So many were the problems to be met and dealt with that in the beginning the Commissioners were each given a set of subjects for investigation and study, their findings being submitted for debate and consideration in the general meetings.
Taxation, civil service, provincial and municipal organisations, currency and finance, police, harbour improvements, roads and railways, customs, postal service, education, health, public lands, an honest judiciary and the revision of the code of laws; these were some of the vital problems, but underlying them all was the immediate necessity for the establishment of tranquillity and confidence throughout the archipelago.
In order to make clear, in any degree, the Philippine situation as we found it, it is essential that, briefly, the position of the Catholic Church and its representatives, the Friars, be explained. For the first time in its history the American government found itself compelled to adjust a seemingly insurmountable difficulty between a church and its people.
With us the Church is so completely separate from the State that it is difficult to imagine cases in which the policy of a church in the selection of its ministers, and the assignment of them to duty could be regarded as of political moment, or as a proper subject of comment in the report of a public officer, but in the first reports of the Philippine Commission to Washington this subject had to be introduced with emphasis.
The Spanish government of the Philippine Islands was a government by the Church through its monastic orders, nothing less. In the words of the Provincial of the Augustinians, the Friars were the “pedestal or foundation of the sovereignty of Spain” which being removed “the whole structure would topple over.” The Philippine people, with the exception of the Mohammedan Moros and the non-Christian tribes, belonged, during the Spanish dominion, to the Roman Catholic Church, and the Church registry of 1898 showed a total membership of 6,559,998. The parishes and missions, with few exceptions, were administered by Spanish Friars of the Dominican, Augustinian and Franciscan orders, and it was to the nature of this administration that Spain owed the insurrections of 1896 and 1898, the latter of which terminated only upon our assuming control of the islands.
In 1896 there were in the Philippines 1,124 monks of the Augustinian, Dominican and Franciscan orders, which body included a company of Recolletos, who are merely an offshoot of the order of St. Augustine and differ from the Augustinians only in that they are unshod. In addition to these there were a few Jesuits, Capuchins, Benedictines and Paulists, but they engaged in mission and educational work only and did not share with the other orders the resentment and hatred of the people. Filipinos were not admitted to any of the orders, but they were made friar curates and served as parish priests in some of the smaller places.
When a Spanish Friar curate was once settled in a parish he remained there for life, or until he was too old for service, and because of this fact he was able to establish and maintain an absolutism which is difficult to explain in a few words. He was simply everything in his parish. As a rule he was the only man of education who knew both Spanish and the native dialect of his district, and in many parishes he was the only Spanish representative of the government. In the beginning, through his position as spiritual guide, he acted as intermediary in secular matters between his people and the rest of the world, and eventually, by law, he came to discharge many civil functions and to supervise, correct or veto everything which was done, or was sought to be done in his pueblo.
He was Inspector of Primary Schools, President of the Board of Health and the Board of Charities, President of the Board of Urban Taxation, Inspector of Taxation, President of the Board of Public Works, Member of the Provincial Council, Member of the Board for Partitioning Crown Lands, Censor of Municipal Budgets, and Censor of plays, comedies or dramas in the dialect of his parish, deciding whether or not these were against the public peace or morals. In a word, he was the government of his parish; and in addition to all things else, it was he who, once a year, went to the parish register, wrote on slips of paper the names of all boys who had reached the age of twenty, and putting these into a receptacle, drew them out one by one and called every fifth man for military service. So hateful was this forced duty to the Filipino youths that many of them would run away into the mountains and hide, become outlaws in order to escape it. But the civil guard would go after them and when they were captured they would be put in jail and watched until they could be sent to their capital.
The monastic orders had behind them a powerful church organisation the heads of which took an active and official part in the administration of government. The Archbishop and the Bishops formed part of what was known in Manila
