455
W3«d

A
A

0

0 :

1 '■

2 \

4 ;

9 ;

5 i
5 i
9 !

"Waters

Development of the Phili;.pines

THE LIBRARY

OF

THE UNIVERSITY

OF CALIFORNIA

LOS ANGELES

GIFT OF

Clark J. Milliron

The Development of the Philippines

A Summary of the Results of Special
Investigations made by Henry Jackson
Waters, President of the Kansas State
Agricultural College, by authority of an
Act of the Legislature of the
Philippine Islands

MANILA
BUREAU OF PRINTINC

i9ir.
i;««95

7 ' /

CONTENTS

Page.

Letter of transmittal 5

The business of the Philippines 8

Stressing impoi'tant industries ^ 10

An uninterrupted program 11

Agricultural instruction and development 12

Uniting the agricultural forces 14

Uniting the educational forces 18

The College of Agriculture 20

The live-stock industry 24

Rinderpest 26

The sugar waste 30

Sugar school 32

Experimental and demonstration stations 33

Disseminating agricultural knowledge „ 33

Feeding the people _ 35

Inci-easing the fish supply 37

Relieving population pressure 39

Setting the people to work 41

The household industries 41

The future rests upon the schools 43

The solidarity of the people 44

3

835964

LETTER OF TRANSMITTAL

Manila, September 25, 191 4.

Sir: I have the honor to submit the following summary of
the results of an investigation of the agricultural conditions and
possibilities of the Philippine Islands. Acting under your in-
structions, I spent four and a half months — from May 8 to Sep-
tember 20, 1914 — in collecting and in compiling the data upon
w^hich the report is based. During this time I visited most
of the islands and nearly all of the provinces, making a personal
investigation of the natural resources of the country, of the
development and work of the schools, and of the agricultural
practices of the people.

Every possible facility for carrying on the investigation was
afforded by Your Excellency, the President of the University
of the Philippines, the Director of the Bureau of Education, the
Director of the Bureau of Agriculture, the Director of the Bureau
of Science, the dean of the College of Agriculture, the governors
of the provinces, the officers of the Constabulary, and the people
of the Islands.

I beg leave to make acknowledgment of the uniform courtesy
extended me by the officers of the Government, and by all the
people whom it was my pleasure to meet.

Respectfully submitted.

H. J. Waters.

To His Excellency the Governor-General.

(Through the Honorable the Secretary of Public
Instruction.)

5

THE DEVELOPMENT OF THE PHILIPPINE

ISLANDS

One cannot go about over the Islands or study the statistics
of production of the Philippines in comparison with those of
other countries without being impressed with the fact that they
are very far from being developed. The Bureau of Lands es-
timates that less than half the agricultural lands of the Islands,
or approximately 7,000,000 acres, are in cultivation. When the
agricultural lands of the Philippines are as completely occupied
as are the farming lands of Japan, for example, the Philippines
will have a larger area under the plow than has Japan.

Two courses are open for the development of the Philippine
Islands. A slow development which reserves the resources of
the country entirely for the use of the Filipino, and a rapid devel-
opment, similar to that which occurred in the United States,
through the opening of its doors without restriction to the
people of the world, and similar to that which is now taking
place in Canada through the same means.

Within a quarter of a century the area under the plow in
the United States was doubled. Labor-saving machinery, im-
migration from northern Europe, capital from the mines and
from a large balance of the trade, all contributed to this re-
sult. In the Philippines the mines are not yet developed, and
labor-saving machinery cannot enter so largely into the system
of farming as it does in the States. Immigration to furnish the
labor and capital for developing fully and quickly the re-
sources of the Philippines would have to come from China,
Japan, and India, and capital for the present would have to
come from the outside. Capital would quickly follow labor
under conditions insuring the safety of the investment.

Except in an industry which requires large capital and large
land areas under one management, as the sugar industry, the
Philippine Islands will naturally develop as family farms instead
of as haciendas. But both of these types of farming are neces-
sary to the proper development of the Philippines. The Gov-
ernment should quickly recognize the difference in the require-
ments of those phases of agriculture which require large areas,
much capital, and ample powers, and those which may be best
organized as household farms.

7

8

But the increased earninj?s of the Philippine people should
not come from increasing the area under the plow. The cul-
tivated land must be made to yield a larger harvest. The Jap-
anese farmer, for example, produces P2, 000,000, 000 worth of
v.ealth a year from 14,000,000 acres of land, and the Filipino
farmer produces only 1*200,000,000 worth of products from
7,000,000 acres. From twice the area the Japanese farmer pro-
duces tenfold the wealth that the Filipino farmer does.

If the sugar planters of the Philippine Islands harvested as
much sugar to the acre as do the planters of Java, the Philip-
pines, without increasing the area in cane, would be the leading
cane sugar producing country in the world, Cuba alone excepted.

If the rice growers of the Philippines obtained as high acre
yields as do the rice growers of Japan or the United States,
instead of buying from India and Japan one-fourth of the rice
consumed in the Islands, the Philippines would be the third
largest rice-exporting country in the world.

If the acre yield of corn in the Philippines equal that of
the United States or Japan, the Philippine Islands would have
grain enough to support a larger pork and poultry industry than
has either Canada or Australia.

These are among the possibilities of the Islands with less
than half the reasonably good agricultural land in cultivation.
When all the land is utilized to the limit of its producing power,
when the fisheries, manufactures, and commerce of the Islands
are developed, enough food and wealth will be produced to sup-
port comfortably 40,000,000 people, or as many people as are
in France or in the United Kingdom of Great Britain.

THE BUSINESS OF THE PHILIPPINES

Last year the value of the purchases of the people of the Phil-
ippines amounted to ^=5,250,000 more than the value of their
sales. A study of the business of the Islands reveals many
wastes. For example, 9,000,000 pounds of raw sugar were sold
from the Islands at an average price of 4 centavos a pound, all
of which, or its equivalent, was bought back again as refined
sugar at 10 centavos a pound. What was sold, therefore, for
?360,000 was bought back for f=900,000. It cost approximately
^=140,000 to refine this sugar. The balance, ?400,000, was ab-
sorbed in transportation charges and profits to people who, for
the most part, live in other countries.

One may ride for days through grass up to the saddle skirts
without seeing a herd of cattle or horses. Meanwhile, the peo-
ple of the Philippines are paying the farmers of Australia and

India about 1*3,500,000 annually for meat and work stock. It
is probable that there is enough grass and forage of fair nu-
tritive value going to waste each year in the Philippines to pro-
duce all the meat that is now imported from foreign countries.
Besides, if the waste places and mountain sides were closely
pastured the year through, there would be less frequent and less
serious locust infestations.

With almost limitless forest resources, the Philippines last
year bought more than =f*=l,000,000 worth of lumber outside of
the Islands.

Last year purchases were made outside the Islands aggregat-
ing 1*25,000,000, on which the people of the Philippines paid
an import duty of some 1*5,000,000, all of which materials the
Islands are capable of producing without beginning to tax the
resources of the soil or people.

The articles sold from the Islands are principally raw mate-
rials, which support manufacturing industries and give em-
ployment to labor in other countries. For example, one of the
important benefits of the coconut industry is lost when copra
instead of coconut oil is exported. By exporting oil instead
of copra, a home industry would be developed, a substantial profit
now going almost wholly to people outside the Islands would
be saved, and the coconut cake would be left at home as an
excellent food for poultry, hogs, and horses.

It is good business for a people to produce as nearly as pos-
sible everything they need and to buy outside of the country as
few things as possible. A favorable trade balance is essential
to the development of a new country, to furnish the means with
which to build schoolhouses, highways, and new industries.

The credit of the people is limited and the interest rate is
high in a country that has a poor soil, an uncertain climate, an
unstable government, defective land titles, or low labor income.
Yet this is just the kind of a country whose people are least
capable of paying a high interest rate or of supplying their own
capital.

The Filipino farmer sufi'ers the natural and irremediable hand-
icap of floods, droughts, and typhoons. He suffers also from
the remediable handicaps of defective land titles and a small
family income. He sells the products of his labor at an inop-
portune season and at a low price and buys his supplies in small
quantities at a high price. Whatever may be said of him as a
producer, the Filipino farmer, like the American farmer, is
more successful as a producer than he is as a buyer and .seller.

The Government should as speedily as possible remedy the

10

defects in land titles in the Philippines. This alone will greatly
improve conditions. The (Government should also extend as
rapidly as possible the benefits of the Aj?ricultural Bank. Co-
operation between the producers and the consumers should be
promoted in such a way as to reduce materially the cost of
doing business in the Islands. The family income should be
increased by increasing the area tilled by the farmer and by
creating profitable industries suited to all the members of the
family.

STRESSING IMPORTANT INDUSTRIES

It is easy to point out defects in a system of agriculture, but
it is difficult, indeed, to suggest feasible remedies. It is too
much to hope that the conditions in the Islands will be speedily
remedied. Rural people in any country are conservative and
adopt new practices slowly. It is a work in which every citizen
must have a part. Obviously, it will add much to the effective-
ness of the campaign if a general policy is adopted and if all
work to the same end instead of each trying to promote develop-
ment along the lines in which he happens to be interested.

The greatest hope lies in developing along the lines of staple
crops and the classes of live stock that are well adapted to the
Islands. The Philippines must henceforth as at present be es-
sentially a rice, corn, sugar, copra, hemp, tobacco, carabao, cattle,
poultry, pig, and pony producing country. Development along
these lines is safe and sure, and there is abundant room for
improvement in each. Special crops, such as citrous fruits,
coffee, cacao, rubber, kapok, silk, and tea, should be encouraged
in special localities, but emphasis everywhere and at all times
should be placed upon the principal industries.

A larger and better laying hen, such as has been developed
in South China and which appears to be well adapted to the
Philippines, would be able to turn the balance of trade of the
Islands from the wrong to the right side of the ledger. Crossing
the Philippine pony with Australian or Arabian stock has pro-
duced an animal better adapted to the needs of the Islands than
is the present stock. Galloway and Indian cattle mix well with
the native stock, as has been demonstrated by the Bureau of
Agriculture, and their offspring make a very satisfactory beef
animal. As much as 50 bushels of rice to the acre has been
produced by the agronomists of the Bureau of Agriculture by
the use of better seed. The average yield of rice in the Phil-
ippines with unimproved seed is less than 12 bushels an acre.
The Bureau is producing the seed of these improved strains

11

in large quantities for distribution among the rice growers of
the Islands.

Examples might be multiplied indefinitely of the improve-
ments that are within the reach of the average farmer. All
efforts at improvement must begin where the Filipino farmer
now is, and must offer reforms that are within his reach.

AN UNINTERRl'PTED PROGRAM

The development program must go forward without inter-
ruption. Changes in the directorship and in other positions
in the Bureau of Agriculture have occurred with great fre-
quency. With each change in the administration of the Bureau
has naturally come a change in policies. The Bureau has been
so overloaded with police duties that it has had little time and
money left for large constructive work. There has also been
a tendency on the part of the Bureau in the past to extend its
field of work rather more rapidly than the available funds would
justify. The present policy of the board, fortunately, is to con-
centrate upon a limited number of lines and to emphasize the
basic industries of the Islands.

With the larger plans of the Bureau must come a greater
stability in the tenure of office of the men who are to do the
work. This is impossible so long as the scale of salaries is fixed
by the Legislature. Indeed, the elementary weakness in the
administration of the Bureaus it was my duty to study, lies
in the fact that the Legislature fixes the salary that is attached
to each position in the service. When a man develops beyond
the salary fixed for the position he holds, or is offered a better
salary elsewhere, either he must be advanced in rank and re-
sponsibility, as well as in salary, or his services are lost to the
Government. Obviously, it is not practicable to promote a
man in rank every time that it is deemed wise to increase his
pay ever so slightly. As a result, as soon as a man has gained
sufficient knowledge of local conditions and of the needs of the
people of the Islands to begin to be really useful, his connection
with the service is too frequently severed and a new man, inex-
perienced in the Philippines and unacquainted with the local
conditions, is put into his place. On the other hand, if a reason-
able proportion of the strong men are held in the service through
promotion in rank and in salary, the organization of the Bureau
soon becomes top-heavy because too many men occupy admin-
istrative and supervisory positions, and too few good men are
kept at work in the field of their specialties.

12

The system of fixing by statute the salary for each position
is neither economical nor efficient. A number of years ago,
this system of conducting the business of the Government
bureaus was common in the United States. In some States the
legislatures went so far as to fix by statute the salaries of the
officers and teachers of the universities and agricultural col-
leges. At present every State with which I am acquainted
makes its appropriations to its institutions and bureaus in bulk,
giving such directions as it deems wise regarding the ways in
which the money appropriated shall be expended.

It will greatly improve the service and effect a decided econ-
omy if in the Bureaus of Agriculture and Education the ap-
propriations are made in one or more lump sums and if the
Secretary of Public Instruction and the chief of the Bureau in
each case are empowered to fix the scale of salaries and to make
all promotions in rank on merit.

AGRICULTURAL INSTRUCTION AND DEVELOPMENT

There are six governmental agencies in the Philippines giv-
ing instruction in agriculture or engaged in agricultural de-
velopment :

1. "The Bureau of Agriculture.

2. The Bureau of Education.

3. The College of Agriculture.

4. The Bureau of Forestry.

5. The Bureau of Science.

6. The College of Veterinary Medicine.

The Bureau of Agriculture creates agricultural knowledge
through its experimental work and its field studies. It dis-
seminates this knowledge through published reports and bul-
letins, through field demonstrations, and by personal contact
with farmers. Also, the Bureau is trying to improve the agri-
culture of the Islands by introducing, propagating, and dissem-
inating new plants and animals. So far the Bureau of Agri-
culture has dealt only with the adult.

The Bureau of Education teaches agriculture in its schools,
through its gardens and farms, through corn-growing cam-
paigns, and by means of published circulars and bulletins. The
Bureau of Education also propagates and disseminates improved
plants and animals, conducts farm demonstrations, and coop-
erates with farmers in making tests of new methods and new
crops. At the Cavite Farm School, for example, the Bureau
of Education is covering practically all fields of activity of the

13

Bureau of Agriculture. The principal spends much time away
from the school, working with the farmers, conducting demon-
strations in rice and corn growing, and in teaching the farmers
how to improve their poultry. On the school grounds there are
numerous experimental plots used for testing the adaptability
of new crops to the condition of the province. New strains
of corn have been developed at the school and an improved
stock of chickens has been brought from China and propagated
extensively for distribution. The Bureau of Agriculture keeps
an agricultural inspector in the province, but there is no at-
tempt by the two Bureaus to cooperate or to divide the field.

The College of Agriculture seeks to create agricultural knowl-
edge through its experimental work, and to improve the agri-
cultural practice of the people by the introduction of better
plants and by creating new strains of plants. The college dis-
seminates agricultural knowledge through its students, by means
of circulars and bulletins, and by personal contact with farmers.

The Bureau of Forestry is charged with the duty of con-
serving the timber resources of the Islands and of creating
new resources by reforesting waste lands. The Bureau gives
instruction in tree planting and timber management. Elabo-
rate reports are published giving the results of the Bureau sur-
veys and forest studies. The Bureau, in cooperation with the
College of Agriculture, maintains a school of forestry at Los
Bafios.

The Bureau of Science seeks to improve the agricultural con-
ditions of the Islands through its study of insect pests, soils,
varieties of sugar cane, and by the operation of a sugar-testing
laboratory.

The College of Veterinary Medicine is contributing to agri-
cultural development and progress by training men to serve as
Insular and provincial veterinarians and by helping to hold
the diseases of domestic animals in check.

This situation cannot fail to create some confusion in the
minds of the people who try to apply the teachings of these
Bureaus and colleges, because of the differences in the teach-
ings of the different organizations with respect to the same
subject. For example, four of these agencies are seeking to
help the farmer control insect pests, but there is not always
entire agreement among them as to the remedies proposed.
With the Bureau of Education recommending one method, the
Bureau of Science another, the teachers at the College of Agri-
culture another, and the Bureau of Agriculture pursuing a
different method from any of the others, what must be the

14

state of mind of the farmer who is seriously seeking the best
means of protecting his crops against the ravages of insects?
With the Bureau of Education teaching the school children to
follow one method of selecting seed corn, or of preparing soil
for rice, and the Bureau of Agriculture recommending to the
parents of these children another method, the confusion is com-
plete, and the public confidence in much of the agricultural
teaching is shaken.

This overlapping has been the result of a very rapid devel-
opment, and the natural outgrowth of a condition where there
was more to do than the agencies at work could accomplish.
Some of the duplication is economical and justifiable and some
of it is unnecessary and wasteful.

Contrary to expectations, I found very little destructive ri-
valry in the Bureaus and institutions studied and there was
every evidence of a desire on the part of the oflfiicers of each
institution to recognize the natural field of work of the others
and an entire willingness on the part of each fully to cooperate
with the other. It will be comparatively easy, therefore, to sub-
stitute for the duplication pointed out a most efltective system
of cooperation.

UNITING THE AGRICULTURAL FORCES

The work of the Bureau of Agriculture, the Bureau of For-
estry, the College of Agriculture, and the College of Veterinary
Medicine falls into the same general class. Especially is there
no natural line of demarcation between the fields of operation
of the Bureau of Agriculture and the College of Agriculture.
Any attempt to maintain an arbitrary line betw^een these two
institutions and to make each respect the field of work assigned
to the other will result in an ineflflcient Bureau and a weak
college. To allow both to spread out over the whole field is
likely to increase the cost of maintenance beyond the power of
the Government to meet it.

In a country as extensive and wealthy as the United States,
a Federal Department of Agriculture at the National Capitol
and a college of agriculture in each State is the logical arrange-
ment, though the cost of maintaining this system of agricul-
tural education and research in the United States is nearly
f*=100,000,000 a year, or about half as much as the income from
all the farms in the Philippines.

If the Philippine Islands were large enough to warrant the
establishment of a seperate college of agriculture in each of
the provinces, then a strong Insular Department of Agriculture

15

at Manila, properly to correlate the work of all the provincial
colleges and experiment stations would be necessary. As far
as the College of Agriculture is concerned, however, it would
seem to be wiser to continue the policy already entered upon,
of maintaining farm schools in the provinces, like the one at
Muhos or the one at Cavite, and to have one strong agricultural
college for the entire Archipelago. The teaching of agriculture
in the public schools should be emphasized much beyond even
the present point and the work in agriculture in the public
schools, the farm schools, and the Agricultural College should
be so carefully correlated that a pupil may pass from one to the
other without waste of time or loss of credits.

The proper correlation of the agricultural forces of the Phil-
ippines is by no means simple or easy. There is room in the
Philippines for one strong organization in agriculture, cover-
ing instruction, experimentation, and demonstration. Either
all the agencies now existing should be merged into one organi-
zation, or at most two organizations — a College of Agriculture
and a Bureau of Agriculture.

In any case, the principal experimental work should be done on
the college grounds and the men engaged in experimental work
should be located where they may have constantly under their
eye the crops or animals with which they are experimenting.

There is much work being done by the Bureau of Agriculture
on its own grounds that could be done to better advantage at
the college. The Bureau maintains several institutions for the
propagation of plants and animals for distribution over the
Islands. Isolated as they are, they serve no purpose as teach-
ing institutions, whereas if located on the campus of the College
of Agriculture they would be most useful for purposes of in-
struction, at the same time that they would be as useful as
they now are as propagating stations. By concentrating all
these activities at one place, considerable saving in the cost of
maintenance could be made, and by bringing this work to the
college, the students would have an opportunity to perform a
considerable part of the labor required, thus helping themselves
through college as well as gaining valuable experience.

At Lamao, for example, the Bureau of Agriculture conducts
an extensive nursery for the improvement, propagation, and
distribution of plants. Owing to the isolated location of the
station, very few people visit the grounds and the splendiil work
being done there is completely hidden from the view of the
agricultural students at Los Banos. Therefore, the Agricul-
tural College is obliged to maintain an extensive nursery of its

16

own for instructional and experimental purposes, but the col-
lege has no means of distributing the surplus products of its
nursery and many of them go to waste. One nursery located on
the college grounds would serve all the purposes that the two
now serve.

The Bureau of Agriculture also maintains an extensive estab-
lishment at Alabang for breeding horses, cattle, and hogs for
distribution and for sale. The splendid equipment there serves
only one purpose, that of producing animals. At the Agricul-
tural College, the teaching and experimental work in animal
husbandrj^ is lamentably weak for the want of just such equip-
ment as is at Alabang. Therefore, the Government faces the
alternative of purchasing at an expense of not less than 1*20,000
suitable live-stock equipment for the college or of transferring
to the college such of the animals now at Alabang as are needed
for teaching purposes. The animals will serve the purpose of
propagation quite as well at the college as at a separate breeding
station, and they will be even more useful for teaching purposes
if they are also made to serve as breeding animals and if their
offspring are distributed over the Islands.

The work in agronomy, animal husbandry, horticulture, and
veterinary medicine in the Bureau of Agriculture and in the
College of Agriculture should be brought together, and each
division or subject should be placed in charge of one man in-
stead of being in charge of two as at present. This applies
to the experimental work as well as to the work in instruction
and extension.

The Bureau of Forestry. — The forest resources of the Islands
are very important, indeed, and there is no reason to suggest
a curtailment of the work of the Bureau of Forestry any more
than it would be wise or profitable to curtail the activities of
the Bureau of Agriculture or of the College of Agriculture.
But it will greatly simplify the organization of the work, with-
out interfering in any degree with the efficiency of the Bureau
of Forestry, to have the Bureau made a division of the Bureau
of Agriculture or a part of the Agricultural College.

The Veterinarif College. — The live-stock interests of the Phil-
ippine Islands are not likely to be developed to such an extent
as to require the services of many veterinarians. There are
perhaps fewer than a dozen cities in the Islands that could
support a private veterinarian. It is not likely that the Govern-
ment will need more than an average of one veterinarian to
each province. Thus there is room for not more than 50 or
60 veterinarians in the Islands. Allowing an average of twenty

17

years as the active life of each veterinarian, the yearly require-
ment to replenish the natural loss through death would be but
three new men once the original demand is supplied, and these
three each year would not be required for many years to come.

Thus, within a short time all the Government positions will
be filled and all suitable locations for private practitioners will
be occupied and the graduates from the Veterinary College will
be without an opportunity to practice their profession. It would
seem wise, therefore, to consider the advisability of declining to
accept new matriculants and to discontinue the college as soon
as the students now enrolled in the college have graduated.
The equipment of the college might go to the Bureau of Agri-
culture for use in its investigations, and to the College of Agri-
culture for elementary instruction in animal diseases. When
the need arises for more veterinarians, the Insular Government
could send some of the graduates of the Agricultural College to
the United States to study veterinary medicine at much less
expense than is required to maintain a veterinary college at
home.

Under any plan of organization it seems likely that the Bureau
of Agriculture would be obliged to maintain an office in Manila,
from which all administrative and standardization work at least
could be conducted. Also, to concentrate the technical work
of the Bureau and the college at the college would probably
make a necessary change in the location of the college to a
point more convenient to Manila. In this event, the equipment
now belonging to the College at Los Baiios could be used to
good advantage by the Bureau of Education for a provincial
farm school. I do not pretend to be sufficiently familiar with
the details of the situation even to suggest a new location in
case it is decided to move the college; but Alabang appears to
be an ideal location in all respects, with the important excep-
tion that the land at Alabang is not very fertile and is not
well adapted to some of the important crops of the Philippines,
such as abaca and the coconut palm.

If Alabang were chosen as the new location of the college,
the research work now in progress at Alabang could be trans-
ferred to the quarters belonging to the college at Pandacan.
Manila, formerly occupied by the Veterinary College and now
vacant. This would make the veterinary laboratory at Alabang
available as a chemical or botanical laboratory for the college.
The building is well built, is well designed for laboratory i)ur-
poses, and is practically new.

The shed and pens for live stock; the wells, pumping plants.

130395 3

18

water pipe lines, rice paddies; and roads that would be required
by the college if it were located at Alabang are already provided
there and probably would be a waste if the college remained
at Los Banos. However, the abandoning of an ecjuipment such
as is at Alabang is a very small matter compared with a mis-
take in the permanent location of the College of Agriculture.
Therefore, the advantage of a small temporary saving should
not be allowed to weigh heavily in determining the new location
of the college in case it is decided to move it.

If the college is brought to Alabang, it would be necessary
to erect an administration and classroom building at a cost of
perhaps 1*35,000; an agronomy building, costing 1*15,000; and
another laboratory building at a cost of about ^35,000. This
would give the college better equipment than it now has, but
not better than it needs.

A rough estimate of the saving that would be effected by
such a combination of the work as is proposed is as follows:

Cost of upkeep of grounds, roads, and buildings, and the saving

of the cost of roads that are being built at the college, or must

be built very soon P25,000

Saving in salaries and cost of departments:

Agronomy t*4,000

Animal husbandry 4,000

Entomology , 2,000

Horticulture 10,000

20,000

Saving in the cost of live-stock equipment needed at the college.... 20,000

Saving in nursery work 15,000

Total 80,000

In this estimate no account is taken of the saving to be made
by combining the work of the Bureau of Forestry with that of
the college or the Bureau of Agriculture, and the saving that
would result from closing the Veterinary College as soon as
the students now enrolled are graduated. It is safe to assume
that the saving in one year would be sufficient to meet the cost
of the new buildings necessary to be erected at the college. The
combinations suggested commend themselves, however, not so
much upon the ground of economy of administration as upon
the broader ground of greater efficiency.

UNITING THE EDUCATIONAL FORCES

It is much more difficult to correlate the work of the Bureau
of Education with that of the Bureau of Agriculture and the
College of Agriculture than it is to correlate the work of the

19

more closely allied agricultural institutions. The extent to
which the Bureau of Education has gone into the field of agri-
cultural education and development, however, makes it very
important that the closest cooperation be maintained.

The Bureau of Education with its organization of teachers
and its close touch with the young people of the Islands is in
a position to disseminate information much more rapidly and
cheaply than is any other organization in the Islands.

The school gardens of the Bureau afford a splendid opportun-
ity finallj' to try out in different regions plants and animals
of undoubted commercial promise. The school gardens and
farms also afford the best possible means of introducing new
plants and methods into a community. It should be understood,
however, that these gardens and farms are not test grounds
and experiment stations. Experimental work at best yields but
a small proportion of successes and a large proportion of fail-
ures. School children sow seeds and cultivate crops in the full
confidence of an abundant yield, and it would be disastrous to
the entire system of education to have these children repeteadly
or even frequently disappointed in the harvest.

The Bureau of Education conducts elaborate tests of crops
in all the provinces and is accumulating valuable data regarding
the behavior of these crops under different conditions of soil
and climate. Except as this information is helpful in teaching
the children who come to these schools, it is of little value unless
the Bureau of Education and the Bureau of Agriculture co-
operate to bring this knowledge to the people.

Therefore, all the information developed on the school gardens
and grounds should be available to the officers of the Bureau of
Agriculture and the Agricultural College. An officer of one of
these institutions should visit the principal school grounds and
farms at the most opportune time each year for the purpose
of studying the character of the different crops grown there.
The officer should have access at all times to the records of the
yields and to the observations and notes of the teachers concern-
ing the crops grown in their gardens. This does not mean to
suggest that the representative of the Bureau of Agriculture
or of the Agricultural College should exercise any control over
these gardens. Indeed, it should be clearly recognized that the
gardens and farms are a part of the teaching machinery of the
Bureau of Education and that the cooperation of the Bureau
of Agriculture and the Agricultural College is maintained wholly
with a view of helping to make them successful and most helpful
to the school children and to the farmers.

20

On the other hand, the Bureau of Pklucation should not assume
that knowledge of agriculture which would justify its officers
in recommending a practice for any region or in putting such
practice into effect through its schools and school gardens.
These are functions of the Bureau of Agriculture and of the
College of Agriculture. It is the business of the Bureau of
Agriculture and of the college to shape the agricultural policies
of the Islands as definitely as it is the business of the Bureau
of Education to shape the educational policies of the Islands.

A matter of such great importance as the correlation of the
work of several of the most important bureaus and institutions
of the Government requires more than ordinary consideration
and study. It is far too intricate and delicate a question for the
Legislature to go into in the hurry of the session and with the
many other important matters demanding attention. Therefore,
I would recommend that the Legislature empower the Secretary
of Public Instruction to make such combinations of the work
and equipment of the Bureaus of Agriculture, Education, and
Forestry, and of the Colleges of Agriculture and Veterinary
Medicine as, in his judgment, after a full and careful study of
the work of each, will increase their efficiency.

THE COLLEGE OF AGRICULTURE

It does not seem to be necessary or wise to create an independ-
ent institution at Los Baiios, but the College of Agriculture is
of too great importance to the people of the Philippine Islands
to allow its isolation to be the cause of its neglect or in any way
to interfere with its efficiency. There is every indication that
the members of the board and the president of the university
are in hearty sympathy with the purposes and work of the college,
but it is difficult, under the present arrangements, for the board
and the president to give the proper amount of personal attention
to the affairs of the institution.

As a remedy, I would suggest that the board meet at the col-
lege at least quarterly, or, better, monthly, for the consideration
of the needs of the institution, or, perhaps, better, that the im-
mediate control of the college be vested in a special committee
of the board, of w^hich the president of the board would be
chairman and of which the president of the university should be
a member. The actions of the committee, of course, should be
subject to revision and veto by the board. The executive com-
mittee of the board for the college should hold its meetings at
the college and frequent opportunities should be given the dean

21

and the heads of the departments through the dean, to report
their needs.

In the interest of economy and efficiency, I would strongly
recommend that the budget for the college be agreed upon and
announced before the beginning of the fiscal year so that the
officers may know what funds are available with which to carry
on their work. It goes without saying that the dean of the col-
lege should prepare and recommend the budget for the consid-
eration of the president and the board.

The courses of study. — The departments of botany and chem-
istry in the college are exceptionally well organized and well
officered. In these fundamental sciences, the work of the college
will compare favorably with that of the better colleges of the
United States, but in the practical subjects the college is not
nearly so far advanced. The curriculum requires all students
to devote their entire time during the first two years to academic
subjects as a preparation for the technical instruction which is
to follow. Thus, all students are required to remain in the
institution two years before they are permitted to receive in-
struction in agricultural subjects. In the third year only one
agricultural subject is offered. In the fourth year the proportion
of agricultural to cultural and scientific subjects is satisfactory.
In the fifth and sixth years the agricultural work is concentrated
and somewhat congested. In this respect, the present course
of study in the Philippine College of Agriculture resembles the
course of study in the American college of agriculture of twenty-
five or thirty years ago. American teachers have learned the
importance of introducing agricultural subjects at the very
beginning of the course, and from the first they are giving prac-
tical and theoretical instruction side by side.

I would recommend that a strong and very closely supervised
course of five hours in farm practice be added to the first year
of the curriculum. This course should consist chiefly of the
methods of performing modern farm operations — a sort of farm
manual training course — wherein the student is taught how to
do in the most approved fashion for the Philippines those things
with which he will need to be perfectly familiar when he seeks
to instruct others in modern farm practice. There does not
seem to be any pressing need of eliminating anything now in
the course of study to make room for agriculture, but to avoid
overcrowding, German should be reduced to three hours a week.
I question seriously the wisdom of requiring these inadequately
prepared students to take a strong course in Germanic languages

22

in the first two years of tiieir coilojjfe course. Certainly it lias
no justification as a preparation lor reading the agricultural
literature of the Germans for two reasons; because only 1 or 2
per cent of the students will ever have occasion to exhaust the
agricultural literature available in English, and because the
amount of instruction in (German provided in the course is in-
sufficient to enable these few to read German readily. If the
study of German gives the Filipino student a better grasp of
the English language than does an equal amount of effort put
upon the English itself, as is claimed by some, there is ample
justification for keeping German in the course. On no other
ground would I consider it to be justified.

In the second year, a full course in agriculture, dealing with
the staple crops and laying emphasis upon plant judging and
selection and upon the production of staple crops of the Islands,
should be added. If it is found inexpedient to devote the entire
year to crop studies at this point in the course with the limited
knowledge the students have of chemistry and botany, it would
be entirely feasible to devote half the year to animal husbandry.

To make room for agriculture in the second year, I would rec-
ommend the elimination of the course in German or its post-
ponement until a later period when it might appropriately be
offered as an elective to candidates for the degrees of bachelor
of science. Valuable as the work in botany is, it will be found
profitable, I am certain, when the agricultural work is well or-
ganized and highly developed, to omit a half year of botany or
to make one full semester of the botany relate directly to the
practical details of plant production.

By adding two years of agriculture and by giving three courses
instead of two in animal husbandry, the course would be fairly
well balanced for the present. Within a short time, however,
it will be found advisable to increase the practical work even
beyond this point. In agronomy the principal stress should be
laid upon the six staple crops of the Islands ; and in animal
husbandry the work should be confined almost exclusively to a
study of the carabao, work cattle, ponies, swine, and poultry.

Equipment. — The equipment of the college in botany, chem-
istry, and forestry is excellent. Indeed, there is an apparent
tendency to over-equip botany by establishing a botanical garden
at the college. The isolation of the college would seem to make
it unwise to establish anything resembling an Insular botanical
garden at Los Baiios. Indeed, until the work in farm crops and
live stock is well organized and equipped, I doubt the wisdom

23

of organizing the botanical work of the college beyond its present
development.

The equipment in agronomy is fair, but it should be greatly
increased along the line of rice production, sugar and hemp
plantings, and the good work now being done with corn and
tobacco should be extended.

The equipment in animal husbandry is practically nothing.
The college needs at least 1*20,000 worth of live-stock equip-
ment for instructional and experimental purposes.

Experimental work. — Up to the present time, the right, much
less the duty, of the college to do experimental work does not
seem to have been recognized by the governing powers. Never-
theless, the institution is carrying on considerable very good
experimental work, but it has been necessary to make the experi-
mental work too much a part of the instructional work of the
college for the good of either. It takes the time and interest
of the student from the more practical and useful subjects, and
is likely to make of him an experimentalist rather than a farmer.
The experimental work is likely to suffer because too much of
it is left to the supervision of undergraduates.

No matter what is finally done regarding the merger of a part
of the w^ork of the College of Agriculture with that of the Bureau
of Agriculture, the duty of the college to do good research work
must be clearly recognized and the necessary funds should be
provided. Strong men cannot be attracted to an institution or
held there unless they are given an opportunity to discover new
truths as well as to teach old truths. An agricultural college
without experimental work soon becomes impotent.

Exteyision ivork. — To cut the Agricultural College off from
the practical farmer works a hardship upon the college as well
as upon the farmer. It is only a part of the duty of the modern
college to teach acceptably the young men resident upon its
campus. The college should carry its teachings out to the people
for two very important reasons. The farmer needs all such
instruction that the college can give him. Teaching the experi-
enced farmer makes the instruction at the college much more
practical than it otherwise would be. Instruction that is not
practical or that is not adapted to the Philippines may be im-
parted to inexperienced college students indefinitely without
being challenged ; but the moment it is presented to the experi-
enced man on the farm its deficiencies become apparent.
Adaptation of the instruction to the farmer's needs is the crucial
test.

24

THE LIVE-STOCK INDUSTRY

No one familiar with the subject of animal husbandry would
think of the Philippine Islands as an important live-stock country
when compared with such countries as the United States and
Argentina. Yet, when compared with other tropical countries
or when compared with a semitropical country like Japan, in
the number of animals at least, the Philippines make a good
showing. For example, there are in the Philippines about seven
times as many hogs, four times as many goats, and thirty times
as many sheep as there are in Japan, although there is only
about half as much land in cultivation in the Philippines as in
Japan. In the number of horses, however, the Philippines fall
far short of Japan, there being only about one-seventh as many,
and only about one-sixth as many cattle. The carabao in the
Philippines, however, easily offset the difference in the number
of horses in the two countries, and the only direction in which
the Japanese farmer has developed his live stock beyond that
of the Filipino farmer, as far as numbers go, is in cattle.

The Filipino farmer, however, has not yet learned the very
important lesson that the Japanese farmer has only recently
learned — the same lesson which the farmers in the States w^ere
a long time in learning — that real progress can come only
through better breeding and better care of the animals.

Under the encouragement of the Government and through
the assistance of one or more breeding farms in each prefecture,
and the assistance of three federal breeding farms, Japan has
made remarkable progress in recent years in the improvement
of the grade and quality of her farm animals. For example,
the total number of cattle in Japan increased only 9 per cent in
the last ten years, but the number of improved cattle resulting
from the crossing of the native cows with pure-bred bulls in-
creased 150 per cent, and the number of cattle without improved
breeding decreased 17 per cent. Ten years ago there were in
Japan only 189,000 cattle cariying superior blood, whereas last
year the census showed 479,000 such cattle.

In horses, the showing is even more striking. The number
of unimproved, or scrub, horses has decreased one-fifth in the
last ten years, while the number of horses with improved blood
increased fourfold, or from 87,000 to 451,000. Equally rapid
progress has been made in grading up the swine and poultry
of Japan.

A necessary step in progress in the Philippines is to require
all breeding sires to be registered with the Government, and all

25

males not acceptable for registry should be castrated. I realize
that this would break into a long-established custom and would
run strongly against public sentiment; but it is only through
the enforcement of some such rule as this that progress can be
made in stock improvement in an unfenced country and espe-
cially in a country where the animals are kept in veiy small
groups as they are in the Philippines.

There is a large and important area in Mindanao and many
smaller areas elsewhere in the Philippines very well adapted to
the raising of cattle, carabaos, and ponies that are not being
utilized for any purpose. After a visit to the open range of the
Island of Mindanao, I am certain that no public land approx-
imating in value as a cattle range that of the Bukidnon Province
has been open to the settler in the United States within the last
quarter of a century. I was told by those who have had exper-
ience with cattle on this range that a hectare of land will support
a bullock the year through. Pasture land in the States that will
support a bullock to the hectare half of the year has a market
value of f*=50 to 1*=75 an acre and a rental value of f*^3 to =P7 an
acre a year.

The Government, through the Bureau of Agriculture, should
establish a breeding farm in this region and manage the farm as
a commerc'al cattle ranch, keeping an accurate account of the
cost and returns, to demonstrate beyond question the possibil-
ities of this region for stock growing. Once this fact is estab-
lished beyond question, there will be plenty of capital available
with which to develop the country.

The carabao is the most important domestic animal in the
Philippines. The department of animal husbandry of the Bureau
of Agriculture should make a careful study of the different types
of carabao with a view of determining which type is best suited
to the various purposes to which this animal is put in the Islands,
and with a view of improving the type by selection and breeding.

The type of the Philippine hog, the next most important
animal in the Islands, should be improved along the lines in
which the Bureau of Agriculture and the College of Agriculture
are now working.

The size and laying quality of the Filipino hen can be im-
proved greatly through the means already adopted by the College
of Agriculture and by the Bureau of Education at the Cavite
Farm School.

In so far as it is feasible to import improved sires, it will be
cheaper to do so than to breed them, but in the case of many
kinds of stock the imported sires seldom do well and in all classes

26

thoro is a distinct advantage in breeding from stock Ijorn in tiie
Islands. In the importation of sires tile Bureau of Agriculture
should act for the individual farmer, combining into one impor-
tation many orders and thus save expense. It would be profit-
able to grant the Bureau a fund with which to import stock for
sale to farmers at actual cost, the proceeds of the sales being
reappropriated to the Bureau for the purposes of making impor-
tations. The fund might be considered a permanent capital with
which the Bureau could do a live-stock importing business for
the people. This, however, will not relieve the Bureau of Agri-
culture and the College of Agriculture of the responsibility of
producing on their grounds as many good breeding animals as
possible. It is not a just criticism to say that it costs the Gov-
ernment more to produce these animals than they bring when
sold. The service they render in improving the quality of the
stock of the Islands will much more than offset any such deficit.

At best only a small proportion of the stock owners of the
Philippines have animals enough to warrant them in buying
improved sires. Therefore, public breeding stations, such as
the Bureau maintains at Batangas and at La Carlota, are the
only means by which the man with small capital or with few
animals can derive any direct benefit from the improved animals
the Bureau or the college breeds or imports.

Universally the owner of scrub stock gives them scrub care,
while the immediate effect of placing improved stock in the
hands of the farmer is to increase his interest in them and to
increase the intelligence with which they are fed and managed.
In no country can progress in animal improvement outrun the
intelligence with which the animals are fed, housed, and guarded
against disease. Much of the present opposition to the enforce-
ment of quarantine regulations in the Philippines will subside
when the farmer has improved stock to be protected by such
regulations.

RINDERPEST

The control of infectious diseases, whether of man or of
domestic animals, has always been unpopular. Perhaps at no
time since the Government of the United States undertook the
control and suppression of contagious diseases among farm stock
would the work have been allowed to proceed if left to the choice
of the people most directly interested — the stock owners.

In all European countries, in Japan, Austraha, Canada, and
the United States the final authority in the formulation and the
enforcement of quarantine regulations rests with the Federal

27

Government. In a number of these countries, the state, prefec-
tural, or provincial government may exercise authority over
local outbreaks, provided it is shown that the local authorities
are capable of controlling the disease to the extent of prevent-
ing the spread of infection. The central government, however,
in all cases reserves the right to regulate the movement of
animals whenever in the judgment of the federal authorities the
infection is likely to spread to other districts.

Rinderpest is a disease that has been especially difficult to
eradicate from every country into which it has been introduced.
The length of time required to stamp out this infection in
different countries has varied greatly and has depended upon the
local methods of handling cattle and the degree to which the
laws controlling the movement of animals have been performed.

In England, where the land is well fenced and cattle are, there-
fore, well restrained, and where respect for law is very high,
infections have been stamped out within a period of two years.

In Hungary, an infection occurred in 1827 and the disease
raged almost without cessation until 1842. Hungary was again
infected in 1849 and the disease remained there almost unabated
until 1862.

Operations against rinderpest in European Russia were
marked by the passage and enforcement of a drastic act in 1879,
but it was not until 1900 that the infection was entirely stamped
out.

Rinderpest was unknown in Africa until 1864, when it was
discovered in Egypt, It gradually spread to the south African
states where the last great epizootic occurred in 1896-97, when
from 80 to 90 per cent of the cattle died.

Assisted by the Director of Agriculture, H. T. Edwards, and
the chief veterinarian of the Bureau of Agriculture, Dr. S.
Youngberg, I looked somewhat carefully into the rinderpest
situation in the Philippines. Among others, we visited the
three provinces in which the disease is most prevalent, Pam-
panga, Tarlac, and Pangasinan.

We inspected a number of the quarantine pens where animals
affected with rinderpest were confined ; observed the extent to
which the regulations of the Bureau of Agriculture, with respect
to the movement of animals in and out of barrios under quaran-
tine were being obeyed ; and conferred with the governors of
two of the provinces, the veterinarians of the Bureau of Agricul-
ture in charge of the local work, and the Constabulary officers who
are charged with the enforcement of the quarantine regulations.
I also took occasion to talk at length with a number of carabao

28

and cattle owners, principally small farmers who own only one
animal.

1 am convinced from the observations made that there is
little hope of completely controlling the disease, much less
stamping it out, under any system of quarantine. Quarantine
regulations, as has just been stated, are difficult to enforce in
any country. In the Philippines, where the land is unfenced
and where the animals susceptible to the disease are used
principally as work stock and, therefore, cannot be confined
to the owner's land without practically destroying the owner's
business, and where the people have not yet been educated to
appreciate the value of quarantine regulations in preventing
the spread of contagious diseases, the difficulties are greatly
increased.

While there seemed to be much prejudice on the part of the
live-stock owners against the enforcement of quarantine regula-
tions, there seemed to be a willingness on their part to have
their animals immunized. In the Province of Pampanga, where
Governor Ventura had been active in educating the people along
this line, I found xery much favorable interest in immunization.

If immunization is effective and feasible, and I am assured
by the officials of the Bureau of Agriculture that it is both,
it would seem to be the way out of the difficulty.

The Bureau of Agriculture has already immunized during
the past year nearly 8,000 animals with a loss of less than
1 per cent, and at a cost for salaries of veterinarians, labor,
and equipment of about ?1 per animal immunized. The time
required to immunize an animal varies from two to three
weeks. The immunity conveyed appears to be complete and
from observations extending over three or four years and from
experience in immunizing against similar diseases there is every
reason to believe that immunity produced by this means
continues throughout the life of the animal.

Estimating the carabao to be worth ?100 and the average
loss of animals due to the process of immunization to be 1
per cent, the animal owners could insure themselves against
all losses by paying ?1 each for the animals immunized. This
money could be administered by the Government as a fund
with which to compensate the owners for the loss of all animals
killed. The records of the Bureau of Agriculture show a loss
of less than 1 per cent and the value of cattle and carabaos
of all grades and ages is perhaps less than ?100 each. There-
fore, it appears that there is an ample margin of safety in
allowing ?1 per head as an insurance fund.

29

According to estimates furnished me by Doctor Youngberg,
rinderpest has cost the Philippine Islands in the last five years
in salaries of veterinarians, inspectors, and other expenses con-
nected with the control of this disease 1*2,330,823, distributed
as follov^s :

1910 1*275,661

1911 518,146

1912 591,747

1913 524,997

1914 420,272

Total 2,330,823

The records of the Bureau of Agriculture, supplemented by
estimates made by Doctor Youngberg, show that the animals
that have died of rinderpest in the last five years were worth
^=2,528,900. Thus the average annual cost to the Government
to enforce rinderpest quarantine in the last five years has
been =P466,165. The average annual loss to the live-stock owners
on account of deaths from rinderpest in the last five years has
been f*505,780. The average total annual cost of rinderpest
to the people of the Philippines has been 1*971,945.

In one year, 1902, the loss from animals that died of rinderpest
is estimated to have been between ^=50,000,000 and 1*60,000,000.
"Many of the provinces lost from 50 to 80 per cent of their
carabaos and cattle." '

Doctor Youngberg estimates that 80 per cent of the infection
of the Islands is in the Provinces of Pampanga, Tarlac, and
Pangasinan, and that 80 per cent of the deaths, due to this
disease, occur in these provinces. Doctor Youngberg further
estimates that with proper facilities and support all the cattle
and carabaos in these provinces, 150,000 head, can be immunized
in from one to three years. The cost of this work is estimated
by Doctor Youngberg to be as follows :

To the Insular Government for salaries of veteri-
narians, labor, equipment, etc 1*200,000

To stock owners as insurance against loss of

animals 150,000

Total 350,000

According to this estimate, which I am assured by Doctor
Youngberg is conservative, the cost to the Government to
immunize every animal in these provinces is slightly more than
one-half as much as it has cost the Government each year in
the last five years to maintain in these provinces a quarantine

* Report of the Philippine Commission, 1902, p. 293.

30

which, at best, has not more than kept the disease from
spreading.

The part of the expense to })o borne by the owners of the
carabaos and cattle is approximately one-third of the value of
the animals they lose each year from the disease.

By immunizing all susceptible animals in these provinces,
rinderpest will be completely stamped out in this region and
all losses from the disease, excepting among the newly born
and the animals introduced, would be prevented. It is estimated
that an annual charge of from 1*50,000 to 1*75,000 would be
sufficient to immunize all young' stock and all animals imported
into the provinces. On this basis a saving of more than
1*700,000 a year would be effected, once all the animals in these
provinces were immunized, and all danger of a recurrence of
such an outbreak as occurred in 1902 would be removed.

With these principal centers of infection cleaned up it would
be comparatively easy to remove the infection in other districts
by the same process. Obviously, until all infection has been
fully stamped out in the Islands, vigilance against the disease
should not be relaxed by the Government or by the people.

THE SUGAR WASTE

The glaring defect in the sugar industry in the Philippine
Islands is in the method of extracting the sugar from the cane.
The sugar producers of the Islands cannot hope to compete
successfully with those of Cuba, Java, Porto Rico, and Hawaii,
w^hile permitting 35 per cent of the sugar contained in their cane
to be lost in the process of milling.

The Bureau of Agriculture has introduced and developed a
number of strains of cane that promise to be more productive
than those commonly grown, but the stalks are so large that they
cannot be successfully milled with the present facilities. Other
means of increasing the cane tonnage, such as deeper and more
thorough plowing, crop rotation, the use of fertilizers, and, in
some localities, irrigation are available, but these means are of
secondary importance compared with correcting the defects in
milling.

Apparently there is not sufficient capital among the planters
to erect the required number of up-to-date sugar centrals, there-
fore a part of the capital for this purpose must be secured from
outside sources. No one questions the necessity for better sugar
mills, but there is a great lack of agreement regarding the best
method of securing them..

It has been suggested by many that the Government declare

31

sugar mills a public necessity and guarantee to capital invested
in them an annual return of 4 per cent, as the Government has
already done in the case of the railroads of the Islands.

It has been suggested by others that the Government build
and operate the sugar centrals, charging the planters enough
for manufacturing their sugar to cover the cost of operation and
upkeep. Also, it has been suggested that the Insular Government
supply a part of the capital for the erection of sugar mills, the
provincial government a part, and local planters a part.

People competent to speak on this matter assert that outside
capital would be available for the erection of all the mills needed
in the Islands if the Government would declare sugar centrals
a public utility and would confer upon their owners the right
to eminent domain with respect to the location of the mill, the
right of way of its railroad tracks and switches, its pipe lines,
sewers, and wharfs, and if the Government would follow the
practice of some of the States in preventing destructive competi-
tion by determining what regions can support a central and
allowing no public central to be erected except with a Government
franchise and in a region approved by the Bureau of Agriculture.
In consideration of the rights and privileges thus conferred upon
the mill owners, the Government should exercise the same control
over the management and operation of the sugar centrals as it
exercises over other public utilities, such as railroads, telephones,
and banks, with respect to the rates charged, the nature of the
contract between the mill owners and the planters, the location
and plans for the mill, railways, pipe lines, sewers, and wharves,
and make the central subject to governmental control with
respect to the efficiency of its management.

Naturally in determining what is a fair return on the invest-
ment by the mill owners, or what is a fair charge for the
manufacture of the sugar from the cane, the Government would
consider the management of the mill in manufacturing the sugar
as well as the efficiency of the planters in the production of
cane. The Government should station at each such central an
efficient chemist bonded and appointed by the Government and
perhaps also a weighmaster and a record clerk. The three under
direct supervision of an official of the Bureau of Agriculture
should represent the planters and mill owners in all matters of
control and record of business. The Government would be
justified, perhaps, in taxing each central on the basis of its output,
the fund to be paid into the Treasury to the credit of the Bureau
of Agriculture to support the work of supervision and control.

In an era of rapid expansion of such an industry there is

32

opportunity for waste and fraud in selling improperly desij^ned
machinery and in the erection of inefficient mills. The waste in
an inefficient sugar mill is too gi'eat and too far reaching to
be permitted. Therefore, it seems reasonable that the Govern-
ment should exercise the right to pass at least upon the plans
of all centrals not for the exclusive use of an individual or of a
corporation.

SUGAR SCHOOL

The Bureau of Agriculture owns 363 hectares of very good
sugar land at La Carlota in the Island of Occidental Negros which
at present the Bureau is using as an experiment station. The
community in which the station is located is in need of a modern
central. It has been suggested that the Government erect on
its sugar estate at La Carlota a complete modern sugar mill,
costing perhaps f*^60,000, to be operated for two purposes : First,
as a commercial mill for the manufacture of the sugar of the
locality; and, second, as a sugar school for the education of the
sugar planters of the Islands in the details of growing sugar cane
and in managing sugar mills. It is thought by those who are
most earnestly advocating this plan that the earnings of the mill
would easily support the school.

If the sugar business is developed extensively in the Islands,
there will be great demand for young men to take positions in the
centrals as engineers, superintendents, and assistant chemists,
and it will be altogether better to prepare young Filipinos to take
these positions of responsibility than to import men from the
United States, England, and Germany for this work.

An incidental but important feature of the sugar-producing
business is the supply of w^ork animals on the plantations. This
in turn is dependent upon the success with which the ravages of
rinderpest are controlled and upon the facilities that are provided
for the introduction of work stock from Indo-China. Importa-
tion, however, should be resorted to only as a temporary relief.
The birth rate in carabao, I am informed by the Director of
Agriculture, exceeds the death rate by some 15 or 20 per cent a
year, even under present conditions of rinderpest control.
Unless, therefore, the development of the industries in the Islands
should be so rapid as to absorb this natural increase in work
animals, there would soon be no need of importing stock from
other countries. Indeed, the Philippines should have the rin-
derpest under such control and should manage their carabao in
such manner as soon to be exporting work animals instead of
importing them.

33

EXPERIMENTAL AND DEMONSTRATION STATIONS

A sharp distinction has not yet been made between experi-
mental and demonstration work in the Philippines. While the
Islands afford an unusually large variety of conditions of soil
and climate, yet the agriculture of the Islands, with a few im-
portant exceptions, is comparatively uniform. One central ex-
periment station, therefore, is sufficient for all the Philippines
for the present, with special work conducted by the station in the
regions where the special crops are highly developed, such, for
example, as tobacco work in the Cagayan Valley and sugar work
in the Island of Negros.

Demonstration and test stations are means of testing the
adaptability of crops and methods to the conditions of a locality,
or of bringing to the attention of the people what has already
been learned elsewhere. As rapidly as funds will permit, one
demonstration station should be established in each province and
in each subprovince. If each province or each subprovince as-
sists in the support of the station, local interest will be quickened
and a local check will be placed upon the expenditure of the
funds.

In addition to these central test and demonstration stations,
the Bureau of Agriculture should be provided with the funds
necessary to carry on many demonstrations in cooperation with
municipalities and with individuals. Crops and methods that
succeed well on the village test grounds are quickly adopted into
the farm practice of the community.

DISSEMINATING AGRICULTURAL KNOWLEDGE

It has often been found as difficult to carry agricultural knowl-
edge to the people in such form as to arrest their attention and
compel them to adopt its teachings as it has been to create such
knowledge. The means of reaching the farmer are limited and
difficult in any country, and they are especially so in the Phil-
ippines. The pupils of the public schools, the demonstration
agents, and cooperators are the most effective publicity agents
available to the Government, but they alone will fall far short of
fully meeting the needs of the people. The demonstration agents
come in contact with only a small part of the people and the
school children are capable of carrying home to their parents
only the most elementary lessons.

Placards, showing in a striking way the important results of
experiments and demonstrations should be posted in the schools,
post offices, municipal buildings, railway stations, and other

34

pul)lic places. The cooperative societies now bein^ f<jrmed under
the auspices ol" the Bureau of Aj^riculture will be an elFective
means of spreading knowledge.

The newspapers of the Islands appreciate the importance of
disseminating agricultural information, and are glad to cooperate
fully with the Bureaus of Agriculture and Education and the
College of Agriculture.

The Agricnltural Recieic. — The Agricultural Review% the
official organ of the Bureau of Agriculture, has been a credit
to the Government and has given the Philippine Islands a
good name abroad. It has also served a good purpose at home
in promoting progress. Strong men cannot be induced to
accept positions in the Bureau of Agriculture unless they are
given an opportunity to publish to the world the results of
their studies, and the men now at work in the Islands cannot
do their best work without some such stimulus. Only this
year the United States Department of Agriculture found it
necessary to establish a Journal of Agricultural Science to serve
the" purpose in the United States that the Agricultural Review
serves in the Philippines.

One thing that has given the scientific work of the Germans
and the French such commanding importance is the splendid
way in which the work has been reported in their journals.
We may learn a lesson of importance to the Philippines, however,
from the experience of the German and French scientists.
These scientists have long since abandoned the effort to meet
the needs of the farmer and the needs of the scientific worker
with the same publication.

Three classes of material are at present published in the
Review. Articles of a simple nature intended for the benefit
of the Filipino farmer. In general, these articles are of no
interest outside of the Islands. The second class is material
which is of value to people in the Philippine Islands and in
fore^'gn countries as well. The third class is material of a
technical nature which is read by some people in the Philippine
Islands, but is mainly of interest to the readers in other
countries.

The Review, as published to-day in both Spanish and English,
reaches not only the farmers of this generation, but also those
of the next, as represented by the students in the schools of
the Islands. It is sent to every municipality in the Archipelago ;
to every school above the primary grade; to various Govern-
ment officials stationed throughout the provinces who come into
contact with the people ; to all the newspapers of the Philippine

35

Islands, in which very many of the articles are reprinted ; to
all libraries and agricultural schools; and to paid subscribers.

There is more or less waste in the present plan of including
the three classes of material mentioned in one publication. It
would be better and also cheaper to issue two publications —
one exclusively for farmers and school children and another
for students and scientists. The present Agricultural Review
might be published quarterly and in English only, and contain
articles of general and scientific interest. Besides having a
limited circulation in the Philippines, it would be the medium
of exchange with libraries and with foreign publications, which
I am told already number about 250, and which the workers
in the Bureau must read regularly if they are to keep abreast
of the times. It will be cheaper to secure these publications
through the medium of exchange than purchase.

The other publications should be published monthly in a
much smaller form than the present Review and should contain
only the A B C of Philippine agriculture. Nothing should be
published in this journal that is not of practical use to the
people of the Islands. This publication should appear in both
English and Spanish and should serve as a medium for an-
nouncements of the Bureau of Agriculture, such as in seed, plant,
and animal distribution ; an official medium through which the
members of the agricultural societies of the Philippines may be
reached ; a medium through which articles of permanent value
may be preserved; and a publication from which reprints of
official articles of special interest could be made at a very small
cost for specific distribution.

This method of issuing two distinct publications would enable
the editor to place the different classes of material where they
would be of the greatest value. The cost would not be so great
as it now is, unless it was decided to give the publication
containing the practical information a much wider circulation
than the Review now has. In my judgment this should be done
even though the cost over the present is increased.

FEEDING THE PEOPLE.

The first duty of the agriculture of a country is to provide
a suitable and ample food supply. Only a well-nourished people
are capable of developing and sustaining a civilization.

No race has found rice to be a satisfactory single diet upon
which to rear children or to support labor. Unfortunately, the
substitution of corn in whole or in part for rice, which in many
sections of the Islands could be accomplished with comparative

36

ease, will not remedy the (lifliculty, V^ecause the deficiencies of
corn are the same as the deficiencies of rice. This statement
must not be construed as in any sense a disapproval of the very
successful efforts of the Bureaus of Education and Agriculture
to increase corn production, and to increase the use of com
as a human food. These efforts should be continued, but as a
means of providing a greater quantity of basic food rather than
as a means of supplying the deficiencies of rice.

Some gain will be made, as has been shown by the results
of the investigations of the Bureau of Health, by encouraging
people to eat unpolished instead of polished rice. But it should
be remembered that the desire to eat polished rice, like the
desire to eat white bread, reaches very deep into the prejudices
of the human race. White bread and polished rice are every-
where the marks of respectability. Black bread and unpolished
rice have at all times been considered evidences of poverty. Of
course, every reasonable effort should be made to encourage the
general use of unpolished rice, but unpolished rice will furnish
only a small part of the additional nutrients needed and it
may be easier to supply all the protein and minerals required
in other foods than to try to save the small part that is lost
in the polishing process.

While it is true, as is pointed out in another part of this
report, that the capacity of the Philippine Islands to produce
beef, pork, and poultry is nowhere nearly utilized at present,
yet these animal products will always be so dear that they will
be beyond the reach of all except the well-to-do. For the
masses in the Philippines as in all other tropical countries and
in all densely populated countries of the Temperate Zone, fish,
beans, and peas must be relied upon to supply the deficiencies
of rice and white bread.

In the United States, where more meat is produced than in
any other country in the world, fish is already a cheaper source
of protein than is beef, pork, or poultry. That country with
a rapidly declining live-stock industry is beginning to look to
the development of its fisheries and to the production of peas
and beans as a means of supplementing wheat and corn as
food.

Germany has done much in recent years to stimulate the pro-
duction and use of fish as food, by paying bounties as high as
^4,000 toward the building and equipping of deep-sea fishing
vessels and by exempting all fishing vessels, regardless of their
nationality, from tonnage dues in all German ports. Specially
low rates of transportation are allowed on the German railroads

37

to encourage the shipment of fresh fish inland. Educational
campaigns are conducted by the Government, to show the people
how best to cook and serve different kinds of fish, with a view-
to increasing the consumption of fish, just as the Philippine
Government, through its Bureau of Education, has conducted
corn-cooking campaigns to encourage the more general use of
corn as food. In traveling through Germany, one is constantly
impressed with the degree to which the people use beans and
peas as a substitute for meat, and the ruggedness and efficiency
of the German people cannot be questioned.

The Japanese have been obliged to meet the same problem
that presents itself to the people of the Philippines for solution.
Rice is the principal crop of Japan, and polished rice is the
principal diet of the Japanese, but along with rice they consume
large quantities of barley, beans, and peas, as well as much fish
and poultry. With the exception of barley, all the means the
Japanese have employed so successfully are available in the Phil-
ippines. There is no reason why the poultry industry may not
be as highly developed in the Philippines as it has been in Japan.
Unfortunately, no legume has yet been found that is to the Phil-
ippines what the soy bean is to Japan, what the white navy
bean and the cowpea are to the States, or what the lupines and
lentils are to the Germans ; but the Bureau of Agriculture and
the College of Agriculture are both at work on this problem and
there is every reason to expect that beans and peas will soon
be found or developed that are well suited to the Islands and
that are relished by the people. In the meantime, the Bureau
of Education is busy teaching the people to eat a greater variety
of food and to increase as rapidly as possible the use of legumes
in their dietary.

INCREASING THE FISH SUPPLY

Fish is already an important part of the diet of all classes of
Filipinos. It is not certain that the Philippines have as exten-
sive fishery resources as have some other countries, but it is
certain that the fishery resources of the Islands have not been
developed. Since fish will not keep long in a warm climate, and
since cold-storage facilities are not generally available in the
Philippines, it is essential that the fishing indu.stry be so devel-
oped that it will not be subject to interruption by any except
the most violent storms and then only for the period of great-
est intensity. Therefore, the fresh watei:s of the Islands should
be kept stocked as fully as possible, fish farming should be
encouraged, and deep-sea as well as shoal fishing should be

38

encouraged and helped. Thus far, comparatively little effort
is made to grow fish in fresh-water streams and ponds in the
Philippines, although this is an important industry among the
farmers of China, Japan, and Germany. In 1903, Japan had
31,000 hectares of fresh water devoted to the cultivation of carp,
eel, snapping turtle, and the like, with a yearly income from
this source of t*=l,366,500. In ten years the annual returns have
been increased more than threefold or to =P4, 100,000, while the
area devoted to this purpose has been enlarged only a third.

To carry on successful deep-sea fishing, it is necessary to
know the exact location and extent of the fishing banks. A
deep-sea fishing boat attempting to work without this informa-
tion and trusting to luck to find a bank, is almost certain to fail.
The determination of the location of the fishing banks is a gov-
ernmental function, and, like all other work with fishes, belongs
to the Bureau of Science.

There is an investigation of minor marine animal food sources
and a large amount of commercial fishery work which should
be carried on along with a study of the fish food supply. The
preparation of isinglass is an undeveloped industry in the Phil-
ippines. The raw material for isinglass, of more value than
the fish, is now thrown away. Tortoise shell is collected and
marketed to a limited extent. It is the basis of a minor in-
dustry consisting of the manufacture of combs and similar
articles. There is also the possibility of canning the soup made
from the meat of the tortoise. The collecting and drying of
sharks' fin is a minor industry requiring little capital and yield-
ing fair returns. Trepang, or dried sea cucumbers, is a staple
food of most Oriental people. In 1909 the exports of this ma-
terial from the Philippines amounted to approximately ?75,000.
There is the possibility of the discovery of precious coral in
quantities of commercial value. Sponges of good quality are
found in the Moro Province. The skins of crocodiles, of water
snakes, and of sharks are of value for various purposes and
are easily dried for sale to leather manufacturers. The pearl-
ing banks should be protected and extended. Shells of various
species of mollusks are manufactured into buttons. There is
a possibility of cultivating these mollusks and they should at
least receive protection.

The window-shell industry seems to exist only in the Phil-
ippine Islands. The mollusk which produces this shell requires
protection and artificial propagation if the export demand for the
shell in the manufacture of screens, lamp shades, and artificial
decorations is to be met. The possibility of the cultivation of

39

this mollusk has not been worked out, although the Bureau of
Science is trying to establish new beds and to extend the old
beds.

Besides the actual development of the marine products, these
could afford the raw material for many household industries
and thus increase the earning capacity of the people, enabling
them to buy better and more fish, and to improve the entire
food supply.

RELIEVING POPULATION PRESSURE

Population is not evenly distributed and development is by
no means uniform throughout the Philippine Islands. In some
regions, as in Cebu and Siquijor, there is considerable over-
crowding, while in other regions, as in the Island of Mindanao,
there are vast stretches of fertile land not yet occupied. In
Cebu and Siquijor apparently all the land is in cultivation that
is capable of yielding a satisfactory harvest. Indeed, I saw
many fields of corn or other crops that are too steep and stony
to be tilled profitably, or to support the right sort of family life.

The farmers try to grow two and frequently three crops of
corn on the same land each year, but the yield of all three crops
is pitiably small for one crop. The land was originally fertile,
but much of it is so sloping that, under constant tillage, the
surface has become very badly eroded. The supply of vegetable
matter in the soil is practically exhausted by long use without
manure, and the soil is left without power to withstand the
severe droughts that are common at some season of each year.

At first thought, the remedy would seem to be to induce a
part of the people now in the overpopulated regions to move
to the unoccupied lands. This, however, I am told is not easy
to accomplish with the home-loving Filipino, besides, such a
remedy would be only temporary at best. No country has been
helped permanently, much less saved, through the emigration
of its best stock. And the people who emigrate to a new country
are the strongest and best people, and the weakest are left
behind to become the parents of the next generation. Some
plan, therefore, must be evolved under which the people may
support themselves well where they are.

It is true that if the farm crops were wisely rotated, if the
fields were better tilled, if improved seeds were planted, if fer-
tilizers of the right sort were applied, and if all the other things
which the Bureau of Agriculture recommends were done, the
harvest would probably be sufficient to support very comfortably
all the people now living in these regions. But it is idle to

40

think of a farmer rotating his corn with clover or cowpeas
so as to increase the subsequent yield, when the land is needed
all the time to j?row corn with which to suppfjrt his family.
It is eciually futile to advise the use of fertilizers when the
capital to invest in fertilizers is not available. Improvement
in the system of farming will come slowly, scarcely more rapidly
than the increased food, w^hich the improvement brings, will be
required by the natural increase in population and by higher
standards of living.

Moreover, there is a very definite limit to the degree to which
a country can be developed by means of agriculture alone.
When this limit is approached, as it seems to have been in this
case, further progress will come from putting the people to
work in other lines of industry. Germany long ago reached
the limit of her development under agriculture alone, and de-
veloped manufactories as a means of further progress. Japan's
recent remarkable development has been through industrial
rather than agricultural expansion. Even the United States,
until recently the largest food-exporting nation in the world,
is beginning to look to other countries for a part of her food
and henceforth must rely upon her manufacturing industries
to maintain a favorable trade balance. Thus, the Philippine
Government would be following the teachings of the best ex-
perience of other people by at once setting to work to develop
manufactories.

During my visist to these Islands, I saw ships carrying away
hogs, corn, and other food products which were needed as food
for the people at home. Every effort should be made to change
the exports of these Islands from food products, of which there
are scarcely enough for home consumption, to manufactured
articles, which will utilize material now going to waste and
employ profitably labor that is now idle or unprofitably employed.
At first, and perhaps permanently, the manufacturing industries
in the Philippines must be household industries. Such industries
can be quickly developed by converting the schools of the con-
gested centers into intensely practical trade schools. When this
is done there wall be money available with which to support the
family while legumes are grow^i on the land for green manure,
and capital wath which to buy fertilizers and other equipment
necessary to farm the land to the best advantage. The combined
income of an improved agriculture and a well-organized house-
hold industry would set the people well on their way toward a
condition of prosperity and commercial independence.

41

SETTING THE PEOPLE TO WORK

Setting the people at the tasks that they can best perform is
the highest duty of the schools. There is in the Philippines at
present a stupendous waste of human labor and of human time.
I saw bands of able-bodied men and women passing through
the rice fields reaping the grain with a knife, the process
requiring twenty hours for each cavan of grain harvested. In
other fields, I saw farmers cutting rice with a hand sickle such
as was used in Biblical days. Even this ancient method so
economized the time of the harvesters that only two hours
w^ere required to harvest a cavan of grain. It would seem to
be an easj- task to induce every farmer to make so simple a
change in his method if by so doing he could cut down the cost
of the harvest tenfold. But, with any people the change to
more economical waj's of conducting the operations of the farm
is made much easier if other and more profitable tasks are at
the same time provided. The necessity for economizing labor
or time cannot appeal strongly to one who has little else to do.

Much of the labor of the fields in the Philippines is performed
by the women. Provide tasks in the house that are more agree-
able and more remunerative and the women will find their
proper place in the home and will leave the farm work to the
men.

THE HOUSEHOLD INDUSTRIES

The Filipino women are skillful, industrious, and eager to
learn. Already a good beginning in household arts has been
made. Last year almost PI, 000,000 worth of hats and some
f*^400,000 worth of embroidery were exported from the Phil-
ippines.

The women and children of Switzerland sold f*=20, 000,000
worth of laces and embroidery in the United States alone last
year. The States imports aproximately P70,000,000 worth of
such articles every year, nearly all of which are house made.
A household industry in Japan, the silk industry, produces from
1,000,000 acres of land, much of which is roadside and banks
of streams, more wealth each year than is produced from all
the agricultural industries of the Philippines combined.

Philippine manufactured articles are admitted into the United
States duty free, while the articles manufactured in other coun-
tries with which the Filipinos would compete are taxed by the
United States. Therefore, no other people are so favorably

42

situated with respect to the largest market in the world for
handicraft articles as are the people of the Philippines.

Hats are now one of the most important household products.
Only three kinds are yet exported. Many of the remaining 20
varieties produced in the provinces are also capable of commer-
cial development. In going about the Islands one is continually
impressed with the number of American-made hats that are
being worn by the P^ilipino people. With the material at hand
and the skill that is easily acquired by the people, all the hats
worn in the Islands should be produced there and the export
hat trade should be greatly increased.

Embroidery is an infant industry in the Philippines. Ac-
cording to the statement of authoritative exporters, the supply
has not met more than a fraction of the demand. The industry
is now confined to a few towns near Manila and is capable of
being greatly extended.

The Philippines produce a great variety of textiles on foot
looms. These are now made entirely for domestic consumption.
Several million pesos worth of cotton and abaca cloth are turned
out each year, and in addition jusi, maguey, and other textiles
are made. However, if the efforts of weavers are turned to the
production of artistic articles and cloth suitable for use in the
United States, the industry can be made much more remuner-
ative than it now is. The Bureau of Education is introducing
labor-saving mechanical devices which will help this industry.

Baskets are a relatively new product, having been developed
for export entirely in the schools. The great number and
amount of materials available for artistic export basketry, to-
gether with the efforts now being made by the schools, should
result in a larger basket industry than has been developed in
Japan.

If the petate mats upon which the Filipinos sleep were pro-
duced in good colors, there is no reason why they should not
be salable in the United States.

There are also a great many minor industries that can become
important as, for example, lace, jewelry, carving of bamboo and
wood, slipper making from straws and fibers, and the making
of such novelties as hand bags, brushes, and brooms from Phil-
ippine hardwoods, sea shells, and coconuts.

The work of the schools in standardizing the handicraft prod-
ucts and in creating new household industries is certain to
produce immediate results if a satisfactory system of selling is
worked out. Until a handicraft article has become well estab-
lished in the markets of the world and until it is produced in

43

sufficient quantities to be marketed in the regular commercial
channels it is a proper function of government to find or create
a market for it.

Inasmuch as the Bureau of Education is charged with estab-
lishing new industries and encouraging the introduction of de-
veloped industries into new localities, the operation of a sales
department for the purchase of the articles fabricated under
the supervision of the Bureau, would place under one head
those departments which logically go together — that is, plan-
ning, production, and sales.

The plan proposed by the Bureau of Education and approved
by the Executive Secretary, whereby the provincial governments
are permitted to purchase the products of household industries
from the people for cash and sell these on consignment should
be put into effect.

Undoubtedly, if the business of selling household products
were large enough to justify the establishment of an independ-
ent organization, it would be advantageous to keep the public
schools free from a purely commercial enterprise. Until the
business becomes large enough to justify the maintenance of
an independent branch of the Government, however, it would
seem that the best disposition of the matter would be to impose
upon the Bureau of Education the duty of finding a market for
these articles.

THE FUTURE RESTS UPON THE SCHOOLS

Most of the progress in all lines, and particularly in agricul-
tural and industrial development, will be dependent upon the
extent to which the school system of the Islands is developed
and the direction which education takes. It is impossible to
have an efficient farmer on the land and a competent wife and
mother in the home unless they first be given a sound and prac-
tical education.

The sort of education the Filipino needs is not essentially
different from that which is needed by other people. Every-
where the useful and the practical are being emphasized in the
school course.

The Danes, the most efficient farmers in the world, have found
in the practical course of study of their public schools the touch-
stone of national prosperity.

Already much emphasis is laid upon agricultural and other
vocational subjects in the schools of the Islands. In fact, one
cannot help being impressed with the practical nature of the
instruction offered in the schools and the adaptation of this

44

instruction to the needs of the Filipino people. Provision is
made for the training of teachers in vocational subjects in the
College of Agriculture, in the Normal School, in the Vacation
Assembly, and through the supervision of teaching by the officers
of the Bureau of Education.

Several types of schools especially designed to train farmers
have been developed. These schools grade from the provincial
secondary or intermediate school, with dormitory accommoda-
tions for the students and farms of more than 1,000 acres in
area to the farm settlement primary schools in which half the
time of the pupil is spent in practical field work.

Instruction in vegetable gardening is a requirement of all the
schools of the Islands with the exception of those which give a
trade or an industrial course.

Nursery work is a feature of all intermediate school gardens,
and last year almost 50,000 ornamental trees and shrubs and
more than this number of fruit trees were propagated by the
pupils and distributed among the farmers. Last year there
were 3,100 school gardens in the Islands, and 39,900 home
gardens conducted by school pupils under direct supervision.
Sixty-one thousand boys and 1,800 girls received instruction
in gardening.

Work in domestic science and household arts is also well
developed in general. In the congested regions such as Cebu
and Siquijor, instruction in household industries should receive
the same emphasis that agricultural instruction has received in
some of the partly developed agricultural regions of the Phil-
ippines. A provincial trade school devoted exclusively to the
development of handicraft manufacture should be established
in the city of Cebu. All the schools of this and other islands
where population is congested should be set to work to create
a household industry as a supplement to agriculture.

THE SOLIDARITY OF THE PEOPLE

It is unfortunate for any country to be divided by mountains,
seas, swamps, lakes, or rivers, or other obstacles to the free
intermingling, intertrading, and intermarrying of its people.
A solid state or nation, uniform in soil, climate, and occupation,
has common needs and all its parts progress together. A people
divided into small groups or regions, with different traditions,
and with unequal opportunities, develop its different parts at
different rates and frequently in different directions.

Japan, with a backbone of mountains running almost the whole
length of the main island, has maintained the solidarity of her

45

people by a uniform language, a strong government, and, in
recent years, by a well-organized system of public schools and
a well laid out system of highways and railways. China, neg-
lecting these agencies which facilitate the intermingling and
intermarrying of the people, has not yet developed beyond the
tribal state.

It is a government's highest duty to develop the solidarity
of the people. The greatest agencies for promoting this soli-
darity are good transportation facilities; a well-developed com-
merce; a common language; good schools; the free interchange
of teachers; and the free intermingling of pupils through
athletic contests.

Making provision for the physical needs of the people is not
all that is necessary to be accomplished. A well-nourished man
or woman has a desire to enjoy the cultures of life. A civiliza-
tion grows out of the surplus over and above that which is re-
quired for the mere needs of the body.

Therefore, along with the efforts to provide a better diet and
to promote the solidarity of the people must go unabated the
efforts to prepare the people for better ways of living. Race
pride must be quickened; proper forms of recreation must be
provided; and institutions of the people like the University of
the Philippines, the Bureaus of Education, Health, Agriculture,
and Science must be highly developed. These institutions must
be made capable of carrying not only the work of the Philip-
pines, but also a part of the work of the world. It may be said
that the people of the Philippines are already weighted down
with public burdens, but in the sacrifices for the common good,
a people always finds its principal source of strength.

o

fgMQ

UNIVERSITY OF CALIFORNIA LIBRARY

Los Angeles
This book is DUE on llic last date stamped below.

OlC

MAY 2 4 vm

Mafn

i^j^Ri oe:€1^:

P.U^L^V,L JAN I i

. - 7 1

f;* '

4«j( JUl Ot V

«CT13

8IC 3 19? c

IS

APR 19'^^^

REG'D LD-URL ,

6lU JUN18'V9

hl989

Form L9-50ni-7,'54 (5990) 444

UWVMRfilTY OP CALIFORNIA

LOS ANGRT.FS

I

PLEA^it DO NOT REMOVE
THIS BOOK CARDS

,^,^^l;^^R!«*YQr

^c!/0JnVDJO'^

University Research Library

\ji

n

l|lll|ll|l|ll ll|ll|llll|MII

3 1158 01221 5454

UC SOUTHERN REGIONAL LIBRARY FACILITY

iiiiiiiiiii'llinililMi i|ii|i!|i|i|i|i|i illllmlilllj I III

AA 001 249 559 4