that _presidentes_ of pueblos are as absolute bosses as is Murphy in Tammany Hall, and that the towns taken collectively const.i.tute the provinces. The first statement is true, and the second, which is tantamount to a declaration that the _presidentes_ control every square foot of the provinces and every man in them, is not so far from the truth as it might be. I have been old-fashioned enough to retain the idea that a republic is "a state in which the sovereign power resides in the whole body of the people, and is exercised by representatives elected by them."
Blount labored under no delusion as to the fitness of the common people to govern. [355]
Not only did the Filipinos themselves understand perfectly well that they had no republic, but there were many of them who were fully aware of the fact that they could establish none. Fernando Acevedo, in writing to General Pio del Pilar on August 8, 1898, said: [356]--
"There could be no republic here, even though the Americans should consent, because, according to the treaties, the Filipinos are not in condition for a republic. Besides this, all Europe will oppose it, and if it should be that they divide our country as though it were a round cake, what would become of us and what would belong to us?"
I will now trace the evolution of the government which Aguinaldo did set up. In doing so I follow Taylor"s argument very closely, drawing on his unpublished Ms., not only for ideas, but in some instances for the words in which they are clothed. I change his words in many cases, and do not mean to unload on him any responsibility for my statements, but do wish to acknowledge my indebtedness to him and at the same time to avoid the necessity for the continual use of quotation marks.
Aguinaldo"s methods in establishing his republic are shown by his order [357] that "any person who fights for his country has absolute power to kill any one not friendly to our cause" and the further order [358] prescribing that twelve lashes should be given to a soldier who lost even a single cartridge, while if he continued to waste ammunition he should be severely punished. In March, 1899, workmen who had abandoned their work in the a.r.s.enal at Malolos were arrested, returned, given twenty-five lashes each and then ordered to work. [359]
The news that an American expedition was about to sail for the Philippines made him realize that he had not much more than a month in which to place himself in a position in which he would have to be consulted and a.s.sisted, and this he tried to do. The arms he received from Hongkong on May 23 enabled him to begin an insurrection, not as an ally of the United States, but on his own account. From May 21 to May 24 he issued orders for the uprising against Spain. On May 24 he declared himself Dictator of the Philippines in a proclamation in which he promised to resign his power into the hands of a president and cabinet, to be appointed when a const.i.tutional a.s.sembly was convened, which would be as soon as the islands had pa.s.sed into his control. He further announced that the North American nation had given its disinterested protection in order that the liberty of the Philippines should be gained. [360] On May 25, 1898, the first American troops sailed from San Francisco for the Philippines.
Aguinaldo still had a month in which to seize enough Spanish territory to erect thereon what would appear to the Americans on their arrival to be a government of Luzon, of which he was the head. The Hongkong junta and Aguinaldo himself intended to ask for the recognition of their government, but they had first to create it. To obtain recognition it was necessary that the American commander on land should be able to report that wherever he or his troops had gone the country was ruled by Aguinaldo according to laws which showed that the people were capable of governing themselves.
As the United States is a republic it was natural that the directing group of insurgent leaders should decide upon a republican form of government. That form would appeal to the people of the United States; the first "Christian Asiatic Republic" was a description which would inevitably awaken sympathy in that mother of republics. The idea was a wise and subtle one; but Aguinaldo"s republic was merely an elaborate stage-setting, arranged for the contemplation of the people of the United States.
By June 5, 1898, the success of the insurgent arms had been such that Aguinaldo felt that he could throw down the mask. He would still be glad of American a.s.sistance, but he felt himself strong enough to do without it. He saw that "there can now be proclaimed before the Filipino people and the civilized nations its only aspiration, namely, the independence of this country, which proclamation should not be delayed for any ulterior object of this government" [361] and ordered that the independence of the Philippines should be proclaimed at his birthplace, Cavite Viejo, on June 12, 1898. On that date he formally proclaimed it. The provinces of Cavite, Bataan, Pampanga, Batangas, Bulacan, Laguna and Morong were about to fall into his hands, the Spanish troops in them being besieged, and about to surrender.
From the same place on June 18, 1898, Aguinaldo promulgated his decree for the creation and administration of munic.i.p.alities. [362] In brief, this provided that as soon as the territory of the archipelago, or any portion thereof, had pa.s.sed from the possession of Spanish forces, the people in the towns who were most conspicuous for their intelligence, social position and upright conduct were to meet and elect a town government. The heads of the towns in every province were to elect a head for the province and his three counsellors. The provincial council, composed of these four officials, with the presidente of the capital of the province, were to see to the execution in that province of the decrees of the central government and to advise and suggest.
This provincial council was to elect representatives for the revolutionary congress, which was to be charged with submitting suggestions to the central government upon interior and exterior affairs, and was to be heard by the government upon serious matters which admitted of delay and discussion.
Before any person elected to office was permitted to discharge his functions, his election was to be approved by the central government. The military commanders, except in time of war, were to have no jurisdiction over the civil authorities. They could, however, demand such supplies as they might need, and these could not be refused. The government was to appoint commissioners to carry these regulations into effect.
On June 20 Aguinaldo issued his regulations for the government of provinces and munic.i.p.alities [363] as supplemental to the decree of two days before. It went into the details of government, under the following heads: police, justice, taxation and registration of property.
On June 23 he proclaimed the establishment of a revolutionary government, with himself as "president." In this capacity he had all the powers of the Spanish governor-general, unhampered by any orders from Spain. It is true that the scheme provided for the eventual formation of a republic, but it is doubtful if the people who drew it up really knew what that word meant. What was provided for in practice was a strong and highly centralized military dictatorship, in which, under the form of election, provision was made for the filling of all offices by men devoted to the group which had seized control.
According to this decree the dictatorial government was in future to be ent.i.tled the revolutionary government. Its duty was to struggle for the independence of the Philippines in order to establish a true republic. The dictator was to be known as the president of the revolutionary government. There were to be four secretaries--one of foreign affairs, commerce and marine; one of war and public works; one of police and interior order, justice, education and hygiene; one of the treasury, agriculture and manufactures. The government could increase the number of secretaries if necessary. They were to a.s.sist the president in the despatch of business coming under their departments.
In addition to the president and his secretaries, there was to be a revolutionary congress composed of representatives from the provinces of the Philippine Archipelago, elected as provided by the decree of June 18. In case a province was not able to elect representatives, the government would appoint them for such province. The congress was to discuss and advise, to approve treaties and loans, and to examine and approve the accounts of the secretary of the treasury. If important matters admitted of delay, the congress would be heard concerning them; but if they did not admit of delay, the president of the government was to act at once. Projects of law could be presented by any representative, and by the secretaries of the government.
A permanent committee of congress presided over by the vice-president was to be chosen by that body. This was to serve as a court of appeal in criminal cases and as a court of final jurisdiction in cases arising between the secretaries of the government and provincial officials. The acts of congress were not to go into effect until the president of the government ordered their execution. He was also to have the right of veto.
This was a well-devised plan to secure control for the central group about Aguinaldo. His commissioners, under a form of election in which the electors were carefully selected men, established munic.i.p.al governments devoted to the cause of the revolution. These were to choose provincial officials and members of the congress. All elections were subject to Aguinaldo"s approval, and every province was under the command of a military representative of his, who could and did call upon the civil authorities for such supplies as he deemed fit. All real power was vested in the central group, and the central group was composed of Emilio Aguinaldo and his public and private advisers. By this time he had gathered about him men who were trained in the law, some of whom had served the Spanish government in various capacities. They were accustomed to the methods that had previously prevailed under the Spanish regime, and were now ready to draw up const.i.tutions and regulations for the new government. Mabini wrote the three organic decrees. Copies of them were sent to the foreign consuls in Manila, and on July 15, 1898 to Admiral Dewey.
Although the t.i.tle of "president" was a.s.sumed by Aguinaldo, as more likely to be favourably considered in the United States than "dictator," the tendency of his followers who had not been educated in Europe was to speak of and to regard him not as a president, but as an overlord holding all power in his hands. The people did not feel themselves citizens of a republic, copartners in an estate; they considered themselves subject to a ruler who sometimes called himself president, and sometimes dictator. Indeed, there is much to show that if Aguinaldo and his followers had succeeded in their plans, even the name "republic" would not have been long continued as the t.i.tle of his government. [364]
Aguinaldo"s claim as to the effectiveness of his government on August 6, 1898, was as follows: [365] "The government of the revolution actually rules in the provinces of Cavite, Batangas, Mindoro, Tayabas, Laguna, Morong, Bulacan, Bataan, Pampanga, Infanta and besieges the capital, Manila. The most perfect order and tranquillity reign in these provinces, governed by authorities elected by the inhabitants in conformity with the organic decrees dated June 18 and 23 last. Moreover, the revolution has about nine thousand prisoners of war who are treated humanely and according to the rules of civilized warfare. We can muster more than thirty thousand men organized as a regular army."
It may have been that in the majority of these provinces munic.i.p.al governments, formed in accordance with the provisions of the decree of June 18, had been established; but provincial governments had not been established in all of them, and tranquillity did not reign in any of them, as they were the scene of operations against the Spaniards. There could not well have been nine thousand prisoners in his hands at this time, as that was claimed later when a large additional number of Spaniards had surrendered. As for the thirty thousand men organized as a regular army, there may be a certain difference of opinion as to what const.i.tutes a regular army; the men who saw Aguinaldo"s force then, and who have read the papers of its leaders, must be of the opinion that that force was not a regular army. Probably only Manila Province had a provincial government on August 6. Its local presidentes met at Cavite Viejo on August 3 and elected three members of congress from the province, and also the members of the provincial government. The election took place under the supervision of Colonel Teodoro Gonzales, whom Aguinaldo had appointed governor of Manila Province on August 1. He remained governor after the election was held. Not until August 17 did the local presidentes of Bulacan a.s.semble under the presidency of the secretary of the interior and proceed to elect two members to congress and the members of the provincial government. Not until August 20 was there an election for the members of the provincial government of Cavite Province. This was held in the town of Cavite. Isaac Fernando Rios, who was afterwards a member of the Filipino junta in Madrid, was chosen a representative of the province; but as he wrote that he was in favour of coming to some agreement with Spain which would permit the development of the Philippines, without abandoning the sovereignty of that country, Aguinaldo promptly disapproved his election [366]
and ordered a new one held for the office thus left vacant. On October 2, 1899, Aguinaldo approved the result of a new election held there because four of the five high officials of the province had absented themselves, while one of them had died. Of the men who had so absented themselves one had gone abroad, while the other three had remained in Manila or Cavite under the government of the United States. [367]
The people of the provinces obeyed the men who had arms in their hands. It is not probable that many of them had any conviction concerning the form of government which would be best for the Philippines. There were no signs of a spontaneous desire for a republic. Orders came from the group about Aguinaldo, and the people accepted a dictator and a republic as they accepted a president and a republic, without knowing, and probably without caring very much, what it all meant, except that they hoped that taxes would cease with the departure of the friars. A determined and well-organized minority had succeeded in imposing its will upon an unorganized, heterogeneous, and leaderless majority.
As soon as a province was occupied by the Insurgents it was divided into territorial zones within which command was exerted by military officers. On July 20, 1898, Cavite had been divided into four zones, and next day Brigadier-General Artemio Ricarte was placed in command of the province and the first zone.
By July 7 Bulacan Province had been divided into six zones, and Nueva Ecija into four zones, with a separate commander for each zone. These men established the government prescribed by Aguinaldo"s decrees of the middle of June. Probably by the end of July Aguinaldo"s munic.i.p.al governments had been established in the greater part of the towns of Luzon. These governments were not established by the ma.s.s of the people. The ma.s.s of the people were not consulted, but they were not in the habit of being consulted in such matters and probably saw no necessity for it in this case. As an evidence of this we have the fact that from the beginning the acts of election were almost always drawn up in Spanish, although by far the greater portion of the people of the archipelago spoke only the native dialects.
The method of establishing these munic.i.p.al governments employed in Cavite in June, 1898, was continued to the end of Aguinaldo"s rule. It was the same in different places and at different times. Data obtained from reports and doc.u.ments written in towns far removed from each other follow. They must be considered together in order to obtain an idea of what this method really was.
When the Insurgent movement had progressed sufficiently far, the leaders collected their adherents and obtained recognition as the heads of their provinces or districts. For example, representatives of the towns of Pampanga a.s.sembled at San Fernando on June 26, 1898, and under the presidency of General Maximo Hizon agreed to yield him "complete obedience as military governor of the province and representative of the ill.u.s.trious dictator of these Philippine Islands." [368] The town of Macabebe refused to send any delegates to this gathering. Commissioners, in almost every case officers of Aguinaldo"s army, were empowered by him to establish the so-called republican government. They appointed delegates who proceeded to the smaller towns and held elections; but whenever possible the commissioner of Aguinaldo presided. In many cases these delegates were lieutenants of the army. The commissioners selected the electors, for they had all to be "marked out by their good conduct, their wealth, and their social position," and they had all to be in favour of independence. They then presided at the elections, which were _viva voce_. They apparently selected the people to be elected, and forwarded a record of the proceedings to the central government. The election had to be approved by the dictator or president before the successful candidates could a.s.sume the duties of their offices. Later on, the military commanders remote from the seat of government were authorized to approve elections and install the successful candidates, but the records of election had even then to be forwarded to the capital for approval, the action of the commissioner not being final.
The commissioners do not seem to have been able to find many men who had the necessary requisites for electors. In the town of Lipa, Batangas Province, with a population of forty thousand seven hundred forty-three, at the election held July 3, 1898, a presidente was chosen for whom twenty-five votes were cast. On November 23, 1898, an election was held at Vigan, Ilocos Sur, for a presidente to succeed one who had been elected representative in congress. One hundred and sixteen votes were cast. The population of Vigan is nineteen thousand. On October 5, 1898, at Echague, Isabela Province, a presidente was elected for whom fifty-four votes were cast. The population of Echague is fifty-four thousand. On October 2, 1898, at Cabagan Nuevo, Isabela, one hundred and eleven men voted out of a population of sixty-two hundred and forty. On January 29, 1899, the town of Hernani, in Samar, elected its munic.i.p.al officials under the supervision of V. Lukban. Fifty-four men voted. The town has a population of twenty-five hundred and fifty-five.
The elections, so-called, were not always held without protest. For example, the town of San Jose, Batangas, protested unavailingly to Aguinaldo against the result of an election held at 10 P.M., in a storm of rain. Men who had been on friendly terms with the Spaniards were usually excluded from all partic.i.p.ation. If in spite of the precautions taken men were elected who were disliked by the commissioner or his supporters, the election could be set aside on the ground that the person elected was not an adherent of the revolution.
The elections were often held in a singular manner, as in the following case: [369]--
"On August 20, 1898, four men of Tondo appeared before Aguinaldo on Bacoor and announced that they were representatives of the people of the district, who loved liberty. Then in accordance with the directions of the president of the republic under the supervision of the secretary of the interior, they drew lots from a hat to decide how the offices of the head of the district, delegate of police, delegate of the treasury and delegate of justice were to be distributed. The decision having been made in this simple fashion, Aguinaldo gravely approved the election as expressing the will of the people. Perhaps it did, for they seem to have continued, at least for a time, to obey them. On November 14, 1898, Aguinaldo again approved an election for local officials in Tondo which since August 13 had been within the American lines."
On August 23 San Carlos, in Pangasinan Province, a town of twenty-three thousand people, elected its officials under the new form of government. The presidente chosen was a well-known member of the Katipunan, and before the election was held announced his intention of killing any one who was chosen for the position for which he was a candidate. [370] He was accordingly elected. In spite of this grave informality, an informality which formed one ground for a protest on the part of some of the people of the town, Aguinaldo approved the election.
On October 21, 1898, an election was held under the supervision of the military commander in Camarines for the munic.i.p.al officials of the town of Yriga. [371] The voting was oral, and a secretary wrote down the votes for the two candidates under direction of the commissioner, who finally announced that the candidate whose friend he was had been elected, but without stating how many votes he had received. This newly elected head of the town had the town crier on the following night publish through the streets an address to the people, in which he thanked those who had voted for him and warned those who had not that it would be well for them to beware. The Spanish law known as the Maura Law, which regulated the elections in the munic.i.p.alities under the Spanish government, provided for a limited electoral body, composed largely of ex-officials of the munic.i.p.alities. The choosing of an electoral body by the military commander of a district probably did not seem strange to the people. The provincial and munic.i.p.al officials were established in office by armed men, and they were obeyed because they had been installed by armed men; but it was a form of election to which people, as a rule, saw no reason to object. There were, however, in many cases bitter complaints of the abuses committed by the officers thus "elected."
This form of government spread with the advance of Aguinaldo"s arms. Munic.i.p.al elections were held in Tarlac in July, in Ilocos Norte and Tayabas in August, in Benguet and the Batanes Islands in September, 1898, in Panay in December, 1898, and in Leyte and Samar in January, 1899.
On December 27 Antonio Luna wrote that all the provinces of Luzon, Mindoro, Marinduque, Masbate, and Ticao, Romblon, part of Panay, the Batanes, and Babuyanes Islands were under the jurisdiction of the insurgent government. [372]
By October 7, 1898, 14 of the 36 provinces and districts into which Luzon had been divided by the Spanish government had civil governors. [373] These 14 were Tagalog provinces or provinces which the Tagalogs controlled. The other provinces were still under military rule, and, indeed, even the provinces under civilians were dominated by their military commanders. With the manner of holding elections which prevailed, the governors must have been men who were in favour of the military party in force, for otherwise they would not have been elected. [374]
It is not probable that the number of provinces under civil governors much increased. If in Pangasinan Province, where there are many Tagalogs, organizations opposed to the rule of Aguinaldo could cause serious disorders, as was the case, it must have been considered expedient for the success of the attempt of the Tagalogs, who form only a fifth of the population, to dominate the archipelago, that all provinces in which an effective majority of the people were not of that tribe, should be kept under military rule. The munic.i.p.al governments which had been established in Luzon were in the hands of Aguinaldo"s adherents, or of men who it was hoped would prove loyal to him. They were men of the Spanish-speaking group, which has always dominated the people of the islands. They were probably not as a rule men of means. Many of them, perhaps most of them, had been clerks and employees under the Spanish government, and they saw no reason for changing the methods of town administration which had then been followed. The munic.i.p.al taxes, the estimates for expenditures, and the regulations for town government, were but little modified from those they found in force. In many ways such changes as were made were for the worse.
Once installed in power, Aguinaldo"s officials were required to exercise over the ma.s.s of the people about the same control that had always been exercised over them. The governing group considered that they were perfectly capable of providing for the welfare of the islands, and that it was the duty of the people to obey them without question.
When the insurgent force was increased in preparation for war with the Americans a large number of munic.i.p.al officials resigned, or attempted to do so. It was not easy for a munic.i.p.al official under Aguinaldo"s government to resign. A resignation, to be accepted, had to be accompanied by the certificate of a physician that the person concerned was unfit to perform the duties of his office. Judging by the record, [375] an epidemic seems to have attacked the munic.i.p.al officials in January, 1899. It is probable that they saw that war was inevitable and that they did not wish to remain in charge of the towns and be responsible for providing for the necessities of "the liberating army." In Pangasinan in that month men could not leave their barrios without obtaining the permission of the headman, and in one town men who had attempted to sell their property for the purpose of going to Manila were, on January 17, ordered to be arrested and their conduct investigated. [376]
Aguinaldo, having established himself at Malolos, ordered the congress provided for in his decree of June 23, 1898, to a.s.semble at the capital on September 15,1898, and appointed a number of provisional representatives for provinces and islands not under his control. [377]
It has often been claimed that Aguinaldo"s government controlled at this time the whole archipelago, except the bay and city of Manila and the town of Cavite. [378]
Blount quotes the following statement from the report of the First Philippine Commission:--
"While the Spanish troops now remained quietly in Manila, the Filipino forces made themselves masters of the entire island except that city." [379]
I signed that statement, and signed it in good faith; nevertheless, it is untrue. The Filipino forces never controlled the territory now known as Ifugao, Bontoc, Kalinga or Apayao, much less that occupied by the Negritos on the east coast of Luzon, but this is not all. There exists among the Insurgent records a very important doc.u.ment, prepared by Mabini, showing that when the call for the first session of the Filipino congress was issued, there were no less than sixty-one provinces and _commandancias_, which the Insurgents, when talking among themselves, did not even claim to control, and twenty-one of these were in or immediately adjacent to Luzon. [380]
The men who composed this congress were among the ablest natives of the archipelago; but representative inst.i.tutions mean nothing unless they represent the people; if they do not, they are a conscious lie devised either to deceive the people of the country or foreign nations, and it is not possible for any system founded upon a lie to endure. A real republic must be founded not upon a few brilliant men to compose the governing group but upon a people trained in self-restraint and accustomed to govern by compromise and concession, not by force. To endure it must be based upon a solid foundation of self-control, of self-respect and of respect for the rights of others upon the part of the great majority of the common people. If it is not, the government which follows a period of tumult, confusion and civil war will be a government of the sword. The record the Philippine republic has left behind it contains nothing to confirm the belief that it would have endured, even in name, if the destinies of the islands had been left in the hands of the men who set it up.
The national a.s.sembly met on the appointed day in the parish church of Barasoain, Malolos, which had been set aside for the meetings of congress. This body probably had then more elected members than at its subsequent meetings, but even so it contained a large number of men who were appointed by Aguinaldo after consultation with his council to represent provinces which they had never even seen.
From a "list of representatives of the provinces and districts, selected by election and appointment by the government up to July 7, 1899, with incomplete list of October 6, 1899" [381] I find that there were 193 members, of whom forty-two were elected and one hundred fifty-one were appointed. This congress was therefore not an elective body. Was it in any sense representative? The following table, showing the distribution of delegates between the several peoples, will enable us to answer this question.
In considering this table it must be remembered that the relationship given between the number of delegates a.s.signed to a given people and the number of individuals composing it is only approximate, as no one of these peoples is strictly limited to the provinces where it predominates.
I have cla.s.sified the provinces as Tagalog, Visayan, etc., according to census returns showing the people who form a majority of their inhabitants in each case. [382]
People Number Elected Delegates Appointed Delegates Visayans 3,219,030 0 68 Tagalogs 1,460,695 18 19 Ilocanos 803,942 7 11 Bicols 566,365 4 7 Pangasinans 343,686 2 2 Pampangans 280,984 2 2 Cagayans 159,648 4 6 Zambalans 48,823 1 2 Non-Christians 647,740 4 34 42 151