ansfer of authority from
military commanders to civil officers would be gradual, and full and
complete cooeperation between these authorities was enjoined. Having
familiarized ourselves with the conditions then prevailing in the
islands, we were to devote our attention first to the establishment
of municipal governments, in which the natives should be given the
opportunity to manage their local affairs to the fullest extent and
with the least supervision and control found to be practicable. We were
then to consider the organization of larger administrative divisions,
and when of the opinion that the condition of affairs in the islands
was such that the central administration could safely be transferred
from military to civil control were to report this conclusion to the
secretary of war with our recommendations as to the form of central
government which should be established.

Beginning with September 1, 1900, we were authorized to exercise,
subject to the approval of the President and the secretary of war, the
legislative power, which was then to be transferred from the military
governor to us until the establishment of civil central government,
or until Congress should otherwise provide. We were authorized during
a like period to appoint to office such officers under the judicial,
educational, and civil service systems, and in the municipal and
departmental governments, as were duly provided for. Until the
complete transfer of control the military governor was to remain the
chief executive head of the government and to exercise the executive
authority previously possessed by him and not expressly assigned to
the commission by the president in his instructions. In establishing
municipal governments we were to take as the basis of our work those
established by the military governor, under the order of August 8,
1899, which I had helped to set up, as well as those established
under the report of a board constituted by the military governor by
his order of January 29, 1900, of which Senor Cayetano Arellano was
the president.

In the establishment of departmental or provincial governments we
were to give special attention to the then-existing government of the
island of Negros, established with the approval of the people of that
island under the order of the military governor of July 22, 1899.

We were instructed to investigate troubles growing out of large land
holdings, including those of the religious orders, and to