It is clear, therefore, that the decision of the governor was not final in administrative affairs. Persons dissatisfied with his executive actions or decisions in such matters were privileged to appeal to the audiencia. If the findings of the tribunal differed from those of the governor, and if the governor were still unyielding, his will was to be obeyed but the case was thereupon appealed to the Council of the Indies.[84] If the case were one of law and justice the governor, on the other hand, was instructed to abide by the decision of the audiencia, but he was privileged to carry the case to the Council of the Indies. Thus it was that each of these authorities had a sphere wherein its word was law, and its decisions final in the colony.
It was prescribed, however, that when there were differences of opinion between the governor and the audiencia an effort should be made both by the governor and the audiencia to avoid notorious disagreements which would furnish a bad example to the natives, or otherwise degrade the dignity of the royal tribunal or governor. Viceroys, presidents, and audiencias were forbidden to take action in cases wherein there was doubt as to their jurisdiction, or wherein there was a question as to the advisability of taking final action.[85]
It would appear, therefore, from this survey of the laws, that the audiencia was provided with ample means for restraining the action of the governor. This it could do either by admonition, by appealing from his decisions in administrative matters, or by blocking him in the acuerdo. It was evidently the design of those who planned the legislation of the Indies to guard at all times against the excesses of an all-powerful executive. Such was certainly the purpose of the establishment of the audiencia, both in the Americas and in the Philippines. Taking into consideration the three hundred years of Philippine history, however, it cannot be said that in the actual operation of the government these precautions were entirely effective.
According to the laws of the Indies the governor, as executive, had his own sphere in which the oidores were forbidden to interfere.[86] In the light of our investigation, however, it would appear that this exclusive field was exceedingly limited, and that even it was continually subject to the encroachments of the audiencia. In the exercise of his military authority the governor was independent of the tribunal, although we shall see that on some occasions the audiencia exercised military jurisdiction in an executive capacity, and that there were times when the governor was glad to call upon the audiencia for assistance in this matter. As president of the audiencia the governor exercised considerable authority during the first half of the history of the colony, but from 1776 to 1861 his position as president was merely nominal, and at the latter date it was abolished. He was the chief administrative official of the colony, and his authority in this particular was more far-reaching than in any other. In this, however, he was limited by the acuerdo of the audiencia, which developed, as we have seen, from an advisory to a legislative function, and ultimately had the effect of limiting the governor in his hitherto exclusive field.
[1] Recopilación, 2–15–11. Note the brief discussion of this relationship in Smith, The viceroy of New Spain, 152–156. Dr. Smith shows that the chief purpose of the Spanish government in establishing the viceroy and audiencia together was to guarantee a check and balance of one upon the other. Quoting Revilla Gigedo (Instruction, Article 20), he says: “The presidency of the audiencia places the viceroy at the head of that body but not to give orders to it, as even his acts in matters of justice are subject to it; and although he is present at its sessions, which is very difficult, considering the grave and continuous occupations which so vast a command imposes upon him, he does not have a vote in matters which are regularly dealt with there—that is, matters of justice.” Dr. Smith shows (162) that the effect of the later laws of the eighteenth century was to deprive “the viceroys absolutely of any part in the procedure of the administration of justice, either alone or in company with the other judges, voting with them in the audiencia” (from Revilla Gigedo, Instruction, Article 64). The limitation of the governor of the Philippines in legal matters is discussed further on in this chapter.
[2] See Moses, Establishment of Spanish rule in America, 70–71.
Philip III ordered the viceroy of New Spain to “give aid to the governor and captain-general of the Philippines in whatever may occur, and above all ... to send him on demand whatever may seem necessary of arms, men, munitions, and money for the conservation of those Islands, salaries, and presidios, and other matters under his care (Recopilación, 3–4–13).” The viceroys also exercised a certain degree of authority over the despatch of the galleons from Acapulco (ibid., 9–45–25 to 31, 47, 74 to 76). Aside from the points indicated, the Philippines were normally as independent of New Spain as the latter was independent of the Philippines.
[3] Bourne, “Historical introduction,” Blair and Robertson, I, 49–50.
[4] Delgado, Historia de Filipinas, 212–215.