Eighteen Civil Governorships were created, and _Alcaldes'_ functions were confined to their judgeships; moreover, the Civil Governor was a.s.sisted by a Secretary, so that two new official posts were created in each of these provinces.

The Archipelago, including Sulu, was divided into 19 Civil Provincial Governments, four Military General Divisions, 43 Military Provincial Districts, and four Provincial Governments under Naval Officers, forming a total of 70 Divisions and Sub-Divisions.

COST OF SPANISH ADMINISTRATION

P. cts.

The Gov.-General received a salary of 40,000 00

The Central Government Office, called "_Gobierno General_," with its Staff of Officials and all expenses 43,708 00

The General Government Centre was a.s.sisted in the General Administration of the Islands by two other Governing Bodies, namely:

The General Direction of Civil Administration 29,277 34

The Administrative Council 28,502 00

The Chief of the General Direction received a salary of P12,000, with an allowance for official visits to the Provinces of P500 per annum.

The Council was composed of three Members, each at a salary of P4,700, besides a Secretary and officials.

Seventy divisions and sub-divisions as follows, viz.:--

CIVIL GOVERNMENTS

Manila Pce Salary of Civil Governor P5,000 Total Cost. 20,248 00

Alday, Batangas, Bulacan, Ilocos Norte, Ilocos Sur, La Laguna, Pampanga, Pangasinan.

Eight First-Cla.s.s Govts.: Salary of each Civil Gov. P4,500 Total cost of each Govt. P8,900 Eight First-Cla.s.s Govts. cost 71,200 00

Bataan, Camarines Norte, Camarines Sur, Mindoro, Nueva Eclia, Tayabas, Zambales.

Seven Second-Cla.s.s Govts.: Salary of each Civil Gov. P4,000 Total cost of each Govt. P7,660 Seven Second-Cla.s.s Govts. cost 53,620 00

Cagayan, Isabela, Nueva Vizcaya Three Third-Cla.s.s Govts.: Salary of each Civil Gov. P3,500 Total cost of each Govt. P6,700 Three Third-Cla.s.s Govts. cost 20,100 00

MILITARY GENERAL GOVERNMENTS

Under a Brig.-Gen. and Staff

Gen. Division of S. Visayas 10,975 00 Gen. Division of N. Visayas 10,975 00 Gen. Division of Mindanao 17,825 00 Gen. Division of Cavite 6,596 66

MILITARY PROVINCES AND DISTRICTS

Under a Colonel and Staff

Sulu 7,240 00 Yloilo 4,410 00 Cottabato 5,426 00

Under a Lieut.-Colonel and Staff

East Carolines and Pelew Islands 4,900 00 West Carolines and Pelew Islands 5,970 00 Cebu 3,500 00 Capiz 3,500 00 Misamis 4,816 66 Ladrone Islands 4,975 00

Under a Major and Staff

Zamboanga 3,856 66 Surigao 4,356 66 Davao 4,156 66 Dapitan 2,692 00 Zucuran 2,692 00

La Union, Antique, Samar, Leyte, El Abra, Bojol, Tarlac, Negros, Morong Each under a Major:-- Nine Districts @ P3,040 27,360 00 Batanes, Calamianes, Romblun, Benguet, Lepanto, Burias, Infante, Principe, Bontoc, Concepcion: Each under a Captain:-- Ten Districts @ P1,980 19,800 00

Cagayan (Mindanao)--Biling, Nueva Vizcaya, Sasangani (Palauan) Each under a Captain:-- Five Districts @ P1,792 8,960 00

Sia.s.si, Bongao, Tatoan Each under a Captain:-- Three Districts @ P2,032 6,096 00 Escalante, [102] under a Lieutenant 1,525 00

Masbate, under a Cavalry Sub-Lieutenant 1,450 00

PROVINCIAL GOVERNMENTS UNDER NAVAL OFFICERS, OFFICERS IN CHARGE OF NAVAL STATIONS AS EX-OFFICIO GOVERNORS

Corregidor 3,821 00 Balabac 3,960 00 Isabela de Basilan 5,276 66 Palauan (Puerta Princesa) 6,910 00

Total cost of General Government of the Islands 500,677 96

Deduct-- Officers' Pay, etc., included in Army Estimates P145,179 96 Officers' Pay, etc., included in Navy Estimates 14,640 00

159,819 96

P340,858 00

The Spanish Government intended, in due course, to establish Civil Government throughout the Islands. A Civil Governor was the representative of the Gov.-General, whose orders and decrees he had to publish and execute at his own discretion. He could not absent himself from his province without permission. He had to maintain order, veto pet.i.tions for arms' licences, hold under his orders and dispose of the Civil Guard, Carabineers, and local guards. He could suspend the pay for ten days of any subordinate official who failed to do his duty, or he could temporarily suspend him in his functions with justifiable cause, and propose to the Gov.-General his definite removal. He had to preside at all munic.i.p.al elections; to bring delinquents to justice; to decree the detention on suspicion of any individual, and place him at the disposal of the chief judge within three days after his capture; to dictate orders for the government of the towns and villages; to explain to the petty-governors the true interpretation of the law and regulations affecting their districts.

The Governor was chief of police, and could impose fines up to P50 without the intervention of judicial authority; and in the event of the mulcted person being unable to pay, he could order his imprisonment at the rate of one day's detention for each half-peso of the fine; it was provided, however, that the imprisonment could not exceed 30 days in any case. He had to preside at the ballot for military conscription, but he could delegate this duty to his Secretary, or, failing him, to the Administrator. Where no harbour-master had been appointed, the Civil Governor acted as such. He had the care of the primary instruction; and it was his duty specially to see that the native scholars were taught the Spanish language. Land concessions, improvements tending to increase the wealth of the province, permits for felling timber, and the collection of excise taxes were all under his care. He had also to furnish statistics relating to the labour poll-tax; draw up the provincial budget; render provincial and munic.i.p.al accounts, etc., all of which had to be counter-signed under the word _Intervine_ by the Secretary. He was provincial postmaster-general, chief of telegraph service, prisons, charities, board of health, public works, woods and forests, mines, agriculture and industry. Under no circ.u.mstances could he dispose of the public funds, which were in the care of the Administrator and Interventor, and he was not ent.i.tled to any percentages (as _Alcalde-Governors_ formerly were), or any emoluments whatsoever further than his fixed salary.

A Governor had to be a Spaniard over 30 years of age. It is curious to note, from its political significance, that among the many cla.s.ses of persons eligible for a Civil Governorship were those who had been Members of the Spanish Parliament or Senate during one complete session.

Upon the whole, a Provincial Governor pa.s.sed life very comfortably if he did not go out of his way to oppress his subjects and create discord. His tranquillity, nevertheless, was always dependent upon his maintaining a good understanding with the priesthood of his district, and his conformity with the demands of the friars. If he had the misfortune to cross their path, it brought him a world of woe, and finally his downfall. There have been Provincial Governors who in reality held their posts by clerical influence, whilst others who exercised a more independent spirit--who set aside Church interests to serve those of the State, with which they were intrusted--fell victims to sacerdotal intrigue; for the subordinates of the hierarchy had power to overthrow as well as to support those who were appointed to their districts. Few improvements appear to have been made in the provinces by the initiative of the local Governors, nor did they seem to take any special interest in commercial and agricultural advancement. This lack of interest was somewhat excusable and comprehensible, however, seeing that after they were appointed, and even though they governed well within the strict limitations of their office, they were constantly expecting that a ministerial change or the fall of a single minister might remove them from their posts, or that the undermining influence of favouritism might succeed in accomplishing their withdrawal. It was natural, therefore, that they should have been indifferent about the fostering of new agricultural enterprises, of opening tracks for bringing down timber, of facilitating trade, or of in any way stimulating the development of the resources of a province when the probability existed that they would never have the personal satisfaction of seeing the result of their efforts.