familiarizing ourselves thoroughly with the facts and that returning prosperity might make the people concerned better able to bear the increased expenses which would result from such reorganization. A different class of cases has been presented by the proximity of certain municipalities to others, which not infrequently makes the union of two or more municipalities highly to be desired from an economical standpoint. In one instance it was found practicable to unite five municipalities in this way, and in several cases municipalities which were too small to maintain a separate existence have been incorporated with larger ones as barrios. Such changes, when proposed, have, however, usually proved unpopular. It has been found that civic pride often runs high in the smallest and most poverty-stricken places. The fact that a given municipality has had an uninterrupted existence as a "pueblo” for a century or two is, to its people, a sufficient reason why it should continue to exist independently. We regard this local pride as, in itself, most commendable and wherever practicable have avoided wounding it. With a single exception, union of municipalities has been effected only when the people concerned favored the change, or when it was evident to everyone that it was absolutely necessary for economic reasons. The one exception to this rule was in the case of San Nicolas, which was separated from the city of Cebu only by a small stream. This municipality had been a hotbed of insurrection and crime, and it was therefore felt that the preference of the people ought not to stand in the way of a change demanded in the interest of economy and efficient administration. THE BENGUET GOVERNMENT. The special provincial and municipal government acts adopted for Benguet, which is peopled almost exclusively by non-Christian Igorrotes, were fully described in the last report of the commission. No further legislation has as yet been enacted for non-Christian tribes, it having been deemed wise to await the results of the Benguet experiment before going further. With a view to ascertaining from personal observation how the Benguet laws were actually working, and to determine the practicability of applying them, or something like them, to Lepanto, Commissioners Worcester and Moses visited these provinces in June, going first to Baguio, the capital of Benguet, and then riding northward through the settlements known as Trinidad, Ambukláo, Daklán, Adaoay, Kabayan, Bugias, and Lóo, entering Lepanto at Mancayan and leaving by the Tilad Pass. In each of the several Benguet settlements visited after leaving Trinidad the headmen were called together and a frank discussion was had with them as to the practical workings of the municipal act under which they are organized. The conclusion was reached that the meas P C 1901-PT 1—3 ure is well adapted to their needs and is producing a slow, but none the less sure, improvement in their condition. While the ordinary Igorrote contents himself with a clout when at work and adds a cotton blanket during his leisure moments, only to keep himself warm, the municipal officials in the settlements visited had been led, apparently by the dignity of their positions, to secure and wear the garb of civilization. Some of the presidents had developed a considerable amount of efficiency as administrators. There had been a tendency on the part of many of the people to make untrue declarations in regard to their property in order to escape taxation, a tendency which was being gradually overcome as they came to learn by actual experience that all the money collected in any settlement was, under the law, spent for the good of its residents. It is needless to say that some very remarkable local ordinances have been passed by municipal councils in Igorrote settlements; but the provision that all such ordinances should be submitted to the provincial governor for approval before going into effect, and in case they were deemed defective should be returned by him to the council enacting them, with his suggestions as to desirable changes, has prevented any harm and has helped to educate the people as to the form which such measures should take. In some cases the provincial governor has purposely allowed defective ordinances to become operative in order that those who enacted them might learn wisdom by experience. A less encouraging account must be given of the practical working of the Benguet provincial government. It was the first provincial government to be established and its officials met with numerous and serious obstacles, not the least of which was their isolation, which rendered communication difficult, and sometimes resulted in their being left without necessary funds. Such seemingly simple matters as the organization of an office force and the securing of office supplies involved weeks of delay. In spite of obstacles and discouragements Governor Whitmarsh has begun the construction of provincial buildings, and has organized and carried out a successful expedition against the Busol head-hunters of northern Benguet and southern Lepanto. The chief obstacle in the way of further progress has been the personal differences which arose between the provincial governor and the provincial secretary, which were intensified by isolation from the outside world, and culminated in the resignation of both officials. The resignation of the provincial secretary has been accepted, and that of the provincial governor is being held until a suitable person can be found to take his place. While the lack of greater progress in Benguet has been due to the want of harmony between provincial officials rather than to the character of the act under which the province is organized, it is believed that this act may now profitably be amended |