Читать книгу: «A Visit to the Philippine Islands», страница 5

CHAPTER V
GOVERNMENT – ADMINISTRATION, ETC

The Administration of the Philippine Archipelago has for its head and chief a captain and governor-general, who resides in Manila, the capital of the islands, and who is not permitted to quit them without the authority of the sovereign of Spain. Next to the government of Cuba, it is the most important and the most lucrative post at the disposal of the Cabinet of Madrid, and has unfortunately been generally one of the prizes wrested from the unsuccessful, and seized by the predominant, political party. It was rather a melancholy employment for me to look over the collection of portraits of captains-general, and many vacant frames waiting for future occupants, which ornament the walls of the handsome apartments in which I dwelt at the palace. Since 1835 there have been five provisional and eleven formal appointments to the governor-generalship. Some of these only held their authority for a few months, being superseded by ministerial changes at Madrid. Of other high functionaries, I observe that there have been only two archbishops since 1830, while it is understood that the service of heads of departments is assured for ten years. To the public interests the mischiefs which are the results of so uncertain a hold of the supreme authority are incalculable. The frequent and sudden removals and nominations are, indeed, little consistent with the principles of monarchical and hereditary government, however accordant with the republican institutions of the Western world; and among the causes of the slow development of the immense resources of these beautiful islands, the fluctuation of the superintending rule is assuredly one of the most prominent.

The titles of the captain-general occupy a page, and embrace the usual attributes of government, with the exception of authority over the fleet, which is subject to the Ministry of Marine in Spain, and a somewhat limited jurisdiction in ecclesiastical matters, which is a consequence of the exclusive establishment of the Roman Catholic faith.

The lieutenant-governor, who takes the place of the captain-general in case of his death, is called the Segundo Cabo, or second head.

The Philippine Islands are divided into provinces, subject either to politico-military governors or alcaldes mayores, who are generally civilians.

When the government is military, an assistant lieutenant-governor, who must have graduated as a lawyer, exercises the preliminary jurisdiction (de primera instancia), but the alcaldes hold that jurisdiction in their own persons. Both dispose in their provinces of the military authority, and have the controlling direction of the collection of the revenues, under responsibility to the General Administrator of Tributes.

The provinces are divided into pueblos (towns or villages), over each of which a native Indian or mestizo, called a gobernadorcillo (diminutive of governor) is placed. He is assisted in the discharge of his functions by native lieutenants and alguacils, whose number depends upon the extent of the population. This body, which, when gathered together, is called the principalia of the pueblo, settles all minor matters of police and civil questions between the natives as to rights of persons and property. In districts where the Chinese or their descendants are sufficiently numerous (they are known by the name of Sangleyes), they are allowed, under special authority of the government, to select principalia from their own body, independently of Indian jurisdiction. These principalia are really popularly chosen municipalities, and they are specially charged to assist the clergy in all matters connected with public worship and ecclesiastical authority. They determine questions up to the amount of two taels of gold, or forty-four silver dollars. They collect evidence in criminal cases, which is submitted to the provincial chief; they assist in the collection of the royal revenues, circulate the ordinances of the government among the people, and are authorized to levy a small but defined contribution in support of their dignity.

Besides these, there are in every pueblo certain functionaries who are called Cabezas (heads) de Barangay. A barangay is a collection of the chiefs of families, or persons paying tribute, generally amounting to forty or fifty. They are under the special charge of the cabeza, who must dwell among them, and, under bond, collect the tribute due to the State. He is required to settle misunderstandings and to maintain peace and order, to apportion the various charges among the members of the barangay, and to collect the taxes for payment to the gobernadorcillo, or to the functionary appointed for the purpose. The cabezas are also considered the procuradores, or law advisers, of these little communities.

In ancient times there is little doubt that the office was hereditary; and there are yet localities where the hereditary right is maintained; but it is generally elective: and when a vacancy occurs, the gobernadorcillo in council, with the other cabezas, presents a name for the approval of the superior authority, and the same steps are taken when the increase of population requires a new cabeza to be nominated. The cabezas, their wives and first-born, who are required to assist in the collection of the tribute, are exempted from its payment.

In some provinces the cabezas are only chosen for three years; after which they form part of the principalia, and take the title of Don. I remember, in one locality, that the principalia who came to pay their respects consisted of more than seventy persons. The government complains of the number who, under this state of things, are exempted from taxation, and I understand some measures are in contemplation for limiting the extent of the privileges.

The elections of the gobernadorcillo are annual, and take place on the 1st of April. An extraordinary excitement generally prevails, the post (a really important, popular, and influential one) being an object of much ambition. Three names are selected, one of whom must have already served as gobernadorcillo, for submission to the superior authority, on or before the 15th of May, and the chosen gobernadorcillo enters on his functions on the 1st of June. There is, however, some alteration of dates, where, as in the tobacco districts, the period of election interferes with harvest time.

The head of the province ordinarily presides over the elections, to which the principal ecclesiastic is also invited. In case of their absence, any native-born Spaniard may be nominated by the principal authority to preside.

There are thirteen electors for each pueblo – the gobernadorcillo and twelve inhabitants – half of whom must have been gobernadorcillos or cabezas, and the other half be in the actual exercise of those functions; they must also have some well-recognized means of existence: domestic servants to the authorities are excluded; as also those who have been punished as criminals.

It is further required that the gobernadorcillo be a native Indian or mestizo, an inhabitant of the locality where he serves, and above twenty-five years old; having passed the subordinate offices of lieutenant or cabeza, having his accounts in order, holding no land from the community, and no monopoly (estanco) from the government. Similar recommendations are insisted on for the first lieutenant and the principal (native) magistrates appointed for the settlement of questions regarding seed-sowing, police, and cattle. These magistrates must have enjoyed the rank of gobernadorcillo. As regards the minor officers of justice and their attendants, a list is to be made out by the gobernadorcillo before quitting office, which is to be presented to the authority presiding over the elections, and having heard the clergyman (cura) and the committee of election, the president approves the list for transmission to the supreme authority; but if he finds discordance and irreconcilable opinions between the parties before him, he is authorized himself to recommend the officers for nomination.

All the proceedings are the subjects of record, and to be signed by the president, the curate (if present), the electors, and the public notary, and to be remitted to the supreme authority, except in the provinces adjacent to the capital. The president may attach to the record any observations of his own connected with the returns. A decree of 1850 required the general adoption of the system which has been described, and which appears to me well worthy of note, showing how many valuable elements of good government are to be found in the popular institutions of the Philippine Indians.

The Chinese of the capital may elect Christian converts of their own body, under the presidency of the alcalde mayor of Manila, to the offices of gobernadorcillo, first lieutenant, and principal alguacil (bailiff). The dependent subordinate officers of justice are called bilangos, and are appointed by the gobernadorcillo on his election. The recovery of the tribute or taxes from the Chinese is not left to their principalia, but is effected by the alcalde mayor or superior chief. An officer is appointed to classify the Chinese, and apportion the quota of their contributions according to the wealth of the payer, who is charged for what is called a patente industrial.

The gobernadorcillos and officers of justice are entitled to sit in the presence of the provincial chiefs, who are to require the parochial clergy to treat them with due honour and regard.

M. Mallat, whose Geographical History of the Philippines was published in 1846, remarks that, of all colonies founded by Europeans, these regions are perhaps the least known, and the most worthy of being known. The number of islands which compose the archipelago, – their vast extent and boundless variety, – the teeming population of many of them, – the character of the climate, – the wonderful fertility of the soil, – the inexhaustible riches of hill, valley, and plain, – all offer to cultivation and its civilizing influences abundant rewards. But as regards the “industrious habits” of the natives, I cannot place that consideration, as M. Mallat does, among the elements of hope. It is the want of these “industrious habits,” among four or five millions of inhabitants, which has left the Philippines in a position so little advanced.

Java under the government of the Dutch, and Cuba subjected to the Spanish rule, present, no doubt, far more favourable pictures than do the Philippines; but many of the difficulties which surround the captain-general of Manila, – difficulties both religious and social, – do not embarrass the governor of Batavia; the island of Java, the most productive of Netherlands India, being peculiarly free from these difficulties; and it cannot be said that Sumatra and Borneo are even on a level with the more advanced of the Philippine Islands.

To the character of the original conquest and of the earlier government of the Philippines may be traced many of the impediments which now stand in the way of improvement. In America and the West Indies all the brutality of military conquerors was exhibited, and the possession and plunder of new territories were encouraged by the Spanish court, and were the main object of the Spanish invader. But far different was the policy adopted in the Philippines, where only a small body of soldiers was accompanied by zealous missionaries, whose purpose was rather to convert and christianize the Indians than to pillage and destroy them. These friars gradually obtained a paramount influence over the Indians. The interests of trade have ever been the predominant consideration among Dutch colonizers, and among British adventurers the commercial element has always been intimately associated with the desire for territorial occupation. To the Spaniards it must be conceded that the religious purpose – be its value what it may – has never been abandoned or forgotten. Ecclesiastical jurisdiction and authority are interwoven in the Philippines with the machinery of government and the daily concerns of life.

And such ecclesiastical action has been comparatively little interfered with in the Philippines. The development which mental emancipation has given to many Protestant countries and their dependencies has reached few Catholic colonies; nor is that emancipation, indeed, consistent with the more rigid discipline and doctrines of Rome. But in the case of the most prosperous instances of colonization by the British, the native races have either wholly disappeared or are in progress of extinction, while the infusion of Spanish and foreign blood into the colonies of Spain has not only allowed the increase of the indigenous population, but has been insufficient to change or do more than slightly modify their national characters. It has undoubtedly been the boast of the Catholics that Francis de Xavier and his followers won more for the Roman Church in the East than Luther or Calvin ever tore away from it in the West; but the value of the conquests, contrasted with that of the losses and sacrifices, if fairly estimated, would hardly be deemed unsatisfactory to the Protestant cause.

No doubt the great remoteness of the Philippines from Europe, the difficulties and infrequency of communication, gave to the local authorities more of independent action than would otherwise have been allowed to them; and in case of the death of the governor, the archbishop was generally the functionary who filled his place; his adjacency to the government, and frequent direction of it, naturally led to the strengthening of his own authority and that of all ecclesiastics dependent upon him.

In the earlier periods of Eastern colonization, too, the Portuguese, jealous of all European intercourse but their own with nations east of the Cape, did all in their power to prevent any other than the Lusitanian flag from being seen in Oriental waters. But as regards missionary objects their views were to some extent concurrent with those of the Spanish priests, and their proceedings were in harmony with those of the Spaniards, especially in so far as both received their direction from the Pontiff at Rome. It ought not, however, to be forgotten that whatever may have been the progress of Christianity in the Philippines, the persecutions, disasters, discomfiture, and death of so many professing Christians in Japan, are probably attributable to the ill-guided zeal of the Portuguese preachers of the Gospel in these still remoter regions. It is well for the interests of truth, as most assuredly it is for the interests of commerce and civilization, that a more temperate and tolerant spirit has for the last century been associated with the progress of European influence in the East.

The comparatively small number of Spanish settlers in the Philippines would not allow them, even if such had been their purpose, which it does not appear to have been, unnecessarily to interfere with the usages of the Indians, or their forms of administration and government, except in so far as their conversion to Christianity compelled the observance of the Christian rites; and the friars willingly accommodated their action to the social habits of the people, respecting, as to this hour are respected, most of the patriarchal forms of administration and government which had existed among them from immemorial time.

There have been speculations – and M. Mallat is among the sanguine anticipators of such an advent – that in process of time the Philippines may become the dominant political power of the Eastern world, subjecting to its paramount influence the Netherlands Archipelago, the Pacific, Australia, and even China and Japan, and that Manila is destined to be the great emporium for the eastern and south-eastern world. M. Mallat even goes further, and says: “Manila might easily become the centre of the exports and imports of the entire globe.” It must be contented with a less brilliant futurity. Certainly its commercial relations might be greatly extended, and the Spanish archipelago be much elevated in value and in influence; but in the vast development of commercial relations in the Oriental world, the Philippines must be contented with a moderate though a considerable share of benefit, even under the best administration and the adoption of the wisest policy.

Tropical regions fail to attract permanent settlers from the West. The foreign merchant comes to realize what he deems an adequate fortune, and to withdraw; the superior public functionary is among, or above, but never of, the people. What must be looked to is the popular element. Of what are the millions composed, and how can the millions be turned to account? There is no reason to apprehend that these millions will aspire to political power or sovereignty. Their pristine habits would permit of no general organization. The various races and clans would never unite in a national object, or recognize one native chief. All that is found of order and government among them is local; except through and for their masters, the different islands have little or no intercourse with one another. The Tagál and the Bisayan have no common sympathies. Dissatisfaction might produce disorder, which, if not controlled, would lead to anarchy, but not to good government.

The Philippines are free from the curse of slavery. Time will settle the controversy as to whether the labour of the freeman can, in the long run, be brought into competition with that of the slave, especially in the tropics; but that the great tide of tendency flows towards the abolition of slavery, that civilizing opinion and enlightened Christian legislation must sweep the ignominy away, is a conviction which possesses the minds of all who see “progress” in the world.

As it is, the Philippines have made, and continue to make, large contributions to the mother country, generally in excess of the stipulated amount which is called the situado. Spain, in her extreme embarrassment, has frequently called on the Philippines to come to her aid, and it is to the credit of the successive governors-general that, whatever may have been the financial disorders at home, the dependants upon the Manila treasury have had little motive for complaint, and while the Peninsula was engaged in perilous struggles for her independence, and even her existence as a nation, the public tranquillity of her island colonies was, on the whole, satisfactorily maintained, and interruptions to the ordinary march of affairs of short endurance.

There would seem to be no legislation defining the powers of the viceroy, or captain-general; but whenever any important matter is under discussion, it is found that reference must be made to Madrid, and that the supreme rule of this vast archipelago is in the leading strings of the Spanish Cabinet, impotent to correct any great abuses, or to introduce any important reforms. The captain-general should be invested with a large amount of power, subject, of course, to a personal responsibility as to its becoming exercise. As he must, if properly selected, know more, being present, than strangers who are absent, his government should be trusted on account of that superior knowledge. Well does the Castilian proverb say, “Mas sabe el loco en su casa que el cuerdo en la agena” – “The fool knows more about his own house than the sage about the house of another.” He should be liberally paid, that the motives for corruption be diminished. He should be surrounded by a council composed of the best qualified advisers. Many objects would necessarily occupy the attention of such a body, and it would naturally have to create becoming local machinery and to furnish the materials for improved administration, such as surveys and statistics of the land and population, which would lead to a more satisfactory distribution of provinces, districts and pueblos. A simple code of civil and criminal law would be a great blessing, and should be grounded, in so far as the real interests of justice will allow, upon the customs and habits of the people, while employing, when compatible with those interests, the administrative local machinery in use among the natives.

Nothing would be more beneficial to the interests of Manila than the establishment of an efficient board of works, with provincial ramifications, to whose attention the facilitating communications should be specially recommended. The cost and difficulty of transport are among the principal impediments to the development of the resources of the islands, and the tardy progress of the few works which are undertaken is discouraging to those who suggest, and disappointing to those who expect to benefit by them. In many of the provinces the bridges are in miserable condition, and the roads frequently impassable. Even in the populous island of Panay delays the most costly and annoying interfere with the transport of produce to the capital and naturally impede the development of commerce. There is, no doubt, a great want of directing talent and of that special knowledge which modern science is able to furnish. The construction of bridges being generally left to the rude artists who are employed by the Spanish functionaries, or to the direction of the friars, with whom the stare super antiquas vias is the generally received maxim, it is not wonderful that there should be so many examples of rude, unsafe and unsightly constructions. Moreover, estimates have to be sent to the capital of all the proposed outlay, and it is hardly to be expected but that sad evidence should be found – as elsewhere – of short-sighted and very costly economy. The expense, too, almost invariably exceeds the estimates – a pretty general scandal; then the work is arrested, and sometimes wholly abandoned. Funds there are none, and neither policy nor patriotism will provide them. Even when strongly impelled, the Indian moves slowly; self-action for the promotion of the public good he has none. There is no pressure from without to force improvements upon the authorities, and hence little is to be hoped for as to improvement except from direct administrative action.

I can hardly pass over unnoticed M. de la Gironière’s romantic book,⁹ as it was the subject of frequent conversations in the Philippines. No doubt he has dwelt there twenty years; but in the experience of those who have lived there more than twice twenty I found little confirmation of the strange stories which are crowded into his strange volume. He was a resident of the Philippines at the time of my visit, and I believe still lives on the property of which he was formerly – but I was told is no longer – the possessor.¹⁰ I did not visit his “Paradise,” but had some agreeable intercourse with a French gentleman who is now in charge. I did not find any of that extraordinary savagery with which M. de la Gironière represents himself to be surrounded; and the answer to the inquiries I made of the neighbouring authorities as to the correctness of his pictures of Indian character was generally a shrug and a smile and a reference to my own experience. But M. de la Gironière may have aspired to the honour of a Bernardin de St. Pierre or a Defoe, and have thought a few fanciful and tragic decorations would add to the interest of his personal drama. “All the world’s a stage,” and as a player thereon M. de la Gironière perhaps felt himself authorized in the indulgence of some latitude of description, especially when his chosen “stage” was one meant to exhibit the wonders of travel.

As to M. de la Gironière’s marvellous encounters and miraculous escapes from man and beast; his presence at feasts where among the delicacies were human brains, steeped by young girls in the juice of sugar-cane, of which he did not drink, but his servant did; his discoveries of native hands in “savory” pots prepared for food; his narratives where the rude Indians tell elaborate tales in the lackadaisy style of a fantastic novel; his vast possessions; his incredible influence over ferocious bandits and cruel savages; – all this must be taken at its value. I confess I have seen with some surprise, in M. de la Gironière’s book, two “testimonies” from M. Dumont d’Urville and Admiral La Place, in which, among other matters, they give an account of the hatching of eggs by men specially engaged for this purpose.¹¹ They saw, as any one may, in the villages on the Pasig River, prodigious quantities of ducks and ducklings, and were “puzzled” to find how such multitudes could be produced; but they learnt the wonderful feat was accomplished by “lazy Tagál Indians,” who lay themselves down upon the eggs, which are placed in ashes. The patient incubators eat, drink, smoke, and chew their betel, and while they take care not to injure the fragile shells, they carefully remove the ducklings as they are brought into being (pp. 358 and 362). Now it may well be asked who takes care when the lazy Tagáls are asleep; and, if our worthy witnesses had reflected for a moment, they would have known that, if all the inhabitants were employed in no other office than that of egg-hatching, they would be hardly sufficient to incubate the “prodigious” numbers of ducklings which disport on the banks of the Pasig. The incubation is really produced by placing warm paddy husks under and over the eggs; they are deposited in frames; a canvas covering is spread over the husks; the art is to keep up the needful temperature; and one man is sufficient to the care of a large number of frames, from which he releases the ducklings as they are hatched, and conveys them in little flocks to the water-side. The communities are separated from one another by bamboo fences, but there is scarcely a cottage with a river frontage which has not its patero (or duckery).