This treaty gained its purpose in that it checkmated the agreement of Sir James Brooke, but it certainly did not receive as much consideration at Jolo and Zamboanga as it did at Madrid and London. Its effect was temporary only. As early as 1854 a town on Kapul was burned by the Spanish forces from Basilan. In 1855 the Sulus made a dash upon Zamboanga and burned the best part of the town. The “Light Fleet” issued from Isabela de Basilan in 1857, surprised Simisa, rescued 76 captives, and took 116 prisoners. The chiefs against whom the expedition was directed presented themselves later to the governor of Zamboanga and exchanged the Moro prisoners for 60 Christian captives, 1 priest, and 1 European woman. Many pirates continued to scour the remote parts of the Archipelago. In 1858 Governor-General Norzagaray published a proclamation calling the attention of chiefs of provinces and municipalities to the approach of the season at which the pirates appear, and invoking their aid to caution the people and to take proper measures for the defense of their towns. Rewards were also offered for catching or killing pirates and for seizing their boats wherever found, but this had no important effect. In 1860 about 400 Moros raided the Straits of San Bernardino and plundered several settlements.
The year 1861 marks a new era in the history of piracy and a new step in the organization of government for Mindanao and Basilan. At this time Spain and the Philippines were passing through a period of progress. Alive to the truth that commerce and piracy can not coexist, the government provided a competent naval force by which it was able to maintain unquestionable supremacy in the Sulu Sea. It purchased eighteen steam vessels in England and used them for chasing Moro pirates and for blockading the port of Jolo. The operations conducted by these vessels drove away hordes of pirates from Philippine waters, and, in the course of a decade, terminated that long term of piracy under which the Islands had suffered for three centuries.
Politico-military government of Mindanao and adjacent islands
Affairs in Mindanao had progressed so satisfactorily that Pollok, Kotabato, and Davao were occupied by permanent garrisons, and peace and tranquillity reigned over the Celebes Sea. A politico-military government was then established for all the pacified territory of Mindanao and Basilan, and was designated as the Government of Mindanao. It comprised six districts, the first five of which belonged entirely to the Island of Mindanao. The sixth was called the district of Basilan and was defined as “comprising Basilan and the Spanish possessions in the Archipelago of Sulu.” Sulu was not brought under this organization until 1878, when an additional district was created for this purpose. The form of this government and its chief characteristics are best described in the words of the royal order creating it, which is herein given in full because of many points of interest which are contained in the text and form of the decree, and which can not be well illustrated otherwise:
Superior Civil Government
Office of the Deputy Superintendent of the Philippine Treasury
CIRCULAR
The Minister of War and Colonies communicated to this Superior Civil Government, on the 31st of July of last year, the following Royal order:
Your Excellency: The Queen (whom God protect) has been pleased to issue the following Royal decree: Pursuant to the reasons laid before me by the Minister of War and Colonies, and in accordance with the opinion of the Council of Ministers, I hereby decree the following: