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