generous and ingenious interpretations, found a way for
Congress to apply any reasonable rules required by the occasion.

=Porto Rico.=--The government of Porto Rico was a relatively simple
matter. It was a single island with a fairly homogeneous population
apart from the Spanish upper class. For a time after military occupation
in 1898, it was administered under military rule. This was succeeded by
the establishment of civil government under the "organic act" passed by
Congress in 1900. The law assured to the Porto Ricans American
protection but withheld American citizenship--a boon finally granted in
1917. It provided for a governor and six executive secretaries appointed
by the President with the approval of the Senate; and for a legislature
of two houses--one elected by popular native vote, and an upper chamber
composed of the executive secretaries and five other persons appointed
in the same manner. Thus the United States turned back to the provincial
system maintained by England in Virginia or New York in old colonial
days. The natives were given a voice in their government and the power
of initiating laws; but the final word both in law-making and
administration was vested in officers appointed in Washington. Such was
the plan under which the affairs of Porto Rico were conducted by
President Roosevelt. It lasted until the new organic act of 1917.

[Illustration: _Photograph from Underwood and Underwood, N.Y._

A SUGAR MILL, PORTO RICO]

=The Philippines.=--The administration of the Philippines presented far
more difficult questions. The number of islands, the variety of
languages and races, the differences in civilization all combined to
challenge the skill of the government. Moreover, there was raging in
1901 a stubborn revolt against American authority, which had to be
faced. Following the lines laid down by President McKinley, the
evolution of American policy fell into three stages. At first the
islands were governed directly by the President under his supreme
military power. In 1901 a civilian commission, headed by William Howard
Taft, was selected by the President and charged with the government of
the provinces in which order had been restored. Six years later, under
the terms of an organic act, passed by Congress in 1902, the third stage
was reached. The local government passed into the hands of a governor
and commission, appointed by the President and Senate, and a
legislature--one house elected by po