In fixing the annual production there is taken into consideration, so far as possible, the amount of over-mature timber on the stand and the amount of the annual increment, with the object of rendering the investment a permanent one instead of merely permitting the operator to strip and abandon the area he holds. In preparing regulations under which the operator is required to work, first care is given to the future condition of the area, in order that the land after logging may be potentially as valuable as before, and no consideration of immediate profit is allowed to interfere. Nevertheless, the logger in the Philippines will find that in comparison with similar conditions elsewhere he will have few restrictions to contend with, and in practically no cases are these such as seriously to increase the cost of his operations. It is to permit such permanent use of the land that concessions are granted over such large areas, often consisting of a hundred square miles or even more.
As local residents are given the right to cut what lumber and firewood they may need for their private use in the territory covered by exclusive licenses, this system is not open to objection, especially as there are more than sufficient forest areas to accommodate all applicants desiring exclusive licenses. The director of forestry has the right to reduce cutting areas if outputs do not come up to requirements, so that a dog-in-the-manger policy is rendered impossible.
The local market takes about one hundred million feet per year. Only a few million feet are exported annually at present. A properly distributed cut of five hundred million feet per year would actually improve the forests.
It would seem that the policy which we have followed would meet with the almost unanimous approval of the Filipinos, but as a matter of fact it has been far from popular with them. The forest reserves have been set aside against the protest of the very people who will profit by the conservation of their resources, and would be the first to suffer from their destruction. The native press, and the Filipinos generally, have opposed the opening up of timber tracts by modern logging methods, despite the fact that such tracts are usually inaccessible to persons operating with old-fashioned equipment, and the further fact that the establishment of important lumbering enterprises means additional employment for well-paid skilled and unskilled labor, increase in the money in circulation, decrease in lumber imports and the ultimate development of a lucrative export trade. Fear of American capital can hardly be cited as an explanation of this phenomenon. Of three concessions granted last year only one, which was subsequently abandoned, went to American capitalists.
Thus far the Filipinos have made no attempt to share in the development of their forests on any save a very small scale. Of the total amount of lumber sawed in the islands only about ten per cent is produced in mills owned or controlled by them. It is useless to argue that the timber should be saved for future generations, for if not cut at maturity trees fall and rot.
So far as concerns conservation, the att.i.tude of the Filipinos is even less satisfactory. There is abundant evidence on which to base a prediction as to the policy which they would follow in practice, if the compelling hand of an enlightened nation were withdrawn.
There is a singular indifference to the results of wanton forest destruction, not only on the part of the persons guilty of it but on that of the munic.i.p.al, provincial and judicial officials who should prevent it by enforcing the law. Even when the employees of the Bureau of Forestry have laboriously gathered conclusive evidence against caingin makers it often proves excessively difficult, or impossible, to secure conviction. The existing opposition to forest protection springs from a desire on the part of the Filipinos to consume their capital as well as their interest, without thought of the morrow, or of the permanent advantage to their country as a whole which would result from conservation of its forest wealth. If they were left to their own devices the forests would once more blaze with caingin fires set by the poor peasant at the command of the influential cacique. Unfortunately that is now only too often the way in which caingins come to be made. The rich landowners compel ignorant dependents to make them, furnishing seed for the first agricultural crop. Under this arrangement the poor labourer runs all the risk of being prosecuted, does all the work, and often gives half or more of his crop to the cacique as a return for the seed loaned him. After the caingin is abandoned the cacique claims the land as his own, and through his influence in provincial politics can often succeed in delaying, or avoiding, prosecution even if detected in his wrong-doing.
What the result would be were all restraint withdrawn, and were the Filipinos permitted to destroy their forest resources at will, may easily be inferred from what has happened in the past, as well as from the difficulties encountered in enforcing the present law. Cebu, the most thickly populated large island in the archipelago, is already practically deforested, and until recently many other islands have been rapidly approaching the same unfortunate condition.
Under conservative forest management the existing annual output of lumber might be increased fivefold and the unfortunate results from reckless cutting, which have so frequently occurred in the past and which not infrequently still occur, might be completely avoided.
If these very desirable ends are to be attained, the force employed by the Bureau of Forestry must be materially augmented. It has been conclusively demonstrated that every increase in the number of its employees is promptly followed by a sufficient increase in the insular revenues derived from forest products to more than offset the expense involved in the payment of the additional salaries and travel expenses. For every extra peso that the government expends in this way it takes in about two, and if this can be done, and the enormous forest resources of the islands developed and conserved at the same time, there ought to be no trouble in securing the necessary legislation.
I long endeavoured to bring about the establishment of a fixed relationship between the amount annually collected on forest products and the amount allotted for the work of the Bureau of Forestry. Obviously the working force of the bureau must be increased as the lumber industry develops, or adequate supervision cannot be exercised.
Increasing the working force of the bureau makes possible investigations which stimulate the development of the lumber industry, and lead to a largely increased output.
The collection of revenue on forest products from government lands is made by the Bureau of Internal Revenue under the general supervision of the secretary of finance and justice. I have recently learned, to my amazement, that every large sawmill owner in the islands is allowed to make the statement of the output of his mill upon which collections are based; a procedure very like allowing importers to a.s.sess their own customs dues. The inevitable result is that the government is robbed right and left. Finding that an attempt was made to justify this procedure on the ground that it was impracticable to have lumber measured at the mills, as the Bureau of Internal Revenue has not sufficient employees for this purpose, I endeavoured to remedy this extraordinary situation.
Under existing law, timber may be measured in the round, in the square, or after it has been manufactured into lumber. Measurement in the round is quick and simple, and it has the further advantage that loss due to wasteful sawing falls on the lumberman, while if the sawed lumber only is measured such loss falls on the government. I therefore drafted and submitted to the commission a law providing that all timber should be measured in the round, with proper allowance for defects. Had the law pa.s.sed, I could have had employees of the Bureau of Forestry measure the logs brought into each of the several mills which collectively turn out ninety per cent of the sawn lumber of the islands, and so could have effectively prevented frauds upon the government.
A system which practically allows the individuals interested to fix the amounts which they shall pay the government for its timber naturally meets with the unqualified approval of the lumbermen. I therefore expected that they would strenuously object to the proposed change in law. To my surprise there was no complaint while it was pending before the commission, which pa.s.sed it.
Then, and only then, I learned that certain lumbermen had quietly done their work where they believed, rightly, that it would be effective, and that the bill would not pa.s.s the a.s.sembly. An effective lobby, headed by a Filipino representative of the largest Filipino lumbering concern in the islands, had been organized against it, and so a measure having no other object or effect than to prevent frauds on the government and increase its revenue, was killed, for the time at least, consideration of the bill being "deferred," by the a.s.sembly, with the result that a large number of foreign mill owners will be allowed to continue to make an illegitimate profit, and a very limited number of Filipino mill owners will do the same.
The commercial outlook for the Philippine lumber industry is very encouraging. No more greedy lumber market exists than Manila has offered during the past few years, this condition being due primarily to the stimulus given to all lines of industrial development by the economic policy of the insular administration.
Prices are high, and the supply is still unequal to the local demand. Forest products to the value of $696,407 were last year imported into the Philippines when we should have exported them in large quant.i.ties. A lumber company properly equipped and managed, and operating on a suitable tract, can place lumber in its Manila yards at a cost of half or even less than half the price at which the same lumber readily sells. The export trade, which should be very profitable, has as yet scarcely been inaugurated. Tan bark, dyewoods, valuable gums and rattans find a ready sale. It may reasonably be expected that the world"s demand for forest products of all kinds will increase as the years go by, and that the resources of older countries will become depleted, or at least inadequate to supply steadily growing needs. Forest growth in the Philippines is rapid, and under suitable conservation methods reforestation comes about quickly. With continued enforcement of existing law, and with adequate supervision over cutting and reforestation, the cost of which should be paid by the lumber industry itself, the forests of the islands should become an important permanent source of revenue and wealth. Filipinos ought to become holders of forest concessions instead of labourers on the concessions of others. Whether any considerable number of them will care to do so remains to be seen, but at all events their forests should be conserved, so that the opportunity may be ever before them. At the present time caingin makers destroy far more timber in the course of a year than lumbermen use.
In the hope of awakening an interest among Filipinos in forest conservation and development, and of being able to train an adequate Filipino working force, a forest school has been started at Los Banos, in the immediate vicinity of one of our forest reserves, where practical instruction can advantageously be given. It is antic.i.p.ated that the graduates of this school will be of great use in bringing about a radical change in the att.i.tude of the Filipinos toward forest conservation.
It is an astonishing fact that the Bontoc and Lepanto Igorots have been the only ones of the very numerous Philippine peoples to see for themselves the benefits derivable from forest conservation.
When I first visited their country I noted that all the trees in certain pine forests were carefully trimmed of their lower branches, and on inquiry found that trees might not be felled until they reached a certain size, although branches might be cut for firewood. The prevention of fires, which are very destructive in pine forests, and the care of young trees, were also adequately provided for! The Bureau of Forestry now employs Igorots as fire wardens in Benguet and Bontoc.
If the policy were adopted of appropriating annually an amount equivalent to sixty per cent of the forest revenues for the work of the Bureau of Forestry, the proper conservation and development of the great potential source of wealth intrusted to that bureau would be adequately provided for. The commission has agreed to such an arrangement; ten per cent of the total forest revenues to be expended in the provinces under its exclusive legislative control, and fifty per cent in the other provinces. Appropriations for the territory occupied by non-Christians are now made on this basis. No appropriation bill has been pa.s.sed by the a.s.sembly since this policy was agreed to by the commission. It remains to be seen whether the former body will favour the expenditures necessary to support the work of forest conservation and development, with the reasonable certainty that such work will not only a.s.sure to them and to coming generations a permanent source of wealth, but will more than pay for itself in dollars and cents.
CHAPTER x.x.xII
IMPROVED MEANS OF COMMUNICATION
The improvement in means of communication which has taken place in the Philippines since the American occupation is almost revolutionary. I well remember my tribulations in the Spanish days, resulting from the inadequacy of the mail system. There were long delays in receiving letters sent from Manila to the more important towns in the archipelago, but if, as was usually the case with us, one was living in a small and more or less isolated provincial town, he was fortunate to get his letters at all. They would be forwarded from place to place by irresponsible native carriers, and under the most favourable circ.u.mstances were likely to be greatly delayed in transmission. There was little respect for the privacy of letters. On one occasion I arrived at Jolo, confidently expecting a large mail, only to be disappointed. A week later my companion, Dr. Bourns, was calling upon a German resident of that place. Lying in a waste-basket he saw a letter written in a hand which he recognized as that of one of my friends. He thereupon called upon the German to deliver any other letters he might have for me, and some were produced, but others had been thrown away! We found that our mail had begun to come prior to our arrival, and as the Spanish postmaster did not know any persons named Bourns or Worcester he turned it over to this man to see whether he could make out whom it was for. The latter opened the letters, read them, and threw them away.
But this was not the worst of it. There was a time when for months I received no letters, and my companion no newspapers or magazines. Then the arrangement was reversed. I got my letters but no papers or magazines, while he had papers but no letters.
Under the Spanish regime letter carriers in Manila received the munificent salary of $46 per annum, but were authorized to collect a charge of three-quarters of a cent on every article of mail delivered by them, except letters from foreign countries and letters pa.s.sing between persons living in Manila.
The Spanish government did not admit general merchandise to the mails, but accepted only samples and medicine. We admit all cla.s.ses of merchandise except certain objectionable things and certain articles dangerous to the mails or to those handling them. We have increased the maximum allowable weight of mail packages to eleven pounds, and on January 1, 1913, established a "collect on delivery"
service under which merchants and others may send goods through the mails and have the charges thereon collected from the addressee before delivery. These are important and valuable extensions of the service, and greatly benefit the Filipinos as well as the merchants by bringing people throughout the islands into touch with shops from which they can order the goods they need.
It is difficult to determine the difference in the amounts of business done under the Spanish and American systems for the reason that the Spanish figures are in many cases obviously unreliable. The latest available statistics, for the fiscal year 1893, show an enormous discrepancy between the amount of mail matter claimed to have been transported and the revenue received, which should theoretically have been about twice as large as seems to have been collected. It is believed, however, that the following figures are fairly reliable.
The number of post-offices has increased from four hundred sixty-six to five hundred ninety. It is antic.i.p.ated that one hundred fifty additional post-offices will be established in smaller munic.i.p.alities and out-of-the-way places within the present year, and as it is these places are receiving postal service through the employment of competent letter-carriers, who are collecting and delivering their mails.
Only sixty-five of the Spanish post-offices were in charge of officials employed by the general government. The remaining four hundred one were looked after in a way by local munic.i.p.al officials. All postmasters are now paid by the general government.
The mails are being carried with much greater frequency than ever before. During the last year there were 273 contract routes on which mails were carried a total of 873,957 miles at a cost of $40,440.75.
So far as can be judged from the figures available the mails despatched from the islands during the fiscal year 1912 were about five times those annually despatched during the late years of the Spanish regime.
In 1893 nine parcel post packages were sent to foreign countries. In 1912, 2640 such parcels went abroad. In 1893 the number of registered articles transmitted between Philippine post-offices was 29,078. In 1912 it was 535,137. The increased use of newspapers is shown by the fact that in 1893 the weight of the newspapers mailed for delivery within the Philippines was 121,070 pounds, while in 1912 it was 687,568 pounds. This difference is no doubt largely due to the severe restrictions imposed on the press under the Spanish regime as compared with the freedom which it enjoys to-day.
The Spanish postal administration paid little attention to complaints by Filipinos relative to losses of articles transmitted through the mails. Now the most trivial complaint is painstakingly investigated, and only in rare cases is there failure to recover the value of lost or stolen articles from the postal employee responsible. The sanct.i.ty of the mails which now prevails is an important factor in the increased use which the people make of them. It is claimed that under the Spanish regime few matters of importance were intrusted to the mails by Filipinos because their letters were so frequently opened and inspected by government officials.
The Spaniards had four subsidized mail routes after 1897. We have nine subsidized routes, and six others which are maintained wholly at government expense by the Bureau of Navigation.
The Spanish government provided no postal money-order service whatever, and the transmission of money by mail with safety was impossible. We have 265 money-order post-offices and during 1912 issued 160,524 money-orders payable in the islands, the total sum of which was $5,592,205.85. We also issued 68,229 orders amounting to $1,764,608.02 payable in the United States, and 2607 orders amounting to $68,364.83 payable in other countries. These amounts were transmitted largely by Filipinos, who now do a considerable mail order business with merchants in the United States.
A further great convenience not furnished by the Spanish government is the payment of money-orders transmitted by telegraph. During the last fiscal year there were forwarded 8333 such orders, covering payments amounting to $1,128,229.79.
The improvement in the telegraph service has been quite as marked as that in the mail service. In 1897 there were only 65 telegraph offices in the islands, 49 of which were on the island of Luzon, 9 on Panay, 4 on Negros and 3 on Cebu. The total length of all telegraph lines was some 1750 miles. There were no cables or other means of telegraphic communication between the islands.
Practically all of the old lines were destroyed during the revolution which began in 1896, so that the lines now existing must be considered as having been built since the American occupation. There are 282 telegraph offices with 4781 miles of land line and in addition 1362 miles of marine cable and 7 wireless stations in operation. Every provincial capital, with the exception of Basco in the remote Batanes Islands, and Butuan in Agusan Province, now has telegraphic facilities as does almost every other place of commercial importance in the Philippines. The advantage of prompt telegraphic communication with such outlying points as Puerto Princesa, Jolo, Zamboanga, Davao, Surigao and the east coast of Samar is enormous, while the extension of the cable service to Catanduanes has been a great boon to the hemp growers of that island. The latest available figures relative to the telegraphic business conducted by the Spaniards are for the year 1889, during the second six months of which there were handled 33,697 commercial telegrams. During the fiscal year 1912 our business of the same cla.s.s reached a total of 496,643 telegrams. This cla.s.s of business has been increasing from 25 to 30 per cent yearly for several years.
The expenditures of the Spanish government for all postal and telegraphic service for the fiscal year 1895 amounted to $484,960.50. Those of the Bureau of Posts for 1912 were $1,072,684.48. No statement of the Spanish revenues can be found. Our revenues for 1912 were $627,724.70. The personnel of the Spanish service for 1895 shows only 31 positions paying salaries of more than $500 per year, most of which were filled by Spaniards. There are now 96 positions paying salaries of more than $500 per year filled by Filipinos. Filipino post-office employees receive salaries 50 to 100 per cent larger than those of employees of similar rank during the Spanish regime. Think how much these figures mean in increased opportunity for employment of Filipinos, and in increased communication not only between the people in the islands but between them and the outside world.
In a number of instances the telegraph lines which are controlled by the Bureau of Posts are supplemented by provincial telephone systems, which are of great value in maintaining quick communication with towns not reached by telegraph wires. Such lines are especially useful in the Mountain Province, Mindoro, Palawan, Nueva Vizcaya, and the sub-province of Bukidnon, where messengers who travel by land have to go on horseback or on foot.
The following table shows the growth of the postal and telegraph business of the Islands:--
Post-Office and Telegraph Statistics
-----------+-----------------------+----------+------------------------ | Money Orders Sold | | Telegraph Receipts +------------+----------+ +-------------+---------- Fiscal | | Increase | Postage | | Increase Year | | (+) or | Receipts | | (+) or | Amount | decrease | | Amount | decrease | | (-) | | | (-) -----------+------------+----------+----------+-------------+---------- | | Per cent | | | 1900 | $1,526,310 | | $117,848 | | 1901 | 1,514,435 | - 1 | 122,833 | | 1902 | 1,854,927 | +22 | 126,375 | | 1903 | 2,842,587 | +53 | 132,445 | | 1904 | 3,102,606 | + 9 | 121,714 | | 1905 | 3,444,053 | +11 | 121,648 | | 1906 | 3,687,127 | + 7 | 198,583 |[163]$56,351 | 1907 | 3,229,446 | -12 | 198,546 | 118,360 | +110 1908 | 3,645,123 | +13 | 220,306 | 136,138 | + 15 1909 | 4,008,678 | +10 | 245,482 | 139,208 | + 2 1910 [164] | 4,890,835 | +22 | 282,317 | 168,402 | + 21 1911 | 6,132,582 | +25 | 313,549 | 184,555 | + 9 1912 | 7,425,173 | +21 | 349,407 | 236,679 | + 28 1913 [165] | 8,272,858 | + 6 | 380,942 | 283,305 | + 4 -----------+------------+----------+----------+-------------+----------