The positions of governor and presidial commander were made attractive largely by the opportunity which they afforded for making money in addition to the fixed salaries. The payment of soldiers was made chiefly in supplies, purchased by the governor and commanders, and charged to the soldiers at enormous profits. Thus the post of governor or captain was almost as much that of merchant as of soldier. Provincial administration was often corrupt with "graft," as in English and French America. Checks upon the governors were furnished through visitas or inspections, and through the residencia, or inquiry at the end of the governor's term. As a rule the residencia was formal, but sometimes it was a serious matter.
Central control.—All important matters of frontier administration, such as the founding of new colonies, presidios, or missions, or the making of military campaigns, were referred by the governors to the viceroy of Mexico. He in turn customarily sought the advice of the fiscal of the real audiencia, and of the auditor de guerra. In case these two functionaries disagreed, or in matters of unusual moment, a junta de guerra y hacienda, composed of the leading officials of the different branches of the central administration, was called. In all matters of consequence the decisions of the viceroy were made subject to royal approval, but it frequently happened that the act for which approval was asked had already been performed. In ordinary affairs of provincial administration the fiscal really controlled the government, for the viceroy usually despatched business with a laconic "as the fiscal says."
Frontier Autonomy.—The government of New Spain was highly centralized in theory, but the effects of centralization were greatly lessened by distance. Through the right of petition, which was freely exercised, the local leaders in the frontier provinces often exerted a high degree of initiative in government, and, on the other hand, through protest and delay, they frequently defeated royal orders.
THE MISSIONS
The Missionaries on the frontiers.—In extending the sway of Spain, as time went on a constantly larger part was played by the missionaries. During the early days of the conquest the natives had been largely in the hands of the encomenderos. But abuses arose and the encomienda system was gradually abolished. Moreover, the wild tribes of the northern frontier, unlike the Mayas and Aztecs, were considered hardly worth exploiting. This left an opening for the missionary, and to him was entrusted not only the work of conversion, but a larger and larger share of responsibility and control. Since they served the State, the missions were largely supported by the royal treasury, which was most liberal when there was some political end to be gained.
The principal missionary orders.—Under these circumstances, in the seventeenth and eighteenth centuries, on the expanding frontiers of Spanish America, missions became well-nigh universal. The work on the northern borders of New Spain was conducted largely by Franciscans, Jesuits, and Dominicans. The northeastern field fell chiefly to the Franciscans, who entered Florida, New Mexico, Nuevo León, Coahuila, Nuevo Santander, and Texas. To the northwest went the Jesuits, who, after withdrawing from Florida, worked especially in Sinaloa, Sonora, Chihuahua, Lower California, and Arizona. After the expulsion of the Jesuits the Dominicans and Franciscans took their places.
The missions as civilizing agencies.—The missionaries were a veritable corps of Indian agents, serving both Church and State. Their first duty was to teach the Gospel. In addition they disciplined the savage in the rudiments of civilized life. The central feature of every successful Spanish mission was the Indian pueblo, or village. If he were to be disciplined, the Indian must be kept in a definite spot where discipline could be impressed upon him. The settled Indians, such as the Pueblo Indians of New Mexico, could be instructed in their native towns, but the wandering or scattered tribes must be assembled and established in pueblos, and kept there by force if necessary. To make the Indians self-supporting as soon as possible, and to afford them the means of discipline, the missions were provided with communal lands for gardens, farms, and ranches, and with workshops in which to practice the crafts.
Defence of the frontier.—The missionaries were highly useful likewise as explorers and as diplomatic agents amongst the tribes. As defenders of the frontier they held the allegiance of the neophytes and secured their aid against savages and foreign intruders. Sometimes the mission plants were veritable fortresses.
Missions designedly temporary.—Like the presidios, or garrisons, missions were intended to be temporary. As soon as his pioneer work was finished on one frontier the missionary was expected to move on to another, his place being taken by the secular clergy and the mission lands distributed among the Indians. The result, almost without fail, was a struggle over secularization.