Nevertheless, those in power were bent on reform, and the Peninsular system of a document of identity (Cédula personal), which works well amongst Europeans, was then adopted for all civilized classes and nationalities above the age of 18 years without exception, its possession being compulsory. The amount paid for this document, which was of nine classes,[11] from ₱25 value downwards, varied according to the income of the holder or the cost of his trading-licences. Any person holding this document of a value under ₱3½ was subject to fifteen daysʼ forced labour per annum, or to pay 50 cents for each day he failed to work. The holder of a document of ₱3½ or over paid also ₱1½ “Municipal Tax” in lieu of labour. The “Cédula” thenceforth served as a passport for travelling within the Archipelago, to be exhibited at any time on demand by the proper authority. No legal document was valid unless the interested parties had produced their Cédulas, the details of which were inscribed in the legal instrument. No petitions would be noticed, and very few transactions could be made in the Government offices without the presentation of this identification document. The decree relating to this reform, like most ambiguous Spanish edicts, set forth that any person was at liberty to take a higher-valued Cédula than that corresponding to his position, without the right of any official to ask the reason why. This clause was prejudicial to the public welfare, because it enabled thousands of able-bodied natives to evade labour for public improvements of imperative necessity in the provinces. The public labour question was indeed altogether a farce, and simply afforded a pretext for levying a tax.
It would appear that whilst the total amount of taxation in Spanish times was not burdensome, the fiscal system was obviously defective.
The (American) Insular Government has continued the issue of the Cédula on a reasonable plan which bears hard on no one. Forced labour is abolished; government work is paid for out of the taxes; and the uniform cost of the Cédula is one peso for every male between the ages of 18 and 60 years.
In 1890 certain reforms were introduced into the townships, most of which were raised to the dignity of Municipalities. The titles of Gobernadorcillo and Directorcillo (the words themselves in Spanish bear a sound of contempt) were changed to Capitan Municipal and Secretario respectively (Municipal Captain and Secretary) with nominally extended powers. For instance, the Municipal Captains were empowered to disburse for public works, without appeal to Manila, a few hundred pesos in the year (to be drawn, in some cases, from empty public coffers, or private purses). The functions of the local Justices of the Peace were amplified and abused to such a degree that these officials became more the originators of strife than the guardians of peace. The old-established obligation to supply travellers, on payment therefor, with certain necessaries of life and means of transport was abolished.
Hitherto it had been the custom for a traveller on arriving at a town without knowing any one there, or without letters of introduction, to alight (by right) at the Tribunal, or Town Hall. Each such establishment had, or ought to have had, a tariff of necessary provisions and the means of travelling to the next town (such as ponies, gigs, hammocks, sedan-chairs, etc., according to the particular conditions of the locality). Each Barangay or Cabezeria furnished one Cuadrillero (vide pp. [223], [224]) for the service of the Tribunal, so that the supply of baggage-carriers, bearers, etc., which one needed could not be refused on payment. The native official in charge of this service to travellers, and in control of the Cuadrilleros, was styled the Alguacil. Hence the Tribunal served the double purpose of Town Hall and casual ward for wayfarers. There were all sorts of Tribunales, from the well-built stone and wood house to the poverty-stricken bamboo shanty where one had to pass the night on the floor or on the table.
By decree of Gov.-General Weyler (1888–91) dated October 17, 1888, which came into force on January 1, 1889, the obligation of the Tribunal officials to supply provisions to travelling civilians had been already abolished, although, under both reforms, civilians could continue to take refuge at the Tribunal as theretofore. Notwithstanding the reform of 1890, until the American advent the European traveller found it no more difficult than before to procure en route the requisite means for provincial travelling.
[1] In the early days of Mexican conquest, the conquered land was apportioned to the warriors under the name of Repartimentos, but such divisions included the absolute possession of the natives as slaves (vide “La vida y escritos del P. Fray Bartolomé de las Casas, Obispo de Chiapa,” by Antonio Maria Fabié, Colonial Minister in the Cánovas Cabinet of 1890 Madrid).
[2] Juan Salcedo, Legaspiʼs grandson (vide Chaps. [ii]. and [iv].) was rewarded with several Encomiendas in the Ilocos provinces, on the west coast of Luzon, where he levied a tribute on the natives whom he subdued.
[3] Changed afterwards to Manila Province; now called Rizal Province (Mórong district incorporated therein) since the American occupation.