongjes there is
lack of uniform law and regulations throughout the jPhilippine
Archipelago, and in some municipalities there is no law, ordinance,
or regulation whatever on these matters. After a careful study of the
entire situation, and having in mind the general interest of the archi-
pelago as a whole rather than of Mindanao-Sulu alone, it has been
recommended bv this office to the Governor General that a uniform
law be enacted by the Philippine Legislature, taking over to the in-
sular government the control and regulation of pearl, shell, and
sponge fisheries. This will necessarily result somewhat to the pffeju-
dice of local revenues, but is imdoubtedly the correct procedure in
the matter.
17. Public Lands.
Public lands, cadastral, and other official land survevs have been
carried on throughout the year by survey parties of the bureau of
lands. Highly gratifying progress has oeen made by these survey
parties, especially on the public land surveys, to which at the outset
there was more or less popular opposition. But the excellent tact of
chiefs of survey parties and subordinate personnel in explaining to
the people the benefits which they would derive from the documenta-
tion of their lands whereby they would receive free patent or home-
stead titles succeeded in ^ every instance in overcoming opposition
without the employment of force.
The most direct significance of these surveys is of course the
orderly passing of title of the public domain to private persons, with
the constant impetus given private enterprise in the development of
the economic resources of the islands. Among the many indirect
benefits there is of most immediate effect to the government the
defining of private-owned land for the purpose of the real-property
or " land " tax which is thus brought forward in an appreciable
degree toward realization as a factor in local provincial and munici-
pal revenues.
Inasmuch as all official land surveys in the department are carried
on by the bureau of lands, statistical data as to survey work accom-
plished in Mindanao-Sulu during 1915 will doubtless be found in
the annual report of the director of that bureau. It is, however,
apparent that with the very limited personnel as yet available for
these surveys relatively little can be accomplished. It is therefore
hoped that the Legislature will decide to devote to these surveys a
materially greater amount of money as a means of accelerating the
development of agriculture in Mindanao-Sulu and especially the
ability of the provincial and municipal governments here through
their increased receipts from land tax to meet their current admin-
istrative expense to a far greater degree, if not entirely without finan-
cial assistance from the insular treasury.
The department is indebted to the director of lands for continued
and highly valued cooperation, and especially for the serious atten-
tion given to the determination of a program of surveys which may
coordinate with the permanent settlement of the less civilized ele-
ments of population here, at the same time providing for the orderly
and advantageous location of immigrant homesteaders.
Digitized by VjOOQIC
278 REPORT OP THE PHILIFPINB COMMISSION.
The bureau of lands has bee^i prompt in the dispatch of private
surveys and in its inspections, appraisals, and dispatch of applica-
tions for lease' and purchase of public lands.
There are reported for 1915, 1,290 applications for homesteads and
920 applications for free patents. Of these applications and those
pending from the preceding year, 25 homestead applications have
been rejected and the balance are pending determination, and 916
free patent applications have been approved. The greatest number
of homestead applications were from Cotabato and Zamboanga
Provinces; and of applications for free patents from Lanao and
Cotabato Provinces.
18. AoRICUIiTURAL CoiiONIES.
The purposes of this activity of the government were discussc^d at
length m the annual report for the year 1914.
The Philippine Legislature on February 5, 1915, by Act No. 2465,
amplified the several purposes for which the gold standard fund
might be invested, and by section 3 (e) authorized loans to the agri-
cultural colonies enterprise, the text of the pertinent portion of the
act reading as follows :
(e) In loans, in the form and under regulations prescribed by the in-
sular auditor, for the establishment and operation of agricultural colonies
that are now established under the authorization granted in Acts Num-
bered Twenty-two hundred and fifty-four and Twenty-two hundred and
eighty, to be expended in accordance with the provisions of said acts:
Provided^ however, That the total amount expendable under this subsection shaU
not exceed W50,000, and that the time for repayment of such loans shall not
exceed ten years, and the interest on the amount loaned shall be four per centum
per annum: And provided further, That in the event of any default in the
repayment of any such loan, the insular government shall be liable therefor,
and there shall be regarded as appropriated from the unappropriated surplus
of the insular treasury a sum sufficient to reimburse said fund on account of
such default.
Under this authority the capital fund of the Cotabato agricul-
tural colonies was augmented in the sum of M39,000. This loan
constituted the only authorization or provision made by additional
insular funds for the extension of the colonies project.
On November 18, 1915, the Philippine Commission, by Act; No.
2539, extended and " made applicable to that papt of the Philippine
Islands inhabited by Moros or other non-Christian tribes," Act No.
2254 of the Philippine Legislature, this being the general organic
act for the establishment of the agricultural colonies. This act had
been passed originally having especially in view the establishment
of agricultural colonies in Cotabato within the territorial jurisdiction
of the then Moro Province. By reason of this well-known intent,
the Commission had not been requested specifically to extend it to
Mindanao-Sulu, but in view of the possible technical legal point be-
ing raised at any time, the Commission was requested to make such
extension, and, as has already been stated, by Act No. 2539 formally
made Act No. 2254 applicable to all the territory not nominally
within the joint legislative jurisdiction of both housea of the Legis-
lature.
Digitized by VjOOQIC
REPORT OF THE DEPARTMENT OF MINDANAO AND SULU. 279
The following is taken from the department governor's report to
the board of agricultural colonies for the year 1915, under date of
January 18, 1916:
The organized agricultural colonies of Mindanao and Sulu are all located
within the Province of Cotabato and comprise the five colonies located in the
central portion of the valley of the Rio Grande and the colony designated
" No. 9," located at Glan, on Sarangani Bay, in the southeastern portion of the
Province.
No new colony has been organized during the year. The existing colonies
have been augmented by 40 additional immigrant famUies and 126 local native
(Maguindanao) families. Lack of funds has prevented further increase. The
total number of colonists — men, women, and children — on December 31, 1915,
was 5,044, of whom 2,362 are classed as immigi-ants and 2,682 as local natives
(Maguindanao). In greater detail, the resident colonists on December 31, 1915,
are classified as follows : Immigrants— 748 adult males and 631 adult females,
489 male children and 494 female children. Maguindanaos — 731 adult males
and 752 adult females, 680 male children and 519 female children. An aggre-
gate of 940 faniilies, 1,479 adult males, 5,044 persons of both sexes and all ages.
There was cultivate^ during the year by the colonists a total of 2,616 hectares
of land. The following table sets forth in detail by colony and character of
crop the distribution of this cultivation and includes a statement of areas of
the more important crops destroyed by locusts and the floods which followed the
termination of the extraordinary drought of the years 1913-1915 :
Colony Nos.
i,
Total.
Total area cultivated hectare.
Palay planted do.^..
Com planted do
Tobacco planted do
Peanuts planted do
Camotes planted do
Mongos planted .do
Ck)conuts planted number. .
Palay harvested cavan. . .
Com harvested do
Tobacco harvested mano . .
Peanuts harvested cavan . .
Camotes harvested do
Mongos harvested do
€om fn field at end of year hectare..
Com destroyed by grasshoppers, floods, and wet
weather hectare . .
Palay destroyed by grasshoppers and floods
hectare..
430
428
3
10
7
4
7,738
5,628
714
489
72
50
25
192
241
377
435
1,501
11,031
4,148
492
"*95
280
394
168
113
711
600
452
72
1
10
12
3
1,972
2,441
2,800
115
97
117
12
20
5
60
72
417
300
100
92
97
31
55
2
1
2
2
1
3
1
1
74
1,236
093
2
10
382
2,616
1,616
1,134
7
30
57
9
13,232
20,715
8,417
489
277
570
30
541
789
1,284
The following statement sets forth the financial affairs of the Cotabato agri-
cultural c-olonies at the close of business December 31, 1915, but it was im-
practicable to include herein certain important assets, which were crops in
process of harvest and delivery to the government, amounting to probably more
than ^50,000, which will be taken up in the financial statement for 1916, except
such quantities of corn and palay as may be deemed necessary to leave in the
possession of the colonists for their subsistence and for seed for the 1916
planting:
Im^eHment in the Cotabato FUipino colonies. _
IIXED ASSETS.
Colony buildings flO, 502. 42
Colony equipment , : 7, 170. 77
DEFEB^ED CHABGES.
Organization expenditures 61, 082. 91
1915 crop expenditures 5,988.79
f=17, 673. 19
67, 071. 70
61983—16 19
Digitized by VjOOQIC
280 REPORT OF THE PHILIPPINE COMMISSION.
CLRRENT ASSETS.
Farm products f954. 30
Merchandise (cost) 20,656.71
CJolonists' equipment 6. 215. 09
CJolonists* account current 286, 175. 01
Accounts receivable 38, 863. 61
Cash:
Provincial treasury (10, 663. 27)
Cashiers and disbursing officers 6, 407. 06
?348,608. 51
433, 353. 40
LIABILITIES.
Accounts payable 332. 47
Total investment to date 433,020.93
Total investment. Jan. 1, 1915 : 277,256.12
Increase during 1915 155, 764. 81
By reason of the unprecedented coincidence of three successive years of
drought, locusts, and floods, with consequent Inevitable delays in bringing wild
land under cultivation and the harvesting of a normal crop, the advances to
colonists for subsistence, etc., have been far greater than would be necessary
under normal climatic and other conditions. Notwithstanding these extraor-
dinary unfavorable conditions, which are without precedent in the memory of
the oldest resident of the Cotabato Valley, and therefore improbable of repeti-
tion within the definite future, the average indebtedness per colonist to the
government on December 31, 1915, ranged from W2.91 for the Maguindanaos
in colony No. 5, to M55.45 for the immigrant colonists in colony No. 1. The
m«ximum indebtedness of any one individual colonist was W,049.61. Even
this indebtedness may easily be extinguished by the proceeds of two ordinarily
good crops, as even notwithstanding locusts and floods in 1915, there are indi-
vidual colonists who have harvested as nmch as 250 cm vans each of pah^y;
^2 per cavan may be considered the standard market value of pa lay in
Cotabato. Under conditions which ordinarily exist and which with reason may
be anticipated for 1916 and one or more succeeding years, it will not be ex-
ceptional for a colonist to harvest as much as 500 cavans of palay in a sinscle
year, as the area already plowed and under cultivation by various colonists
exceeds 5 hectares, and in some instances is now as great as 11 hectares. In
addition to palay the colonists are planting considerable areas in maize
and other intermediate crops, all of which will add materially to the total value
of the income of the colonists.
On December 31, 1915, 19 colonists had either completed their payment to
the government of their entire indebtedness on account of advances or had on
hand sufficient products ready for delivery to the government to complete pay-
ment. On the same date 20 colonists had paid off 50 per cent or more of their
indebtedness to the government or had on hand ready for delivery products
suflicient to do so.
Palay and maize are the principal crops planted by the colonists. The soil
generally appears to be favorable also for the growing of mangos, peanuts, and
tobacco, which have been planted to some extent for experimental and dem-
onstration purposes. Practically all varieties of Philippine garden vegetables
are v'Ultivatod successfully, and have become and are an important factor in
the subsistence of the colonists. The planting of coconuts, cacao, and kapok
as permanent crops, of secondary importance as to quantity, has not been
pushed greatly during the year because of other more urgent demands upon
the time of the colonists incident to the combating of locusts and the replant-
ing of food crops.
An important feature of admlnistratiove work In the colonies during tlie
year has been the study of the numerous varieties of palay and seed selection
with a view to the determination and standardization of perhaps two varieties
best suited to requirements. The colony administration is indebted to the
bureau of agriculture for the continuation of Inspector Billedo on this im-
portant work during the year. There seems assurance that the results for
1916 will show as a result of careful seed selection great Improvement in the
Digitized by VjOOQIC
REPORT OF THE DEPARIIMENT OF MINDANAO AND SULU. 281
production of a type of palay of prolific yield and of uniform size of grain,
rendering possible the production of milled rice of a uniform and higher grade
than is possible to produce from the diverse sizes of grain and multitudinous
varieties of palay now generally grown in the Cotabato Valley.
In view of the fact that the only rice mill in the Province of Cotabato was a
small one of antiquated type, and inasmuch as private capital was not forth-
coming, the government concluded arrangements during the year for the in-
stallation of a modern mill of adequate capacity — 500 cavans of palay per diem
of 10 hours. This mill will begin operation under contract test within a few
days, and if accepted will probably be taken over under the ngricultural colony
administration. By this means it will be possible to market more profitably
the palay for the colonies and perhaps fix a minimum price at which palay
immediately after harvest may be accepted from the colonists, which will be
advantageous and satisfactory to them. Through this advantage and others it
Is believed that it will be possible to shorten materially the period required
for the repayment by the colonists of their indebtedness to the government.
As to the general conditions existing in the Cotabato colonies, I quote from
the report of the provincial governor :
" Notwithstanding the losses incurred on account of grasshoppers and floods,
the general progress of the colony work has been most encouraging, and the
spirit shown by the colonists has been most excellent. They are realizing that
they have come to a new country to meet conditions with which they were not
familiar. They are most surely and steadily meeting and overcoming such
changed conditions and constantly are more firmly establishing themselves In
their new homes.
"The relations between the immigrant colonists and the native Maguin-
danaos have been excellent. The Maguindanaos passing through the colonies
have commented repeatedly on the kindness and hospitality extended to them
on the part of the immigrant colonists. During the entire year there has not
arisen a single question indicating animus or ill feeling on the part of native
residents toward the immigrant colonists."
MINDANAO COLONIES BLSEWHEBE THAN COTABATO.
Zamboanga, — ^As stated in last report, a colony location had been decided
upon in the vicinity of Lamitan, island of Basilan, and survey begun In 1914.
This survey has been concluded and provides a total of 19^ homesteads of 8^
hectares each. An adequate site for the office and storehouse building for the
colony has been selected and arrangements made for beginning construction- at
once. Also a site of 36.45 hectares for a primary school of the " farm-school "
type has been determined upon. Within a few days work will begin, utilizing
the labor of provincial prisoners for the preparation of seed beds and tree
nursery to supply oacao, coffee, and coconut seedlings and other fruit trees
when required by the colonists, and also to provide, in part at least, the garden
vegetables which will at once be required by the immigrant colonists whom, it
is hoped, may be brought in during the first six months of 1916. It is planned
to bring in not to exceed 50 immigrant colonist families, who will be placed on
homesteads, alternating with local natives — Samal and Yakan Mohammedans —
and the latter in sufllcient number added to complete the total number of
colonists for which there are homesteads.
Bukidnon. — ^With a view to determination of the best available colony sites
for early occupation in Bukidnon there was selected in Ilocos Norte a man of
practical experience in the growing of palay under irrigation by the customary
local methods, who also was apparently of such influence and prestige among the
people of his Province as to enable him to conduct with success recruiting
propaganda there. This man visited the Province of Bukidnon in the month of
April, 1915, and after inspecting various locations reported five localities as
especialy suitable, in his opinion, for palay cultivation, with exceptional facili-
ties for Irrigation by simple gravity systems. Of these five locations he selected
two which were immediately adjacent to each other as the best location for
the first colony of at least 100 families. Request has been made on the bureau
of lands for a survey of this proposed first Bukidnon colony location. The
agent selected by the government, after visiting the colonies established and in
operation in the Cotabato Valley in order to familiarize himself with adminis-
trative methods, returned to Ilocos, and has since been carrying on propaganda
preliminary to the recruiting of colonists. It will not be possible, however, to
proceed further with this project until funds are made available therefor.
Digitized by VjOOQIC
282 REPORT OF THE PHILIPPINE COMMISSION.
Agusan aiid Dnvao. — In order to ascertain more definitely the iwsslbllity of
selecting suitable locations for agricultural colonies to produce palay in the
Provinces of Agusan and Davao, the Hon. Juan Alvear, formerly governor of
the Province of Pangasinan, the largest rice-producing Province in>the archi-
pelago, was requested to make a reconnoissance of northern Davao and south-
ern Agusan. Mr. Alvear, after concluding his inspection, strongly recommended
the establishment of rice-growing colonies at various points in the upper valley
of the Rio Grande de Agusan and on at least one of the rivers flowing south-
ward into the Gulf of Gavao. In view of lack of funds for proceeding further
in the matter of establishing agricultural colonies in these two Provinces, loca-
tions have not definitely been made nor other steps taken.
The Cotabato agricultural colonies are solvent. They have passed all iwints
that were forecasted as critical and have overcome unprecedented obstacles
which were impossible of anticipation. These organizations^ stand to-day
without need for donations or further increase in capital authorization. It is
evident that in due course they will return to the insular treasury all that
has been advanced to them.
Following the results for the years 1913 and 1914, stated In previous reports,
the history of colony affairs for 1915 demonstrates the complete success of the
colonies from the standpoint of practicability of Inducing the Inhabitants of
overpopulated districts In the Vlsayas to migrate to and locate permanently
In the fertile fields of virgin territory In Mindanao ; the feasibility of Inducing
the heretofore unsettled Mohammedan natives of the Interior of Mindanao to
locate permanently, acquire definite ownership of land, and devote themselves
to agriculture ; and the fact that the Immigrant Christian and the local Moham-
medan may be brought together In mixed communities and readily adapt them-
selves to conditions which must result In the production of a homogeneous
people. There was forecasted at the beginning of the colonies project, and
there has been asserted thereafter, the certainty of the financial success of the
undertaking, both from the standpoint of the government as an investment
to be recovered directly In cash, and from the standpoint of the colonist as an.
Investment of labor and time to be repaid by the acquisition of ownership with
government title of first-class agricultural land and an Income within a very
few years ample to provide not only the comforts and necessities, but also
luxuries, for himself and family far beyond anything with reason he might
hope to accomplish In his native village. Also the resulting civic, economic, and
otherwise national gains that obviously must result from the Improvement of
the material circumstances of so many of its citizens as may come within the
benefits of the colonies.
The results of the year 1915 afford conclusive demonstration of the finaaclal
success of the colonies. Notwithstanding the extensive destruction of the
crops caused by the unprecedented floods and the continuance of the locust
plague from the preceding years, when drought and grasshoppers had interfered
materially with the preparation of the wild land and successful cultivation of
the first crops, the work of clearing and breaking the land and Its cultivation
has steadily gone forward. Crops have been planted and replanted in some
Instances five times In one year because of destruction by locusts, drought, or
floods. Yet the enthusiasm and pioneer spirit of the colonists has given no
sign of being extinguished or even wavering. And in spite of all the coin-
cident and successive difficulties, about 4 per cent of the colonists already have
produced sufficient to repay more than 50 per cent, and In about one-half of
these cases the entire amount of their Indebtedness to the government' on ac-
count of Its cash advances to them. There Is neither risky speculation nor
exaggerated optimism expressed In the statement that the recovery within three
years by the government of its entire investment in these colonies Is assured
wlhout any extraordinary administrative effort being made.
There Is a constant and Increasing demand for colony extension, both from
persons In the densely populated areas of the north who are desirous of coming
to Mindanao-Sulu to take up agricultural land, who are themselves financially
unable to do so, ami for local Mohammedan and pagan natives who, seeing
the advantages of their fellows who have been admitted as colonists in those
already organized, can not understand why the government should deny them
similar privileges. However, no material extension of organized colonies may
be made in 1916 unless further funds be made available by the Legislature for
the purposes.
In the original prospectus for the financial administration of the agricultural
colonies it was estimated that It would require capitalization on the basis of
Digitized by VjOOQ I
REPOBT OF THE DEPARTMENT OF MINDANAO AND SULU. 283
an average of ^500 per colonist family. This estimate has proven a liberal
one, inasmuch a| the average investment required in the Cotabato colonies, not-
withstanding the most extraordinary obstacles: to be overcome, is ~^460 per
family. This, however, is almost twice the amount which would be necessary
successfully to flnanee on a larger scale operations of this character. It is
estimated that the cost i)er family may be reduced to not exceeding ^50, if
the operations be on the basis of not less than 25,000 Immigrant colonists —
approximately 0,000 families per annum and an equal number of local Moham-
medan and pagan natives. While to finance the colonies* extension to this
extent would require for 12,000 families an authorization of ¥^3,000,000, this
sum would not be required during the first year, or In its entirety long, if at all,
before the close of the second year, for the reason that approximately one year
would be required to determine sites, make the necessary beginnings of surveys,
secure delivery of equipment, and conclude other essential preliminaries to
the economical movement of the people and their timely location on the new
colony sites equipped ready to begin work.'
I believe that without exception every person who has visited the Cotabato
colonies has been convinced of their success from every standpoint, and espe-
cially of their great Import to the future of these Islands and the Filipino
people. I can not anticipate personally taking an important part In the further
realization of the undertaking, but I desire now to make the strongest plea
within my power for the colony extension above proposed, not so much In
behalf of Mlndanao-Sulu as In behalf of the Philippine Islands and of the
Filipino people as potentially a nation destined to be. If It will, a great nation.
19. Commerce anp Shifpi>jg.
The general situation existing at the close of 1914 as stated in that
annual report has continued during 1915 without noteworthy change.
Statistics for the export and import trade, foreign immigration,
and shipping at the two ports of entry, Jolo and Zamboanga, may
be found in the reports of the insular collector of customs, these mat-
ters not falling within the jurisdiction of tlie department govern-
ment. The total export-import trade of these two ports during
1915 is stated at f^,231,503, as compared with f=3,127,042 for 1914.
The department steamship Borneo has continued its service in
south Mindanao-Sulu waters supplementary to the regular coastwise
vessels by affording freight and passenger transportation from the
more remote and smaller coastwise ports to those larger ports which
are on the schedules of coastwise vessels. The cutter Mindanao has
rendered considerable supplementary service of this same character.
The Borneo has also continued its regular monthly trips from 5$am-
boanga via north coast Mindanao points to Cebu and return, thus
affording the only dependable or periodical means of communication
between all north coast points.
The arrastre plants and water supply at the ports of Jolo and
Zamboanga and the coaling station near Zamboanga have been main-
tained throughout the year in the service of the government and
commercial shipping. The data as to expenditures and receipts on
account of these services will be found in the report of the insular
auditor and in the tables embodied in this report under the heading
" 6. Finance."
20. Manufactures.
The only manufactures of the character of factories, as distin-
guished from cottage or household industries, in the department are
the lumber mills, which are reported upon elsewhere herein under
the title of " 14. Forests." The refining plant and laboratoiry estab-
Digitized by VjOOQIC
284 REPORT OP THE PHILIPPINE COMMISSION.
lished at Cotabato by tlie Rio Grande Rubber Estates Co. has con-
tinued investigation and preliminary work on vegetable oils, espe-
cially the biao or candle nut. There seems to have been demon-
strated the feasibility of producing a good commercial soap from
this oil, but of especial interest is noted its considerable content of
gl^^cerin, which is of great interest at present because of the remark-
ably high price of this chemical.
There has been no development of significance in the customary
small native industries. As stated in the report for 1914, the schools
are devoting serious attention to the improvement and generaliza-
tion of knowledge of customary local native industries, especially
weaving, basket, hat and mat maldng, needlework, embroidery, etc.
The immediate objective is the production of quantities adequate to
meet local demand for thegfe articles by residents and tourists; the
present production falls considerably short of meeting this ol3Jec-
tive.
21. Banks and Credits.
These subjects are discussed at length in the annual report for
1914, and there is to note for the year 1915 no change of importance
beyond the action of the Bank of the Philippine Islands in closing
its branch at Jolo. This was apparently due to the financial depres-
sion at Jolo occasioned in great part by the almost complete suspen-
sion of the pearl fisheries.
The financial situation throughout the year has been one of much
depression by reason of the disturbance of foreign markets gener-
ally, especially those for lumber, pearls, and pearl shell, and by
reason of the greatly reduced production of abaca and copra due to
the prolonged drought. Investment money has been more than ordi-
narily exacting in its requirements as to new engagements and gener-
ally insistent upon the retirement of outstanding credits. The Zam-
boanga branch, of the Bank of the Philippine Islands has, however,
pursued a course so favorable to its clients as to merit special men-
tion of this important institution, which is at present ithe sole com-
mercial banking facility established in the department.
22. Missions and Other Private Philanthropies.
Missions and other private philanthropies have continued during
the year factors of public service of increasing material benefit and
of no less relative importance than as reported for 1914. It has been
gratifying to observe continued tolerance and mutual kindly feeling
between even the most active representatives and devout communis
cants of all denominational organizations. The situation in this
regard at the time of the last annual report w as good and seemed
to leave comparatively little opportunity for improvement. This
situation in an even greater degree, if possible, exists at the close of
1915.
All of the activities under this head mentioned in the report for
the preceding year, 1914, have continued during 1915 without reduc-
tion in personnel or other factor, and in certain instances there has
been material increase. The Roman Catholic Bishop of Zamboanga,
Digitized by VjOOQIC
BEPOBT OF THE DEPABTMENT OF MIHDANAO AND BULU. 285
Dr. M. J. O'Doherty, established the hosfHtal of N. S. del Pflar at
Zamboanga. The capacitjF of this hospital is 68 beds Tor patients.
It is provided with an organized medical and surgical staff, while
the nursing staff comprises seven sisters of charity. The hospital is
oj)en to all classes of persons, and the poor are admitted and treated
without charge. Bishop O'Doherty has also practically completed
arrangements for a considerable increase in mission work, especially
in the Province of Davao, where he contemplates opening new mission
stations.
The Congregational Mission, having its principal station at Davao
and outstations at Butuan, Cotabato, and Dipolog, continued its
activities during the year, having one American ordained missionary
and one American medical missionary at Davao, also one ordained
and one unordained native preachers, three native teachers, and six
paid native workers. The mission reports 130 communicants at
Davao and 1,032 in the remainder of Mindanao^ including the Prov-
inces of Misamis and Surigao, statistics for Mindanao exclusive of
these two Provinces not bemg given. To these were added, during
1915, 116, making a total of 1,278 communicants. Mission schools
were maintained in the Province of Davao, giving instruction on
approximately the same lines as public schools to 80 boys and 40
ffirls, a total of 120 pupils. The mission hospital at Davao admitted
for treatment during the year a total of 472 patients.
The various activities carried on in Zamboanga and Sulu under the
auspices of Bishop Brent (Episcopal Church), as detailed in the
annual report for 1914, continued during the past year. The farm-
school project at Camp Indanan on the island of Sulu was energeti-
cally pursued and the preliminary work of construction of buildings
and equipment well advanced, assuring completion and opening of
the establishment to pupils early next year.
The work of the Christian and Missionary Alliance, under the
Rev. David O. Lund, in Zamboanga Province, has continued during
the year without special incident to be noted.
There has been no special activity on the part of Mohammedan
missionaries.
23. Political Conditions.
The elections of vice presidents and councilors in the organized
municipalities were held on March 16, 1915, except in Agusan, where
the regular elections had previously been held, and in Bukidnon,
where no organized municipality existed. Such elections are re-
Eorted at this time for the reason that complete returns could not be
ad at the time of the closing of the report for 1914 because of diffi-
culties in securing such returns from several municipalities, especially
those on the Pacific coast, by reason of infrequent mail communication.
The number of men who voted in these elections in the several
municipalities was as follows:
COTABATO.
Cotabato 23
Parang 27
Total 50
Digitized by VjOOQIC
196
Vic;.;iy
■ *»
''^<j:<sI_.
' '"l
■* ''C'-U.x ..J
i "»- "T^
* t" jre I*-: 7i
J i J-;
^•ii-na .If.: i
' ' ' . -o
'tNlrr'j!? V>j
■: ^ '-^-i
•^ - *^ nf L- .": J
f.-i^
^^;c flh- '< J
/ ■ <-..,'. "1. :.; 5e ji-j|-Vrs> I
f i ' ' "^ ""■ "*^ ■' '"^ '''''•^' "^^^ u»urlq\:
f
• * ' ' •*'.^f:i-'' i-'i-*' iHiciinijpof ifflr*-:-':.::
7. .* wi- jr; a.-vEr.y .j-j^ ro tie ikircia] lierr^
J ' .' -' ^. t"." * ji<>';f f/ie rear liii t^en one of l:.:
■ ■ -» - - ' I ^ : -i':r Av.-^ of r'n-'^n: martets ^^:^'
: ^ '-r / '. rr. pt^rk an</ pesrJ sfai?U. ai. ■'"
;-- .' ** . *•. ; "•/ii-fiii/j of d.'dt'a anJ copra liLf ['
.• :. /:. • '<:.rf:f nif>/ier /ja^ frea more thiD 'v^-
.• ." •* "■ '^r,'*:.^ jN foDeweDi:ai!v^]ect^aDd^e^r^
: ■ ► - ; .-*::'/:f ff *»'7t>rdfl(i;fi^ creJif:i IheZc;-
j '. • : : - J..:.A .</ ne PhdippiDe Islduds ias. howeve:.
.'-*'• /ii '"J- .'r r^i ;t> r/;t^/;t< a^ to merit special Gien-
: , * 1'.-: .:.< : :r:-'fl. w/uVi is $t present the sole dc-
. . . . • A V '* 'J ^^ ^^^^ ^ ^^ department.
X )/>< \* i^D (>r:ra ftjvire PfliLiATittOPiis.
I ^, .^ .. ; ,'-^ rr.T jr** pLUir.thn^ph^ huve continued diim:
. ., ^* -, / ' *. >r.'i ;tv of inrrv:i^ing material benefit jm-i
'^^ : " - '■ •'^'-' ^ '-^^ ^ rejHmed for 1914. It has been
"*, . ,^-;r ^x':.z?^i toiersntY and mutual kindly teehng
•'"' * " • ^ r "^ » f*"* n-rre^^ntatives and devout commuid'
• ■ * ^- " ^ ;.'!*- •'-**' i^nrdnizations. The situation in this
' ' W ^ > '/\: ;> !i:^ inniiaJ rtport was good and seemed
*' * ' \, .V .V.v-V ty^ponimitr for improvement This
: -• ' '• ' ;. v-i.vr >iW, ifpo^ihle, exists at the close of
.1. -'*'* 1". .; iunprtOtiDoer' '*bout reduo
.- -"^'«^--"-*' '** * VfW Arfw. «JK^ s there *
Digitized
byGc,
It of the i^pabtmest of idsdaxao a^o* sn,*.- 2fi3
[o'Doherty, esttblished the kospitiJ of 5. S. dd Pikr m.
The capacity of this bospi^ is 5S be& for paTTW^
ided with an organized medical and snrgical tf i if wiik
y staff comprises seven sisters of cltariTT, Tr**- L'jsitiu- »
classes of perstms. and the poor are admhxed and tMtted
iharge. Bishop O'Drfierty liis also pramcallj coDUiieaed
lents for a considerable increase in miasicai vort. «>«3fcDT
rovince of Davao, where he ocmtanplaiies opes^^ns new misaofi
ongregational MissicMi, having its principal sutiaL at I>i(TBo
stations at Butnan, Cotabato, and Dip&j jg. cannoned its
3s during the year, having one American oritmed missicmaiT
I e American mediod mi^cnarj at Davaa aiso one ardkmed
e miordained native preachers, three n&tiT^ teachers, and six
lative workers. The missicm repcwts Ih'j ccnmLULjcane ai
and 1,032 in the rwnainder of Mindanao, in^udnig the Prov-
3f Misamis and Suri^ao, statistics for Mindanao exclusive «f
two Provinces not bemg given. To these were added, during
116, making a total of L278 coinmc£icant& MksicD adioois
maintained in the Province of Davaa giving instructioD oo
jximately the same lines as public achocws to bO bcnrs and 40
, a total of 120 pupils. The missoo ho^ital at I^vao admitted
xeatment during the year a total of 472 patiente.
le various activities carried on in Zamboanga and Sido under the
nces of Bidiop Brait (Episcopal Clurcht- as detaiJed in the
ual rejwrt for 1914, continued d:iring the past vear- The hrm-
Dol project at Camp Indanan on the island of Suin wms eocnwd-
.y pursued and the preliminary work of camtroction of bmlSngB
1 equipment well advanced- assnring compJetiM and opemng of
; establishment to pupils eariv TM>Tt Tear.
The work of the OirktiM md MisBoimTr Aliiioee, under tb»
3V. David O. Lund, in Zunboangi Prorioee. Jim taatiaud duriag
e year without special incidait to be noted. '
There has been no speaal medxity m^ftrt etUotmmmidin
ussionanes.
Founctt Oaaawm,
The elections of yioe preadote mi emOm in tbt crgtaiMtd
municipahties were held od Mzrrh It m.taatmAiam£wh^
the regular elections h«i pwriprfr k. SudTUdo^
where no organized mnnicpiIitT iimi Smi tkcOm tnn.
ported at this time fw the iMm'ar^^T^t^^/.^ V
Ld at the tune of the d^^^J^SiSi^Jlm
culties in securing sudi^l^JEfilS/SS^^^'.f
thoseonthePad&«i^S^3irS!S!:r^'?"j'
The number of -TX^ m^TSST?!""''"*'""'
municipalities wa««i£. ^ **^ "" '*' •*'"'-«l
un
d
it
es
id
is
3n
ti-
nt
w
te
yn
of
a
by
me
ater
been
*ew
Digitized by VjOOQIC
286 REPORT OF THE PHILIPPINE COMMISSION.
DAVAO.
Baganga 175
Oaraga 120
Cateel 211
Davao 107
Manay 91
Matl 118 •
Santa Cruz 26
Total 848
LANAO.
Dansalaa 76
lUgan 25
Malabang 33
Total 134
SULU.
Jolo L 67
ZAICBOANOA.
Dapltan ^ 144
Dipolog 112
Isabela : 20
Lubungan C)
Zamboanga - 279
Total 555
Grand total 1, 654
The small number of voters who registered in all the municipali-
ties, and especially in those of the Provinces of Davao and Zam-
boanga, was hardly in accord with the expectations of those who
claimed that there was a general popular demand for elective gov-
ernment.
The qualifications required for an elector in this department are
more easily met than those prescribed in the northern Provinces, by
reason of the fact that in addition to the alternative qualifications
there in force, the organic act here adds ability to speak, read, and
write any of the local native dialects. In the regularly organized
Provinces, the corresponding qualification applies only to those per-
sons who speak, read, and write the English or Spanish language.
Accordingly, in the organized municipalities of this department
there should be a relatively larger number of voters at the elections
than there are in the municipalities of Luzon and the Visayas.
On April 6 elections were held in al) the Provinces of the de-
partment for third member. These elections, in accordance with
the provisions of the organic act, were by representative rather than
by popular suffrage, the participants being the vice presidents and
councilors of the organized municipalities and of municipal dis-
tricts. The elections were conducted in an orderly manner and re-
sulted iijL the election of Christian Filipinos in the Provinces of
Agusan, Bukidnon, and Davao, and of Mohammedan Filipinos in
^Lubungan was organized Into an Independent municipality effective Jan. 1, 1916, and
therefore no election could be held.
Digitized by VjOOQIC
REPORT OF THE DEPARTMENT OF MINDANAO AND SULU. 287
the Provinces of Cotabato, Lanao, Sulu, and Zamboanga. The elec-
tion at Davao was contested, prompt decision being rendered by
the court of first instance.
All elected officials have in general conducted themselves well, and
as to efficiency have met reasonable expectations. Popular partici-
pation in government is a novelty in practically all the territory
comprised in the department, and it will necessarily require some
time for the formation of a considerable group of individuals who
are prepared by thoughtful observation or practice to be of materia!
value in the conduct of government, especially as to the initiative, or
even as to the carrying out of established policies affecting the ma-
terial welfare of the people.
Anticipating the elections to be held in June, 1916, coincident with
the general elections throughout the regularly organized Provinces
in Luzon and the Visayas, no opportmiity is being lost by the gov-
ernment to awaken the people to their civic duties, especially as to
active participatioii in the selection of those public officers who by
law are required to be by popular election, in the hope of increasing
greatly the number of qualified electors for the next elections.
In the matter of organization of political parties there is to be
noted nothing of special moment. It has been stated that the Partido
Democracia Nacional, or " third " party, has organized committees in
some of the larger municipalities, but there is no authoritative confir-
mation of these rumors, and in the elections held, both municipal and
provincial, the candidates went before the public rather on a basis of
their own personal records than as the official candidates of organized
parties, except in Agusan and Davao, where the Nationalist Party
candidates were elected.
The matter of greatest political significance which occurred during
the year was the formal renunciation by the Sultan of Sulu of all
pretensions to temporal sovereignty through his unqualified recog-
nition of the sovereignty of the United States of America in the
Sulu Archipelago as in all other parts of the Philippine Islands,
coincident with the confirmation by the government of its recog-
nition of the sultan as the ecclesiastical head of the Mohammedan
Church in the Sulu Archipelago. Formal written agreement to these
ends, dated March 22, 1915, was signed by the Sultan of Sulu in
person and by the department governor, duly authorized by and in
behalf of the Governor General, the signatory witnesses thereto on
the part of the government being officers of the department staff, the
district chief of constabulary, and the provincial governor of Sulu,
On the part of the Sultan, such witnesses were members of the former
cabinet or council of the Sultan and other natives of Sulu whom the
Sultan had accompany him in the course of the conferences prelimi-
nary to and at the time of the signing of the agreement ; also Hadji
Butu, assistant to the provincial governor of Sulu and last prime
minister to the Sultan of Sulu, who in behalf of the Sultan had con-
ducted the negotiations in 1899 with Gen. Bates resulting in the
agreement known as the Bates treaty.
The Bates treaty was abrogated by the President March 2, 1904,
because of the failure of the Sultan to maintain order among the
Sulu people. In due course the President's action of abrogating the
treaty was communicated through the Governor General and sub-
ordinate officers to the Sultan, who in July following visited Manila,
Digitized by VjOOQIC
288 REPORT OF THE PHILIPPINE COMMISSION.
accompanied by members of his cjuncil, and appeared before the
Governor General and Philippine Commission lor conference re-
garding the matter. In this conference the Governor General
reiterated to the Sultan the reasons for the abrogation of the treaty,
and after various sessions the conference concluded with assurances
by the Governor General to the Sultan that the latter would con-
tinue to be recognized as the ecclesiastical or spiritual head of the
Sulu Mohammedans, and that to him and to the datus and other
leading men who accompanied him there would be granted lands
commensurate with the necessity and dignity of their respective
positions and an annual money allowance payable from the insular
treasury during their respective lives. Tne Sultan presented de-
tailed statement of revenues demonstrative of a monthly income of
1P12,100. The commission, by Act No. 1259, granted th^ following
monthly allowances:
To the Sultan of Sulu ' ^500
To Hadji Butu 150
To Hadji Taib 75
To Hadji Mahomet 75
To Hadji Abdallah ^ 75
To Hadji Bandahalla 100
To Datto Joakanain 75
To Datto KalM 75
And by Act No. 1320 added the following:
To Maharajah Indanan ^=75. 00
To Hadji TahU 50. 00
To Hadji Sali 37. 50
. No acknowledgment in writing was made by the Sultan of Ameri-
can sovereignty — complete or partial — subsequent to the abrogation
of the Bates treaty.
The Sultan appears to have continued to exercise those preroga-
tives of sovereignty which he could without serious conflict with
the American authorities, and on various occasions offered to estab-
lish and maintain peace and public order in Sulu if permitted to
reorganize and rehabilitate his army. These offers were of course
always declined, although on various occasions his services were
utilized in conference with recalcitrant datus and other leaders. The
Sultan at all times had refrained from armed conflict or even active
opposition to the United States Government, and therefore contended
that he had not lost sovereigntv through conquest. In conferences
he repeatedly claimed that he had on no occasion abdicated or re-
nounced his sovereignty except in so far as concerned relations with
foreign Governments as to affairs in, and the territory of, the Sulu
Archipelago. His treaties with the British Government as to his
territorial possessions in British North Borneo have always been
as they are, direct and without intervention of Spain or of the
United States.
The extension of government beyond the immediate vicinity of the
walled town of Jolo and the port towns of Siasi and Bongao con-
stantly encountered activities of the sultan in the exercise of his
claim of de jure sovereignty as to internal affairs and that he had
a de facto government except as it was crowded aside bv the Ameri-
can authorities. These activities of the Sultan, especially as to the
exercise of the judiciary prerogative in the trial of both criminal
Digitized by VjOOQIC
REPORT OF THE DEPARTMENT OF MINDANAO AND SULU. 289
and civil causes, as well as along other lines, such as taxation of
pearl and turtle fisheries, markets, etc., compelled a determination
of the entire matter. To this end the Sultan was called to Zam-
boanga March 11, 1915, and directed to bring with him his advisers
and persons of his immediate confidence, jio nominal recognition
being given his cabinet or council. These conferences began on
March 13, 1915, and were terminated March 22, 1915, by the sign-
ing of the agreement reached, the full text of which is hereto ap-
pended.
In the course of the conference the following facts were developed :
At the time of the treaty of Paris, Spain exercised sovereignty over
the Sulu Archipelago in all matters involving relations with foreign
Governments, and as to de facto local administration only at the ports
-of Jolo, Siasi, Bong^o, and perhaps one or two minor coast stations.
Otherwise the government of the Sultan seems to have existed both
de jure and de facto, and at the ports and stations named the Sultan
had the status of a protected sovereign rather than a subject indi-
vidual, as evidenced by the military honors and other distinctions
with which he was received.
While Article I of the Bates treaty is in terms a declaration and
acknowledgment of the sovereignty of the United States over the
whole archipelago, this is obviously as to foreign relations rather
than internal administration, if it be read, as it must be, in connec-
tion with the succeeding articles, especially those numbered III, IV,
VI, VIII, X (especially significant) , XI, XII,^ XIV.
The Bates treaty was abrogated by the President in the following
terms:
* * * In view of the failure on the part of the Sultan and signing dattos
to discharge the duties and fulfill the conditions imposed upon them by said
.Mgreement, that they forfeited all right to the annuities tlierein stipulated to
be paid from and to all other considerations moving to them under the agree-
ment ; the treaty is abrogated and held for naught, and as residents of the
Moro Provinces in the Philippine Archipelago they are subject to the laws
enacte<l therein under the sovereignty of the United States. * * *
It will be noted that in the absence of written acceptance or un-
successful physical resistance by the Sultan to the verbal assertion
of sovereignty of the United States and subjection of himself and
people to laws enacted in the Philippine Archipelago under that
sovereignty, the effect of the terms of the abrogation of the Bates
treaty was merely to restore the statu quo ante in so far as concerned
the contention of the Sultan as to his de jure sovereignty. As to his
failure to maintain public order, his contention appears to have been
at all times since American occupation that if the American au-
thorities permitted him to arm his followers and punish recalcitrant
datus and other responsible headmen he would disperse outlaw
bands, apprehend criminals, and maintain in effect a better state
of public order than existed from the time of American occupation
until his renunciation of claim of sovereignty by the agreement of
March 22, 1915. Summarized, his contentions were that he held a
de jure sovereignty by virtue of lawful succession, as set forth by
written records of more than 400 years, and prior thereto from time
. immemorial ; that the sovereignty of the Sultan had during the later
years of Spanish occupation of the Philippine Archipelago been
modified only in so far as concerns foreign relations and a very few
Digitized by VjOOQIC
290 REPORT OF THE PHILIPPINE COMMISSION.
points in the Sulu Archipelago occupied by Spanish troops, his
sovereignty as to possessions (ttepondoneies) outside the Sulu Archi-
pelago being unimpaired: that this situation existed at the time
of American occupation, and tlie agreement known as the Bates
treaty, by which the de jure and de facto sovereignty of the Sultan
as to the administration of internal affairs was recognized by the
terms " the rights and dignities of His Highness the Sultan ; " " the
consent of the Sultan" as to purchases of land in the Sulu Archi-
pelago; "the Government of the Sultan will bring to trial and
punishment the criminals and offenders, who will be delivered to the
Government of the Sultan by the United States authorities if in
their possession ;" " in case of any trouble with subjects of the Sultan ;'^
"Americans or foreigners wishing to go into the country should state
their wishes to the Moro authorities and ask for an escort;" "the
I^'^nited States will give full protection to the Sultan and his subjects
in ease any foreign nation should attempt to impose upon them;''
and "the United States will not sell the island of Jolo or any other
island of the Jolo Archipelago to any foreign nation without the
consent of the Sultan of Jolo." These provisions and terms of the
treaty clearly indicate the status existing at the time of its signature,
August 20, 1899, and its abrogation, March 2, 1904, was premised
upon a fact acknowledged b^ the Sultan with disclaimer of re-
sponsibility as not his but that of the American authorities, who,
in fact, took into their own hands from the Sultan the maintenance
of public order in Sulu.
The foregoing appeared to be the essential facts of the case as
the^ existed in March, 1915, at the beginning of the conferences.
While neither the Sultan nor any of his advisers was able to present
his case in a coherent and intelligible manner, yet the facts were not
difficult to secure from official records and well-known occurrences
since American occupation. These records and other facts were, of
course, public property, and it merely remained for the Sultan sooner
or later to secure the services of an astute attorney to present his
case in a proper manner as the basis of a claim for large financial
compensation on account of inland revenue of which he had been
deprived and which might be stated in exact terms, as well as in mon-
etary satisfaction of all he had suffered in, privation of the exercise
of his sovereignty over his people at the ancestral seat of the sul-
tanate and the territory which from time immemorial had been ruled
by him and his predecessors. He had carefully avoided being at war
or otherwise offering armed opposition to the sovereignty of the
United States, and therefore had not forfeited by conquest his own.
Neither had he abdicated or renounced his sovereignty.
It therefore appeared necessary and opportune definitely to extin-
guish all claims of the Sultan to any degree of temporal sovereignty,
and this was done in the agreement of March 22, 1915, as follows:
The Sultan of Sulu, on his own account and in behalf of his adherents and
people in the Sulu Archipelago and elsewhere within American territory, with-
out any reservation or limitation whatsoever, ratifies and confirms his recognition
of the sovereignty of the United States of America and the exercise by His Ex-
cellency the Governor General and the representatives of that Government in
Mindanao and Sulu, of all the attributes^ of sovereign government that are ex-
ercised elsewhere in American territory and dependencies, including the adjudi-
cation by Government courts or its other duly authorized officers of all civil
and criminal causes falling within the laws and orders of the Government.
Digitized by VjOOQIC
BEPORT OF THE DEPARTMENT OF MINDANAO AND SULU. 291
At the same time it appeared not only equitable and just but, from
the standpoint of orderly procedure in relations of state and church,
that an ecclesiastical organization of the Sulu Mohammedans and
the status of the Sultan as their chief ecclesiastical authority or
prelate be defined and recognized as, in fact, had been done by the
Governor General in July, 1904 (see minutes Philipine Commission),
and accordingly there was inserted in the preamble of the agreement
of March 22, 1915, the following:
Whereas the Sultan of Sulu is the titular spiritual liead of the Mohammedan
church in the Sulu Archipelago, with all the rights and privileges which under
the Government of the United States of American may be exercised by such an
ecclesiastical authority and subject to the same limitations which apply to the
supreme si)iritual heads of all* other religions existing in American territory,
including the right to solicit and receive voluntary popular contributions for the
suppoi't of the clergy, rites, and other necessary lawful exi)en^es of an eccle-
siastical character —
and in the body of the agreement itself the following :
The Sultan of Sulu and his adherents and people of the Moliammedan faith
shall have the same religious freedom had by the adherents of all other religious
creeds, the i)ractice of which is not in violation of the basic principles of the
laws of the United States of America.
It is important to note that there is included within the terms of
the paragraph of the agreement just quoted a limitation as to re-
ligious practice which necessarily includes the abandonment of
polygamy. As to this matter of polygamy, there can be no question
that it wilf disappear as the relative number of persons of the two
sexes reach an approximate natural equality and as public instruction
and the impress of modern ethics and morals shall have been given
by public and private schools and the marriage law providing for
lawful monogamous marriage by the Mohammedan clergy shall have
been enacted.
Since the agreement of March 22, 1915, the Sultan appears to have
endeavored in good faith to comply with its provisions. He has
sought to invoke the authority of the government to impose recog-
nition of his ecclesiastical authority upon recalcitrants, but such ac-
tion is not without precedent in the history of American Government
in its relations with the various denominations of the Christian faith.
The most serious problem which has presented itself has been that
of the trial of cases growing out of domestic relations which fall
within the purview of government and in accordance with the Sul-
tan's contention, ecclesiastical (Mohammedan) courts as well. These
cases are largely crimes against chastity, which, aside from adultery,
are most frequently the elopement and cohabitation of a man with a
young woman whose parents refuse permission for her marriage;
divorce, which is specifically recognized and regulated by Moham-
medan law and local custom, although not provided for by the laws
of government, except in a modified partial form, and the partition
of estates of deceased datus and other men of property leaving
widows and children of polygamous unions. In general, it may be
stated that the local customary law from time immemorial has been
that such heirs share equally, and it is, of course, intolerable from
the standpoint of the people that this system, which is in full accord
with their ideas of justice, should be displaced by the Christian
method of limiting inheritance to the widow and the children by
Digitized by VjOOQIC
292 REPORT OF THE PHILIPPINE COMMISSION.
her, the legal widow being determined by precedence in date of legal
matrimonial union. Thus far it has been possible to settle these
estates out of court by amicable agreement in accordance with the
customary law. It is of obvious importance that there should be
legislation under which the government courts may determine ques-
tions of this character in accordance with the customary law, which
is premised upon the established doctrines of justice which have been
evolved and become fundamental to these people since a time un-
doubtedly prior even to the advent of Mohammedan religion.
An effort to impose upon the Sulu people at this time the invali-
dation of polygamous marriages heretofore contracted, the prohibi-
tion at this time of polygamy, or the discontinuance of divorce, must
unavoidably result in the active resistance of a people imbued with a
fanatic determination to die rather than submit to a privation of
their religious liberty in matters thev firmly believe to be funda-
mental and sanctioned by divine authority. Death as an incident
to resistance, which they would consider martyrdom for their religion,
would be attractive to a degree beyond the comprehension of all but
a few who have had opportunity to acquire some understanding of
Mohammedan Malay psychology or who themselves enjoy the priv-
ilege of that spiritual exaltation which in all ages and among all
peoples in varying decrees has made religious martyrdom a devoutly
sought means to attainment of the highest degree of reward after
death.
24. Inspections.
Frequent inspections of the entire department have been made
throughout the year by the department governor in person or by
authorized representative.
Provincial governors and municipal presidents, respectitely, have
been active in the inspection of work being carried on by subordinates
within their jurisdictions.
Through the cooperation of the district chief of constabulary, the
supervising engineer, the department superintendent of schools, the
chief health officer, and the local representatives of the bureaus of
forestry, internal revenue, customs, lands, and weather, much has
been accomplished in the coordination of the several branches of
public service, and especially, through the courtesy of copies of
periodical and special reports on the work and progress of their
respective organizations, the department has been enabled to have
at all times a comprehensive view of the extension of control and
development of government throughout Mindanao-Sulu.
The personal attention necessarily given to the adjustment of
matters incident to the extension to the department of the jurisdic-
tion of all insular bureaus except that of health has compelled the
presence at Zamboanga of the department governor during a con-
siderable portion of the year; however, his official travel for the
year, including trips to Msinila when required by official business,
amounted to 15,567 miles.
The entire department or portions thereof were inspected during
the year by higher officers of governmenf , as follows :
Kepresentatives Britten and Edmonds, M. C, May 22-27.
Digitized by VjOOQIC
REPORT OF THE DEPARTMENT OF MINDANAO AND SULU. 293
Senator Shafroth, Representative Brumbaugh, Speaker Osmena,
Resident Commissioner Quezon, and 14 ^members of the Philippine
Assembly, June 21-27.
Representative Miller, M. C, July 18-25.
Gen. Frank Mclntyre, Chief of the Bureau of Insular Aflfairs,
August 22-28.
Also inspections were made by R. M. Shearer, acting secretary to
the Governor General, in representation of his excellency; by the
chief of constabulary ; the director of education ; the director of the
bureau of prisons; and the director of forestry. These distin-
guished officers of the higher branches of government were aflforded
all facilities of transportation and otherwise at the command of the
local government and were accompanied in their inspection tours
by the department governor and other local officers as requested.
S5. Personnel.
The only changes in the department staff during the year were the
transfers of C. F. Richmond, assistant to the department governor,
and C. Stark, department treasurer, to the Federal service. The posi-
tions thus vacated have not been filled. The duties of department
treasurer have been taken over by C. R. Cameron, assistant to the
department governor.
On December 31, 1915, the department personnel comprised 5
American and 38 Filipino officers and employees.
The personnel of provincial governors and secretary-treasurers
continued during the year was as follows :
"(Governor, Teopisto Guingona.
Secretary-treasurer, James R. Shaw.
BUKIDNON.
Governor, Manuel Fortich.
Secretary-treasurer, Jos6 Agudo, acting.
COTABATO.
Governor, WiHlam 0. Bryant.
Secretary-treasurer, Frank Klar.
DAVAO.
Governor, EulaUo E. Causing.
Secretary-treasurer, Mansfield McMahan.
LANAa
Governor, Henry GUsheuser.
Secretary-treasurer, Thomas W. Coverston.
8T7LU.
Governor, Guy N. Rohrer.
Secretary-treasurer, Paul D. Rogers.
ZAMBOANGA.
Governor, Luis Lim.
Secretary-treasurer, Harry B. Hughes.
Digitized by VjOOQIC
294 REPORT OF THE PHILIPPINE COMMISSION.
Changes in third mejiibei> >\ ere < ceasioned by the elections held in
April, 1915, as a result of whicli the following-named persons as-
sumed ofSce:
Province of Augusan, Juan Ck)rvera.
Province of Bukidnon, Faustino Abello.
Province of Ck)tabato, Datu Piang.
Province of Davao, Francisco Bangoy.
Province of Lanao, Amai Manabilang.
Province of Sulu, Julius Schuclc.
Province of Zamboanga, Aukasa Sampang.
There were no changes among municipal officials of significanoe
meriting mention in this report. Elections for vice presidents and
councilors in the organized municipalities will be held next June
(1916).
Provincial governors and secretary-treasurers practically without
exception were men of experience ana well trained in the public serv-
ice prior to appointment to their present positions. In addition to
these qualities they have without exception brought to their work en-
thusiasm and determination to accomplish as speedily as possible the
objectives of higher responsible authority. Their work has invari-
ably been characterized by complete subordination of personal inter-
est and most admirable devotion to duty. The greater portion of
their time is spent in field work under conditions involving not only
great physical exhaustion and exposure to the fevers and water-
borne diseases of the swamps and mountain jungles, but frequent
grave personal danger to life from accidents in the crossing or navi-
gation of dangerous rivers and through channels and seas subject to
little known currents and sudden storms of intensity, as well as the
armed hostility of the ignorant and fanatic elements of the people.
Even for the most vigorous, mentally and physically, service of this
character can not be prolonged without grave permanent detriment
to health and, in fact, the certainty of permanent disability or un-
timely death. For these officers and for those of the constabulary,
the public health, and other branches of the public service engaged
here in the pioneer work of exploration and establishment of govern-
ment, there should be assured liberal retirement provision, effective
upon mental or physical disability incurred in line of duty or for
long and satisfactory service, as in the cases of the Army and Navy.
The appointive personnel of the civil establishment here is prohibited
from engaging in the practice of professional pursuits for private
gain and in addition is not permitted to acquire property for income
or speculative purposes or otherwise to engage in private business
within the official jurisdiction of the officer in interest. These prohi-
bitions are strictly enforced, aside from a few cases of natives in
subordinate positions who were in government employ here prior to
the establishment of the department governor and had already with
Official approval made small investaients in agriculture. These in-
stances are very few and of negligible import.
26. Christian, Mohammedan, and Pagan Relations.
There is to be reported for the year under this head definite and
distinctly favorable advance.
Digitized by VjOOQIC
EEPOBT OF TKE DEPABTMENT OF MINDANAO AND SULU. 295
The subject was discussed at length in the annual report for 1914,
and nothing has occurred during the year to demand or warrant
modification of any statement then made.
Officers and employees generally, both American and Filipino,
have given with enthusiasm their best efforts to the extension and
confirmation of kindly and correct relations with all elements of the
population regardless of religious distinctions. Mohammedkns,
pagans, and in fact all elements of the people, appear to have re-,
sponded favorably to this attitude.
A considerable number of selected Mohammedan and pagan men
and women of distinction and exceptional influence in their re-
spective localities have been taken to Manila and conducted through
not only the capital city but several Provinces of Luzon and the
Visayas in accordance with an educational program, the purposes of
which were to establish as quickly as possible in the minds of these
individuals a better understanding or the purposes of government
and the fraternal attitude toward them of me people of Luzon and
the Visayas. Such selected datus and other influential men and
women who were favored by these opportunities for travel and ob-
servation, appeared in practically every instance to appreciate fully
the opportunities afforded them, were diligent in their quest for in-
formation, and since returning to their homes have been of ^eat
assistance to government in the propaganda of a homogeneous Philip-
pine people.
27. Eecommendations.
The recommendations contained in the annual report for 1914 are
respectfully reiterated and, in the interest of brevity, will not be re-
peated here in detail. These recommendations included matters not
only within the province of the Governor General and Philippine
Legislature, but also some of a character requiring legislation by
Congress. The liberal appropriations and allotments made by the
Governor General, the secretaries of departments, the Commission,
and legislature for primary schools, public health, public works,
and in aid of provincial and local administration, are highly ap-
preciated by the people as well as by officers of the department and
local governments. The highest representatives of insular gov-
ernment who during the past year have inspected the work being
carried on here have volunteered expressions not only of satisfaction
with the results being obtained from the expenditure of these
financial grants in aid from the insular treasury, but in several in-
stances have offered the additional commeiit that nowhere in the
archipelago does there appear to have been obtained greater returns
from the expenditure of public funds. It is ventured to cite the fore-
going in justification of the renewal of the recommendations made in
the report for last year, and the further recommendation that a
thorough inspection of the entire department be made by the highest
authorities oi the insular government or their duly authorized rep-
resttitatives with a view to ascertaining by personal observation and
in as great detail as may be desired, the compelling and urgent need
for more ample immediate investment of insular funds in the de-
velopment of agriculture and otherwise of the economic resources
61983—16 ^20
Digitized by VjOOQIC
296 BBPOBT OF THE PHILIPPINE COMMISSION.
of Mindanao-Sulu, the redistribution of population of the archi-
pelago by the encouragement, direction, and control of immigration
from the densely populated districts of Luzon and the Visayas to
the best agricultural districts of Mindanao-Sulu, and provision for
tiie expeditious execution of a comprehensive program of primary
instruction of the people, in order that there may best be assured
the economic, social, and political progress of the Filipino people
as a whole.
Very respectfully,
F. W. Carpenter, Governor.
Digitized by VjOOQIC
i
AGRKBMENT OF MARCH 22, 1915, BETWEEN THE GOVERNOR GENERAL
OF THE PHILIPPINE ISLANDS AND THE SULTAN OF SULU. AND OTHER'
DOCUMENTS.
MEMORANDUM AGREBMiBNT
BETWEEN
THE GOVEENOB GENERAL OF THE PHILIPPINE
ISLANDS
AND THE
SULTAN OF SULU.
Being the CJomplete Renunciation bt the Latter of His Pketensions of
Sovereignty and a Definition of His Status.
Zamboanga, March 22, 1915.
Note. — Prior to American occupation the Sultanate of Sulu had been for
more than 400 years an independent sovereignty ; during the latter portion of
the Spanish regime the Sultanate had partially relinquished the exercise of
that sovereignty as to foreign relations and to a lesser degree as concerned
the port of Jolo and the four other points occupied by Spanish military gar-
risons; a temporal sovereignty, partial but nevertheless de facto, existed and
was recognized by the Bates treaty in the term " the Government of the Sultan,"
to which the American authorities were by that agreement required to turn
over for trial cases " where crimes and offenses are committed by Moros
against Moros" (Art. IX).
The abrogation of the Bates treaty was premised upon other matters than
the de jure sovereignty of the Sultan, who subsequently neither by conquest
nor otherwise lost or relinquished his claims to sovereignty so far as con-
cerned internal affairs of government of the Sulu Archipelago until he signed
this agreement of March 22, 1915, at Zamboanga.
Copy of the agreement of August 20, 1899, between Gen. John C. Bates,
United States Army, and the Sultan of Sulu (the Bates treaty) also herewith.
The Government of the Philippine Islands,
Department of Mindanao and Sulu,
Office of the Governor,
Zamhoanoa, P. I., March 22y 1915.
MEMORANDUM.
The governor of the Department of Mindanao and Sulu, Frank W. Carpenter,
duly authorized by His Excellency the Governor General, and the Sultan of
Sulu, Hadji Mohammad Jamalul Kiram, together with other officers of the
government, as well as various councilors of the Sultan, after due discussion
of the declarations of the Governor General and president of the Philippine
Commiflsion, Luke E. Wright, and the said Sultan of Sulu, and their respective
associates, in certain hearings held in Manila on July 19, 20, and 26, 1904,
Digitized by Q^Ogle
298 BEPORT OF THE PHILIPPINE COMMISSION.
following the abrogation of tlie so-caUcd Balt^s treaty by tlie President of the
United States, March 21, 1904, reach the following mutual understanding of
the result of said hearings : -
Whereas the Sultan of Sulu Is the titular spiritual head of the Mohammedan
Church In the Sulu Archipelago, with all the rights and privileges which under
the Government of the United States of America may be exercised by such
an ecclesiastical authority, and subject to the same limitations which apply
to the supreme spiritual heads of all other religions existing In American
territory, Including the right to solicit and receive voluntary popular contribu-
tions for the support of the clergy, rites, and other necessary lawful expenses
of an ecclesiastical character.
The Sultan of Sulu. on his own account and In behalf of his adherents and
people In the Sulu Archipelago and elsewhere within American territory, with-
out any reservation or limitation whatsoever, ratifies and confirms his recog-
nition of the sovereignty of the United States of America, and the exercise
by His Excellency the Governor General and the representatives of that
Government in Mindanao and Sulu of all the attributes of sovereign govern-
ment that are exercised elsewhere In American territory and- dependencies,
Including the adjudication by government courts or Its other duly authorized
officers of all civil and criminal causes falling within the laws and orders of
the Government.
The Sultan of Sulu and his adherents and people of the Mohammedan faith
shall have the same religious freedom had by the adherents of all other religious
creeds, the practice of which is not In violation of the basic principles of the
laws of the United States of Amrelca.
In testimony of the above mutual understanding we, the underslgne<l, the
governor of the Department of Mindanao and Sulu and the Sultan of Sulu, do
hereby affix our signature in permanent record thereof.
(Signed) Hadji Mohammad Jamalul Kibam,
Sultan of Sulu.
(Signed) F. W. Carpenter,
Department Governor:
Witnesses to above :
(Signed) Dato Rajamuda.
(Signed) Peter E. Traub,
Colonel, United States Army,
District Chief , Philippine Constabulary.
(Sighed) Hadji Butu,
Special Assistant to the
Provincial Governor of Sulu.
(Signed) Dato Mohammad.
(Signed) Isidro Vamenta,
Department Secretary.
(Signed) Abdullah Awang,
Secretary to Sultan.
(Signed) PoNciANo Reyes,
Department Attorney.
(Signed) Hadji Mohammad.
(Signed) Guy N. Rohrer,
Governor Province of Sulu.
(Signed) Panglima Tahil.
(Signed) H. Gulamu Rasul,
Aid-de-camp of the Department Governor.
I hereby certify that the foregoing is a full, true, and correct copy of its
original.
(Signed) Isidro Vamenta,
Department Secretarj/.
(Here follows the vernacular version, which was signed by the same parties.)
[Telegram.]
Zamboanga, March 22, 1915.
[Translation.]
Governor General, Manila:
Sultan of Sulu has signed with me approved memorandum excluding para-
graph regarding money allowance, with the understanding that this continues
as provided by law and that land matters will be taken up and decided later.
( Signed ) Carpenter.
EEPOET OF THE PHILIPPINE COMMISSION. 299
AGREEMENT
Between Brig. Gen. John C. Bates, representing the United States, of the
one part, and His Highness the Sultan of Jolo, the Da to Rajah Muda, the Dato
Attilf, the Dato Calbi, and the Dato Joakanain, of the other part, it being under-
stood that this agreement will be in full force only when approved by the Gov-
ernor General of the Philippine Islands and confirmed by the President of the
United States, and will be subject to future modifications by the mutual consent
of the parties in Interest.
Article I. The sovereignty of *the United States over the whole archipelago
of Jolo and its dei)endencles is declared and acknowledged.
Article II. The United States flag \vill be used In the archipelago of Jolo and
Its dependencies on land and sea.
Article III. The rights and dignities of His Highness the Sultan and hls^
datos shall be fully respected ; the Moros shall not be Interfered with on account
of their religion ; all their religious customs shall be respected ; and no one shall
be prosecuted on account of his religion.
Article IV. While the United States may occupy and control such points In
the archipelago of Jolo as public Interests seem to demand, encroachment will
not be made upon the lands immediately about the residence of His Highness
the Sultan, unless military necessity requires such occupation In case of war
with a foreign power ; and where the property of Individuals is taken due com-
pensation will be made in each case.
Any person can purchase land In the archipelago of Jolo and hold the same
by obtaining the consent of the Sultan and coming to a satisfactory agreement
with the owner of the land ; and such purchase shall Inunedlately be registered
In the proper office of the United States Government.
Article V. All trade In domestic products of the archipelago of Jolo, when
carried on by the Sultan and his people with any part of the Philippine Islands
and when conducted under the American flag, shall be free, unlimited, and
undutlable.
Article VI. The Sultan of Jolo shall be allowed to communicate direct with
the Governor General of the Philippine Islands in making complaint against the
commanding officer of Jolo or against any naval commander.
Article VII. The Introduction of firearms and war material Is forbidden, ex-
cept under specific authority of the Governor General of the Philippine Islands.
Article VIII. Piracy must be suppressed, and the Sultan and his datos agree
to heartily cooperate with the United States authorities to that end, and to
make every possible effort to arrest and bring to justice all persons engaged In
piracy.
Article IX. Where crimes and offenses are committed by Moros against
Moros, the government of the Sultan will bring to trial and punishment the
criminals and offenders, who will be delivered to the govermnent of the Sultan
by the United States authorities If In their possession. -In all other cases per-
sons charged with crimes and offenses will be delivered to the United States-
authorities for trial and punishment.
Article X. Any slave In the archipelago of Jolo shall have the right to pur-
chase freedom by paying to the master the usual market value.
Article XI. In case of any trouble with subjects of the Sultan, the American
authorities In the Islands will be Instructed to make careful Investigation before
resorting to harsh measures, as in most cases serious trouble can thus be
avoided.
Article XII. At present, Americans or foreigners wishing to go into the
country should state their wishes to the Moro authorities and ask for an escort,
but It Is hoped that this will become unnecessary as we know each other better.
Article XIII. The United States will give full protection to the Sultan and
his subjects In case any foreign nation should attempt to Impose upon them.
Article XIV. The United States will not sell the island of Jolo or any other
island of the Jolo Archipelago to any foreign nation without the consent of the
Sultan of Jolo.
Article XV. The United States Government will pay the following monthly
salaries :
Mexican dollars.
To the Sultan 250
To Dato Rajah Muda 75
To Dato Attlk 60
To Dato Calbi 75
Digitized by VjOOQIC
300 BBPOBT OF THE PHILIPPINE COMMISSION.
Mexican dollars.
To Dato Joakanalu 75;
To Dato Puyo 60
To Dato Amir Husslii 00
To Hadji Butu L 50
To Habib Mura 40
To Serif SagQin 15
Signed in triplicate, in English and Snlu, at J<^, tiite 20th day of Augnsrt;
A. D. 18d9 (18th ArabuU AbU 1817).
(Signed) J. G. Baixs,
Bripadier General, United States Volunteers,
(Sgd) The Sultan of Jolo.
(Sgd) Dato Rajah Muda.
(Sgd) Dato Attik.
(Sgd) Dato Galbi.
(Sgd) Dato Joakanain.
Digitized by VjOOQIC
INDEX
Abaca:
Crop conditions: 224.
Expoctations : 38, 194.
Abby, Emile G., appointment: 26.
Accounting System, change in : 162.
Administbative Code, enactment of: 11.
Agaus, Ampuan (Outlaw), operations of: 186,
Agbictjltubal Bank, operation of: 188.
Agbicultubal Colonies :
Operation of: 278^83.
Report of Governor : 278-283.
Agricultuke :
Aids: 44.
Bureau of —
Administrative division: 225.
Animal husbandry division: 225.
Demonstration and extension: 227.
Fiber division : 227.
Organization: 225.
Personnel: 224, 225.
Plant industry division: 226.
Publications: 228.
Statistics: 228.
Veterinary division: 225.
Work of : 42-44.
Colony at Momungan, Mindanao: 44, 278-281.
Conditions: 42. -
Cooperation: 222.
Crop conditions: 223.
Drought, damage done by : 44. ^
Experiment stations, work on: 226.
Financial aids: 44.
Food production: 223.
Improvements: 43.
Organizations: 43, 222.
Societies: 222.
Aguilab, Fatjstino, mentioned: 173.
Aousan, Pbovince of:
Area: 90.
Forests: 90.
Lumber conditions: 90.
Officials: 293.
Alcohol, dealers, license tax: 201.
Alcohol, Denatured:
Internal-revenue tax —
Domestic: 200.
Imported: 200.
Alcohol Pboducts:
Internal-revenue tax —
Domestic: 200.
Imported: 200.
Output: 202.
Americans :
Employees: 25, 28..
Officials: 24, 25.
Teachers: 210, 211.
301
Digitized by VjOOQIC
302 INDEX.
Animals, mutual Insurance of work : 6.
Appbopeiations, amount of: 5.
Abellano, Aecadio, resignation: 26.
Abms, number of: 137.
Akmy, assistance of: 47.
Abbastre Division, work of: 198.
Abtigas, Manuel, mentioned: 234.
Assays, work done: 78.
AssxjBANCE Fund, administration of: 187.
Baguio, CJtty of:
Forest work: 91.
Improvements: 46.
Pines Hotel : 46.
Banks :
Agricultural, operations: 188.
Philippine National, establishment of: 9.
Postal savings, see Postal savings banks.
Private banks, condition of: 187.
Resources: 39,
Tax on : 201, 205. •
Babbeb, Db. M. a., mentioned: 73.
Babclay, William W., mentioned: 33.
Babby, Maj. Gen. Thomas H. :
Transfer: 47.
Work of : 47.
Babtlett, Db. Mubeay, resignation: 25.
Batcheldeb, Chables C. :
Report of: 105-129'.
Work of: 62.
Bates Tbeaty, text of : 299.
Bayless, Sidney L., administration of the estate of : 183.
Benguet Road, maintenance of : 141.
BiLIBID Pbison :
Cholera: 64.
Commitments: 229.
Death rate : 63.
Diseases prevailing: 64.
Prisoners' court, establishment of: 44.
Prisoners in : 229.
Sanitary conditions: 63.
Work in : 44.
Bills, Legislatube, number considered and passed : 4.
Biological Labobatoby, work of : 74, 75.
Blind, education of: 214.
BoABD OF Public Utility Commissionebs, work of : 31.
Bonds, issues of: 188.
BoNTOc Hospital, work of : 65.
Botany, work in: 75.
Bbidges :
Artistic design: 146.
Number of : 146.
Projects: 147.
Reinforced concrete : 146.
Brown, Rev. R., resignation : 102.
Buildings :
Architecture of : 148.
Work on : 148, 149.
Bukidnon, officials : 293.
Bustamente, J. (ship), exchange of: 39, 199.
Cables, repairs {:nd relocation : 167.
Cadastral Surveys :
P]xpense.s: 85.
Work done : 36, 37, 85.
Caingins, combating illegal : 87.
Caldebon, Dr. Fernando, mentioned: 94.
Digitized by VjOOQIC
INDEX. 303
Oamebon, jO. R., mentioned : 293.
Gabpenteb, F. W. :
Report of: 239-300,
Work of : 46, 47.
Caetee, Thomas L., administration of the estate of: I8,*{.
Cattle, immunization of: 6.
Cedula 8, collections: 201, 205.
Cemeteries, condition of : 63.
Chanco, DioNisio, retirement: 180.
Chabity, appropriation for: 236.
Chemistry, work of laboratory : 7&-78.
Cholera:
Bilibid Prison : 64.
Control of: 68, 70.
Mountain Province: 115.
Prevalence of: 258-260.
Cigarettes :
Exportation of : 196.
Production: 204.
Cigars :
Exportation: 38, 196.
Production: 204.
Civil Service:
Appointments: 28.
Americans: 28.
From United States: 28.
Efficiency board : 29.
Employees —
Anaerican : 25, 28.
' Resignations: 28.
Salaries : 28.
Filipinos : 25.
Number of : 28.
Salaries: 28.
Retirement : 7.
Examinations, number taking: 27.
Fllipinization : 29.
Retirement act : 28-29.
Vacation leave: 29.
Clifford, Charles D., administration of the estate of : 183.
Coal, Internal revenue tax on. Imported: 200.
Coal Claims, location: 81.
Coast and Geodetic Survey, Bureau of:
Field operations: 155.
Financial statement: 157.
Maps: 157.
Personnel : 154.
Work of: 154-157.
Coastwise Shipping, value of: 197.
CoBEY, William E., appointment: 25, 224.
Cockfights, tax on: 205.
Cockpits, tax on > 205.
Coconut Oil, exportation: 196.
Coconuts :
Bud rot, control over: 228.
Crop conditions: 224.
Products board: 8.
Coffee, exportation: 107.
Coke, internal revenue tax on, Imported: 200.
Cold-Storage Plant, operation of: 234.
Colonies, office of American: 225.
Commerce :
Condition of: 37-39.
Value of: 192, 193.
Commerce and Police, Secretary of, report: 131-178.
Common Carriers, tax on: 201, 205.
Communal Forests, establishment of: 87.
Digitized by VjOOQIC
304 INDEX.
CJoNDiTiONS, general: 12.
Ck>NNEB, NoBMAN G., death of: 105.
CJoNNOB, William, administration of tlie estate of: is;{.
Ck)NSTABULABY :
Academy, establishment of: 35, 91.
Employees: 131.
Enlisted men —
Number of : 35. >
Enlisted strength: 133.
Medical division: 133.
Officers: 131.
American: 132.
Filipinos: 132.
Number of: 35.
Pension law recommended : 137.
CoNsuLAB Duties, work performed : 200.
CJopBA, exportation: 38, 195.
CoBN, crop conditions: 223. /
CJoBPOBATioNs, number of: 177, 178.
CkxrABATo, officials: 293.
Cotton Goods, Importation: 37, 193.
CJOTJBTS:
First instance —
Business conducted in: 180, 181.
Land Registration Office, work of: 181.
Manila, City of, business conducted In: 180.
Justice of the peace, work of : 182.
Supreme, cases, number of: 179.
Cox, Db. Alvin J., absence of: 73.
Cbimes, status of: 229.
Cbone, Fbank Linden, appointment: 210.
Cbonin, Col. Mabcus D., mentioned: 135.
CutiON Lepeb Colony:
Children: 65.
Conditions at: 64.
Cubbency:
Bank notes issued : 192.
Circulation: 40, 191, 192.
Sliver certificates: 40.
Exports: 191.
Sliver, amount in vaults: 40.
Customs :
Bureau of, work of: 37-39, 192.
Collections: 196.
Receipts: 22.
Davao, officials: 293.
Deaf, education of: 214.
Dean, Mills:
Mentioned: 234.
Resignation: 25.
Delegate to the Secretary of the Interior, report of: 105-129.
Denison, Winfbed T. :
Absence: 3, 25, 61.
Work of: 61.
Dental Examiners, Board of, work of : 63.
Dentists, registration: 63.
Depositaries, amount In : 186.
Derable Oto (outlaw), operatiojis by: 135.
Detrick, H. J., rt^ignation : 129.
Dexter, I. B., designation : 26.
Diphtheria, control of: 69.
Distilleries :
Number in operation: 202.
Output of: 202.
DoBBS, Mabel F., mentioned: 94.
Docks, dally Inspection of: 71.
Dosser, Capt. W. E., mentioned: 105.
Digitized by VjOOQIC
IKDEX. ' 305
Documentaey-Stamp Taxes, collections: 201.
Dbought :
Damage done by : 44.
Mountain Province: 115.
Deugs, prohibited, dealers' licenses, collections: 201.
Dysenteey, prevalence of: 67.
EcKMAN, E. A., work of: 105.
Education : •
Academic instruction: 212.
Agricultural school: 214.
Appropriations for: 41.
Athletics: 212, 213.
Benefit of: 40.
Attendance: 40, 212.
Bureau of, work of: 40.
Commerce school: 214.
Courses of study: 217.
Deaf and blind : 214,
Director of —
Personnel: 210.
Report of: 209.
Enrollment: 209.
Exhibition at Panama-Pacific Exposition: 218.
Expenses: 218.
Health of school children: 217.
Industrial instruction: 213.
Mindanao and Sulu, department of: 215, 263 2r4V
Appropriations for: 215.
Industrial work: 216.
Teachers: 216.
Mountain Province: 111-113.
Night schools, attendance: 211.
Non-Christian people: 41.
'Appropriation for: 41, 215.
Enrollment: 41, 215.
Teachers: 41.
Work among : 214, 215.
Organization: 210.
Permanent improvements: 219.
Physical: 212.
Progress : 209.
Recommendations: 236.
School libraries: 217.
School buildings —
Construction of: 216.
Number of: 216.
Schools —
Increase in: 211.
Insular —
Enrollment: 214.
Progress: 214.
Number of: 140, 209.
Private —
Courses: 221.
Denomination: 221.
Enrollment : 220, 221.
List of approved: 220.
Progress: 219.
Teachers —
Number of : 210, 211.
Salaries : 211.
Training of : 217.
Vacation assemblies: 217.
Work of: 210.
University of the Philippines —
Enrollment: 41.
Progress: 41.
Digitized by VjOOQIC
306 i|n>EZ.
Edwabds, H. T., absence: 224.
Embboideby, exportation: 38.
Emeboenct Tax, case of : 6.
Employment Agencies :
Operation of: 174.
Seamen's: 174.
Engeb, William, administration of tlie estate of : 183.
Entomology, work in : 76. .
Estates of Deceased Employees, administration of : 183.
Evans, J. H., mentioned : 105.
Executive Bxtbeau:
Employees, number of: 26.
Loans to provinces and municipalities : 26.
Saving in expenditures: 26.
Work of: 26.
Exhibits, Panama-Pacific Exposition: 218.
Expenditubes, amount of : 22, 23.
ExpoBTs, value of: 37, 192, 193, 194.
Exposition, northern Luzon : 108.
Fabmep.s' CJongbess, meeting of: 43.
Fathomeb (steameb), operations of: 155.
Febguson, SAMUEf., mentioned: 25.
Febmented Liquobs:
Exportations : 203.
Taxes collected : 203.
Febbel, Peteb G., administration of the estate of : 183.
FroEB Plants, grading and inspection : 227.
Fidelity Fund, administration of: 186.
Fiestas, sanitary control of : 68.
Filipinos :
Employees: 25, 28.
General condition: 23, 24.
Officials: 24, 25.
Financial Condition:
Statement of: 184, 185.
Status of : 22.
Finnigan, John H., administration of the estate of : 183
FiSHEBiES, development of: 76.
Flies, eradication of: 69.
FiJJTCHEB, CoL. Allen S., work of: 250.
Food, production of: 223.
Food and Dbug Inspection Boabd, work of : 62.
FoBESHORE Lands, applications: 81.
Forest Products, licenses, collections from : 201.
Forestry, Bureau of:
Cooperation work: 90.
Exhibit at Panama-Pacific Exposition: 91.
Forest management, Division of : 89.
Investigation division, work of: 87.
Personnel: 86, 93.
Quarters: 93.
Revenue and expenditures : 93.
Surveys: 87.
Work in Baguio: 91.
Work of: 34, 85.
Forests :
Acreage: 93.
Licenses: 87.
Maps: 86.
Plantations: 88.
. Forest School, classes : 89.
Franchises, taxes collected on : 201, 206.
Fbenoh, Clifford H., Absence: 26.
Friar Lands :
Administration: 82.
Delinquencies: 82, 83.
Imus, conditions on : 82.
Digitized by VjOOQIC
INDEX. 307
Fbiar Lands — Continued.
Receipts from: 81.
Sales: 82.
Talisay-Mangloncles estate: 83.
FuBNiTURE, imports and exports: 92.
Qallant, Lt. Col. John J., mentioned : 135.
Gasoline, internal revenue tax on, imported : 200.
OiLFiLLAN, Capt. A. H., mentioned: 105.
Gold Bullion, exportation : 190.
Gold Standard Fund:
Investments: 189, 190.
Loans: 190.
Operation of: 189.
Gordon, Charlks E., mentioned : 137.
Go\'ERNMENT, improvements noted: 21.
Governments, financial aids given local : 22.
Governor General :
• Message relative to purchase of railroads : 49.
Report of : 21-59.
Gray, Armstead, administration of the estate of : 183.
Greene, Warwick, mentioned: 137.
Griffith, Col. Edward W. :
Mentioned: 134, 135.
Resignation: 132.
Guerrero, Fernando Ma., appointment: 26.
Halcott, Albert, administration of the estate of : 183.
Hale, Walter F., resignation : 26, 105.
Hall, Brig. Gen. Herman :
Mentioned: 131.
Work of: 35.
Hamilton, M. H., administration of the estate of: 183.
Harbors, dredging operations : 152.
Harrison, Francis Burton:
Agreement to purchase Manila Railroad : 52-57.
Message relative Manila Railroad : 49-52.
Report of : 21-48.
Health :
Conditions, improvements: 69.
Prisons: 231.
Health Service:
Administrative supervision: 62.
Conditions in Provinces: 33.
Organization: 33.
Reorganization: 62.
Heiser, Dr. Victor G., resignation : 26, 62.
Helms, A. A., administration of the estate of : 183.
Hemp : .
Crop conditions: 224.
Exportation: 38, 194.
Hernandez, Adriano, clesignation : 224.
Hodgkins, W. C, mentioned : 154.
Homesteads, applications for: 80.
Hooks, J. M., administration of the estate of : 183.
Hospitals :
Earnings: 100.
Financial department: 97.
Functions^ of: 94.
Government employees, service to: 99.
Grounds and buildings: 95.
Philippine General, establishment of : 63.
Professional work: 95.
School of nursing: 97.
Statistics: 101.
Work of: 94-101.
Household Industries, organization and standardization: 10.
iLOiLO Sugar Laboratory, worl£ of: 78.
Iloilo Wharf, extension of: 151.
Digitized by VjOOQIC
308 INDEX.
iMPEBiAL, Caklos A., appointment: 181.
Imports, value of: 37, 192, 193.
iMus Estate, conditions on: 82.
Income Taxes, collections: 201, 206.
Industrial JEducation. See Education.
Industries, infant industry subvention : 8.
Infants, mortality : 10.
Inheritance Tax, enactment of : 9.
Insurance, mutual, of work animals: 6.
Insurance Companies:
Amount of insurance : 206.
• License tax : 201.
Premiums: 206.
Interior, Secretary of:
Delegate to, report of: 105-129.
Report: 61-104.
Internal Revenue:
Apportionment of taxes: 201.
Collections: 39, 200.
Cost of: 39, 202.
License taxes: 204.
Receipts: 22.
Iron, Importation: 194.
Irrigation Council:
Members: 177.
Work of: 177.
IwAHiG Penal Colony:
Conditions at: 44, 231.
Products raised : 232.
Johnson, J. Lindsey, death: 25.
.Johnston, Dr. J. A., mentioned : 73.
Judiciary, report on: 179-181.
Justice, Bureau of, work of : 36, 182, 183.
Justice of Peace, fines and fees collected : 201.
Kane, Samuel E. :
Appointment: 26.
Mentioned: 105.
Katigbak, Jos6 p., assignment: 26.
Kenney, Alvan, administration of the estate of : l8Ji
Kerosene, internal-revenue tax on imported : 200.
Labor :
Accidents: 176.
Bureau of —
Claims and complaints: 175.
Expenditures: 176.
Personnel: 173.
Salaries : 173.
Strikes: 176.
Laborers, emigration of Filipino: 175.
Lanao, officials: 293.
Land Registration Office:
Cases: 37.
Work of: 181.
Lands :
Bureau of —
Personnel : 79.
Work of: 34, 79.
Mountain Province: 109.
Public-
Coal claims: 81.
Compulsory registration: 81.
Forfeited lands : 81.
Foreshore and lands under water : 81.
Free patents: 80.
Homesteads: 80.
Leases: 80.
Mining claims: 81.
Digitized by VjOOQIC
INDEX. 309
Lands — Continued.
Public — Continued.
Reservations: 80.
Sales: 80.
Title to: 79. 80. '
Town sites: 80.
Unperfected titles: 81.
Lavadia, Catalino, appointment: 25.
Legislature, Philippine :
Americans: 24. ,
Bills considered and passed by: 4.
Filipinos: 24.
Legislation, character of: 5.
List of acts enacted by : 15-20.
Sessions of: 4.
Lepers:
Release of, from Culion: 69.
Treatment of: 33.
Leprosy, cases of : 70.
Libraries, school, establishment of: 217.
Library, Philippine:
Reorganization: 6.
Work of: 234r-236.
License Taxes, amount collected : 204.
Liggett, Brig. Gen. Hunter, mentioned: 47.
Lighthouses, work of division of : 199.
Lights, establishment of: 39.
LioNosoN, FkANCisco, mentioned, 33.
Live Stock, importation of: 226.
Loans, gold standard fund : 190.
Locusts :
Measures against: 43.
Mountain Province: 115.
Prevalence of: 43.
Long, Dr. J. D. :
Appointment: 26,62.
Detail of: 73.
Lubricating OtlBj internal-revenue tax on imported : 200.
Lumber :
China market: 92.
Exports: 92.
Imports: 38, 92.
Industry, condition of: 92.
Trade conditions: 34.
Lund, Rev. David O., work of: 285.
Luther, Ed. P., administration of the estate of: 183.
Luzon, peace and order: 134, 135.
McCloskey, Elsie P., mentioned: 94.
McDonald, John, administration of the estate of: 183.
McGowan, Silas, administration of the estate of: 188.
McIntyre, Brig. Gen. Frank, visit of: 47.
McQuAiD, B., administration of the estate of: 183.
Magee, Charles Henry, appointment: 210.
Maguey, crop conditions: 224.
Mah-hen, case of: 121.
Mair, Col. Thomas I.:
Administration of the estate of: 183.
Death of: 25, 132, 135.
Malaria :
Control of: 69.
Prevalence of: 67.
Manalo, Ambrosio, election of : 129.
Manila, City of:
Cholera cases: 65.
Diphtheria cases: 65.
Finances: 45.
l-iowlands, survey: 69.
Digitized by VjOOQIC
310 INDEX.
Manila, City of — Continue*!.
Measles, cases: 65.
Mumps, cases: 65.
Plague cases: 65.
Police force: 45.
Post office building: 162.
Public works: 45.
Sanitation division, work of : 65.
Schools: 46.
Appropriation tfor : 46.
Enrollment: 46.
Smallpox cases: 65.
Street repairs: 45.
Taxes and revenues collected in: 201.
Typhoid, cases: 65.
Varicella cases : 65.
Varioloid cases: 65.
Manila Habbob:
Agreement: 52-57.
Concrete wharf: 151.
Manila Railboad Company:
Assets: 59.
Balance sheet: 58,
Dividends: 51.
Financial condition: 50, 58.
Liabilities: 58.
Loans to: 32, 50.
Purchase of: 32.
Agreement: 52-57.
Contract for : 32, 49.
Message of governor general: 49.
Purchase price: 51.
Relation ^f government to : 82.
Stock: 51.
Value: 51.
Mann ION, J. W. B., mentioned : 25, 234.
Manufactueebs, license tax: 201.
Mapa, Victobio, report of: 179-207.
Mabinduque ( Steameb) , operations of : 155.
Mabine Raii/WAy and Repa^ib Shop, work of: 200.
Mabkets, number built : 149.
Mabquardt, Walteb William, appointment: 210.
Martin, H. S., report of : 209-237.
Martinez, Josei
Appointment: 26.
Mentioned: 105.
Mastebs, William G., mentioned: 158.
Matches :
* Consumption: 204.
Importation : 204.
Measles, quarantine for: 70.
Meats :
Importation : 38.
Inspection of: 73.
Medical Examinebs, Board of, work of : 63.
Mebchants :
License tax : 201.
Tax on: 205.
Mebbill, K. D., absence of : 75.
Milleb, Dr. Mkrton L., mentioned: 73.
Mindanao and Sulu, Department of:
Agricultural colonies —
Administrative work : 280.
Appropriations: 278.
Cultivation: 279.
Establishment: 278.
Finances: 279.
Digitized by VjOOQIC
INDEX. 311
Mindanao and Sulu, Depabtment of — Continued.
Agricultural colonies-^-Oontinued.
Location of: 281.
Work accomplished : 278, 279.
Agricultural conditions: 271-274.
Agreement with Sultan of Sulu: 47.
Appropriations: 245.
Area: 239.
Balance sheet: 246.
Banks: 284.
Bates treaty : 299.
Cholera appropriation for: 245.
Prevalence of: 258-2G0.
Coconut plantations: 273.
Commerce: 283.
Constabulary, work in: 35, 249.
Courts, work of : 25.
Credits: 284.
Diseases: 256-263.
Dispensaries: 253-255.
Droughts: 272.
Dysentery: 257.
Education —
Appropriations: 215, 265.
Enrollment : 263, 264.
Expenditures: 263.
Industrial work: 216.
Private schools: 265.
Schools, number of : 263, 264.
Teachers: 216.
Elections: 285-287.
Epidemics: 258.
Exports: 283.
Finance: 244.
Forests: 275.
Health officers: 261
Hospitals established: 285.
Operation of: 252-255.
Hospital ship, operation of : 262.
Industries: 249.
Inspections: 292.
Irrigation : 268, 269, 272.
Justice: 251.
Legislation: 240-244.
Lumber industry: 275.
Manufactures: 283.
Marine products: 276.
Mineral products: 275.
Missions: 284, 285.
Organization: 244.
Outlaws: 249.
Peace and order: 135.
Pearl fisheries : 276.
Personnel: 293.
Pests: 273.
Police organization: 250.
Policy of government : 244.
Political conditions: 285-287.
Population: 239.
Prisons: 266.
Public health : 252-263.
Public instruction : 263-266.
Public lands —
Applications: 278.
Surveys: 277.
Public order: 248.
Public works : 266-271.
Expenditures: 267, 268, 271.
61983—16 ^21
Digitized by VjOOQIC
312 INDEX.
Mindanao and Sulu, Depabtment of — (Continued.
Iteliglous relations: 2d4-295.
nice production : 274.
Roads: 268-270.
Rubber plantations: 272.
Sanitation: 256.
Sawmills: 275.
Smallpox: 257.
Sponge fisheries : 276.
Success of administration : 46.
Sultan of Sulu —
Agreement with: 287-2»2, 297-300.
Bates treaty : 299.
Conferences with: 289.
Payments to : 288.
Sovereignty of: 288.
Telephones : 270, 271.
Typhus fever: 257.
United States troops: 250.
Vaccinations: 257.
Waterworks: 269.
Wells: 268.
Wireless station : 270.
MiNDOBO, Pbovince OF :
Conditions In : 128.
Rice crop : 128.
Minebal Lands, Public, sales of, collection : 201.
Mines, license tax: 201.
Mining:
Claims: 81.
Work of Bureau of Science : 78.
Mining Claims, location of: 81.
MoLo, Jetty built near : 151.
Monet Obdeb:
Number and value: 160.
Offices : 159, 162.
Monbeal, Bebnabdino G., mentioned: 173.
Mosquito, extermination campaign : 66, 69.
Mote, Shabon R., appointment: 105.
MoTOB Vehicles, registration: liSl.
Mountain Pbovince:
Agricultural and industrial developments: 108.
Apayao, conditions in: 123.
Benguet, conditions in: 124.
Bontoc, conditions in: 124.
Calamities: 115.
Cholera: 115.
Clothing: 114.
Court records: 116.
Crimes committed: 118-121.
Drought: 115.
Education: 111-113.
Enrollment: 111.
Elections: 46, 122.
Hemorrhagic septicemia: 115.
Housing: 114.
Ifugao, conditions in: 126.
Kallnga, conditions In: 125.
Killings: 118-120, 135.
Lands, ownership: 109-111.
Lepanto-Amburayan, conditions in : 126.
Locusts: 115.
Peace and order : 46, 115.
Personnel: 105.
Population : 123.
Progress: 46.
Public works and trails : 111.
Digitized by VjOOQIC
INDEX. 313
Mountain Pbovincjb — Continued.
Rinderpest: 115.
Roads and trails : 46.
Sanitation: 113.
Schools: 111-113.
Townships, organization of: 122.
Travail: 123.
Typhoons: 115.
Municipalities :
Officials —
American: 24.
Filipino: 24.
Misconduct: 24.
MuNSON, Lieut. Col. E. L., mentioned: 106.
Music, Conservatory, establishment: 10.
Naphtha, internal-revenue tax on, imported : 200.
Nai^hoest, Col. Chables E., mentioned : 134.
National Bank, Philippine, establishment of : 40.
Navy, assistance of: 47.
Night Schools, attendance: 211.
NoLTiNO, William T., resignation: 25.
Non-Chkistian Pkovinces, appropriations for : 4.
Non-Christians :
Educational work among: 214, 215.
Schools, appropriation for : 5, 41, 215.
Non-Chbistian Tbibes, work of delegate: 62.
NuEVA VizcAYA, Pbovince :
Conditions in: 127.
Population: 128.
NUBSEs, work of: 66.
NuBsiNG, school of: 97.
NuBSiNG Sebvice, institution of: 69.
Occupations, license tax: 201.
Occupation Tax, collections: 205.
Oils, tax on: 200.
Olongapo Naval Resebvation, forest reconnoissance : 90.
Olson, C. W., absence of: 105.
Opium, taxes collected on: 201.
Opium Law, violations: 39.
Obnithology, work in: 76.
Palabse, Fban Cisco, administration of the estate of: 183.
Palawan, Pbovince of:
Conditions in: 129.
Communications: 129.
Palma, Rafael:
Mentioned: 209.
Report of: 61-104.
Panama-Pacific Intebnational EjXposition :
Exhibit at : 33.
Forestry exhibit: 91.
Philippine Board of: 33.
Receipts: 33.
Pan AY Auto Line, operation of : 140.
Pabcel Post, packages sent : 160.
Pabby, Thomas J., administration of the estate of : 183.
Pasig, sanitary study of : 68.
Pathfindeb (steameb), operations: 155.
Peace and Obdeb, conditions as to : 134-136.
Peabl Fishebies, protection of: 9.
Pendebqast, Roland B., appointment : 61.
People, condition of: 23.
Pebsonnel, changes in: 25, 26.
Pests, control of: 227.
Petboleum, internal revenue tax on imported : 200.
1'habmaceutical Examinebs, boabd of, work of: 63.
Philippine Bill, passage urged: 48.
Digitized by VjOOQIC
314 INDEX.
Philippine Commission:
Appointments: 4.
Legislation by: 3.
List of acts enacted by : 13, 14.
Personnel, chanj^es in: 3.
Report of: 1-12.
Sessions of: 3.
Philippine Joxjbnal of Science, publication of: 78.
Philippine National Bank, establishment of: 9.
Physicians, registrations: 63.
Pickering, John K., designation: 26.
Pines Hotel, operation of: 46.
Plague :
Control of: 68.
Prevalence of: 70.
Postal Law, need of: 163.
Postal Savings Banks:
Assets: 170.
Depositors: 169.
Expenditures: 169.
Income: 169.
Investments: 170.
Offices: 159, 162.
Operation of: 167-171.
Revenues: 170.
Post Offices :
Number of: 159, 162.
Number opened: 162.
Posts, Bureau of:
Employees —
American: 36.
Filipino: 36.
Salaries: 36.
Expenditures: 171, 172.
Mail handled : 163, 164.
Money-order service: 165.
Personnel: 158, 159.
Postal division, work of: 163.
Postal savings bank division: 167.
Post offices: 36.
Receipts: 172.
Telegraph division: 166.
Work of: 36.
Police :
Municipal —
Arms in hands of: 137.
Improvement: 137.
Pratt, Wallace E., absence of : 78.
Printing :
Bureau of: 228.
Appropriations: 229.
Financial statement: 229.
Personnel: 228.
Vocational training: 228.
Prisoners, number of: 229.
Prisoners' Court:
Cases tried: 230.
Operation of: 230.
Prisons :
Bilibid, see Bilibid Prison.
Bureau of, work of: 44.
Crime, status of: 229.
Educational work: 231.
Health and sanitation: 231.
Improvements and repairs: 231.
Industrial work: 230.
Iwahig Penal Colony, conditions at : 44, 231.
Maintenance, per capita tax: 230. C^ r\r\n]f>
Digitized by VjOOQIC
INDEX. 315
Prisons — Continued. ,
Population of: 229.
San Ramon Penal Farm, transfer for: 229, 232.
Schools: 231.
Private Schools, see Education.
Professions, taxes on: 201, 205.
Provinces, number of: 24.
Officials-
American: 24.
Filipino: 24.
Sanitation in: 63.
Provincial Boards, changes in: 27.
Public Instruction, Secretary of, report of: 209-237.
Publicity fund, subscriptions to: 201.
Public Welfare Board, work of: 236.
Public Works, Bureau of:
Architects: 139.
Exi)enditures : 35, 141.
Filipinization : 139.
Financial statement: 152, 153.
Hydrographic data: 140.
Organization diagram: 138.
Personnel: 139.
Supervision over work: 140.
Work of : 35.
Quarantine :
Bureau of, work of : 69, 70.
Necessity for: 71.
Rabies :
Cases reported: 67.
Precautions against: 67.
Radio Stations, location of: 161.
Railroads:
Charges due: 22.
Guaranty of interest on bonds: 188.
Interest paid : 22, 31.
Lines in operation: 31.
Manila Railroad Co. —
Loans: 32.
Purchase of: 32.
Contract for : 32, 49.
Governor General's message in regard to: 49.
Relations of government to : 32.
Philippine Railway Co., interest paid for: 32.
Randall, William A., resignation: 25.
Rats:
Measures against: 72.
Poisoning of : 66.
Research (Steamer), operations of: 156.
Reservations, location of: 80.
Retirements :
Civil Service: 7.
Conditions: 28, 29.
Revenues, amount of: 22.
Rhea, Capt. James C, mentioned : 132.
Rice :
Crop conditions: 223.
Importation: 37, 42, 194.
Richmond, C. F., mentioned: 293.
RiGGS, Clinton L. :
Absence: 131.
Resignation of: 3, 25.
Rinderpest :
Control of: 225.
Immunization work: 226.
Mountain Province: 115.
Prevalence of : 42.
Quarantine: 42. Digitized by GoOglc
316 muBx.
RiVEBS AND Habbobs, work on: 151.
RizAL (Cable Ship), sale of: 39, 191).
Roads:
Construction: 142.
Expenditures: 143.
Length of: 35, 141.
Maintenance: 144.
Expense of: 35.
Projects: 145.
Traffic: 143, 144.
Work on: 141.
iloBEBTsoN, Jamks A., mentioned: 234.
Robinson, William H., absence: 26.
RoMBLON (Steameb), Operations of: 156.
Ronald, John, administration of the estate of: 18.H.
St. Claib, Allen T., mentioned : 33.
Sanitaby Commission:
Creation: 68.
-Purposes of: 68.
Sanitation:
Division of, In Provinces, organization : 66.
Mountain Province: 113.
Prisons: 231.
Provinces: 63.
^AN Lazabo Estate:
Court costs collected from : 201.
Receipts: 84.
Sales: 84.
Taxes collected on: 201.
San Lazabo Hospital :
Cholera: 64.
Inmates: 64.
Operation of: 64.
Tuberculosis: 64.
San Ramon Penal Fabm:
Transfer of: 229.
Saundebs, William, administration of the estate of: 183.
Schools : '
Number built: 149.
See Education.
Science, Bubeau of:
Demand for services: 73.
Library: 78.
Personnel: 73.
Power plant : 78.
Publications: 74.
Report of the Assembly Committee: 74.
Systematic work, need for: 73.
Work accomplished: 79.
Work of: 34, 73.
Scouts, desertion of: 248.
Seamen, shipment of: 198.
Selga, Rev. M., appointment: 102.
Sewage, disposition of: 68.
Shaw, James F., administration of the estate of : 183.
Sheabeb, Robebt M. :
Appointment: 25.
Mentioned: 158.
Shebfessee, William F., mentioned: 34.
Shields, E. G., resignation: 25, 234.
Sibley, Db. C. T., work of: 253.
SiLVEB, amount In vaults: 40.
SiL\'EB Cebtificates, amount In circulation • 40.
Sisiman, Matadebo, taxes collected from : 201.
Smallpox :
Cases: 68.
Disappearance of: 71.
Prevalence of : 67. r. , , C^r\r^n]c>
Digitized by VjOOvLC
INDEX. 3 2^*7
SMIT&, Col. Charles C, meutioned : 135.
Soil Pollution, prevention of: 67.
SoBBELL, P. H., administration ol the estate of: 183.
Southard, A. E. :
Absence of: 73.
Resignation: 61.
Sponge Fij3heries, regulations: 7.
Stamp Collections, miscellaneous: 201.
Stancliff, 0. J., mentioned: 73.
Stark, C, mentioned : 293.
Steel, importation : 194.
SuBNGAY (Outlaw), Death of: 134
Sugar :
Crop: 38.
Crop conditions: 224.
Exportation of: 195.
Sugar Central, construction of: 6, 7, 43
Sultan op Sulu:
Agreement with: 47.
Power of 252.
^ See Mindanao and Sulu, Department of
Sulu, Officials: 293.
Supply :
Bureau of—
Income: 233.
Operations: 232.
Personnel: 233, 234.
Sales: 232.
Shipments, tonnage: 233.
Value of merchandise : 233.
Work of: 45.
Surveys:
Cadastral : 84, 85.
Cadastral court hearings : 85.
Cases: 85.
Expenses: 85.
Number of: 84.
Work on : 84, 85.
Talisay-Manglantlla Estate, conditions on • 83
Taxes, receipts: 22. *
Taylor, Col. Wallace C, mentioned : 131, 135
Teachers. {See Education.)
Telegraph and Cable Lines :
Business: 160.
Condition of: 161.
Telegraph Lines, length of: 166.
Telegraph Offices, number of: 159, 162.
Timber, licenses, number of : 87.
TiQui-TiQui, manufacture of extract of: 74.
" Tobacco :
Dealers, license tax: 201.
Exportation: 196, 203.
Importation: 203.
Inspection of : 10.
United States internal revenue taxes collected on: 201.
Tobacco Products:
Internal-revenue tax —
Domestic: 200.
Imported: 200.
Toilets, sanitary, installation: 69.
ToMLiNsoN, O. A., mentioned: 105.
Town Sites, sales: 80.
Trade:
Balance of: 192.
License tax : 201.
Taxes on: 205.
Tbaub, Col. Peter E., work of: 35, 135, 249.
Digitized by
Google
318 INDEX.
Tba\ters, Abthub R., administration of the estate of: IS8.
Treasury :
Bureau of —
Cost of conducting: 39.
Financial statement: 184.
Condition of: 21.
Typhus Fever, quarantine against: 71.
Typhoons :
Mountain province: 115.
Number of: 102.
UNn^ERSITY OF THE PhIOPPINES. (SCC EDUCATION.)
Usury, law: 11.
Uthjties, work of Board of Public Utility : 31.
Vessels :
Admeasurement: 198.
Disinfection and fumigation of: 71.
Division of, work of : 199.
Documentation and licensing: 197.
Entrance and clearance: 197
Garbage from: 72.
Inspection: 72, 197.
Tonnage dues on: 7.
Veyra, Jaime C. de:
Mentioned: 3, 25.
Report of: 131-178.
Vtllamor, Ignacio, president of University of PI»ili[>i»lnes: 25.
Water Supplies, construction: 67.
Waterworks :
Establishment of: 69.
Municipal, construction of: 150.
Weather Bureau:
Personnel: 102.
Weather and typhoons: 102.
Work of: 102-104.
Weights and Measures, license taxes, collections: 201.
Wells, Artesian:
Expended on: 150.
Number dug: 149.
Number of: 35, 67.
Weatherhouse, Ernest J., mentioned: 137.
Weston, Julius, administration of the estate of: 183.
Whitney, Capt. F. A., mentioned: 105.
Wilder, W. A., administration of the estate of: 183.
WiLFORD, Lewis G., administration of the estate of : 183.
Williams, Robert R., mentioned: 73.
Wines :
Consumption of: 202.
Imports: 202.
Taxes on: 203.
Wireless Stations, location of: 167.
Wood Expert, work of office of : 86.
Yaden (an Isneg), arrest of: 124.
Yellow Fever, quarantine against : 71.
Zamboanga :
Officials: 293.
See also Mindanao and Sulu, Department of.
o
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