Chapter XIV

Chapter XIVThe Philippine Constabulary and Public OrderDuring the last thirty years of Spanish rule in the Philippines evil-doers were pursued and apprehended and public order was maintained chiefly by theguardia civil. At the time of its organization in 1868 this body had a single division. By 1880 the number had been increased to three, two for Luzón and one for the Visayan Islands.Theguardia civilwas organized upon a military basis, its officers and soldiers being drawn from the regular army of Spain by selection or upon recommendation. Detachments were distributed throughout the provinces and were commanded according to their size by commissioned or non-commissioned officers. Central offices were located in district capitals; company headquarters were stationed in provincial capitals, and detachments were sent to places where they were deemed to be necessary.Under ordinary conditions they rendered service as patrols of two men each, but for the purpose of attacking large bands of outlaws one or several companies were employed as occasion required.Theguardia civilhad jurisdiction over all sorts of violations of laws and municipal ordinances. They made reports upon which were based the appointments of municipal officers, the granting of licenses to carry firearms, and the determination of the loyalty or the disloyalty of individuals.They were vested with extraordinary powers. Offences against them were tried by courts-martial, and were construed as offences against sentinels on duty. Penalties were therefore extremely severe.Officers of theguardia civilon leave could by their own initiative assume a status of duty with the full powers and responsibilities that go with command. This is contrary to American practice, under which only dire emergency justifies an officer in assuming an official status unless he is duly assigned thereto by competent authority.Theguardia civilcould arrest on suspicion, and while the Spanish Government did not directly authorize or sanction the use of force to extort confessions, it was not scrupulous in the matter of accepting confessions so obtained as evidence of crime, nor was it quick to punish members of theguardia civilcharged with mistreatment of prisoners.Reports made by theguardia civilwere not questioned, but were accepted without support even in cases of the killing of prisoners alleged to have attempted to escape, or of men evading arrest.This method of eliminating without trial citizens deemed to be undesirable was applied with especial frequency in the suppression of active brigandage, and latterly during the revolution against Spain. Prisoners in charge of theguardia civilwere always tied elbow to elbow. They knew full well that resistance or flight was an invitation to their guards to kill them, and that this invitation was likely to be promptly accepted.In the investigation of crime the members of this organization arrested persons on suspicion and compelled them to make revelations, true or false. Eye-witnesses to the commission of crime were not needed in the Spanish courts of that day. The confession of an accused person secured his conviction, even though not made in the presence of a judge. Indirect and hearsay evidence were accepted, and such things as writs of habeas corpus and the plea of double jeopardy were unknown in Spanish procedure.Filipino Trained NursesFilipino Trained NursesTheguardia civilcould rearrest individuals and againcharge them with crimes of which they had already been acquitted. I have been assured by reliable Filipino witnesses that it was common during the latter days of Spanish sovereignty for persons who had made themselves obnoxious to the government to be invited by non-commissioned officers to take a walk, which was followed either by their complete disappearance or by the subsequent discovery of their dead bodies.It naturally resulted that the members of theguardia civilwere regarded with detestation and terror by the people, but their power was so absolute that protest rarely became public. The one notable exception was furnished by Dr. Rizal’s book entitled “Noli Me Tangere,” which voiced the complaints of the Filipinos against them. There is not a vestige of doubt that hatred of them was one of the principal causes of the insurrection against Spain.In 1901 the American government organized a rural police force in the Philippines. It was called the Philippine constabulary. The insurrection was then drawing to a close, but there were left in the field many guerilla bands armed and uniformed. Their members sought to excuse their lawless acts under the plea of patriotism and opposition to the forces of the United States. In many provinces they combined with professional bandits or with religious fanatics. Various “popes” arose, like Papa Isio in Negros. The Filipinos had become accustomed to a state of war which had continued for nearly six years. Habits of peace had been abandoned. The once prosperous haciendas were in ruins. War and pestilence had destroyed many of the work animals, and those which remained continued to perish from disease. Asiatic cholera was sweeping through the archipelago, and consternation and disorder followed in its wake.Under such circumstances the organization of a rural police force was imperatively necessary. Unfortunately the most critical situation which it was to be called uponto meet had to be faced at the very outset, when both officers and men were inexperienced and before adequate discipline could be established.The law providing for its establishment was drawn by the Honourable Luke E. Wright, at that time secretary of commerce and police and later destined to become governor-general of the Philippines and secretary of war of the United States.It was intended that the constabulary should accomplish its ends by force when necessary but by sympathetic supervision when possible, suppressing brigandage and turning the people towards habits of peace. The fact was clearly borne in mind that the abuses of theguardia civilhad not been forgotten and the new force was designed to meet existing conditions, to allay as rapidly as possible the existing just rancour against the similar organization established under the Spanish régime, and to avoid the evils which had contributed so much toward causing the downfall of Spanish sovereignty. The law was admirably framed to achieve these ends.The officers of the constabulary were selected chiefly from American volunteers recently mustered out and from honourably discharged soldiers of the United States army. Some few Filipinos, whose loyalty was above suspicion, were appointed to the lower grades. This number has since been materially augumented, and some of the original Filipino appointees have risen to the rank of captain.It was inevitable that at the outset there should be abuses. The organization was necessarily born at work; there was no time to instruct, to formulate regulations, to wait until a satisfactory state of discipline had been brought about. There were not barracks for housing the soldiers; there were neither uniforms, nor arms, nor ammunition. There was no system for rationing the men. All of these things had to be provided, and they were provided through a natural evolution ofpractical processes, crystallizing into form, tested by the duties of the day. The organization which grew up was a true survival of the fittest, both in personnel and in methods. The wonder is not that some abuses occurred, but that they were so few; not that there were occasional evidences of lack of efficiency, but that efficiency was on the whole so high from the beginning.The several provinces were made administrative units, the commanding officer in each being designated as “senior inspector.” The men who were to serve in a given province were by preference recruited there, and a departure was thus made from the usual foreign colonial practice.In 1905 the total force was fixed at one hundred companies with a nominal strength of two officers and fifty men each. Under special conditions this rule may be departed from, and the size of the companies or the number of officers increased.Each province is divided by the senior inspector into sections, and the responsibility for patrol work and general policing rests on the senior company officer in each station. The provinces are grouped into five districts, each commanded by an assistant chief who exercises therein the authority, and performs the duties appropriate to the chief for the entire Philippines. The higher administrative positions have always been filled by detailing regular officers of the United States army.The constabulary soldiers are now neatly uniformed, armed with Krag carbines and well disciplined. They show the effect of good and regular food and of systematic exercise, their physical condition being vastly superior to that of the average Filipino. They are given regular instruction in their military duties. It is conducted in English.The Philippine constabulary may be defined as a body of armed men with a military organization, recruited from among the people of the islands, officered in partby Americans and in part by Filipinos, and employed primarily for police duty in connection with the establishment and maintenance of public order.Blount’s chapters on the administrations of Taft, Wright and Smith embody one prolonged plaint to the effect that the organization of the constabulary was premature, and that after the war proper ended, the last smouldering embers of armed and organized insurrection should have been stamped out, and the brigandage which had existed in the Philippines for centuries should have been dealt with, by the United States army rather than by the constabulary.Even if it were true that the army could have rendered more effective service to this end than could have been expected at the outset from a newly organized body of Filipino soldiers, the argument against the organization and use of the constabulary would in my opinion have been by no means conclusive. It is our declared policy to prepare the Filipinos to establish and maintain a stable government of their own. The proper exercise of police powers is obviously necessary to such an end.From the outset we have sacrificed efficiency in order that our wards might gain practical experience, and might demonstrate their ability, or lack of ability, to perform necessary governmental functions. Does any one cognizant of the situation doubt for a moment that provincial and municipal affairs in the Philippine Islands would to-day be more efficiently administered if provincial and municipal officers were appointed instead of being elected? Is any one so foolish as to imagine that the sanitary regeneration of the islands would not have progressed much more rapidly had highly trained American health officers been used in place of many of the badly educated and comparatively inexperienced Filipino physicians whose services have been utilized?Nevertheless, in the concrete case under discussion I dissent from the claim that more satisfactory resultscould have been obtained by the use of American troops.The army had long been supreme in the Philippines. Every function of government had been performed by its officers and men, if performed at all. Our troops had been combating an elusive and cruel enemy. If they were human it is to be presumed that they still harbored animosities, born of these conditions, toward the people with whom they had so recently been fighting. Had the work of pacification been then turned over to them it would have meant that often in the localities in which they had been fighting, and in dealing with the men to whom they had very recently been actively opposed in armed conflict, they would have been called upon to perform tasks and to entertain feelings radically different from those of the preceding two or three years.A detachment, marching through Leyte, found an American who had disappeared a short time before crucified, head down. His abdominal wall had been carefully opened so that his intestines might hang down in his face.Another American prisoner, found on the same trip, had been buried in the ground with only his head projecting. His mouth had been propped open with a stick, a trail of sugar laid to it through the forest, and a handful thrown into it.Millions of ants had done the rest.Officers and men who saw such things were thereby fitted for war, rather than for ordinary police duty.The truth is that they had seen so many of them that they continued to see them in imagination when they no longer existed. I well remember when a general officer, directed by his superior to attend a banquet at Manila in which Americans and Filipinos joined, came to it wearing a big revolver!Long after Manila was quiet I was obliged to get out of my carriage in the rain and darkness half a dozentimes while driving the length of Calle Real, and “approach to be recognized” by raw “rookies,” each of whom pointed a loaded rifle at me while I did it. I know that this did not tend to make me feel peaceable or happy. In my opinion it was wholly unnecessary, and yet I did not blame the army for thinking otherwise.After the war was over, when my private secretary, Mr. James H. LeRoy, was one day approaching Malolos, he was sternly commanded by a sentry to halt, the command being emphasized as usual by presenting to his attention a most unattractive view down the muzzle of a Krag. He was next ordered to “salute the flag,” which he finally discovered with difficulty in the distance, after being told where to look. The army way is right and necessary in war, but it makes a lot of bother in time of peace!This was not the only reason for failing to make more extensive use of American soldiers in police duty. A veteran colonel of United States cavalry who had just read Judge Blount’s book was asked what he thought of the claim therein made that the army should have done the police and pacification work of the Philippines. His reply was:—“How long would it take a regiment of Filipinos to catch an American outlaw in the United States? Impossible!”Another army officer said:—“Catching Filipino outlaws with the Army is like catching a flea in a twenty-acre field with a traction engine.”There is perhaps nothing so demoralizing to regular troops as employment on police duty which requires them to work singly or in small squads. Discipline speedily goes to the dogs and instruction becomes impossible.A School Athletic TeamA School Athletic TeamCalisthenic exercises taught in the public schools are converting puny youths into vigorous athletes.Successful prosecution of the work of chasingladronesin the Philippines requires a thorough knowledge of local topography and of local native dialects. Spanish is of use, but only in dealing with educated Filipinos. Aknowledge of the Filipino himself; of his habits of thought; of his attitude toward the white man; and toward theillustrado, or educated man, of his own race; ability to enter a town and speedily to determine the relative importance of its leading citizens, finally centring on the one man, always to be found, who runs it, whether he holds political office or not, and also to enlist the sympathy and coöperation of its people; all of these things are essential to the successful handling of brigandage in the Philippines, whether such brigandage has, or lacks, political significance.The following parallel will make clear some of the reasons why it was determined to use constabulary instead of American soldiers in policing the Philippines from the time the insurrection officially ended:—United States ArmyPhilippine ConstabularySoldier costs per annum $1400. (Authority: Adjutant General Heistand in 1910.)Soldier costs per annum $363.50.American soldiers come from America.Constabulary soldiers are enlisted in the province where they are to serve.Few American soldiers speak the local dialects.All constabulary soldiers speak local dialects.Few American soldiers speak any Spanish.All educated constabulary soldiers speak Spanish.American soldiers usually have but a slight knowledge of local geography and topography.Constabulary soldiers, native to the country, know the geography and topography of their respective provinces.Few American soldiers have had enough contact with Filipinos to understand them.The Filipino soldier certainly knows his own kind better than the American does.The American soldier uses a ration of certain fixed components imported over sea. (A ration is the day’s allowance of food for one soldier.)The constabulary soldier is rationed in cash and buys the food of the country where he happens to be.The American ration costs 24.3 cents United States currency (exclusive of cost of transportation and handling). Fresh meat requiring ice to keep it is a principal part of the American ration. To supply it requires a regular system of transport from the United States to Manila and from thence to local ports, and wagon transportation from ports to inland stations.The constabulary cash ration is 10.5 cents United States currency. (No freight or handling charges.) The constabulary soldier knows not ice. His food grows in the islands. He buys it on the ground and needs no transportation to bring it to him.The American soldier is at no pains to enlist the sympathy and coöperation of the people; and his methods of discipline habits of life, etc., make it practically impossible for him to gain them.The idea of enlisting the sympathy and coöperation of the local population is the strongest tenet in the constabulary creed.Before preparing the foregoing statement relative to the reasons for using Philippine constabulary soldiers instead of soldiers of the United States army for police work during the period in question, I asked Colonel J. G. Harbord, assistant director of the constabulary, who has served with that body nine years, has been its acting director and is an officer of the United States army, to give me a memorandum on the subject. It is only fair to him to say that I have not only followed very closely the line of argument embodied in the memorandum which he was good enough to prepare for me, but have in many instances used his very words. The parallel columns are his.The constabulary soldier, thoroughly familiar with the topography of the country in which he operates; speaking the local dialect and acquainted with the persons most likely to be able and willing to furnish accurate information; familiar with the characteristics of his own people; able to live off the country and keep well, is under all ordinary circumstances a more efficient and vastly less expensive police officer than the American soldier, no matter how brave and energetic the latter may be. Furthermore, his activities are much less likely to arouse animosity.Incidentally, the army is pretty consistently unwilling to take the field unless the constitutional guarantees are temporarily suspended, and it particularly objects to writs of habeas corpus. The suspension of such guarantees is obviously undesirable unless really very necessary.Let us now consider some of the specific instances of alleged inefficiency of the constabulary in suppressing public disorder, cited by Blount.On page 403 of his book he says, speaking of Governor Taft and disorder in the province of Albay which arose in 1902–1903:—“He did not want to order out the military again if he could help it, and this relegated him to his native municipal police and constabulary, experimental outfits of doubtful loyalty, and, at best, wholly inadequate, as it afterwards turned out, for the maintenance of public order and for affording to the peaceably inclined people that sort of security for life and property, and that protection against semi-political as well as unmitigated brigandage, which would comport with the dignity of this nation.”The facts as to these disorders are briefly as follows:—In 1902 an outlaw in Tayabas Province who made his living by organizing political conspiracies and collecting contributions in the name of patriotism, who was known as José Roldan when operating in adjoining provinces, but had an alias in Tayabas, found his life madeso uncomfortable by the constabulary of that province that he transferred his operations to Albay. There he affiliated himself with a few ex-Insurgent officers who had turned outlaws instead of surrendering, and with oath violators, and began the same kind of political operations which he had carried out in Tayabas, the principal feature of his work being the collection of “contributions.”The troubles in Albay were encouraged by wealthy Filipinos who saw in them a probable opportunity to acquire valuable hemp lands at bottom prices, for people dependent on their hemp fields, if prevented from working them, might in the end be forced to sell them. Roldan soon lost standing with his new organization because it was found that he was using for his personal benefit the money which he collected.About this time one Simeon Ola joined his organization. Ola was a native of Albay, where he had been an Insurgent major under the command of the Tagálog general, Belarmino. His temporary rank had gone to his head, and he is reported to have shown considerable severity and hauteur in his treatment of his former neighbours in Guinobatan, to which place he had returned at the close of the insurrection. Meanwhile, a wealthy Chinesemestizonamed Don Circilio Jaucian, on whom Ola, during his brief career as an Insurgent officer, had laid a heavy hand, had becomepresidenteof the town.Smarting under the indignities which he had suffered, Jaucian made it very uncomfortable for the former major, and in ways well understood in Malay countries brought it home to the latter that their positions had been reversed. Ola’s house was mysteriously burned, and his life in Guinobatan was made so unbearable that he took to the hills.Ola had held higher military rank than had any of his outlaw associates, and he became their dominating spirit. He had no grievance against the Americans, buttook every opportunity to avenge himself on thecaciquesof Guinobatan, his native town.Three assistant chiefs of constabulary, Garwood, Baker and Bandholtz, were successively sent to Albay to deal with this situation. Baker and Bandholtz were regular army officers. The latter ended the disturbances, employing first and last some twelve companies of Philippine scouts, armed, officered, paid, equipped and disciplined as are the regular soldiers of the United States army, and a similar number of constabulary soldiers. Eleven stations in the restricted field of operations of this outlaw were occupied by scouts. There were few armed conflicts in force between Ola’s men and these troops. In fact, it was only with the greatest difficulty that this band, which from time to time dissolved into the population only to reappear again, could be located even by the native soldiers. It would have been impracticable successfully to use American troops for such work.Referring to the statement made by Blount1that Vice-Governor Wright made a visit to Albay in 1903 in the interest “of the peace-at-any-price policy that the Manila Government was bent on,” and the implication that he went there to conduct peace negotiations, General Bandholtz, who suppressed outlawry in Albay, has said that Vice-Governor Wright and Commissioner Pardo de Tavera came there at his request to look into conditions with reference to certain allegations which had been made.Colonel Bandholtz and the then chief of constabulary, General Allen, were supported by the civil governor and the commission in their recommendations that no terms should be made with the outlaws. The following statement occurs in a letter from General Bandholtz dated September 21, 1903:—“No one is more anxious to terminate this business than I am, nevertheless I think it would be a mistake to offer anysuch inducements, and that more lasting benefits would result by hammering away as we have been doing.”And General Allen said in an indorsement to the Philippine Commission:—“... in my opinion the judgment of Colonel Bandholtz in matters connected with the pacification of Albay should receive favourable consideration. Halfway measures are always misinterpreted and used to the detriment of the Government among the ignorant followers of the outlaws.”These views prevailed.Blount has claimed that the death rate in the Albay jail at this time was very excessive, and cites it as an instance of the result of American maladministration.Assuming that his tabulation2of the dead who died in the Albay jail between May 30 and September, 1903, amounting to 120, is correct, the following statements should be made:—Only recently has it been demonstrated that beri-beri is due to the use of polished rice, which was up to the time of this discovery regarded as far superior to unpolished rice as an article of food, and is still much better liked by the Filipinos than is the unpolished article. Many of these deaths were from beri-beri, and were due to a misguided effort to give the prisoners the best possible food.Cholera was raging in the province of Albay throughout the period in question, and the people outside of the jail suffered no less than did those within it. The same is true of malarial infection. In other words, conditions inside the jail were quite similar to those then prevailing outside, except that the prisoners got polished rice which was given them with the best intentions in the world, and was by them considered a superior article of food.With the present knowledge of the methods of dissemination of Asiatic cholera gained as a result of theAmerican occupation of the Philippines, we should probably be able to exclude it from a jail under such circumstances, as the part played by “germ carriers” who show no outward manifestations of infection is now understood, but it was not then dreamed of. One of the greatest reforms effected by Americans in the Philippines is the sanitation of the jails and penitentiaries, and we cannot be fairly blamed for not knowing in 1903 what nobody then knew.The troubles in Albay ended with the surrender of Ola on September 25, 1903. Blount gives the impression that he had a knowledge of them which was gained by personal observation. He arrived in the province in the middle of November, seven weeks after normal conditions had been reëstablished.On October 5, 1903, General Bandholtz telegraphed with reference to the final surrender of Ola’s band:—“The towns are splitting themselves wide open celebrating pacification and Ramon Santos (later elected governor) is going to give a record-breaking fiesta at Ligao. Everybody invited. Scouts and Constabulary have done superb work.”Blount makes much of disorders in Samar and Leyte. Let us consider the facts.In all countries feuds between highlanders and lowlanders have been common. Although the inhabitants of the hills and those of the lowlands in the two islands under discussion are probably of identical blood and origin, they long since became separated in thought and feeling, and grew to be mutually antagonistic. The ignorant people of the interior have always been oppressed by their supposedly more highly civilized brethren living on or near the coast.The killing of Otoy by the constabulary in 1911 marked the passing of the last of a series of mountain chiefs who had exercised a very powerful influence over the hill people and had claimed for themselves supernatural powers.Manila hemp is the principal product upon which these mountaineers depend in bartering for cloth and other supplies. The cleaning of hemp involves very severe exertion, and when it is cleaned it must usually, in Samar, be carried to the seashore on the backs of the men who raise it. Under the most favourable circumstances, it may be transported thither in smallbancas3down the streams.The lowland people of Samar and Leyte had long been holding up the hill people when they brought in their hemp for sale in precisely the way that Filipinos in other islands are accustomed to hold up members of the non-Christian tribes. They played the part of middlemen, purchasing the hemp of the ignorant hill people at low prices and often reselling it, without giving it even a day’s storage, at a very much higher figure. This system was carried so far that conditions became unbearable and finally resulted in so-calledpulájanismwhich began in the year 1904.The termpulájanis derived from a native word meaning “red” and was given to the mountain people because in their attacks upon the lowlanders they wore, as a distinguishing mark, red trousers or a dash of red colour elsewhere about their sparse clothing. They raided coast towns and did immense damage before they were finally brought under control. It should be remembered that these conditions were allowed to arise by a Filipino provincial governor, and by Filipino municipal officials. It is altogether probable that a good American governor would have prevented them, but as it was, neither their cause nor their importance were understood at the outset. Thepulájanmovement was directed primarily against Filipinos.The first outbreak occurred on July 10, 1904, in the Gandara River valley where a settlement of the lowlanders was burned and some of its inhabitants were killed.Eventually disorder spread to many places on the coast, and one scout garrison of a single company was surprised and overwhelmed by superior numbers. Officers and men were massacred and their rifles taken.Filipina Girls playing Basket-ballFilipina Girls playing Basket-ballIn point of area Samar is the third island in the Philippines. In its interior are many rugged peaks and heavily forested mountains. It was here that a detachment of United States marines under the command of Major Waller, while attempting to cross the island, were lost for nearly two weeks, going without food for days and enduring terrible hardships.At the time in question there were not five miles of road on the island passable for a vehicle, nor were there trails through the mountains over which horses could be ridden. The only interior lines of communication were a few footpaths over which the natives were accustomed to make their way from the mountains to the coast.Troops have perhaps never attempted a campaign in a country more difficult than the interior of Samar. The traditional needle in the haystack would be easy to find compared with an outlaw, or band of outlaws, in such a rugged wilderness.Upon the outbreak of trouble troops were hurried to Samar, and by December, 1904, according to Blount himself, there were some 1800 native soldiers on the island who were left free for active operations in the field by the garrisoning of various coast towns with sixteen companies of United States infantry.If the nature of the feuds between the Samar lowlanders and highlanders had then been better understood, the ensuing troubles, which were more or less continuous for nearly two years, might perhaps have been avoided. As soon as it became evident that the situation was such as to demand the use of the army it was employed to supplement the operations of the constabulary.About the time that trouble ended in Samar it began in Leyte. There was no real connection between thedisorders in the two islands. No leader on either island is known to have communicated with any leader on the other; no fanatical follower ever left Samar for Leyte or Leyte for Samar so far as we are informed.For convenience of administration the two islands were grouped in a single command after the army was requested to take over the handling of the disturbances there, in coöperation with the constabulary. The trouble ended in 1907 and both islands have remained quiet ever since. The same causes would again produce the same results now or at any time in the future, and they would be then, as in the past, the outcome of the oppression of the weak by the strong and without other political significance. Under a good government they should never recur.Many circumstances which did not exist in 1902 and 1904 made it feasible to use the army in Samar and Leyte during 1905 and 1906. The high officers who had exercised such sweeping powers during the insurrection had meanwhile given way to other commanders. Indeed, a practically new Philippine army had come into existence. The policy of the insular government as to the treatment of individual Filipinos had been recognized and indorsed by Americans generally, but many of the objections to the use of the troops, including the heavy expense involved, still existed and I affirm without fear of successful contradiction that had it been possible to place in Samar and Leyte a number of constabulary soldiers equal to that of the scouts and American troops actually employed, disorder would have been terminated much more quickly and at very greatly less cost.With the final breaking up of organized brigandage in 1905 law and order may be said to have been established throughout the islands. It has since been the business of the constabulary to maintain it. The value of the coöperation of the law-abiding portion of the population has been fully recognized. The newly appointed constabulary officer has impressed upon him the necessity ofmanifesting an interest in the people with whom he comes in contact; of cultivating the acquaintance of Filipinos of all social grades, and of assisting to settle their disagreements and harmonize their differences whenever possible. He is taught a native dialect.The constabulary have to a high degree merited and secured the confidence and good-will of the people, whose rights they respect. There is a complete absence of the old arbitrary procedure followed by theguardia civiland as a result there are frequent requests from Filipino officials for additional detachments, while the removal of a company from a given community is almost invariably followed by vigorous protests. The power of human sympathy is very great, and as the attitude of constabulary officers and men is usually one of sympathy, conciliation and affection, that body has earned and deserved popularity.The success of the constabulary in apprehending criminals has been both praiseworthy and noteworthy. The courage and efficiency which have often been displayed by its officers and men in hard-fought engagements with Moro outlaws or with organized bands of thieves and brigands have been beyond praise. Many of its officers have rendered invaluable service in bringing the people of the more unruly non-Christian tribes under governmental control, not only bravely and efficiently performing their duty as police officers, but assisting in trail construction or discharging, in effect, the duties of lieutenant-governors in very remote places which could be visited by the actual lieutenant-governors only infrequently. I later take occasion to mention the valuable work done by Lieutenant Case in the early days of Ifugao, and to dwell at length on the splendid service rendered there by Lieutenant Jeff D. Gallman, who was for many years lieutenant-governor of the subprovince while continuing to serve as a constabulary officer. Lieutenant Maimban at Quiangan, and Lieutenant Dosser at Mayoyao,have been and are most useful, though they do not hold official positions under the Mountain Province or receive any additional compensation for the special services which they render. Captain Guy O. Fort served most acceptably as governor of the province of Agusan during the interim between the resignation of Governor Lewis and the appointment of Governor Bryant and Lieutenants Atkins and Zapanta have also rendered valuable service as assistants to the provincial governor. Lieutenant Turnbull is now assistant to the governor of Nueva Vizcaya for work among the Ilongots on the Pacific coast of northern Luzón. Other constabulary officers, who have not been called upon for special service of this kind, have performed their ordinary duties in such a way as to demonstrate that they were actuated by the spirit of coöperation and have been of great help.But the work of the constabulary has not been confined to police duty. They have been of the greatest assistance to the Director of Health in effectively maintaining quarantine, and making possible the isolation of victims of dangerous communicable diseases like cholera and smallpox, when inefficient municipal policemen have utterly failed to do their duty. They have given similar assistance to the Director of Agriculture in the maintenance of quarantine in connection with efforts to combat diseases of domestic animals. In great emergencies such as those presented by the recent eruption of Taal volcano, and the devastation caused by great typhoons, they have been quick to respond to the call of duty and have rendered efficient and heroic service. They assist internal revenue officers. Except in a few of the largest cities they are the firemen of the islands and by their effective work have repeatedly checked conflagrations, which are of frequent occurrence and tend to be very destructive in this country, where most of the houses are built of bamboo and nipa palm, and where roofs become dry as tinder during the long periodwhen there is little or no rain. They have aided in combating pests of locusts, and, in short, have been ready to meet almost any kind of an emergency which has arisen.The importance of having such a body of alert, industrious, disciplined, efficient men inspired by a high sense of duty, and physically so well developed that they can continue to perform that duty in the face of long-continued privations and hardships, is beyond dispute. The results which have been obtained by the Philippine constabulary have abundantly justified the policy which led to its organization.Its task has been no sinecure. Eleven officers and one hundred ninety-seven enlisted men have been killed in action. Forty-eight officers and nine hundred ninety-one men have died of disease. Forty-six officers have been wounded in action. Seven hundred sixty-eight men have been discharged for disability. Seven thousand four hundred twenty-four firearms and 45,018 rounds of ammunition have been captured by, or surrendered to, the constabulary. Four thousand eight hundred sixty-two outlaws have been killed and 11,977 taken prisoners. Twelve thousand two hundred sixty-two stolen animals have been recovered.There are many things which are not brought home to the reader by such statistics. The weary days and nights on tropical trails; the weakness and pain of dysentery; the freezing and the burning of pernicious malaria; the heavy weight of responsibility when one must act, in matters of life and death, with no superior to consult; the disappointment when carefully laid plans go wrong; the discouragement caused by indifference; the danger of infection with loathsome diseases; ingratitude; deadly peril; aching wounds; sudden death, and, worse yet, death after suffering long drawn out, when one meets one’s end knowing that it is coming and that one’s family will be left without means or resources,—these are someof the things that the officers and men of this gallant corps have faced unflinchingly.The work of the constabulary and of the Philippine scouts has conclusively demonstrated the courage and efficiency of the Filipino as a soldier when well disciplined and well led.The establishment and maintenance of order in the Philippines have afforded opportunity for some of the bravest deeds in the annals of any race, and the opportunity has been nobly met. The head-hunters of the Mountain Province, the Mohammedan Moros of Mindanao, Joló and Palawan, the bloodypulájanesof Samar and Leyte, the wilytulisanesof Luzón, all unrestrained by any regard for the rules of civilized warfare, have for twelve years matched their fanatical bravery against the gallantry of the khaki-clad Filipino soldiers. Time and again a single officer and a handful of men have taken chances that in almost any other land would have won them the Victoria cross, the legion of honor, or some similar decoration. Here their only reward has been the sense of duty well done.The force known as the Philippine constabulary was organized for the purpose of establishing and maintaining order. It has established and is maintaining a condition of order never before equalled or approached in the history of the islands. The policy which led to its organization has been a thousand times justified.1Blount, p. 425.2Blount, p.430.3Native dugouts.

Chapter XIVThe Philippine Constabulary and Public OrderDuring the last thirty years of Spanish rule in the Philippines evil-doers were pursued and apprehended and public order was maintained chiefly by theguardia civil. At the time of its organization in 1868 this body had a single division. By 1880 the number had been increased to three, two for Luzón and one for the Visayan Islands.Theguardia civilwas organized upon a military basis, its officers and soldiers being drawn from the regular army of Spain by selection or upon recommendation. Detachments were distributed throughout the provinces and were commanded according to their size by commissioned or non-commissioned officers. Central offices were located in district capitals; company headquarters were stationed in provincial capitals, and detachments were sent to places where they were deemed to be necessary.Under ordinary conditions they rendered service as patrols of two men each, but for the purpose of attacking large bands of outlaws one or several companies were employed as occasion required.Theguardia civilhad jurisdiction over all sorts of violations of laws and municipal ordinances. They made reports upon which were based the appointments of municipal officers, the granting of licenses to carry firearms, and the determination of the loyalty or the disloyalty of individuals.They were vested with extraordinary powers. Offences against them were tried by courts-martial, and were construed as offences against sentinels on duty. Penalties were therefore extremely severe.Officers of theguardia civilon leave could by their own initiative assume a status of duty with the full powers and responsibilities that go with command. This is contrary to American practice, under which only dire emergency justifies an officer in assuming an official status unless he is duly assigned thereto by competent authority.Theguardia civilcould arrest on suspicion, and while the Spanish Government did not directly authorize or sanction the use of force to extort confessions, it was not scrupulous in the matter of accepting confessions so obtained as evidence of crime, nor was it quick to punish members of theguardia civilcharged with mistreatment of prisoners.Reports made by theguardia civilwere not questioned, but were accepted without support even in cases of the killing of prisoners alleged to have attempted to escape, or of men evading arrest.This method of eliminating without trial citizens deemed to be undesirable was applied with especial frequency in the suppression of active brigandage, and latterly during the revolution against Spain. Prisoners in charge of theguardia civilwere always tied elbow to elbow. They knew full well that resistance or flight was an invitation to their guards to kill them, and that this invitation was likely to be promptly accepted.In the investigation of crime the members of this organization arrested persons on suspicion and compelled them to make revelations, true or false. Eye-witnesses to the commission of crime were not needed in the Spanish courts of that day. The confession of an accused person secured his conviction, even though not made in the presence of a judge. Indirect and hearsay evidence were accepted, and such things as writs of habeas corpus and the plea of double jeopardy were unknown in Spanish procedure.Filipino Trained NursesFilipino Trained NursesTheguardia civilcould rearrest individuals and againcharge them with crimes of which they had already been acquitted. I have been assured by reliable Filipino witnesses that it was common during the latter days of Spanish sovereignty for persons who had made themselves obnoxious to the government to be invited by non-commissioned officers to take a walk, which was followed either by their complete disappearance or by the subsequent discovery of their dead bodies.It naturally resulted that the members of theguardia civilwere regarded with detestation and terror by the people, but their power was so absolute that protest rarely became public. The one notable exception was furnished by Dr. Rizal’s book entitled “Noli Me Tangere,” which voiced the complaints of the Filipinos against them. There is not a vestige of doubt that hatred of them was one of the principal causes of the insurrection against Spain.In 1901 the American government organized a rural police force in the Philippines. It was called the Philippine constabulary. The insurrection was then drawing to a close, but there were left in the field many guerilla bands armed and uniformed. Their members sought to excuse their lawless acts under the plea of patriotism and opposition to the forces of the United States. In many provinces they combined with professional bandits or with religious fanatics. Various “popes” arose, like Papa Isio in Negros. The Filipinos had become accustomed to a state of war which had continued for nearly six years. Habits of peace had been abandoned. The once prosperous haciendas were in ruins. War and pestilence had destroyed many of the work animals, and those which remained continued to perish from disease. Asiatic cholera was sweeping through the archipelago, and consternation and disorder followed in its wake.Under such circumstances the organization of a rural police force was imperatively necessary. Unfortunately the most critical situation which it was to be called uponto meet had to be faced at the very outset, when both officers and men were inexperienced and before adequate discipline could be established.The law providing for its establishment was drawn by the Honourable Luke E. Wright, at that time secretary of commerce and police and later destined to become governor-general of the Philippines and secretary of war of the United States.It was intended that the constabulary should accomplish its ends by force when necessary but by sympathetic supervision when possible, suppressing brigandage and turning the people towards habits of peace. The fact was clearly borne in mind that the abuses of theguardia civilhad not been forgotten and the new force was designed to meet existing conditions, to allay as rapidly as possible the existing just rancour against the similar organization established under the Spanish régime, and to avoid the evils which had contributed so much toward causing the downfall of Spanish sovereignty. The law was admirably framed to achieve these ends.The officers of the constabulary were selected chiefly from American volunteers recently mustered out and from honourably discharged soldiers of the United States army. Some few Filipinos, whose loyalty was above suspicion, were appointed to the lower grades. This number has since been materially augumented, and some of the original Filipino appointees have risen to the rank of captain.It was inevitable that at the outset there should be abuses. The organization was necessarily born at work; there was no time to instruct, to formulate regulations, to wait until a satisfactory state of discipline had been brought about. There were not barracks for housing the soldiers; there were neither uniforms, nor arms, nor ammunition. There was no system for rationing the men. All of these things had to be provided, and they were provided through a natural evolution ofpractical processes, crystallizing into form, tested by the duties of the day. The organization which grew up was a true survival of the fittest, both in personnel and in methods. The wonder is not that some abuses occurred, but that they were so few; not that there were occasional evidences of lack of efficiency, but that efficiency was on the whole so high from the beginning.The several provinces were made administrative units, the commanding officer in each being designated as “senior inspector.” The men who were to serve in a given province were by preference recruited there, and a departure was thus made from the usual foreign colonial practice.In 1905 the total force was fixed at one hundred companies with a nominal strength of two officers and fifty men each. Under special conditions this rule may be departed from, and the size of the companies or the number of officers increased.Each province is divided by the senior inspector into sections, and the responsibility for patrol work and general policing rests on the senior company officer in each station. The provinces are grouped into five districts, each commanded by an assistant chief who exercises therein the authority, and performs the duties appropriate to the chief for the entire Philippines. The higher administrative positions have always been filled by detailing regular officers of the United States army.The constabulary soldiers are now neatly uniformed, armed with Krag carbines and well disciplined. They show the effect of good and regular food and of systematic exercise, their physical condition being vastly superior to that of the average Filipino. They are given regular instruction in their military duties. It is conducted in English.The Philippine constabulary may be defined as a body of armed men with a military organization, recruited from among the people of the islands, officered in partby Americans and in part by Filipinos, and employed primarily for police duty in connection with the establishment and maintenance of public order.Blount’s chapters on the administrations of Taft, Wright and Smith embody one prolonged plaint to the effect that the organization of the constabulary was premature, and that after the war proper ended, the last smouldering embers of armed and organized insurrection should have been stamped out, and the brigandage which had existed in the Philippines for centuries should have been dealt with, by the United States army rather than by the constabulary.Even if it were true that the army could have rendered more effective service to this end than could have been expected at the outset from a newly organized body of Filipino soldiers, the argument against the organization and use of the constabulary would in my opinion have been by no means conclusive. It is our declared policy to prepare the Filipinos to establish and maintain a stable government of their own. The proper exercise of police powers is obviously necessary to such an end.From the outset we have sacrificed efficiency in order that our wards might gain practical experience, and might demonstrate their ability, or lack of ability, to perform necessary governmental functions. Does any one cognizant of the situation doubt for a moment that provincial and municipal affairs in the Philippine Islands would to-day be more efficiently administered if provincial and municipal officers were appointed instead of being elected? Is any one so foolish as to imagine that the sanitary regeneration of the islands would not have progressed much more rapidly had highly trained American health officers been used in place of many of the badly educated and comparatively inexperienced Filipino physicians whose services have been utilized?Nevertheless, in the concrete case under discussion I dissent from the claim that more satisfactory resultscould have been obtained by the use of American troops.The army had long been supreme in the Philippines. Every function of government had been performed by its officers and men, if performed at all. Our troops had been combating an elusive and cruel enemy. If they were human it is to be presumed that they still harbored animosities, born of these conditions, toward the people with whom they had so recently been fighting. Had the work of pacification been then turned over to them it would have meant that often in the localities in which they had been fighting, and in dealing with the men to whom they had very recently been actively opposed in armed conflict, they would have been called upon to perform tasks and to entertain feelings radically different from those of the preceding two or three years.A detachment, marching through Leyte, found an American who had disappeared a short time before crucified, head down. His abdominal wall had been carefully opened so that his intestines might hang down in his face.Another American prisoner, found on the same trip, had been buried in the ground with only his head projecting. His mouth had been propped open with a stick, a trail of sugar laid to it through the forest, and a handful thrown into it.Millions of ants had done the rest.Officers and men who saw such things were thereby fitted for war, rather than for ordinary police duty.The truth is that they had seen so many of them that they continued to see them in imagination when they no longer existed. I well remember when a general officer, directed by his superior to attend a banquet at Manila in which Americans and Filipinos joined, came to it wearing a big revolver!Long after Manila was quiet I was obliged to get out of my carriage in the rain and darkness half a dozentimes while driving the length of Calle Real, and “approach to be recognized” by raw “rookies,” each of whom pointed a loaded rifle at me while I did it. I know that this did not tend to make me feel peaceable or happy. In my opinion it was wholly unnecessary, and yet I did not blame the army for thinking otherwise.After the war was over, when my private secretary, Mr. James H. LeRoy, was one day approaching Malolos, he was sternly commanded by a sentry to halt, the command being emphasized as usual by presenting to his attention a most unattractive view down the muzzle of a Krag. He was next ordered to “salute the flag,” which he finally discovered with difficulty in the distance, after being told where to look. The army way is right and necessary in war, but it makes a lot of bother in time of peace!This was not the only reason for failing to make more extensive use of American soldiers in police duty. A veteran colonel of United States cavalry who had just read Judge Blount’s book was asked what he thought of the claim therein made that the army should have done the police and pacification work of the Philippines. His reply was:—“How long would it take a regiment of Filipinos to catch an American outlaw in the United States? Impossible!”Another army officer said:—“Catching Filipino outlaws with the Army is like catching a flea in a twenty-acre field with a traction engine.”There is perhaps nothing so demoralizing to regular troops as employment on police duty which requires them to work singly or in small squads. Discipline speedily goes to the dogs and instruction becomes impossible.A School Athletic TeamA School Athletic TeamCalisthenic exercises taught in the public schools are converting puny youths into vigorous athletes.Successful prosecution of the work of chasingladronesin the Philippines requires a thorough knowledge of local topography and of local native dialects. Spanish is of use, but only in dealing with educated Filipinos. Aknowledge of the Filipino himself; of his habits of thought; of his attitude toward the white man; and toward theillustrado, or educated man, of his own race; ability to enter a town and speedily to determine the relative importance of its leading citizens, finally centring on the one man, always to be found, who runs it, whether he holds political office or not, and also to enlist the sympathy and coöperation of its people; all of these things are essential to the successful handling of brigandage in the Philippines, whether such brigandage has, or lacks, political significance.The following parallel will make clear some of the reasons why it was determined to use constabulary instead of American soldiers in policing the Philippines from the time the insurrection officially ended:—United States ArmyPhilippine ConstabularySoldier costs per annum $1400. (Authority: Adjutant General Heistand in 1910.)Soldier costs per annum $363.50.American soldiers come from America.Constabulary soldiers are enlisted in the province where they are to serve.Few American soldiers speak the local dialects.All constabulary soldiers speak local dialects.Few American soldiers speak any Spanish.All educated constabulary soldiers speak Spanish.American soldiers usually have but a slight knowledge of local geography and topography.Constabulary soldiers, native to the country, know the geography and topography of their respective provinces.Few American soldiers have had enough contact with Filipinos to understand them.The Filipino soldier certainly knows his own kind better than the American does.The American soldier uses a ration of certain fixed components imported over sea. (A ration is the day’s allowance of food for one soldier.)The constabulary soldier is rationed in cash and buys the food of the country where he happens to be.The American ration costs 24.3 cents United States currency (exclusive of cost of transportation and handling). Fresh meat requiring ice to keep it is a principal part of the American ration. To supply it requires a regular system of transport from the United States to Manila and from thence to local ports, and wagon transportation from ports to inland stations.The constabulary cash ration is 10.5 cents United States currency. (No freight or handling charges.) The constabulary soldier knows not ice. His food grows in the islands. He buys it on the ground and needs no transportation to bring it to him.The American soldier is at no pains to enlist the sympathy and coöperation of the people; and his methods of discipline habits of life, etc., make it practically impossible for him to gain them.The idea of enlisting the sympathy and coöperation of the local population is the strongest tenet in the constabulary creed.Before preparing the foregoing statement relative to the reasons for using Philippine constabulary soldiers instead of soldiers of the United States army for police work during the period in question, I asked Colonel J. G. Harbord, assistant director of the constabulary, who has served with that body nine years, has been its acting director and is an officer of the United States army, to give me a memorandum on the subject. It is only fair to him to say that I have not only followed very closely the line of argument embodied in the memorandum which he was good enough to prepare for me, but have in many instances used his very words. The parallel columns are his.The constabulary soldier, thoroughly familiar with the topography of the country in which he operates; speaking the local dialect and acquainted with the persons most likely to be able and willing to furnish accurate information; familiar with the characteristics of his own people; able to live off the country and keep well, is under all ordinary circumstances a more efficient and vastly less expensive police officer than the American soldier, no matter how brave and energetic the latter may be. Furthermore, his activities are much less likely to arouse animosity.Incidentally, the army is pretty consistently unwilling to take the field unless the constitutional guarantees are temporarily suspended, and it particularly objects to writs of habeas corpus. The suspension of such guarantees is obviously undesirable unless really very necessary.Let us now consider some of the specific instances of alleged inefficiency of the constabulary in suppressing public disorder, cited by Blount.On page 403 of his book he says, speaking of Governor Taft and disorder in the province of Albay which arose in 1902–1903:—“He did not want to order out the military again if he could help it, and this relegated him to his native municipal police and constabulary, experimental outfits of doubtful loyalty, and, at best, wholly inadequate, as it afterwards turned out, for the maintenance of public order and for affording to the peaceably inclined people that sort of security for life and property, and that protection against semi-political as well as unmitigated brigandage, which would comport with the dignity of this nation.”The facts as to these disorders are briefly as follows:—In 1902 an outlaw in Tayabas Province who made his living by organizing political conspiracies and collecting contributions in the name of patriotism, who was known as José Roldan when operating in adjoining provinces, but had an alias in Tayabas, found his life madeso uncomfortable by the constabulary of that province that he transferred his operations to Albay. There he affiliated himself with a few ex-Insurgent officers who had turned outlaws instead of surrendering, and with oath violators, and began the same kind of political operations which he had carried out in Tayabas, the principal feature of his work being the collection of “contributions.”The troubles in Albay were encouraged by wealthy Filipinos who saw in them a probable opportunity to acquire valuable hemp lands at bottom prices, for people dependent on their hemp fields, if prevented from working them, might in the end be forced to sell them. Roldan soon lost standing with his new organization because it was found that he was using for his personal benefit the money which he collected.About this time one Simeon Ola joined his organization. Ola was a native of Albay, where he had been an Insurgent major under the command of the Tagálog general, Belarmino. His temporary rank had gone to his head, and he is reported to have shown considerable severity and hauteur in his treatment of his former neighbours in Guinobatan, to which place he had returned at the close of the insurrection. Meanwhile, a wealthy Chinesemestizonamed Don Circilio Jaucian, on whom Ola, during his brief career as an Insurgent officer, had laid a heavy hand, had becomepresidenteof the town.Smarting under the indignities which he had suffered, Jaucian made it very uncomfortable for the former major, and in ways well understood in Malay countries brought it home to the latter that their positions had been reversed. Ola’s house was mysteriously burned, and his life in Guinobatan was made so unbearable that he took to the hills.Ola had held higher military rank than had any of his outlaw associates, and he became their dominating spirit. He had no grievance against the Americans, buttook every opportunity to avenge himself on thecaciquesof Guinobatan, his native town.Three assistant chiefs of constabulary, Garwood, Baker and Bandholtz, were successively sent to Albay to deal with this situation. Baker and Bandholtz were regular army officers. The latter ended the disturbances, employing first and last some twelve companies of Philippine scouts, armed, officered, paid, equipped and disciplined as are the regular soldiers of the United States army, and a similar number of constabulary soldiers. Eleven stations in the restricted field of operations of this outlaw were occupied by scouts. There were few armed conflicts in force between Ola’s men and these troops. In fact, it was only with the greatest difficulty that this band, which from time to time dissolved into the population only to reappear again, could be located even by the native soldiers. It would have been impracticable successfully to use American troops for such work.Referring to the statement made by Blount1that Vice-Governor Wright made a visit to Albay in 1903 in the interest “of the peace-at-any-price policy that the Manila Government was bent on,” and the implication that he went there to conduct peace negotiations, General Bandholtz, who suppressed outlawry in Albay, has said that Vice-Governor Wright and Commissioner Pardo de Tavera came there at his request to look into conditions with reference to certain allegations which had been made.Colonel Bandholtz and the then chief of constabulary, General Allen, were supported by the civil governor and the commission in their recommendations that no terms should be made with the outlaws. The following statement occurs in a letter from General Bandholtz dated September 21, 1903:—“No one is more anxious to terminate this business than I am, nevertheless I think it would be a mistake to offer anysuch inducements, and that more lasting benefits would result by hammering away as we have been doing.”And General Allen said in an indorsement to the Philippine Commission:—“... in my opinion the judgment of Colonel Bandholtz in matters connected with the pacification of Albay should receive favourable consideration. Halfway measures are always misinterpreted and used to the detriment of the Government among the ignorant followers of the outlaws.”These views prevailed.Blount has claimed that the death rate in the Albay jail at this time was very excessive, and cites it as an instance of the result of American maladministration.Assuming that his tabulation2of the dead who died in the Albay jail between May 30 and September, 1903, amounting to 120, is correct, the following statements should be made:—Only recently has it been demonstrated that beri-beri is due to the use of polished rice, which was up to the time of this discovery regarded as far superior to unpolished rice as an article of food, and is still much better liked by the Filipinos than is the unpolished article. Many of these deaths were from beri-beri, and were due to a misguided effort to give the prisoners the best possible food.Cholera was raging in the province of Albay throughout the period in question, and the people outside of the jail suffered no less than did those within it. The same is true of malarial infection. In other words, conditions inside the jail were quite similar to those then prevailing outside, except that the prisoners got polished rice which was given them with the best intentions in the world, and was by them considered a superior article of food.With the present knowledge of the methods of dissemination of Asiatic cholera gained as a result of theAmerican occupation of the Philippines, we should probably be able to exclude it from a jail under such circumstances, as the part played by “germ carriers” who show no outward manifestations of infection is now understood, but it was not then dreamed of. One of the greatest reforms effected by Americans in the Philippines is the sanitation of the jails and penitentiaries, and we cannot be fairly blamed for not knowing in 1903 what nobody then knew.The troubles in Albay ended with the surrender of Ola on September 25, 1903. Blount gives the impression that he had a knowledge of them which was gained by personal observation. He arrived in the province in the middle of November, seven weeks after normal conditions had been reëstablished.On October 5, 1903, General Bandholtz telegraphed with reference to the final surrender of Ola’s band:—“The towns are splitting themselves wide open celebrating pacification and Ramon Santos (later elected governor) is going to give a record-breaking fiesta at Ligao. Everybody invited. Scouts and Constabulary have done superb work.”Blount makes much of disorders in Samar and Leyte. Let us consider the facts.In all countries feuds between highlanders and lowlanders have been common. Although the inhabitants of the hills and those of the lowlands in the two islands under discussion are probably of identical blood and origin, they long since became separated in thought and feeling, and grew to be mutually antagonistic. The ignorant people of the interior have always been oppressed by their supposedly more highly civilized brethren living on or near the coast.The killing of Otoy by the constabulary in 1911 marked the passing of the last of a series of mountain chiefs who had exercised a very powerful influence over the hill people and had claimed for themselves supernatural powers.Manila hemp is the principal product upon which these mountaineers depend in bartering for cloth and other supplies. The cleaning of hemp involves very severe exertion, and when it is cleaned it must usually, in Samar, be carried to the seashore on the backs of the men who raise it. Under the most favourable circumstances, it may be transported thither in smallbancas3down the streams.The lowland people of Samar and Leyte had long been holding up the hill people when they brought in their hemp for sale in precisely the way that Filipinos in other islands are accustomed to hold up members of the non-Christian tribes. They played the part of middlemen, purchasing the hemp of the ignorant hill people at low prices and often reselling it, without giving it even a day’s storage, at a very much higher figure. This system was carried so far that conditions became unbearable and finally resulted in so-calledpulájanismwhich began in the year 1904.The termpulájanis derived from a native word meaning “red” and was given to the mountain people because in their attacks upon the lowlanders they wore, as a distinguishing mark, red trousers or a dash of red colour elsewhere about their sparse clothing. They raided coast towns and did immense damage before they were finally brought under control. It should be remembered that these conditions were allowed to arise by a Filipino provincial governor, and by Filipino municipal officials. It is altogether probable that a good American governor would have prevented them, but as it was, neither their cause nor their importance were understood at the outset. Thepulájanmovement was directed primarily against Filipinos.The first outbreak occurred on July 10, 1904, in the Gandara River valley where a settlement of the lowlanders was burned and some of its inhabitants were killed.Eventually disorder spread to many places on the coast, and one scout garrison of a single company was surprised and overwhelmed by superior numbers. Officers and men were massacred and their rifles taken.Filipina Girls playing Basket-ballFilipina Girls playing Basket-ballIn point of area Samar is the third island in the Philippines. In its interior are many rugged peaks and heavily forested mountains. It was here that a detachment of United States marines under the command of Major Waller, while attempting to cross the island, were lost for nearly two weeks, going without food for days and enduring terrible hardships.At the time in question there were not five miles of road on the island passable for a vehicle, nor were there trails through the mountains over which horses could be ridden. The only interior lines of communication were a few footpaths over which the natives were accustomed to make their way from the mountains to the coast.Troops have perhaps never attempted a campaign in a country more difficult than the interior of Samar. The traditional needle in the haystack would be easy to find compared with an outlaw, or band of outlaws, in such a rugged wilderness.Upon the outbreak of trouble troops were hurried to Samar, and by December, 1904, according to Blount himself, there were some 1800 native soldiers on the island who were left free for active operations in the field by the garrisoning of various coast towns with sixteen companies of United States infantry.If the nature of the feuds between the Samar lowlanders and highlanders had then been better understood, the ensuing troubles, which were more or less continuous for nearly two years, might perhaps have been avoided. As soon as it became evident that the situation was such as to demand the use of the army it was employed to supplement the operations of the constabulary.About the time that trouble ended in Samar it began in Leyte. There was no real connection between thedisorders in the two islands. No leader on either island is known to have communicated with any leader on the other; no fanatical follower ever left Samar for Leyte or Leyte for Samar so far as we are informed.For convenience of administration the two islands were grouped in a single command after the army was requested to take over the handling of the disturbances there, in coöperation with the constabulary. The trouble ended in 1907 and both islands have remained quiet ever since. The same causes would again produce the same results now or at any time in the future, and they would be then, as in the past, the outcome of the oppression of the weak by the strong and without other political significance. Under a good government they should never recur.Many circumstances which did not exist in 1902 and 1904 made it feasible to use the army in Samar and Leyte during 1905 and 1906. The high officers who had exercised such sweeping powers during the insurrection had meanwhile given way to other commanders. Indeed, a practically new Philippine army had come into existence. The policy of the insular government as to the treatment of individual Filipinos had been recognized and indorsed by Americans generally, but many of the objections to the use of the troops, including the heavy expense involved, still existed and I affirm without fear of successful contradiction that had it been possible to place in Samar and Leyte a number of constabulary soldiers equal to that of the scouts and American troops actually employed, disorder would have been terminated much more quickly and at very greatly less cost.With the final breaking up of organized brigandage in 1905 law and order may be said to have been established throughout the islands. It has since been the business of the constabulary to maintain it. The value of the coöperation of the law-abiding portion of the population has been fully recognized. The newly appointed constabulary officer has impressed upon him the necessity ofmanifesting an interest in the people with whom he comes in contact; of cultivating the acquaintance of Filipinos of all social grades, and of assisting to settle their disagreements and harmonize their differences whenever possible. He is taught a native dialect.The constabulary have to a high degree merited and secured the confidence and good-will of the people, whose rights they respect. There is a complete absence of the old arbitrary procedure followed by theguardia civiland as a result there are frequent requests from Filipino officials for additional detachments, while the removal of a company from a given community is almost invariably followed by vigorous protests. The power of human sympathy is very great, and as the attitude of constabulary officers and men is usually one of sympathy, conciliation and affection, that body has earned and deserved popularity.The success of the constabulary in apprehending criminals has been both praiseworthy and noteworthy. The courage and efficiency which have often been displayed by its officers and men in hard-fought engagements with Moro outlaws or with organized bands of thieves and brigands have been beyond praise. Many of its officers have rendered invaluable service in bringing the people of the more unruly non-Christian tribes under governmental control, not only bravely and efficiently performing their duty as police officers, but assisting in trail construction or discharging, in effect, the duties of lieutenant-governors in very remote places which could be visited by the actual lieutenant-governors only infrequently. I later take occasion to mention the valuable work done by Lieutenant Case in the early days of Ifugao, and to dwell at length on the splendid service rendered there by Lieutenant Jeff D. Gallman, who was for many years lieutenant-governor of the subprovince while continuing to serve as a constabulary officer. Lieutenant Maimban at Quiangan, and Lieutenant Dosser at Mayoyao,have been and are most useful, though they do not hold official positions under the Mountain Province or receive any additional compensation for the special services which they render. Captain Guy O. Fort served most acceptably as governor of the province of Agusan during the interim between the resignation of Governor Lewis and the appointment of Governor Bryant and Lieutenants Atkins and Zapanta have also rendered valuable service as assistants to the provincial governor. Lieutenant Turnbull is now assistant to the governor of Nueva Vizcaya for work among the Ilongots on the Pacific coast of northern Luzón. Other constabulary officers, who have not been called upon for special service of this kind, have performed their ordinary duties in such a way as to demonstrate that they were actuated by the spirit of coöperation and have been of great help.But the work of the constabulary has not been confined to police duty. They have been of the greatest assistance to the Director of Health in effectively maintaining quarantine, and making possible the isolation of victims of dangerous communicable diseases like cholera and smallpox, when inefficient municipal policemen have utterly failed to do their duty. They have given similar assistance to the Director of Agriculture in the maintenance of quarantine in connection with efforts to combat diseases of domestic animals. In great emergencies such as those presented by the recent eruption of Taal volcano, and the devastation caused by great typhoons, they have been quick to respond to the call of duty and have rendered efficient and heroic service. They assist internal revenue officers. Except in a few of the largest cities they are the firemen of the islands and by their effective work have repeatedly checked conflagrations, which are of frequent occurrence and tend to be very destructive in this country, where most of the houses are built of bamboo and nipa palm, and where roofs become dry as tinder during the long periodwhen there is little or no rain. They have aided in combating pests of locusts, and, in short, have been ready to meet almost any kind of an emergency which has arisen.The importance of having such a body of alert, industrious, disciplined, efficient men inspired by a high sense of duty, and physically so well developed that they can continue to perform that duty in the face of long-continued privations and hardships, is beyond dispute. The results which have been obtained by the Philippine constabulary have abundantly justified the policy which led to its organization.Its task has been no sinecure. Eleven officers and one hundred ninety-seven enlisted men have been killed in action. Forty-eight officers and nine hundred ninety-one men have died of disease. Forty-six officers have been wounded in action. Seven hundred sixty-eight men have been discharged for disability. Seven thousand four hundred twenty-four firearms and 45,018 rounds of ammunition have been captured by, or surrendered to, the constabulary. Four thousand eight hundred sixty-two outlaws have been killed and 11,977 taken prisoners. Twelve thousand two hundred sixty-two stolen animals have been recovered.There are many things which are not brought home to the reader by such statistics. The weary days and nights on tropical trails; the weakness and pain of dysentery; the freezing and the burning of pernicious malaria; the heavy weight of responsibility when one must act, in matters of life and death, with no superior to consult; the disappointment when carefully laid plans go wrong; the discouragement caused by indifference; the danger of infection with loathsome diseases; ingratitude; deadly peril; aching wounds; sudden death, and, worse yet, death after suffering long drawn out, when one meets one’s end knowing that it is coming and that one’s family will be left without means or resources,—these are someof the things that the officers and men of this gallant corps have faced unflinchingly.The work of the constabulary and of the Philippine scouts has conclusively demonstrated the courage and efficiency of the Filipino as a soldier when well disciplined and well led.The establishment and maintenance of order in the Philippines have afforded opportunity for some of the bravest deeds in the annals of any race, and the opportunity has been nobly met. The head-hunters of the Mountain Province, the Mohammedan Moros of Mindanao, Joló and Palawan, the bloodypulájanesof Samar and Leyte, the wilytulisanesof Luzón, all unrestrained by any regard for the rules of civilized warfare, have for twelve years matched their fanatical bravery against the gallantry of the khaki-clad Filipino soldiers. Time and again a single officer and a handful of men have taken chances that in almost any other land would have won them the Victoria cross, the legion of honor, or some similar decoration. Here their only reward has been the sense of duty well done.The force known as the Philippine constabulary was organized for the purpose of establishing and maintaining order. It has established and is maintaining a condition of order never before equalled or approached in the history of the islands. The policy which led to its organization has been a thousand times justified.1Blount, p. 425.2Blount, p.430.3Native dugouts.

Chapter XIVThe Philippine Constabulary and Public Order

During the last thirty years of Spanish rule in the Philippines evil-doers were pursued and apprehended and public order was maintained chiefly by theguardia civil. At the time of its organization in 1868 this body had a single division. By 1880 the number had been increased to three, two for Luzón and one for the Visayan Islands.Theguardia civilwas organized upon a military basis, its officers and soldiers being drawn from the regular army of Spain by selection or upon recommendation. Detachments were distributed throughout the provinces and were commanded according to their size by commissioned or non-commissioned officers. Central offices were located in district capitals; company headquarters were stationed in provincial capitals, and detachments were sent to places where they were deemed to be necessary.Under ordinary conditions they rendered service as patrols of two men each, but for the purpose of attacking large bands of outlaws one or several companies were employed as occasion required.Theguardia civilhad jurisdiction over all sorts of violations of laws and municipal ordinances. They made reports upon which were based the appointments of municipal officers, the granting of licenses to carry firearms, and the determination of the loyalty or the disloyalty of individuals.They were vested with extraordinary powers. Offences against them were tried by courts-martial, and were construed as offences against sentinels on duty. Penalties were therefore extremely severe.Officers of theguardia civilon leave could by their own initiative assume a status of duty with the full powers and responsibilities that go with command. This is contrary to American practice, under which only dire emergency justifies an officer in assuming an official status unless he is duly assigned thereto by competent authority.Theguardia civilcould arrest on suspicion, and while the Spanish Government did not directly authorize or sanction the use of force to extort confessions, it was not scrupulous in the matter of accepting confessions so obtained as evidence of crime, nor was it quick to punish members of theguardia civilcharged with mistreatment of prisoners.Reports made by theguardia civilwere not questioned, but were accepted without support even in cases of the killing of prisoners alleged to have attempted to escape, or of men evading arrest.This method of eliminating without trial citizens deemed to be undesirable was applied with especial frequency in the suppression of active brigandage, and latterly during the revolution against Spain. Prisoners in charge of theguardia civilwere always tied elbow to elbow. They knew full well that resistance or flight was an invitation to their guards to kill them, and that this invitation was likely to be promptly accepted.In the investigation of crime the members of this organization arrested persons on suspicion and compelled them to make revelations, true or false. Eye-witnesses to the commission of crime were not needed in the Spanish courts of that day. The confession of an accused person secured his conviction, even though not made in the presence of a judge. Indirect and hearsay evidence were accepted, and such things as writs of habeas corpus and the plea of double jeopardy were unknown in Spanish procedure.Filipino Trained NursesFilipino Trained NursesTheguardia civilcould rearrest individuals and againcharge them with crimes of which they had already been acquitted. I have been assured by reliable Filipino witnesses that it was common during the latter days of Spanish sovereignty for persons who had made themselves obnoxious to the government to be invited by non-commissioned officers to take a walk, which was followed either by their complete disappearance or by the subsequent discovery of their dead bodies.It naturally resulted that the members of theguardia civilwere regarded with detestation and terror by the people, but their power was so absolute that protest rarely became public. The one notable exception was furnished by Dr. Rizal’s book entitled “Noli Me Tangere,” which voiced the complaints of the Filipinos against them. There is not a vestige of doubt that hatred of them was one of the principal causes of the insurrection against Spain.In 1901 the American government organized a rural police force in the Philippines. It was called the Philippine constabulary. The insurrection was then drawing to a close, but there were left in the field many guerilla bands armed and uniformed. Their members sought to excuse their lawless acts under the plea of patriotism and opposition to the forces of the United States. In many provinces they combined with professional bandits or with religious fanatics. Various “popes” arose, like Papa Isio in Negros. The Filipinos had become accustomed to a state of war which had continued for nearly six years. Habits of peace had been abandoned. The once prosperous haciendas were in ruins. War and pestilence had destroyed many of the work animals, and those which remained continued to perish from disease. Asiatic cholera was sweeping through the archipelago, and consternation and disorder followed in its wake.Under such circumstances the organization of a rural police force was imperatively necessary. Unfortunately the most critical situation which it was to be called uponto meet had to be faced at the very outset, when both officers and men were inexperienced and before adequate discipline could be established.The law providing for its establishment was drawn by the Honourable Luke E. Wright, at that time secretary of commerce and police and later destined to become governor-general of the Philippines and secretary of war of the United States.It was intended that the constabulary should accomplish its ends by force when necessary but by sympathetic supervision when possible, suppressing brigandage and turning the people towards habits of peace. The fact was clearly borne in mind that the abuses of theguardia civilhad not been forgotten and the new force was designed to meet existing conditions, to allay as rapidly as possible the existing just rancour against the similar organization established under the Spanish régime, and to avoid the evils which had contributed so much toward causing the downfall of Spanish sovereignty. The law was admirably framed to achieve these ends.The officers of the constabulary were selected chiefly from American volunteers recently mustered out and from honourably discharged soldiers of the United States army. Some few Filipinos, whose loyalty was above suspicion, were appointed to the lower grades. This number has since been materially augumented, and some of the original Filipino appointees have risen to the rank of captain.It was inevitable that at the outset there should be abuses. The organization was necessarily born at work; there was no time to instruct, to formulate regulations, to wait until a satisfactory state of discipline had been brought about. There were not barracks for housing the soldiers; there were neither uniforms, nor arms, nor ammunition. There was no system for rationing the men. All of these things had to be provided, and they were provided through a natural evolution ofpractical processes, crystallizing into form, tested by the duties of the day. The organization which grew up was a true survival of the fittest, both in personnel and in methods. The wonder is not that some abuses occurred, but that they were so few; not that there were occasional evidences of lack of efficiency, but that efficiency was on the whole so high from the beginning.The several provinces were made administrative units, the commanding officer in each being designated as “senior inspector.” The men who were to serve in a given province were by preference recruited there, and a departure was thus made from the usual foreign colonial practice.In 1905 the total force was fixed at one hundred companies with a nominal strength of two officers and fifty men each. Under special conditions this rule may be departed from, and the size of the companies or the number of officers increased.Each province is divided by the senior inspector into sections, and the responsibility for patrol work and general policing rests on the senior company officer in each station. The provinces are grouped into five districts, each commanded by an assistant chief who exercises therein the authority, and performs the duties appropriate to the chief for the entire Philippines. The higher administrative positions have always been filled by detailing regular officers of the United States army.The constabulary soldiers are now neatly uniformed, armed with Krag carbines and well disciplined. They show the effect of good and regular food and of systematic exercise, their physical condition being vastly superior to that of the average Filipino. They are given regular instruction in their military duties. It is conducted in English.The Philippine constabulary may be defined as a body of armed men with a military organization, recruited from among the people of the islands, officered in partby Americans and in part by Filipinos, and employed primarily for police duty in connection with the establishment and maintenance of public order.Blount’s chapters on the administrations of Taft, Wright and Smith embody one prolonged plaint to the effect that the organization of the constabulary was premature, and that after the war proper ended, the last smouldering embers of armed and organized insurrection should have been stamped out, and the brigandage which had existed in the Philippines for centuries should have been dealt with, by the United States army rather than by the constabulary.Even if it were true that the army could have rendered more effective service to this end than could have been expected at the outset from a newly organized body of Filipino soldiers, the argument against the organization and use of the constabulary would in my opinion have been by no means conclusive. It is our declared policy to prepare the Filipinos to establish and maintain a stable government of their own. The proper exercise of police powers is obviously necessary to such an end.From the outset we have sacrificed efficiency in order that our wards might gain practical experience, and might demonstrate their ability, or lack of ability, to perform necessary governmental functions. Does any one cognizant of the situation doubt for a moment that provincial and municipal affairs in the Philippine Islands would to-day be more efficiently administered if provincial and municipal officers were appointed instead of being elected? Is any one so foolish as to imagine that the sanitary regeneration of the islands would not have progressed much more rapidly had highly trained American health officers been used in place of many of the badly educated and comparatively inexperienced Filipino physicians whose services have been utilized?Nevertheless, in the concrete case under discussion I dissent from the claim that more satisfactory resultscould have been obtained by the use of American troops.The army had long been supreme in the Philippines. Every function of government had been performed by its officers and men, if performed at all. Our troops had been combating an elusive and cruel enemy. If they were human it is to be presumed that they still harbored animosities, born of these conditions, toward the people with whom they had so recently been fighting. Had the work of pacification been then turned over to them it would have meant that often in the localities in which they had been fighting, and in dealing with the men to whom they had very recently been actively opposed in armed conflict, they would have been called upon to perform tasks and to entertain feelings radically different from those of the preceding two or three years.A detachment, marching through Leyte, found an American who had disappeared a short time before crucified, head down. His abdominal wall had been carefully opened so that his intestines might hang down in his face.Another American prisoner, found on the same trip, had been buried in the ground with only his head projecting. His mouth had been propped open with a stick, a trail of sugar laid to it through the forest, and a handful thrown into it.Millions of ants had done the rest.Officers and men who saw such things were thereby fitted for war, rather than for ordinary police duty.The truth is that they had seen so many of them that they continued to see them in imagination when they no longer existed. I well remember when a general officer, directed by his superior to attend a banquet at Manila in which Americans and Filipinos joined, came to it wearing a big revolver!Long after Manila was quiet I was obliged to get out of my carriage in the rain and darkness half a dozentimes while driving the length of Calle Real, and “approach to be recognized” by raw “rookies,” each of whom pointed a loaded rifle at me while I did it. I know that this did not tend to make me feel peaceable or happy. In my opinion it was wholly unnecessary, and yet I did not blame the army for thinking otherwise.After the war was over, when my private secretary, Mr. James H. LeRoy, was one day approaching Malolos, he was sternly commanded by a sentry to halt, the command being emphasized as usual by presenting to his attention a most unattractive view down the muzzle of a Krag. He was next ordered to “salute the flag,” which he finally discovered with difficulty in the distance, after being told where to look. The army way is right and necessary in war, but it makes a lot of bother in time of peace!This was not the only reason for failing to make more extensive use of American soldiers in police duty. A veteran colonel of United States cavalry who had just read Judge Blount’s book was asked what he thought of the claim therein made that the army should have done the police and pacification work of the Philippines. His reply was:—“How long would it take a regiment of Filipinos to catch an American outlaw in the United States? Impossible!”Another army officer said:—“Catching Filipino outlaws with the Army is like catching a flea in a twenty-acre field with a traction engine.”There is perhaps nothing so demoralizing to regular troops as employment on police duty which requires them to work singly or in small squads. Discipline speedily goes to the dogs and instruction becomes impossible.A School Athletic TeamA School Athletic TeamCalisthenic exercises taught in the public schools are converting puny youths into vigorous athletes.Successful prosecution of the work of chasingladronesin the Philippines requires a thorough knowledge of local topography and of local native dialects. Spanish is of use, but only in dealing with educated Filipinos. Aknowledge of the Filipino himself; of his habits of thought; of his attitude toward the white man; and toward theillustrado, or educated man, of his own race; ability to enter a town and speedily to determine the relative importance of its leading citizens, finally centring on the one man, always to be found, who runs it, whether he holds political office or not, and also to enlist the sympathy and coöperation of its people; all of these things are essential to the successful handling of brigandage in the Philippines, whether such brigandage has, or lacks, political significance.The following parallel will make clear some of the reasons why it was determined to use constabulary instead of American soldiers in policing the Philippines from the time the insurrection officially ended:—United States ArmyPhilippine ConstabularySoldier costs per annum $1400. (Authority: Adjutant General Heistand in 1910.)Soldier costs per annum $363.50.American soldiers come from America.Constabulary soldiers are enlisted in the province where they are to serve.Few American soldiers speak the local dialects.All constabulary soldiers speak local dialects.Few American soldiers speak any Spanish.All educated constabulary soldiers speak Spanish.American soldiers usually have but a slight knowledge of local geography and topography.Constabulary soldiers, native to the country, know the geography and topography of their respective provinces.Few American soldiers have had enough contact with Filipinos to understand them.The Filipino soldier certainly knows his own kind better than the American does.The American soldier uses a ration of certain fixed components imported over sea. (A ration is the day’s allowance of food for one soldier.)The constabulary soldier is rationed in cash and buys the food of the country where he happens to be.The American ration costs 24.3 cents United States currency (exclusive of cost of transportation and handling). Fresh meat requiring ice to keep it is a principal part of the American ration. To supply it requires a regular system of transport from the United States to Manila and from thence to local ports, and wagon transportation from ports to inland stations.The constabulary cash ration is 10.5 cents United States currency. (No freight or handling charges.) The constabulary soldier knows not ice. His food grows in the islands. He buys it on the ground and needs no transportation to bring it to him.The American soldier is at no pains to enlist the sympathy and coöperation of the people; and his methods of discipline habits of life, etc., make it practically impossible for him to gain them.The idea of enlisting the sympathy and coöperation of the local population is the strongest tenet in the constabulary creed.Before preparing the foregoing statement relative to the reasons for using Philippine constabulary soldiers instead of soldiers of the United States army for police work during the period in question, I asked Colonel J. G. Harbord, assistant director of the constabulary, who has served with that body nine years, has been its acting director and is an officer of the United States army, to give me a memorandum on the subject. It is only fair to him to say that I have not only followed very closely the line of argument embodied in the memorandum which he was good enough to prepare for me, but have in many instances used his very words. The parallel columns are his.The constabulary soldier, thoroughly familiar with the topography of the country in which he operates; speaking the local dialect and acquainted with the persons most likely to be able and willing to furnish accurate information; familiar with the characteristics of his own people; able to live off the country and keep well, is under all ordinary circumstances a more efficient and vastly less expensive police officer than the American soldier, no matter how brave and energetic the latter may be. Furthermore, his activities are much less likely to arouse animosity.Incidentally, the army is pretty consistently unwilling to take the field unless the constitutional guarantees are temporarily suspended, and it particularly objects to writs of habeas corpus. The suspension of such guarantees is obviously undesirable unless really very necessary.Let us now consider some of the specific instances of alleged inefficiency of the constabulary in suppressing public disorder, cited by Blount.On page 403 of his book he says, speaking of Governor Taft and disorder in the province of Albay which arose in 1902–1903:—“He did not want to order out the military again if he could help it, and this relegated him to his native municipal police and constabulary, experimental outfits of doubtful loyalty, and, at best, wholly inadequate, as it afterwards turned out, for the maintenance of public order and for affording to the peaceably inclined people that sort of security for life and property, and that protection against semi-political as well as unmitigated brigandage, which would comport with the dignity of this nation.”The facts as to these disorders are briefly as follows:—In 1902 an outlaw in Tayabas Province who made his living by organizing political conspiracies and collecting contributions in the name of patriotism, who was known as José Roldan when operating in adjoining provinces, but had an alias in Tayabas, found his life madeso uncomfortable by the constabulary of that province that he transferred his operations to Albay. There he affiliated himself with a few ex-Insurgent officers who had turned outlaws instead of surrendering, and with oath violators, and began the same kind of political operations which he had carried out in Tayabas, the principal feature of his work being the collection of “contributions.”The troubles in Albay were encouraged by wealthy Filipinos who saw in them a probable opportunity to acquire valuable hemp lands at bottom prices, for people dependent on their hemp fields, if prevented from working them, might in the end be forced to sell them. Roldan soon lost standing with his new organization because it was found that he was using for his personal benefit the money which he collected.About this time one Simeon Ola joined his organization. Ola was a native of Albay, where he had been an Insurgent major under the command of the Tagálog general, Belarmino. His temporary rank had gone to his head, and he is reported to have shown considerable severity and hauteur in his treatment of his former neighbours in Guinobatan, to which place he had returned at the close of the insurrection. Meanwhile, a wealthy Chinesemestizonamed Don Circilio Jaucian, on whom Ola, during his brief career as an Insurgent officer, had laid a heavy hand, had becomepresidenteof the town.Smarting under the indignities which he had suffered, Jaucian made it very uncomfortable for the former major, and in ways well understood in Malay countries brought it home to the latter that their positions had been reversed. Ola’s house was mysteriously burned, and his life in Guinobatan was made so unbearable that he took to the hills.Ola had held higher military rank than had any of his outlaw associates, and he became their dominating spirit. He had no grievance against the Americans, buttook every opportunity to avenge himself on thecaciquesof Guinobatan, his native town.Three assistant chiefs of constabulary, Garwood, Baker and Bandholtz, were successively sent to Albay to deal with this situation. Baker and Bandholtz were regular army officers. The latter ended the disturbances, employing first and last some twelve companies of Philippine scouts, armed, officered, paid, equipped and disciplined as are the regular soldiers of the United States army, and a similar number of constabulary soldiers. Eleven stations in the restricted field of operations of this outlaw were occupied by scouts. There were few armed conflicts in force between Ola’s men and these troops. In fact, it was only with the greatest difficulty that this band, which from time to time dissolved into the population only to reappear again, could be located even by the native soldiers. It would have been impracticable successfully to use American troops for such work.Referring to the statement made by Blount1that Vice-Governor Wright made a visit to Albay in 1903 in the interest “of the peace-at-any-price policy that the Manila Government was bent on,” and the implication that he went there to conduct peace negotiations, General Bandholtz, who suppressed outlawry in Albay, has said that Vice-Governor Wright and Commissioner Pardo de Tavera came there at his request to look into conditions with reference to certain allegations which had been made.Colonel Bandholtz and the then chief of constabulary, General Allen, were supported by the civil governor and the commission in their recommendations that no terms should be made with the outlaws. The following statement occurs in a letter from General Bandholtz dated September 21, 1903:—“No one is more anxious to terminate this business than I am, nevertheless I think it would be a mistake to offer anysuch inducements, and that more lasting benefits would result by hammering away as we have been doing.”And General Allen said in an indorsement to the Philippine Commission:—“... in my opinion the judgment of Colonel Bandholtz in matters connected with the pacification of Albay should receive favourable consideration. Halfway measures are always misinterpreted and used to the detriment of the Government among the ignorant followers of the outlaws.”These views prevailed.Blount has claimed that the death rate in the Albay jail at this time was very excessive, and cites it as an instance of the result of American maladministration.Assuming that his tabulation2of the dead who died in the Albay jail between May 30 and September, 1903, amounting to 120, is correct, the following statements should be made:—Only recently has it been demonstrated that beri-beri is due to the use of polished rice, which was up to the time of this discovery regarded as far superior to unpolished rice as an article of food, and is still much better liked by the Filipinos than is the unpolished article. Many of these deaths were from beri-beri, and were due to a misguided effort to give the prisoners the best possible food.Cholera was raging in the province of Albay throughout the period in question, and the people outside of the jail suffered no less than did those within it. The same is true of malarial infection. In other words, conditions inside the jail were quite similar to those then prevailing outside, except that the prisoners got polished rice which was given them with the best intentions in the world, and was by them considered a superior article of food.With the present knowledge of the methods of dissemination of Asiatic cholera gained as a result of theAmerican occupation of the Philippines, we should probably be able to exclude it from a jail under such circumstances, as the part played by “germ carriers” who show no outward manifestations of infection is now understood, but it was not then dreamed of. One of the greatest reforms effected by Americans in the Philippines is the sanitation of the jails and penitentiaries, and we cannot be fairly blamed for not knowing in 1903 what nobody then knew.The troubles in Albay ended with the surrender of Ola on September 25, 1903. Blount gives the impression that he had a knowledge of them which was gained by personal observation. He arrived in the province in the middle of November, seven weeks after normal conditions had been reëstablished.On October 5, 1903, General Bandholtz telegraphed with reference to the final surrender of Ola’s band:—“The towns are splitting themselves wide open celebrating pacification and Ramon Santos (later elected governor) is going to give a record-breaking fiesta at Ligao. Everybody invited. Scouts and Constabulary have done superb work.”Blount makes much of disorders in Samar and Leyte. Let us consider the facts.In all countries feuds between highlanders and lowlanders have been common. Although the inhabitants of the hills and those of the lowlands in the two islands under discussion are probably of identical blood and origin, they long since became separated in thought and feeling, and grew to be mutually antagonistic. The ignorant people of the interior have always been oppressed by their supposedly more highly civilized brethren living on or near the coast.The killing of Otoy by the constabulary in 1911 marked the passing of the last of a series of mountain chiefs who had exercised a very powerful influence over the hill people and had claimed for themselves supernatural powers.Manila hemp is the principal product upon which these mountaineers depend in bartering for cloth and other supplies. The cleaning of hemp involves very severe exertion, and when it is cleaned it must usually, in Samar, be carried to the seashore on the backs of the men who raise it. Under the most favourable circumstances, it may be transported thither in smallbancas3down the streams.The lowland people of Samar and Leyte had long been holding up the hill people when they brought in their hemp for sale in precisely the way that Filipinos in other islands are accustomed to hold up members of the non-Christian tribes. They played the part of middlemen, purchasing the hemp of the ignorant hill people at low prices and often reselling it, without giving it even a day’s storage, at a very much higher figure. This system was carried so far that conditions became unbearable and finally resulted in so-calledpulájanismwhich began in the year 1904.The termpulájanis derived from a native word meaning “red” and was given to the mountain people because in their attacks upon the lowlanders they wore, as a distinguishing mark, red trousers or a dash of red colour elsewhere about their sparse clothing. They raided coast towns and did immense damage before they were finally brought under control. It should be remembered that these conditions were allowed to arise by a Filipino provincial governor, and by Filipino municipal officials. It is altogether probable that a good American governor would have prevented them, but as it was, neither their cause nor their importance were understood at the outset. Thepulájanmovement was directed primarily against Filipinos.The first outbreak occurred on July 10, 1904, in the Gandara River valley where a settlement of the lowlanders was burned and some of its inhabitants were killed.Eventually disorder spread to many places on the coast, and one scout garrison of a single company was surprised and overwhelmed by superior numbers. Officers and men were massacred and their rifles taken.Filipina Girls playing Basket-ballFilipina Girls playing Basket-ballIn point of area Samar is the third island in the Philippines. In its interior are many rugged peaks and heavily forested mountains. It was here that a detachment of United States marines under the command of Major Waller, while attempting to cross the island, were lost for nearly two weeks, going without food for days and enduring terrible hardships.At the time in question there were not five miles of road on the island passable for a vehicle, nor were there trails through the mountains over which horses could be ridden. The only interior lines of communication were a few footpaths over which the natives were accustomed to make their way from the mountains to the coast.Troops have perhaps never attempted a campaign in a country more difficult than the interior of Samar. The traditional needle in the haystack would be easy to find compared with an outlaw, or band of outlaws, in such a rugged wilderness.Upon the outbreak of trouble troops were hurried to Samar, and by December, 1904, according to Blount himself, there were some 1800 native soldiers on the island who were left free for active operations in the field by the garrisoning of various coast towns with sixteen companies of United States infantry.If the nature of the feuds between the Samar lowlanders and highlanders had then been better understood, the ensuing troubles, which were more or less continuous for nearly two years, might perhaps have been avoided. As soon as it became evident that the situation was such as to demand the use of the army it was employed to supplement the operations of the constabulary.About the time that trouble ended in Samar it began in Leyte. There was no real connection between thedisorders in the two islands. No leader on either island is known to have communicated with any leader on the other; no fanatical follower ever left Samar for Leyte or Leyte for Samar so far as we are informed.For convenience of administration the two islands were grouped in a single command after the army was requested to take over the handling of the disturbances there, in coöperation with the constabulary. The trouble ended in 1907 and both islands have remained quiet ever since. The same causes would again produce the same results now or at any time in the future, and they would be then, as in the past, the outcome of the oppression of the weak by the strong and without other political significance. Under a good government they should never recur.Many circumstances which did not exist in 1902 and 1904 made it feasible to use the army in Samar and Leyte during 1905 and 1906. The high officers who had exercised such sweeping powers during the insurrection had meanwhile given way to other commanders. Indeed, a practically new Philippine army had come into existence. The policy of the insular government as to the treatment of individual Filipinos had been recognized and indorsed by Americans generally, but many of the objections to the use of the troops, including the heavy expense involved, still existed and I affirm without fear of successful contradiction that had it been possible to place in Samar and Leyte a number of constabulary soldiers equal to that of the scouts and American troops actually employed, disorder would have been terminated much more quickly and at very greatly less cost.With the final breaking up of organized brigandage in 1905 law and order may be said to have been established throughout the islands. It has since been the business of the constabulary to maintain it. The value of the coöperation of the law-abiding portion of the population has been fully recognized. The newly appointed constabulary officer has impressed upon him the necessity ofmanifesting an interest in the people with whom he comes in contact; of cultivating the acquaintance of Filipinos of all social grades, and of assisting to settle their disagreements and harmonize their differences whenever possible. He is taught a native dialect.The constabulary have to a high degree merited and secured the confidence and good-will of the people, whose rights they respect. There is a complete absence of the old arbitrary procedure followed by theguardia civiland as a result there are frequent requests from Filipino officials for additional detachments, while the removal of a company from a given community is almost invariably followed by vigorous protests. The power of human sympathy is very great, and as the attitude of constabulary officers and men is usually one of sympathy, conciliation and affection, that body has earned and deserved popularity.The success of the constabulary in apprehending criminals has been both praiseworthy and noteworthy. The courage and efficiency which have often been displayed by its officers and men in hard-fought engagements with Moro outlaws or with organized bands of thieves and brigands have been beyond praise. Many of its officers have rendered invaluable service in bringing the people of the more unruly non-Christian tribes under governmental control, not only bravely and efficiently performing their duty as police officers, but assisting in trail construction or discharging, in effect, the duties of lieutenant-governors in very remote places which could be visited by the actual lieutenant-governors only infrequently. I later take occasion to mention the valuable work done by Lieutenant Case in the early days of Ifugao, and to dwell at length on the splendid service rendered there by Lieutenant Jeff D. Gallman, who was for many years lieutenant-governor of the subprovince while continuing to serve as a constabulary officer. Lieutenant Maimban at Quiangan, and Lieutenant Dosser at Mayoyao,have been and are most useful, though they do not hold official positions under the Mountain Province or receive any additional compensation for the special services which they render. Captain Guy O. Fort served most acceptably as governor of the province of Agusan during the interim between the resignation of Governor Lewis and the appointment of Governor Bryant and Lieutenants Atkins and Zapanta have also rendered valuable service as assistants to the provincial governor. Lieutenant Turnbull is now assistant to the governor of Nueva Vizcaya for work among the Ilongots on the Pacific coast of northern Luzón. Other constabulary officers, who have not been called upon for special service of this kind, have performed their ordinary duties in such a way as to demonstrate that they were actuated by the spirit of coöperation and have been of great help.But the work of the constabulary has not been confined to police duty. They have been of the greatest assistance to the Director of Health in effectively maintaining quarantine, and making possible the isolation of victims of dangerous communicable diseases like cholera and smallpox, when inefficient municipal policemen have utterly failed to do their duty. They have given similar assistance to the Director of Agriculture in the maintenance of quarantine in connection with efforts to combat diseases of domestic animals. In great emergencies such as those presented by the recent eruption of Taal volcano, and the devastation caused by great typhoons, they have been quick to respond to the call of duty and have rendered efficient and heroic service. They assist internal revenue officers. Except in a few of the largest cities they are the firemen of the islands and by their effective work have repeatedly checked conflagrations, which are of frequent occurrence and tend to be very destructive in this country, where most of the houses are built of bamboo and nipa palm, and where roofs become dry as tinder during the long periodwhen there is little or no rain. They have aided in combating pests of locusts, and, in short, have been ready to meet almost any kind of an emergency which has arisen.The importance of having such a body of alert, industrious, disciplined, efficient men inspired by a high sense of duty, and physically so well developed that they can continue to perform that duty in the face of long-continued privations and hardships, is beyond dispute. The results which have been obtained by the Philippine constabulary have abundantly justified the policy which led to its organization.Its task has been no sinecure. Eleven officers and one hundred ninety-seven enlisted men have been killed in action. Forty-eight officers and nine hundred ninety-one men have died of disease. Forty-six officers have been wounded in action. Seven hundred sixty-eight men have been discharged for disability. Seven thousand four hundred twenty-four firearms and 45,018 rounds of ammunition have been captured by, or surrendered to, the constabulary. Four thousand eight hundred sixty-two outlaws have been killed and 11,977 taken prisoners. Twelve thousand two hundred sixty-two stolen animals have been recovered.There are many things which are not brought home to the reader by such statistics. The weary days and nights on tropical trails; the weakness and pain of dysentery; the freezing and the burning of pernicious malaria; the heavy weight of responsibility when one must act, in matters of life and death, with no superior to consult; the disappointment when carefully laid plans go wrong; the discouragement caused by indifference; the danger of infection with loathsome diseases; ingratitude; deadly peril; aching wounds; sudden death, and, worse yet, death after suffering long drawn out, when one meets one’s end knowing that it is coming and that one’s family will be left without means or resources,—these are someof the things that the officers and men of this gallant corps have faced unflinchingly.The work of the constabulary and of the Philippine scouts has conclusively demonstrated the courage and efficiency of the Filipino as a soldier when well disciplined and well led.The establishment and maintenance of order in the Philippines have afforded opportunity for some of the bravest deeds in the annals of any race, and the opportunity has been nobly met. The head-hunters of the Mountain Province, the Mohammedan Moros of Mindanao, Joló and Palawan, the bloodypulájanesof Samar and Leyte, the wilytulisanesof Luzón, all unrestrained by any regard for the rules of civilized warfare, have for twelve years matched their fanatical bravery against the gallantry of the khaki-clad Filipino soldiers. Time and again a single officer and a handful of men have taken chances that in almost any other land would have won them the Victoria cross, the legion of honor, or some similar decoration. Here their only reward has been the sense of duty well done.The force known as the Philippine constabulary was organized for the purpose of establishing and maintaining order. It has established and is maintaining a condition of order never before equalled or approached in the history of the islands. The policy which led to its organization has been a thousand times justified.

During the last thirty years of Spanish rule in the Philippines evil-doers were pursued and apprehended and public order was maintained chiefly by theguardia civil. At the time of its organization in 1868 this body had a single division. By 1880 the number had been increased to three, two for Luzón and one for the Visayan Islands.

Theguardia civilwas organized upon a military basis, its officers and soldiers being drawn from the regular army of Spain by selection or upon recommendation. Detachments were distributed throughout the provinces and were commanded according to their size by commissioned or non-commissioned officers. Central offices were located in district capitals; company headquarters were stationed in provincial capitals, and detachments were sent to places where they were deemed to be necessary.

Under ordinary conditions they rendered service as patrols of two men each, but for the purpose of attacking large bands of outlaws one or several companies were employed as occasion required.

Theguardia civilhad jurisdiction over all sorts of violations of laws and municipal ordinances. They made reports upon which were based the appointments of municipal officers, the granting of licenses to carry firearms, and the determination of the loyalty or the disloyalty of individuals.

They were vested with extraordinary powers. Offences against them were tried by courts-martial, and were construed as offences against sentinels on duty. Penalties were therefore extremely severe.

Officers of theguardia civilon leave could by their own initiative assume a status of duty with the full powers and responsibilities that go with command. This is contrary to American practice, under which only dire emergency justifies an officer in assuming an official status unless he is duly assigned thereto by competent authority.

Theguardia civilcould arrest on suspicion, and while the Spanish Government did not directly authorize or sanction the use of force to extort confessions, it was not scrupulous in the matter of accepting confessions so obtained as evidence of crime, nor was it quick to punish members of theguardia civilcharged with mistreatment of prisoners.

Reports made by theguardia civilwere not questioned, but were accepted without support even in cases of the killing of prisoners alleged to have attempted to escape, or of men evading arrest.

This method of eliminating without trial citizens deemed to be undesirable was applied with especial frequency in the suppression of active brigandage, and latterly during the revolution against Spain. Prisoners in charge of theguardia civilwere always tied elbow to elbow. They knew full well that resistance or flight was an invitation to their guards to kill them, and that this invitation was likely to be promptly accepted.

In the investigation of crime the members of this organization arrested persons on suspicion and compelled them to make revelations, true or false. Eye-witnesses to the commission of crime were not needed in the Spanish courts of that day. The confession of an accused person secured his conviction, even though not made in the presence of a judge. Indirect and hearsay evidence were accepted, and such things as writs of habeas corpus and the plea of double jeopardy were unknown in Spanish procedure.

Filipino Trained NursesFilipino Trained Nurses

Filipino Trained Nurses

Theguardia civilcould rearrest individuals and againcharge them with crimes of which they had already been acquitted. I have been assured by reliable Filipino witnesses that it was common during the latter days of Spanish sovereignty for persons who had made themselves obnoxious to the government to be invited by non-commissioned officers to take a walk, which was followed either by their complete disappearance or by the subsequent discovery of their dead bodies.

It naturally resulted that the members of theguardia civilwere regarded with detestation and terror by the people, but their power was so absolute that protest rarely became public. The one notable exception was furnished by Dr. Rizal’s book entitled “Noli Me Tangere,” which voiced the complaints of the Filipinos against them. There is not a vestige of doubt that hatred of them was one of the principal causes of the insurrection against Spain.

In 1901 the American government organized a rural police force in the Philippines. It was called the Philippine constabulary. The insurrection was then drawing to a close, but there were left in the field many guerilla bands armed and uniformed. Their members sought to excuse their lawless acts under the plea of patriotism and opposition to the forces of the United States. In many provinces they combined with professional bandits or with religious fanatics. Various “popes” arose, like Papa Isio in Negros. The Filipinos had become accustomed to a state of war which had continued for nearly six years. Habits of peace had been abandoned. The once prosperous haciendas were in ruins. War and pestilence had destroyed many of the work animals, and those which remained continued to perish from disease. Asiatic cholera was sweeping through the archipelago, and consternation and disorder followed in its wake.

Under such circumstances the organization of a rural police force was imperatively necessary. Unfortunately the most critical situation which it was to be called uponto meet had to be faced at the very outset, when both officers and men were inexperienced and before adequate discipline could be established.

The law providing for its establishment was drawn by the Honourable Luke E. Wright, at that time secretary of commerce and police and later destined to become governor-general of the Philippines and secretary of war of the United States.

It was intended that the constabulary should accomplish its ends by force when necessary but by sympathetic supervision when possible, suppressing brigandage and turning the people towards habits of peace. The fact was clearly borne in mind that the abuses of theguardia civilhad not been forgotten and the new force was designed to meet existing conditions, to allay as rapidly as possible the existing just rancour against the similar organization established under the Spanish régime, and to avoid the evils which had contributed so much toward causing the downfall of Spanish sovereignty. The law was admirably framed to achieve these ends.

The officers of the constabulary were selected chiefly from American volunteers recently mustered out and from honourably discharged soldiers of the United States army. Some few Filipinos, whose loyalty was above suspicion, were appointed to the lower grades. This number has since been materially augumented, and some of the original Filipino appointees have risen to the rank of captain.

It was inevitable that at the outset there should be abuses. The organization was necessarily born at work; there was no time to instruct, to formulate regulations, to wait until a satisfactory state of discipline had been brought about. There were not barracks for housing the soldiers; there were neither uniforms, nor arms, nor ammunition. There was no system for rationing the men. All of these things had to be provided, and they were provided through a natural evolution ofpractical processes, crystallizing into form, tested by the duties of the day. The organization which grew up was a true survival of the fittest, both in personnel and in methods. The wonder is not that some abuses occurred, but that they were so few; not that there were occasional evidences of lack of efficiency, but that efficiency was on the whole so high from the beginning.

The several provinces were made administrative units, the commanding officer in each being designated as “senior inspector.” The men who were to serve in a given province were by preference recruited there, and a departure was thus made from the usual foreign colonial practice.

In 1905 the total force was fixed at one hundred companies with a nominal strength of two officers and fifty men each. Under special conditions this rule may be departed from, and the size of the companies or the number of officers increased.

Each province is divided by the senior inspector into sections, and the responsibility for patrol work and general policing rests on the senior company officer in each station. The provinces are grouped into five districts, each commanded by an assistant chief who exercises therein the authority, and performs the duties appropriate to the chief for the entire Philippines. The higher administrative positions have always been filled by detailing regular officers of the United States army.

The constabulary soldiers are now neatly uniformed, armed with Krag carbines and well disciplined. They show the effect of good and regular food and of systematic exercise, their physical condition being vastly superior to that of the average Filipino. They are given regular instruction in their military duties. It is conducted in English.

The Philippine constabulary may be defined as a body of armed men with a military organization, recruited from among the people of the islands, officered in partby Americans and in part by Filipinos, and employed primarily for police duty in connection with the establishment and maintenance of public order.

Blount’s chapters on the administrations of Taft, Wright and Smith embody one prolonged plaint to the effect that the organization of the constabulary was premature, and that after the war proper ended, the last smouldering embers of armed and organized insurrection should have been stamped out, and the brigandage which had existed in the Philippines for centuries should have been dealt with, by the United States army rather than by the constabulary.

Even if it were true that the army could have rendered more effective service to this end than could have been expected at the outset from a newly organized body of Filipino soldiers, the argument against the organization and use of the constabulary would in my opinion have been by no means conclusive. It is our declared policy to prepare the Filipinos to establish and maintain a stable government of their own. The proper exercise of police powers is obviously necessary to such an end.

From the outset we have sacrificed efficiency in order that our wards might gain practical experience, and might demonstrate their ability, or lack of ability, to perform necessary governmental functions. Does any one cognizant of the situation doubt for a moment that provincial and municipal affairs in the Philippine Islands would to-day be more efficiently administered if provincial and municipal officers were appointed instead of being elected? Is any one so foolish as to imagine that the sanitary regeneration of the islands would not have progressed much more rapidly had highly trained American health officers been used in place of many of the badly educated and comparatively inexperienced Filipino physicians whose services have been utilized?

Nevertheless, in the concrete case under discussion I dissent from the claim that more satisfactory resultscould have been obtained by the use of American troops.

The army had long been supreme in the Philippines. Every function of government had been performed by its officers and men, if performed at all. Our troops had been combating an elusive and cruel enemy. If they were human it is to be presumed that they still harbored animosities, born of these conditions, toward the people with whom they had so recently been fighting. Had the work of pacification been then turned over to them it would have meant that often in the localities in which they had been fighting, and in dealing with the men to whom they had very recently been actively opposed in armed conflict, they would have been called upon to perform tasks and to entertain feelings radically different from those of the preceding two or three years.

A detachment, marching through Leyte, found an American who had disappeared a short time before crucified, head down. His abdominal wall had been carefully opened so that his intestines might hang down in his face.

Another American prisoner, found on the same trip, had been buried in the ground with only his head projecting. His mouth had been propped open with a stick, a trail of sugar laid to it through the forest, and a handful thrown into it.

Millions of ants had done the rest.

Officers and men who saw such things were thereby fitted for war, rather than for ordinary police duty.

The truth is that they had seen so many of them that they continued to see them in imagination when they no longer existed. I well remember when a general officer, directed by his superior to attend a banquet at Manila in which Americans and Filipinos joined, came to it wearing a big revolver!

Long after Manila was quiet I was obliged to get out of my carriage in the rain and darkness half a dozentimes while driving the length of Calle Real, and “approach to be recognized” by raw “rookies,” each of whom pointed a loaded rifle at me while I did it. I know that this did not tend to make me feel peaceable or happy. In my opinion it was wholly unnecessary, and yet I did not blame the army for thinking otherwise.

After the war was over, when my private secretary, Mr. James H. LeRoy, was one day approaching Malolos, he was sternly commanded by a sentry to halt, the command being emphasized as usual by presenting to his attention a most unattractive view down the muzzle of a Krag. He was next ordered to “salute the flag,” which he finally discovered with difficulty in the distance, after being told where to look. The army way is right and necessary in war, but it makes a lot of bother in time of peace!

This was not the only reason for failing to make more extensive use of American soldiers in police duty. A veteran colonel of United States cavalry who had just read Judge Blount’s book was asked what he thought of the claim therein made that the army should have done the police and pacification work of the Philippines. His reply was:—

“How long would it take a regiment of Filipinos to catch an American outlaw in the United States? Impossible!”

“How long would it take a regiment of Filipinos to catch an American outlaw in the United States? Impossible!”

Another army officer said:—

“Catching Filipino outlaws with the Army is like catching a flea in a twenty-acre field with a traction engine.”

“Catching Filipino outlaws with the Army is like catching a flea in a twenty-acre field with a traction engine.”

There is perhaps nothing so demoralizing to regular troops as employment on police duty which requires them to work singly or in small squads. Discipline speedily goes to the dogs and instruction becomes impossible.

A School Athletic TeamA School Athletic TeamCalisthenic exercises taught in the public schools are converting puny youths into vigorous athletes.

A School Athletic Team

Calisthenic exercises taught in the public schools are converting puny youths into vigorous athletes.

Successful prosecution of the work of chasingladronesin the Philippines requires a thorough knowledge of local topography and of local native dialects. Spanish is of use, but only in dealing with educated Filipinos. Aknowledge of the Filipino himself; of his habits of thought; of his attitude toward the white man; and toward theillustrado, or educated man, of his own race; ability to enter a town and speedily to determine the relative importance of its leading citizens, finally centring on the one man, always to be found, who runs it, whether he holds political office or not, and also to enlist the sympathy and coöperation of its people; all of these things are essential to the successful handling of brigandage in the Philippines, whether such brigandage has, or lacks, political significance.

The following parallel will make clear some of the reasons why it was determined to use constabulary instead of American soldiers in policing the Philippines from the time the insurrection officially ended:—

United States ArmyPhilippine ConstabularySoldier costs per annum $1400. (Authority: Adjutant General Heistand in 1910.)Soldier costs per annum $363.50.American soldiers come from America.Constabulary soldiers are enlisted in the province where they are to serve.Few American soldiers speak the local dialects.All constabulary soldiers speak local dialects.Few American soldiers speak any Spanish.All educated constabulary soldiers speak Spanish.American soldiers usually have but a slight knowledge of local geography and topography.Constabulary soldiers, native to the country, know the geography and topography of their respective provinces.Few American soldiers have had enough contact with Filipinos to understand them.The Filipino soldier certainly knows his own kind better than the American does.The American soldier uses a ration of certain fixed components imported over sea. (A ration is the day’s allowance of food for one soldier.)The constabulary soldier is rationed in cash and buys the food of the country where he happens to be.The American ration costs 24.3 cents United States currency (exclusive of cost of transportation and handling). Fresh meat requiring ice to keep it is a principal part of the American ration. To supply it requires a regular system of transport from the United States to Manila and from thence to local ports, and wagon transportation from ports to inland stations.The constabulary cash ration is 10.5 cents United States currency. (No freight or handling charges.) The constabulary soldier knows not ice. His food grows in the islands. He buys it on the ground and needs no transportation to bring it to him.The American soldier is at no pains to enlist the sympathy and coöperation of the people; and his methods of discipline habits of life, etc., make it practically impossible for him to gain them.The idea of enlisting the sympathy and coöperation of the local population is the strongest tenet in the constabulary creed.

Before preparing the foregoing statement relative to the reasons for using Philippine constabulary soldiers instead of soldiers of the United States army for police work during the period in question, I asked Colonel J. G. Harbord, assistant director of the constabulary, who has served with that body nine years, has been its acting director and is an officer of the United States army, to give me a memorandum on the subject. It is only fair to him to say that I have not only followed very closely the line of argument embodied in the memorandum which he was good enough to prepare for me, but have in many instances used his very words. The parallel columns are his.

The constabulary soldier, thoroughly familiar with the topography of the country in which he operates; speaking the local dialect and acquainted with the persons most likely to be able and willing to furnish accurate information; familiar with the characteristics of his own people; able to live off the country and keep well, is under all ordinary circumstances a more efficient and vastly less expensive police officer than the American soldier, no matter how brave and energetic the latter may be. Furthermore, his activities are much less likely to arouse animosity.

Incidentally, the army is pretty consistently unwilling to take the field unless the constitutional guarantees are temporarily suspended, and it particularly objects to writs of habeas corpus. The suspension of such guarantees is obviously undesirable unless really very necessary.

Let us now consider some of the specific instances of alleged inefficiency of the constabulary in suppressing public disorder, cited by Blount.

On page 403 of his book he says, speaking of Governor Taft and disorder in the province of Albay which arose in 1902–1903:—

“He did not want to order out the military again if he could help it, and this relegated him to his native municipal police and constabulary, experimental outfits of doubtful loyalty, and, at best, wholly inadequate, as it afterwards turned out, for the maintenance of public order and for affording to the peaceably inclined people that sort of security for life and property, and that protection against semi-political as well as unmitigated brigandage, which would comport with the dignity of this nation.”

“He did not want to order out the military again if he could help it, and this relegated him to his native municipal police and constabulary, experimental outfits of doubtful loyalty, and, at best, wholly inadequate, as it afterwards turned out, for the maintenance of public order and for affording to the peaceably inclined people that sort of security for life and property, and that protection against semi-political as well as unmitigated brigandage, which would comport with the dignity of this nation.”

The facts as to these disorders are briefly as follows:—

In 1902 an outlaw in Tayabas Province who made his living by organizing political conspiracies and collecting contributions in the name of patriotism, who was known as José Roldan when operating in adjoining provinces, but had an alias in Tayabas, found his life madeso uncomfortable by the constabulary of that province that he transferred his operations to Albay. There he affiliated himself with a few ex-Insurgent officers who had turned outlaws instead of surrendering, and with oath violators, and began the same kind of political operations which he had carried out in Tayabas, the principal feature of his work being the collection of “contributions.”

The troubles in Albay were encouraged by wealthy Filipinos who saw in them a probable opportunity to acquire valuable hemp lands at bottom prices, for people dependent on their hemp fields, if prevented from working them, might in the end be forced to sell them. Roldan soon lost standing with his new organization because it was found that he was using for his personal benefit the money which he collected.

About this time one Simeon Ola joined his organization. Ola was a native of Albay, where he had been an Insurgent major under the command of the Tagálog general, Belarmino. His temporary rank had gone to his head, and he is reported to have shown considerable severity and hauteur in his treatment of his former neighbours in Guinobatan, to which place he had returned at the close of the insurrection. Meanwhile, a wealthy Chinesemestizonamed Don Circilio Jaucian, on whom Ola, during his brief career as an Insurgent officer, had laid a heavy hand, had becomepresidenteof the town.

Smarting under the indignities which he had suffered, Jaucian made it very uncomfortable for the former major, and in ways well understood in Malay countries brought it home to the latter that their positions had been reversed. Ola’s house was mysteriously burned, and his life in Guinobatan was made so unbearable that he took to the hills.

Ola had held higher military rank than had any of his outlaw associates, and he became their dominating spirit. He had no grievance against the Americans, buttook every opportunity to avenge himself on thecaciquesof Guinobatan, his native town.

Three assistant chiefs of constabulary, Garwood, Baker and Bandholtz, were successively sent to Albay to deal with this situation. Baker and Bandholtz were regular army officers. The latter ended the disturbances, employing first and last some twelve companies of Philippine scouts, armed, officered, paid, equipped and disciplined as are the regular soldiers of the United States army, and a similar number of constabulary soldiers. Eleven stations in the restricted field of operations of this outlaw were occupied by scouts. There were few armed conflicts in force between Ola’s men and these troops. In fact, it was only with the greatest difficulty that this band, which from time to time dissolved into the population only to reappear again, could be located even by the native soldiers. It would have been impracticable successfully to use American troops for such work.

Referring to the statement made by Blount1that Vice-Governor Wright made a visit to Albay in 1903 in the interest “of the peace-at-any-price policy that the Manila Government was bent on,” and the implication that he went there to conduct peace negotiations, General Bandholtz, who suppressed outlawry in Albay, has said that Vice-Governor Wright and Commissioner Pardo de Tavera came there at his request to look into conditions with reference to certain allegations which had been made.

Colonel Bandholtz and the then chief of constabulary, General Allen, were supported by the civil governor and the commission in their recommendations that no terms should be made with the outlaws. The following statement occurs in a letter from General Bandholtz dated September 21, 1903:—

“No one is more anxious to terminate this business than I am, nevertheless I think it would be a mistake to offer anysuch inducements, and that more lasting benefits would result by hammering away as we have been doing.”

“No one is more anxious to terminate this business than I am, nevertheless I think it would be a mistake to offer anysuch inducements, and that more lasting benefits would result by hammering away as we have been doing.”

And General Allen said in an indorsement to the Philippine Commission:—

“... in my opinion the judgment of Colonel Bandholtz in matters connected with the pacification of Albay should receive favourable consideration. Halfway measures are always misinterpreted and used to the detriment of the Government among the ignorant followers of the outlaws.”

“... in my opinion the judgment of Colonel Bandholtz in matters connected with the pacification of Albay should receive favourable consideration. Halfway measures are always misinterpreted and used to the detriment of the Government among the ignorant followers of the outlaws.”

These views prevailed.

Blount has claimed that the death rate in the Albay jail at this time was very excessive, and cites it as an instance of the result of American maladministration.

Assuming that his tabulation2of the dead who died in the Albay jail between May 30 and September, 1903, amounting to 120, is correct, the following statements should be made:—

Only recently has it been demonstrated that beri-beri is due to the use of polished rice, which was up to the time of this discovery regarded as far superior to unpolished rice as an article of food, and is still much better liked by the Filipinos than is the unpolished article. Many of these deaths were from beri-beri, and were due to a misguided effort to give the prisoners the best possible food.

Cholera was raging in the province of Albay throughout the period in question, and the people outside of the jail suffered no less than did those within it. The same is true of malarial infection. In other words, conditions inside the jail were quite similar to those then prevailing outside, except that the prisoners got polished rice which was given them with the best intentions in the world, and was by them considered a superior article of food.

With the present knowledge of the methods of dissemination of Asiatic cholera gained as a result of theAmerican occupation of the Philippines, we should probably be able to exclude it from a jail under such circumstances, as the part played by “germ carriers” who show no outward manifestations of infection is now understood, but it was not then dreamed of. One of the greatest reforms effected by Americans in the Philippines is the sanitation of the jails and penitentiaries, and we cannot be fairly blamed for not knowing in 1903 what nobody then knew.

The troubles in Albay ended with the surrender of Ola on September 25, 1903. Blount gives the impression that he had a knowledge of them which was gained by personal observation. He arrived in the province in the middle of November, seven weeks after normal conditions had been reëstablished.

On October 5, 1903, General Bandholtz telegraphed with reference to the final surrender of Ola’s band:—

“The towns are splitting themselves wide open celebrating pacification and Ramon Santos (later elected governor) is going to give a record-breaking fiesta at Ligao. Everybody invited. Scouts and Constabulary have done superb work.”

“The towns are splitting themselves wide open celebrating pacification and Ramon Santos (later elected governor) is going to give a record-breaking fiesta at Ligao. Everybody invited. Scouts and Constabulary have done superb work.”

Blount makes much of disorders in Samar and Leyte. Let us consider the facts.

In all countries feuds between highlanders and lowlanders have been common. Although the inhabitants of the hills and those of the lowlands in the two islands under discussion are probably of identical blood and origin, they long since became separated in thought and feeling, and grew to be mutually antagonistic. The ignorant people of the interior have always been oppressed by their supposedly more highly civilized brethren living on or near the coast.

The killing of Otoy by the constabulary in 1911 marked the passing of the last of a series of mountain chiefs who had exercised a very powerful influence over the hill people and had claimed for themselves supernatural powers.

Manila hemp is the principal product upon which these mountaineers depend in bartering for cloth and other supplies. The cleaning of hemp involves very severe exertion, and when it is cleaned it must usually, in Samar, be carried to the seashore on the backs of the men who raise it. Under the most favourable circumstances, it may be transported thither in smallbancas3down the streams.

The lowland people of Samar and Leyte had long been holding up the hill people when they brought in their hemp for sale in precisely the way that Filipinos in other islands are accustomed to hold up members of the non-Christian tribes. They played the part of middlemen, purchasing the hemp of the ignorant hill people at low prices and often reselling it, without giving it even a day’s storage, at a very much higher figure. This system was carried so far that conditions became unbearable and finally resulted in so-calledpulájanismwhich began in the year 1904.

The termpulájanis derived from a native word meaning “red” and was given to the mountain people because in their attacks upon the lowlanders they wore, as a distinguishing mark, red trousers or a dash of red colour elsewhere about their sparse clothing. They raided coast towns and did immense damage before they were finally brought under control. It should be remembered that these conditions were allowed to arise by a Filipino provincial governor, and by Filipino municipal officials. It is altogether probable that a good American governor would have prevented them, but as it was, neither their cause nor their importance were understood at the outset. Thepulájanmovement was directed primarily against Filipinos.

The first outbreak occurred on July 10, 1904, in the Gandara River valley where a settlement of the lowlanders was burned and some of its inhabitants were killed.Eventually disorder spread to many places on the coast, and one scout garrison of a single company was surprised and overwhelmed by superior numbers. Officers and men were massacred and their rifles taken.

Filipina Girls playing Basket-ballFilipina Girls playing Basket-ball

Filipina Girls playing Basket-ball

In point of area Samar is the third island in the Philippines. In its interior are many rugged peaks and heavily forested mountains. It was here that a detachment of United States marines under the command of Major Waller, while attempting to cross the island, were lost for nearly two weeks, going without food for days and enduring terrible hardships.

At the time in question there were not five miles of road on the island passable for a vehicle, nor were there trails through the mountains over which horses could be ridden. The only interior lines of communication were a few footpaths over which the natives were accustomed to make their way from the mountains to the coast.

Troops have perhaps never attempted a campaign in a country more difficult than the interior of Samar. The traditional needle in the haystack would be easy to find compared with an outlaw, or band of outlaws, in such a rugged wilderness.

Upon the outbreak of trouble troops were hurried to Samar, and by December, 1904, according to Blount himself, there were some 1800 native soldiers on the island who were left free for active operations in the field by the garrisoning of various coast towns with sixteen companies of United States infantry.

If the nature of the feuds between the Samar lowlanders and highlanders had then been better understood, the ensuing troubles, which were more or less continuous for nearly two years, might perhaps have been avoided. As soon as it became evident that the situation was such as to demand the use of the army it was employed to supplement the operations of the constabulary.

About the time that trouble ended in Samar it began in Leyte. There was no real connection between thedisorders in the two islands. No leader on either island is known to have communicated with any leader on the other; no fanatical follower ever left Samar for Leyte or Leyte for Samar so far as we are informed.

For convenience of administration the two islands were grouped in a single command after the army was requested to take over the handling of the disturbances there, in coöperation with the constabulary. The trouble ended in 1907 and both islands have remained quiet ever since. The same causes would again produce the same results now or at any time in the future, and they would be then, as in the past, the outcome of the oppression of the weak by the strong and without other political significance. Under a good government they should never recur.

Many circumstances which did not exist in 1902 and 1904 made it feasible to use the army in Samar and Leyte during 1905 and 1906. The high officers who had exercised such sweeping powers during the insurrection had meanwhile given way to other commanders. Indeed, a practically new Philippine army had come into existence. The policy of the insular government as to the treatment of individual Filipinos had been recognized and indorsed by Americans generally, but many of the objections to the use of the troops, including the heavy expense involved, still existed and I affirm without fear of successful contradiction that had it been possible to place in Samar and Leyte a number of constabulary soldiers equal to that of the scouts and American troops actually employed, disorder would have been terminated much more quickly and at very greatly less cost.

With the final breaking up of organized brigandage in 1905 law and order may be said to have been established throughout the islands. It has since been the business of the constabulary to maintain it. The value of the coöperation of the law-abiding portion of the population has been fully recognized. The newly appointed constabulary officer has impressed upon him the necessity ofmanifesting an interest in the people with whom he comes in contact; of cultivating the acquaintance of Filipinos of all social grades, and of assisting to settle their disagreements and harmonize their differences whenever possible. He is taught a native dialect.

The constabulary have to a high degree merited and secured the confidence and good-will of the people, whose rights they respect. There is a complete absence of the old arbitrary procedure followed by theguardia civiland as a result there are frequent requests from Filipino officials for additional detachments, while the removal of a company from a given community is almost invariably followed by vigorous protests. The power of human sympathy is very great, and as the attitude of constabulary officers and men is usually one of sympathy, conciliation and affection, that body has earned and deserved popularity.

The success of the constabulary in apprehending criminals has been both praiseworthy and noteworthy. The courage and efficiency which have often been displayed by its officers and men in hard-fought engagements with Moro outlaws or with organized bands of thieves and brigands have been beyond praise. Many of its officers have rendered invaluable service in bringing the people of the more unruly non-Christian tribes under governmental control, not only bravely and efficiently performing their duty as police officers, but assisting in trail construction or discharging, in effect, the duties of lieutenant-governors in very remote places which could be visited by the actual lieutenant-governors only infrequently. I later take occasion to mention the valuable work done by Lieutenant Case in the early days of Ifugao, and to dwell at length on the splendid service rendered there by Lieutenant Jeff D. Gallman, who was for many years lieutenant-governor of the subprovince while continuing to serve as a constabulary officer. Lieutenant Maimban at Quiangan, and Lieutenant Dosser at Mayoyao,have been and are most useful, though they do not hold official positions under the Mountain Province or receive any additional compensation for the special services which they render. Captain Guy O. Fort served most acceptably as governor of the province of Agusan during the interim between the resignation of Governor Lewis and the appointment of Governor Bryant and Lieutenants Atkins and Zapanta have also rendered valuable service as assistants to the provincial governor. Lieutenant Turnbull is now assistant to the governor of Nueva Vizcaya for work among the Ilongots on the Pacific coast of northern Luzón. Other constabulary officers, who have not been called upon for special service of this kind, have performed their ordinary duties in such a way as to demonstrate that they were actuated by the spirit of coöperation and have been of great help.

But the work of the constabulary has not been confined to police duty. They have been of the greatest assistance to the Director of Health in effectively maintaining quarantine, and making possible the isolation of victims of dangerous communicable diseases like cholera and smallpox, when inefficient municipal policemen have utterly failed to do their duty. They have given similar assistance to the Director of Agriculture in the maintenance of quarantine in connection with efforts to combat diseases of domestic animals. In great emergencies such as those presented by the recent eruption of Taal volcano, and the devastation caused by great typhoons, they have been quick to respond to the call of duty and have rendered efficient and heroic service. They assist internal revenue officers. Except in a few of the largest cities they are the firemen of the islands and by their effective work have repeatedly checked conflagrations, which are of frequent occurrence and tend to be very destructive in this country, where most of the houses are built of bamboo and nipa palm, and where roofs become dry as tinder during the long periodwhen there is little or no rain. They have aided in combating pests of locusts, and, in short, have been ready to meet almost any kind of an emergency which has arisen.

The importance of having such a body of alert, industrious, disciplined, efficient men inspired by a high sense of duty, and physically so well developed that they can continue to perform that duty in the face of long-continued privations and hardships, is beyond dispute. The results which have been obtained by the Philippine constabulary have abundantly justified the policy which led to its organization.

Its task has been no sinecure. Eleven officers and one hundred ninety-seven enlisted men have been killed in action. Forty-eight officers and nine hundred ninety-one men have died of disease. Forty-six officers have been wounded in action. Seven hundred sixty-eight men have been discharged for disability. Seven thousand four hundred twenty-four firearms and 45,018 rounds of ammunition have been captured by, or surrendered to, the constabulary. Four thousand eight hundred sixty-two outlaws have been killed and 11,977 taken prisoners. Twelve thousand two hundred sixty-two stolen animals have been recovered.

There are many things which are not brought home to the reader by such statistics. The weary days and nights on tropical trails; the weakness and pain of dysentery; the freezing and the burning of pernicious malaria; the heavy weight of responsibility when one must act, in matters of life and death, with no superior to consult; the disappointment when carefully laid plans go wrong; the discouragement caused by indifference; the danger of infection with loathsome diseases; ingratitude; deadly peril; aching wounds; sudden death, and, worse yet, death after suffering long drawn out, when one meets one’s end knowing that it is coming and that one’s family will be left without means or resources,—these are someof the things that the officers and men of this gallant corps have faced unflinchingly.

The work of the constabulary and of the Philippine scouts has conclusively demonstrated the courage and efficiency of the Filipino as a soldier when well disciplined and well led.

The establishment and maintenance of order in the Philippines have afforded opportunity for some of the bravest deeds in the annals of any race, and the opportunity has been nobly met. The head-hunters of the Mountain Province, the Mohammedan Moros of Mindanao, Joló and Palawan, the bloodypulájanesof Samar and Leyte, the wilytulisanesof Luzón, all unrestrained by any regard for the rules of civilized warfare, have for twelve years matched their fanatical bravery against the gallantry of the khaki-clad Filipino soldiers. Time and again a single officer and a handful of men have taken chances that in almost any other land would have won them the Victoria cross, the legion of honor, or some similar decoration. Here their only reward has been the sense of duty well done.

The force known as the Philippine constabulary was organized for the purpose of establishing and maintaining order. It has established and is maintaining a condition of order never before equalled or approached in the history of the islands. The policy which led to its organization has been a thousand times justified.

1Blount, p. 425.2Blount, p.430.3Native dugouts.

1Blount, p. 425.

2Blount, p.430.

3Native dugouts.

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