What, then, shall we say to the opinion of the great Chief Justice?--for, after all, his is not a name to be dealt with lightly.
Well, first, it was a dictum, not a decision of the court. Next, in another and later case, before the same eminent jurist, came a const.i.tutional expounder as eminent and as generally accepted,--none other than Daniel Webster,--who took precisely the opposite view. He was discussing the condition of certain territory on this continent which we had recently acquired. Said Mr. Webster: "What is Florida? It is no part of the United States. How can it be? Florida is to be governed by Congress as it thinks proper. Congress might have done anything--might have refused a trial by jury, and refused a legislature." After this flat contradiction of the court"s former dictum, what happened? Mr. Webster won his case, and the Chief Justice made not the slightest reference to his own previous and directly conflicting opinion! Need we give it more attention now than Marshall did then?
Mr. Webster maintained the same position long afterward, in the Senate of the United States, in opposition to Mr. John C. Calhoun, and his view has been continuously sustained since by the courts and by congressional action. In the debate with Mr. Calhoun in February, 1849, Mr. Webster said: "What is the Const.i.tution of the United States? Is not its very first principle that all within its influence and comprehension shall be represented in the Legislature which it establishes, with not only a right of debate and a right to vote in both houses of Congress, but a right to partake in the choice of President and Vice-President?... The President of the United States shall govern this territory as he sees fit till Congress makes further provision.... We have never had a territory governed as the United States is governed.... I do not say that while we sit here to make laws for these territories, we are not bound by every one of those great principles which are intended as general securities for public liberty.
But they do not exist in territories till introduced by the authority of Congress.... Our history is uniform in its course. It began with the acquisition of Louisiana. It went on after Florida became a part of the Union. In all cases, under all circ.u.mstances, by every proceeding of Congress on the subject and by all judicature on the subject, it has been held that territories belonging to the United States were to be governed by a const.i.tution of their own,... and in approving that const.i.tution the legislation of Congress was not necessarily confined to those principles that bind it when it is exercised in pa.s.sing laws for the United States itself." Mr. Calhoun, in the course of this debate, asked Mr. Webster for judicial opinion sustaining these views, and Mr. Webster said that "the same thing has been decided by the United States courts over and over again for the last thirty years."
I may add that it has been so held over and over again during the subsequent fifty. Mr. Chief Justice Waite, giving the opinion of the Supreme Court of the United States (in National Bank _v._ County of Yankton, 101 U.S. 129-132), said: "It is certainly now too late to doubt the power of Congress to govern the Territories. Congress is supreme, and, for all the purposes of this department, has all the powers of the people of the United States, except such as have been expressly or by implication reserved in the prohibitions of the Const.i.tution."
Mr. Justice Stanley Matthews of the United States Supreme Court stated the same view with even greater clearness in one of the Utah polygamy cases (Murphy _v._ Ramsey, 114 U.S. 44, 45): "It rests with Congress to say whether in a given case any of the people resident in the Territory shall partic.i.p.ate in the election of its officers or the making of its laws. It may take from them any right of suffrage it may previously have conferred, or at any time modify or abridge it, as it may deem expedient.... Their political rights are franchises which they hold as privileges, in the legislative discretion of the United States."
The very latest judicial utterance on the subject is in harmony with all the rest. Mr. Justice Morrow of the United States Court of Appeals for the Ninth Circuit, in February, 1898, held (57 U.S. Appeals 6): "The now well-established doctrine [is] that the Territories of the United States are entirely subject to the legislative authority of Congress. They are not organized under the Const.i.tution nor subject to its complex distribution of the powers of government. The United States, having rightfully acquired the Territories, and being the only Government which can impose laws upon them, has the entire dominion and sovereignty, national and munic.i.p.al, Federal and State."
[Sidenote: More Recent Const.i.tutional Objections.]
In the light of such expositions of our const.i.tutional power and our uniform national practice, it is difficult to deal patiently with the remaining objections to the acquisition of territory, purporting to be based on const.i.tutional grounds. One is that to govern the Philippines without their consent or against the opposition of Aguinaldo is to violate the principle--only formulated, to be sure, in the Declaration of Independence, but, as they say, underlying the whole Const.i.tution--that government derives its just powers from the consent of the governed. In the Sulu group piracy prevailed for centuries. How could a government that put it down rest on the consent of Sulu? Would it be without just powers because the pirates did not vote in its favor? In other parts of the archipelago what has been stigmatized as a species of slavery prevails. Would a government that stopped that be without just powers till the slaveholders had conferred them at a popular election? In another part head-hunting is, at certain seasons of the year, a recognized tribal custom. Would a government that interfered with that practice be open to denunciation as an usurpation, without just powers, and flagrantly violating the Const.i.tution of the United States, unless it waited at the polls for the consent of the head-hunters? The truth is, all intelligent men know--and few even in America, except obvious demagogues, hesitate to admit--that there are cases where a good government does not and ought not to rest on the consent of the governed. If men will not govern themselves with respect for civilization and its agencies, then when they get in the way they must be governed--always have been, whenever the world was not retrograding, and always will be. The notion that such government is a revival of slavery, and that the United States by doing its share of such work in behalf of civilization would therefore become infamous, though put forward with apparent gravity in some eminently respectable quarters, is too fantastic for serious consideration.
Mr. Jefferson may be supposed to have known the meaning of the words he wrote. Instead of vindicating a righteous rebellion in the Declaration, he was called, after a time, to exercise a righteous government under the Const.i.tution. Did he himself, then, carry his own words to such extremes as these professed disciples now demand? Was he guilty of subverting the principles of the Government in buying some hundreds of thousands of Spaniards, Frenchmen, Creoles, and Indians, "like sheep in the shambles," as the critics untruthfully say we did in the Philippines? We bought n.o.body there. We held the Philippines first by the same right by which we held our own original thirteen States,--the oldest and firmest of all rights, the right by which nearly every great nation holds the bulk of its territory,--the right of conquest. We held them again as a rightful indemnity, and a low one, for a war in which the vanquished could give no other. We bought nothing; and the twenty millions that accompanied the transfer just balanced the Philippine debt.
But Jefferson did, if you choose to accept the hypercritical interpretation of these latter-day Jeffersonians--Jefferson did buy the Louisianians, even "like sheep in the shambles," if you care so to describe it; and did proceed to govern them without the consent of the governed. Monroe bought the Floridians without their consent. Polk conquered the Californians, and Pierce bought the New Mexicans. Seward bought the Russians and Alaskans, and we have governed them ever since, without their consent. Is it easy, in the face of such facts, to preserve your respect for an objection so obviously captious as that based on the phrase from the Declaration of Independence?
Nor is the turn Senator h.o.a.r gives the const.i.tutional objection much more weighty. He wishes to take account of motives, and pry into the purpose of those concerned in any acquisition of territory, before the tribunals can decide whether it is const.i.tutional or not. If acquired either for the national defense or to be made a State, the act is const.i.tutional; otherwise not. If, then, Jefferson intended to make a State out of Idaho, his act in acquiring that part of the Louisiana Purchase was all right. Otherwise he violated the Const.i.tution he had helped to make and sworn to uphold. And yet, poor man, he hardly knew of the existence of that part of the territory, and certainly never dreamed that it would ever become a State, any more than Daniel Webster dreamed, to quote his own language in the Senate, that "California would ever be worth a dollar." Is Gouverneur Morris to be arraigned as false to the Const.i.tution he helped to frame because he wanted to acquire Louisiana and Canada, and keep them both out of the Union? Did Mr. Seward betray the Const.i.tution and violate his oath in buying Alaska without the purpose of making it a State? It seems--let it be said with all respect--that we have reached the reductio ad absurdum, and that the const.i.tutional argument in any of its phases need not be further pursued.
[Sidenote: The Little Americans.]
If I have wearied you with these detailed proofs of a doctrine which Mr. Justice Morrow rightly says is now well established, and these replies to its a.s.sailants, the apology must be found in the persistence with which the utter lack of const.i.tutional power to deal with our new possessions has been vociferously urged from the outset by the large cla.s.s of our people whom I venture to designate as the Little Americans, using that term not in the least in disparagement, but solely as distinctive and convenient. From the beginning of the century, at every epoch in our history we have had these Little Americans. They opposed Jefferson as to getting Louisiana. They opposed Monroe as to Florida. They were vehement against Texas, against California, against organizing Oregon and Washington, against the Gadsden Purchase, against Alaska, and against the Sandwich Islands. At nearly every stage in that long story of expansion the Little Americans have either denied the const.i.tutional authority to acquire and govern, or denounced the acquisitions as worthless and dangerous. At one stage, indeed, they went further. When State after State was pa.s.sing ordinances of secession, they raised the cry,--erroneously attributed to my distinguished predecessor and friend, Horace Greeley, but really uttered by Winfield Scott,--"Wayward Sisters, depart in peace!"
Happily, this form, too, of Little Americanism failed. We are all glad now,--my distinguished cla.s.smate here,[7] who wore the gray and invaded Ohio with Morgan, as glad as myself,--we all rejoice that these doctrines were then opposed and overborne. It was seen then, and I venture to think it may be seen now, that it is a fundamental principle with the American people, and a duty imposed upon all who represent them, to maintain the Continental Union of American Independent States in all the purity of the fathers" conception; to hold what belongs to it, and get what it is ent.i.tled to; and, finally, that wherever its flag has been rightfully advanced, there it is to be kept. If that be Imperialism, make the most of it!
[7] The Hon. Albert S. Berry, M.C., from the Covington, Kentucky, District.
[Sidenote: The Plain Path of Duty.]
It was no vulgar l.u.s.t of power that inspired the statesmen and soldiers of the Republic when they resisted the halting counsel of the Little Americans in the past. Nor is it now. Far other is the spirit we invoke:
Stern daughter of the Voice of G.o.d, O Duty! If that name thou love--
in that name we beg for a study of what the new situation that is upon us, the new world opening around us, now demand at our hands.
The people of the United States will not refuse an appeal in that name.
They never have. They had been so occupied, since the Civil War, first in repairing its ravages, and then in occupying and possessing their own continent, they had been so little accustomed, in this generation or the last, to even the thought of foreign war, that one readily understands why at the outset they hardly realized how absolute is the duty of an honorable conqueror to accept and discharge the responsibilities of his conquest. But this is no longer a child-nation, irresponsible in its nonage and incapable of comprehending or a.s.suming the responsibilities of its acts. A child that breaks a pane of gla.s.s or sets fire to a house may indeed escape. Are we to plead the baby act, and claim that we can flounce around the world, breaking international china and burning property, and yet repudiate the bill because we have not come of age? Who dare say that a self-respecting Power could have sailed away from Manila and repudiated the responsibilities of its victorious belligerency? After going into a war for humanity, were we so craven that we should seek freedom from further trouble at the expense of civilization?
If we did not want those responsibilities we ought not to have gone to war, and I, for one, would have been content. But having chosen to go to war, and having been speedily and overwhelmingly successful, we should be ashamed even to think of running away from what inexorably followed. Mark what the successive steps were, and how link by link the chain that binds us now was forged.
The moment war was foreseen the fleet we usually have in Chinese waters became indispensable, not merely, as before, to protect our trade and our missionaries in China, but to checkmate the Spanish fleet, which otherwise held San Francisco and the whole Pacific coast at its mercy.
When war was declared our fleet was necessarily ordered out of neutral ports. Then it had to go to Manila or go home. If it went home, it left the whole Pacific coast unguarded, save at the particular point it touched, and we should have been at once in a fever of apprehension, chartering hastily another fleet of the fastest ocean-going steamers we could find in the world, to patrol the Pacific from San Diego to Sitka, as we did have to patrol the Atlantic from Key West to Bar Harbor.
Palpably this was to go the longest way around to do a task that had to be done in any event, as well as to demoralize our forces at the opening of the war with a manoeuver in which our Navy has never been expert--that of avoiding a contest and sailing away from the enemy! The alternative was properly taken. Dewey went to Manila and sank the Spanish fleet. We thus broke down Spanish means for controlling the Philippines, and were left with the Spanish responsibility for maintaining order there--responsibility to all the world, German, English, j.a.panese, Russian, and the rest--in one of the great centers and highways of the world"s commerce.
But why not turn over that commercial center and the island on which it is situated to the Tagals? To be sure! Under three hundred years of Spanish rule barbarism on Luzon had so far disappeared that this commercial metropolis, as large as San Francisco or Cincinnati, had sprung up and come to be thronged by traders and travelers of all nations. Now it is calmly suggested that we might have turned it over to one semi-civilized tribe, absolutely without experience in governing even itself, much less a great community of foreigners, probably in a minority on the island, and at war with its other inhabitants--a tribe which has given the measure of its fitness for being charged with the rights of foreigners and the care of a commercial metropolis by the violation of flags of truce, treachery to the living, and mutilation of the dead which have marked its recent wanton rising against the Power that was trying to help it!
If running away from troublesome responsibility and duty is our role, why did we not long ago take the opportunity, in our early feebleness, to turn over Tallaha.s.see and St. Augustine to the Seminoles, instead of sending Andrew Jackson to protect the settlements and subdue the savages? Why, at the first Apache outbreak after the Gadsden Purchase, did we not hasten to turn over New Mexico and Arizona to _their_ inhabitants? Or why, in years within the memory of most of you, when the Sioux and Chippewas rose on our Northwestern frontier, did we not invite them to retain possession of St. Cloud, and even come down, if they liked, to St. Paul and Minneapolis?
Unless I am mistaken in regarding all these suggestions as too unworthy to be entertained by self-respecting citizens of a powerful and self-respecting nation, we have now reached two conclusions that ought to clear the air and simplify the problem that remains: First, we have ample const.i.tutional power to acquire and govern new territory absolutely at will, according to our sense of right and duty, whether as dependencies, as colonies, or as a protectorate. Secondly, as the legitimate and necessary consequence of our own previous acts, it has become our national and international duty to do it.
[Sidenote: The Policy for our Dependencies]
How shall we set about it? What shall be the policy with which, when order has been inexorably restored, we begin our dealings with the new wards of the Nation? Certainly we must mark our disapproval of the treachery and barbarities of the present contest. As certainly the oppression of other tribes by the Tagals must be ended, or the oppression of any tribe by any other within the sphere of our active control. Wars between the tribes must be discouraged and prevented. We must seek to suppress crimes of violence and private vengeance, secure individual liberty, protect individual property, and promote the study of the arts of peace. Above all, we must give and enforce justice; and for the rest, as far as possible, leave them alone. By all means let us avoid a fussy meddling with their customs, manners, prejudices, and beliefs. Give them order and justice, and trust to these to win them in other regards to our ways. All this points directly to utilizing existing agencies as much as possible, developing native initiative and control in local matters as fast and as far as we can, and ultimately giving them the greatest degree of self-government for which they prove themselves fitted.
Under any conditions that exist now, or have existed for three hundred years, a h.o.m.ogeneous native government over the whole archipelago is obviously impossible. Its relations to the outside world must necessarily be a.s.sumed by us. We must preserve order in Philippine waters, regulate the harbors, fix and collect the duties, apportion the revenue, and supervise the expenditure. We must enforce sanitary measures. We must retain such a control of the superior courts as shall make justice certainly attainable, and such control of the police as shall insure its enforcement. But in all this, after the absolute authority has been established, the further the natives can themselves be used to carry out the details, the better.
Such a system might not be unwise even for a colony to which we had reason to expect a considerable emigration of our own people. If experience of a kindred nation in dealing with similar problems counts for anything, it is certainly wise for a distant dependency, always to be populated mainly, save in the great cities, by native races, and little likely ever to be quite able to stand alone, while, nevertheless, we wish to help it just as much as possible to that end.
[Sidenote: The Duty of Public Servants.]
Certainly this is no bed of flowery ease in the dreamy Orient to which we are led. No doubt these first glimpses of the task that lies before us, as well as the warfare with distant tribes into which we have been unexpectedly plunged, will provoke for the time a certain discontent with our new possessions. But on a far-reaching question of national policy the wise public man is not so greatly disturbed by what people say in momentary discouragement under the first temporary check. That which really concerns him is what people at a later day, or even in a later generation, might say of men trusted with great duties for their country, who proved unequal to their opportunities, and through some short-sighted timidity of the moment lost the chance of centuries.
It is quite true, as was recently reported in what seemed an authoritative way from Washington, that the Peace Commissioners were not entirely of one mind at the outset, and equally true that the final conclusion at Washington was apparently reached on the Commission"s recommendation from Paris. As the cold fit, in the language of one of our censors, has followed the hot fit in the popular temper, I readily take the time which hostile critics consider unfavorable, for accepting my own share of responsibility, and for avowing for myself that I declared my belief in the duty and policy of holding the whole Philippine Archipelago in the very first conference of the Commissioners in the President"s room at the White House, in advance of any instructions of any sort. If vindication for it be needed, I confidently await the future.
What _is_ the duty of a public servant as to profiting by opportunities to secure for his country what all the rest of the world considers material advantages? Even if he could persuade himself that rejecting them is morally and internationally admissible, is he at liberty to commit his country irrevocably to their rejection, because they do not wholly please his individual fancy? At a former negotiation of our own in Paris, the great desire of the United States representative, as well as of his Government, had been mainly to secure the settled or partly settled country adjoining us on the south, stretching from the Floridas to the city of New Orleans. The possession of the vast unsettled and unknown Louisiana Territory, west of the Mississippi, was neither sought nor thought of. Suddenly, on an eventful morning in April, 1803, Talleyrand astonished Livingston by offering, on behalf of Napoleon, to sell to the United States, not the Floridas at all, but merely Louisiana, "a raw little semi-tropical frontier town and an unexplored wilderness."
Suppose Livingston had rejected the offer? Or suppose Gadsden had not exceeded his instructions in Mexico and boldly grasped the opportunity that offered to rectify and make secure our Southwestern frontier?
Would this generation judge that they had been equal to their opportunities or their duties?
The difficulties which at present discourage us are largely of our own creation. It is not for any of us to think of attempting to apportion the blame. The only thing we are sure of is that it was for no lack of authority that we hesitated and drifted till the Tagals were convinced we were afraid of them, and could be driven out before reinforcements arrived. That was the very thing our officers had warned us against,--the least sign of hesitation or uncertainty,--the very danger every European with knowledge of the situation had dinned in our ears.
Everybody declared that difficulties were sure to grow on our hands in geometrical proportion to our delays; and it was perfectly known to the respective branches of our Government primarily concerned that while the delay went on it was in neglect of a duty we had voluntarily a.s.sumed.
For the American Commissioners, with due authority, distinctly offered to a.s.sume responsibility, pending the ratification of the treaty, for the protection of life and property and the preservation of order throughout the whole archipelago. The Spanish Commissioners, after consultation with their Government, refused this, but agreed that each Power should be charged, pending the ratification, with the maintenance of order in the places where it was established. The American a.s.sent to that left absolutely no question as to the diminished but still grave responsibility thus devolved.[8] That responsibility was avoided from the hour the treaty was signed till the hour when the Tagal chieftain, at the head of an army he had been deliberately gathering and organizing, took things in his own hand and made the attack he had so long threatened. Disorder, forced loans, impressment, confiscation, seizure of waterworks, contemptuous violations of our guard-lines, and even the practical siege of the city of Manila, had meantime been going on within gunshot of troops held there inactive by the Nation which had volunteered responsibility for order throughout the archipelago, and had been distinctly left with responsibility for order in the island on which it was established. If the bitterest enemy of the United States had sought to bring upon it in that quarter the greatest trouble in the shortest time, he could have devised for that end no policy more successful than the one we actually pursued. There may have been controlling reasons for it. An opposite course might perhaps have cost more elsewhere than it saved in Luzon. On that point the public cannot now form even an opinion. But as to the effect in Luzon there is no doubt; and because of it we have the right to ask a delay in judgment about results there until the present evil can be undone.
[8] Protocol No. 19 of the Paris Commission, Conference of December 5, 1898: "The President of the Spanish Commission having agreed, at the last session, to consult his Government regarding the proposal of the American Commissioners that the United States should maintain public order over the whole Philippine Archipelago pending the exchange of ratifications of the treaty of peace, stated that the answer of his Government was that the authorities of each of the two nations shall be charged with the maintenance of order in the places where they may be established, those authorities agreeing among themselves to this end whenever they may deem it necessary."
[Sidenote: The Carnival of Captious Objection.]
Meantime, in accordance with a well-known and probably unchangeable law of human nature, this is the carnival and very heyday of the objectors.
The air is filled with their discouragement.
Some exclaim that Americans are incapable of colonizing or of managing colonies; that there is something in our national character or inst.i.tutions that wholly disqualifies us for the work. Yet the most successful colonies in the whole world were the thirteen original colonies on our Atlantic coast; and the most successful colonists were our own grandfathers! Have the grandsons so degenerated that they are incapable of colonizing at all, or of managing colonies? Who says so?
Is it any one with the glorious history of this continental colonization bred in his bone and leaping in his blood? Or is it some refugee from a foreign country he was discontented with, who now finds pleasure in disparaging the capacity of the new country he came to, while he has neither caught its spirit nor grasped the meaning of its history?
Some bewail the alleged fact that, at any rate, our system has little adaptability to the control of colonies or dependencies. Has our system been found weaker, then, than other forms of government, less adaptable to emergencies, and with people less fit to cope with them? Is the difficulty inherent, or is it possible that the emergency may show, as emergencies have shown before, that whatever task intelligence, energy, and courage can surmount the American people and their Government can rise to?
It is said the conditions in our new possessions are wholly different from any we have previously encountered. This is true; and there is little doubt the new circ.u.mstances will bring great modifications in methods. That is an excellent reason, among others, for some doubt at the outset as to whether we know all about it, but not for despairing of our capacity to learn. It might be remembered that we have encountered some varieties of conditions already. The work in Florida was different from that at Plymouth Rock; Louisiana and Texas showed again new sets of conditions; California others; Puget Sound and Alaska still others; and we did not always have unbroken success and plain sailing from the outset in any of them.
It is said we cannot colonize the tropics, because our people cannot labor there. Perhaps not, especially if they refuse to obey the prudent precautions which centuries of experience have enjoined upon others.
But what, then, are we going to do with Porto Rico? How soon are our people going to flee from Arizona? And why is life impossible to Americans in Manila and Cebu and Iloilo, but attractive to the throngs of Europeans who have built up those cities? Can we mine all over the world, from South Africa to the Klondike, but not in Palawan? Can we grow tobacco in Cuba, but not in Cebu; or rice in Louisiana, but not in Luzon?
An alarm is raised that our laboring cla.s.ses are endangered by compet.i.tion with cheap tropical labor or its products. How? The interpretation of the Const.i.tution which would permit that is the interpretation which has been repudiated in an unbroken line of decisions for over half a century. Only one possibility of danger to American labor exists in our new possessions--the lunacy, or worse, of the dreamers who want to prepare for the admission of some of them as States in the American Union. Till then we can make any law we like to prevent the immigration of their laborers, and any tariff we like to regulate the admission of their products.
It is said we are pursuing a fine method for restoring order, by prolonging the war we began for humanity in order to force liberty and justice on an unwilling people at the point of the bayonet. The sneer is cheap. How else have these blessings been generally diffused? How often in the history of the world has barbarism been replaced by civilization without bloodshed? How were our own liberty and justice established and diffused on this continent? Would the process have been less b.l.o.o.d.y if a part of our own people had noisily taken the side of the English, the Mexican, or the savage, and protested against "extreme measures"?
Some say a war to extend freedom in Cuba or elsewhere is right, and therefore a duty; but the war in the Philippines now is purely selfish, and therefore a crime. The premise is inaccurate; it is a war we are in duty bound to wage at any rate till order is restored--but let that pa.s.s. Suppose it to be merely a war in defense of our own just rights and interests. Since when did such a war become wrong? Is our national motto to be, "Quixotic on the one hand, Chinese on the other"?
How much better it would have been, say others, to mind our own business! No doubt; but if we were to begin crying over spilt milk in that way, the place to begin was where the milk was spilled--in the Congress that resolved upon war with Spain. Since that congressional action we have been minding what it made our own business quite diligently, and an essential part of our business now is the responsibility for our own past acts, whether in Havana or Manila.