of the several townships of the province to acquire the knowledge and experience necessary for successful local popular government, and his supervision and control shall be confined within the narrowest limits consistent with the requirement that the powers of the government in the township shall be honestly and. effectively exercised and that law, order and independent freedom shall be maintained."

As regards the powers and duties of the provincial board, the only important departure from the general act is that no power is conferred upon the board to levy any tax upon the real estate of the province for provincial purposes. In point of fact the board may be said to possess no general legislative power, its duties being limited to the ordering of public works, the authorization of the payment by the secretarytreasurer of salaries and other claims legally due, and the settlement of matters of a like nature.

To characterize the scheme of government as a whole, it will be seen that not a vestige of self-government has been conferred by the act upon the provinces to which it is made to apply. Such indeed is not the purpose of the act. The end sought is merely to provide a means for the decentralization in a measure of the exercise of the powers of government vested in the insular government, and to provide a more effective system for the supervision of the acts of the purely local or municipal authorities. The provincial officials are but agents of the insular government, and are at all times absolutely subject to its control. They are appointed by the civil governor and hold office during his pleasure. They may at any time be suspended from office

by that officer when he has any reason to believe them guilty of disloyalty, dishonesty, oppression or misconduct, which suspension may be made permanent by the commission after due investigation by it in which the accused has been given an opportunity to be heard.

The Benguet act differs from the Nueva Vizcaya act in providing a less complete system of governmental organization. There is thus no provincial board; and the general provincial officers appointed by the civil governor consists only of a governor, a secretary and an inspector. The duties of the treasurer are performed by the governor. No provision is made for the prosecution of any public work nor for any provincial receipts or expenditures, the latter being a charge upon the insular budget. The function of the provincial authorities of Benguet, in fact, are restricted almost entirely to that of supervision and control of the local authorities in much the same way as provided for by the Nueva Vizcaya act. The inspection of the conduct of affairs by the townships is made the exclusive duty of the provincial inspector. He is thus in effect the agent of the provincial governor, through whom the latter can more effectively perform his duties. In the Nueva Vizcaya act no provision is made for such an officer, as it is made the duty of the governor himself to visit the municipalities, investigate conditions and pass upon complaints.

Moro Provincial Act. The conditions existing in the territory occupied by the Moros were so different from those elsewhere that neither the general nor the

Nueva Vizcaya act was of a character suited to meet the requirements of the situation. Special provisions had accordingly to be made for its government. The Moro country consists of the Sulu Archipelago, Palawan, Mindanao and certain other adjoining territory or islands. The important characteristic of the inhabitants of these districts consists in the fact that, unlike the other inhabitants of the archipelago, they have a distinct tribal government and acknowledge obedience to chieftains, or dattos. The conditions here to be met are consequently not dissimilar from those presented in the government of the Indian tribes in the United States. The President in his instructions to the commission of April 7, 1900, expressly directed that when uncivilized tribes having a tribal form of organization were met with, such organization should be preserved and the effort made to govern through it. His precise language on this point was:

In dealing with the uncivilized tribes of the islands the commission should adopt the same course followed by Congress in permitting the tribes of our North American Indians to maintain their tribal organization and government and under which many of our tribes are now living in peace and contentment surrounded by a civilization to which they are unable or unwilling to conform. Such tribal governments should, however, be subject to wise and firm regulations, and without undue or petty interference constant and active effort should be exercised to prevent barbarous practices and introduce civilized

customs.

The effort was made at the outset both by the military authorities and by the commission to carry out these instructions. When the Moros, as in the neigh

by that officer when he has any reason to believe them guilty of disloyalty, dishonesty, oppression or misconduct, which suspension may be made permanent by the commission after due investigation by it in which the accused has been given an opportunity to be heard.

The Benguet act differs from the Nueva Vizcaya act in providing a less complete system of governmental organization. There is thus no provincial board; and the general provincial officers appointed by the civil governor consists only of a governor, a secretary and an inspector. The duties of the treasurer are performed by the governor. No provision is made for the prosecution of any public work nor for any provincial receipts or expenditures, the latter being a charge upon the insular budget. The function of the provincial authorities of Benguet, in fact, are restricted almost entirely to that of supervision and control of the local authorities in much the same way as provided for by the Nueva Vizcaya act. The inspection of the conduct of affairs by the townships is made. the exclusive duty of the provincial inspector. He is thus in effect the agent of the provincial governor, through whom the latter can more effectively perform his duties. In the Nueva Vizcaya act no provision is made for such an officer, as it is made the duty of the governor himself to visit the municipalities, investigate conditions and pass upon complaints.

Moro Provincial Act. The conditions existing in the territory occupied by the Moros were so different from those elsewhere that neither the general nor the

Nueva Vizcaya act was of a character suited to meet the requirements of the situation. Special provisions had accordingly to be made for its government. The Moro country consists of the Sulu Archipelago, Palawan, Mindanao and certain other adjoining territory or islands. The important characteristic of the inhabitants of these districts consists in the fact that, unlike the other inhabitants of the archipelago, they have a distinct tribal government and acknowledge obedience to chieftains, or dattos. The conditions here to be met are consequently not dissimilar from those presented in the government of the Indian tribes in the United States. The President in his instructions to the commission of April 7, 1900, expressly directed that when uncivilized tribes having a tribal form of organization were met with, such organization should be preserved and the effort made to govern through it. His precise language on this point was:

In dealing with the uncivilized tribes of the islands the commission should adopt the same course followed by Congress in permitting the tribes of our North American Indians to maintain their tribal organization and government and under which many of our tribes are now living in peace and contentment surrounded by a civilization to which they are unable or unwilling to conform. Such tribal governments should, however, be subject to wise and firm regulations, and without undue or petty interference constant and active effort should be exercised to prevent barbarous practices and introduce civilized customs.

The effort was made at the outset both by the military authorities and by the commission to carry out these instructions. When the Moros, as in the neigh