Although there were no limits on our power to enact legislation other than those imposed by our instructions hereinbefore referred to, nothing was further from our desire than to exercise too arbitrarily the authority conferred upon us.

Taylor has correctly described our method of procedure in the following words:—­

“On September 1, 1900, the Commission began its legislative and executive duties.  In performing them it adopted the policy of passing no laws, except in cases of emergency, without publishing them in the daily press, nor until after they had passed a second reading and the public had been given an opportunity to come before the Commission and suggest objections or amendments to the bills.  Before enacting them they were submitted to the military governor for his consideration and comment.” [460]

The other especially important events of our first legislative year were the establishment of civil rule in the municipalities as well as in thirty-eight provinces and the substitution of the military central government by the gradual creation of bureaus and the ultimate appointment of a civil governor and of five heads of executive departments.

On November 23, 1900, we passed an act providing for the establishment of a civil government in the province of Benguet, and thus it happened that a province practically all of whose inhabitants were members of a non-Christian tribe was the first to enjoy the benefits of civil rule.  This action grew out of investigations by General Wright and myself made when visiting Baguio during the latter part of July, which led us to the conclusion that civil government could be established in Benguet at any time and should be established as soon as possible.  In view of the rather primitive state of civilization of the people for whom we were legislating, a special act adapted to local conditions was passed providing for a provincial government and fixing a form of government for the several settlements.

On January 31, 1901, we passed an act for the organization of municipal governments in the Philippine Islands which, with various amendments, is still in effect and has been made applicable to all municipal corporations of the Philippines inhabited chiefly by Filipinos, except the city of Manila, the city of Baguio and a few small settlements in the so-called special government provinces. [461]

On February 6, 1901, we passed a general act for the organization of provincial governments in the Philippine Islands.  A special act was required to make it applicable to any given province.

Having thus prepared for the serious work of establishing civil government throughout the archipelago so fast and so far as conditions might seem to justify, we determined to visit the several provinces and to familiarize ourselves with conditions on the ground in each case before taking action.  We invariably sought the opinion of the military authorities as to the fitness of the provinces under consideration for civil rule, and never established it except with their approval.  Indeed, in several cases we yielded to their judgment and organized provinces which we ourselves thought might better wait for a time.