The Philippine Islands, 1493-1898 — Volume 17 of 55 / 1609-1616 / Explorations by Early Navigators, Descriptions of the Islands and Their Peoples, Their History and Records of the Catholic Missions, as Related in Contemporaneous Books and Manuscripts, Showing the Political, Economic, Commercial and Religious Conditions of Those Islands from Their Earliest Relations with European Nations to the Close of the Nineteenth Century

by Unknown

Administration of Government and the Captaincy-General

[The following is taken from Sinibaldo de Mas,[9] Informe sobre el estado de las Islas Filipinas en 1842 (Madrid, 1843), tomo ii. Portions of it are apparently embodied in translation and abstract in Bowring’s Visit to the Philippine Isles (London, 1859), p. 87–93.]

The government of the Filipinas Islands, together with the group of the Marianas, is in charge of a military chief, who, to the title of governor, joins those of president of the Audiencia, and royal vice-patron; subdelegate judge of the revenue, and of post-offices, posts, and express [correos, postas y estafeta]; and director of the troops, captain-general, and commander-in-chief of the navy. His authority, then, embraces all the powers derived from these titles, both for administration and for the security and defense of the territory.

To discharge these duties he has three secretaryships—one of government, another of the captaincy-general, and the third of the navy—one military auditor, one adviser in government matters, one fiscal, and one scrivener. One may appeal from his gubernatorial measures to the royal Audiencia, which often alters or annuls those measures by means of sentence. But there is a law that provides that in case that the governor-general undertakes to have his order put into effect, it must be observed until the superior decision, so that no uneasiness and confusion may result from it in the country. The collection of taxes and the disbursement of money is in charge of a superintendent of the treasury [hacienda], under the immediate orders of the government at Madrid. In sudden or doubtful cases, the resolutions of the superior council [junta] of the treasury—composed of the superintendent, the accountant-in-chief of accounts [contador mayor de cuentas], the accountant of the army and treasury, the newest auditor of the Audiencia, and the fiscal of the treasury—decide the matter.

The islands are divided by provinces, in each of which there is a subordinate chief who is styled governor or alcalde-mayor. These exercise jurisdiction in the first instance, in matters of government and litigation. They are military captains, and have in charge the collection of the royal revenues, under a responsibility guaranteed by bonds to the satisfaction of the accountant-general of the army and royal treasury. The province of Cavite is an exception to this rule, for the collection of the tribute there is now made by an assistant of the chief justice. Therefore he who rules in a province exercises all the attributes of political chief, and as such is subject to the governor-general; those of judge of first instance, and as such is dependent on the Audiencia; those of subdelegate of treasury (although he does not have the disposal of the monopolized incomes), and as such has to render accounts, bonds, and obedience to the chiefs of the treasury; and finally, if he is of military rank, he is commandant-of-arms, and subaltern of the captain-general; and even though he be not of military rank he obtains the rank of military commander [capitan á guerra] by virtue of his rank of alcalde-mayor. He has charge of the company assigned to his province, and, in the absence of his Majesty’s troops, he commands the troops that he equips upon extraordinary occasions.

Each province is subdivided into a greater or less number of towns. Each town has a gobernadorcillo [i.e., little or petty governor], with assistants and alguacils of justice, whose number is fixed. They discharge various functions, among them the administration of justice in regard to fields and palm-trees, and that of police. In some towns where there are a sufficient number of Sangley mestizos (who are the descendants of the Chinese), they form, when they obtain permission from the government, a separate community, with a gobernadorcillo and other members of the magistracy taken from their own midst. In the towns which are the capitals of the province there is often a gobernadorcillo for mestizos and one for natives. This latter always takes command of the province in case of the sickness or absence of the alcalde-mayor. The gobernadorcillos have in their towns all the municipal responsibility proper to the authority which is conferred upon them by their appointment. They are especially bound to aid their parish priests in everything pertaining to worship and the observance of religious laws. They try civil causes up to the value of two taels of gold, or forty-four pesos. They take action in criminal cases by collecting the preliminary evidence, which they submit to the provincial chiefs. They are under obligation to see to the collections of the royal revenue, and further to give notice of the ordinances for good government. They are permitted to collect certain dues that are specified in their own credentials. Each town has also other citizens known under the name of cabezas [i.e., heads] de barangay. Each cabeza is obliged to look after forty-five or fifty tributes which comprise as many families, and that is the signification of barangay. The cabezas must reside with them in the district or street assigned; must attend in person to the good order and harmony of their individuals; must apportion among them all the services that are due from them collectively; must settle their disputes; and must collect the tribute under a fixed bond, in order to effect its delivery afterward in entirety to the gobernadorcillo, or directly to the provincial chief, as happens in that of Tondo. The cabezas are ex-officio attorneys for their barangays in all matters that concern them collectively, and electors of the gobernadorcillos and other officials of justice. For that interesting function, only the twelve oldest men of each town or the substitutes whom the ordinance assigns, have a vote. In some provinces the cabezas appoint only the three who have to compose the terna [i.e., three nominees for any office] for the gobernadorcillo. These, with the outgoing gobernadorcillo, proceed to the election of the deputies, alguacils, and their committees. The cabecerías [i.e., headships], much more ancient in origin than the reductions [i.e., native villages of converts], were doubtless hereditary. At present they are hereditary and elective. When they fall vacant, whether for want of an heir or through the resignation of the regularly appointed incumbent, the substitute is appointed—by the superintendent, in the provinces near the capital; and in those distant from it by the respective subdelegate chief, but at the proposal of the gobernadorcillo and other cabezas. This same plan is followed in the creation of any cabecería in proportion to the increase in population, and as the number of tributarios in each town demands it. The cabezas, their wives, and first-born sons (who are their assistants in the collection of the royal revenues), enjoy exemption from the payment of tribute. The cabezas in some provinces serve in the cabecerías for three years; and, if they do not prove defaulters, they are recognized as chiefs in the towns, with the titles of ex-cabeza and don. Such system offers the serious disadvantage of multiplying the privileged class of chiefs, which, being exempted from personal services, increases the tax for the common people or the polistas[10] in proportion to the increase of the privileged class.

The offices of gobernadorcillo, deputies, and alguacils of justice are elective, and last one year, with superior approbation. It is stipulated that the elections take place exactly at the beginning of each year, in the royal houses or halls of justice in the towns, and not elsewhere. The electors are the outgoing gobernadorcillo and the twelve senior cabezas de barangay. For gobernadorcillo three individuals have to be nominated by a plurality of votes, and the respective place of each one in the terna must be expressed. It is to be noted that the nominee must be able to speak, read, and write the Spanish language. If he cannot do that, the election of the one who lacks this express condition will be considered null and void, where such election has been made. For the other officials of justice, those needed by the town are elected by the same convention. The balloting must be secret, and is authorized by the notary and presided over by the provincial chief. The parish priest may be present, if he wishes, to express what opinions he may consider fitting, but for no other purpose. In sealed envelopes the election returns are sent to the superior governments of the provinces of Tondo, Bulacan, Pampanga, Bataan, Zambales, Nueva Ecija, Laguna, Batangas, and Cavite, so that after choosing one of those proposed as gobernadorcillo, the respective government orders the credentials corresponding to each class to be despatched. In the other provinces, because of their distance from the capital, the chief of each one appoints the nominee in the first place, and making use of the blank credentials entrusted to him by the superior government, writes therein the names of those interested, and places them in possession [of their offices].

The cabezas of barangay can be elected, if they preserve their cabecerías and the collection of tributes, by the rule in the royal decree of October 17, 1785.

The Chinese community may elect from among its Christian individuals, and in a meeting presided over by the alcalde-mayor of Tondo, one man as gobernadorcillo, one as chief deputy, and a third as alguacil-mayor. The government grants those elected the proper credentials, by virtue of which they exercise jurisdiction. The officials of justice in this community are called bilangos, and are appointed by the new gobernadorcillo. The electors are also thirteen in number, and are composed of the outgoing gobernadorcillo, the ex-captains, and the petty chiefs [cabecillas] of the tribute and of champans, both past and present. When any number is lacking, it is made up from the petty heads of the trades. At present the collection of tribute or the poll-tax from the Chinese is in direct charge of the alcalde-mayor in the province of Tondo, with a supervisor chosen from among the officials of administration of the royal treasury. In the other provinces it is attended to in person by the chief of each province. This levy of taxes is managed by a register, where the Chinese are enrolled and classified, and that register determines the quota of each, who contributes according to his class.

The gobernadorcillos and officials of justice deserve the greatest consideration from the government. The provincial chiefs are under obligation to show them the honor corresponding to their respective duties. They are allowed to sit in the houses of the latter, and in any other place, and are not suffered to remain standing. Neither is it permitted to the parish priests to treat these officials with less consideration.