om among their own people, practically
all of the elective provincial officers are Filipinos, as are ten
of the appointive officers, it having been the policy to appoint
Filipinos whenever possible.

Regularly organized provinces are divided into municipalities
which elect their own officers and control their own affairs for
the most part. Provincial treasurers have intervention in municipal
expenditures, which are approved in advance for each fiscal year,
and municipal officers may be removed for misconduct by the
governor-general.

All officers of the six special government provinces are appointed
by the governor-general with the approval of the commission.

There are four regularly organized municipalities in these provinces,
but the remainder of their territory is divided into townships,
which elect their own officers, except their secretary-treasurers,
who are appointed by the provincial governor; and into _rancherias_ or
settlements, with all of their officials appointed by the provincial
governor. This latter form of local government is confined to the
more primitive wild people.

The judiciary is independent. The details of its organization will
be found in Chapter XV.

Three of the seven justices of the supreme court, including the chief
justice, are Filipinos, as are approximately half of the judges of
the courts of first instance and practically all justices of the peace.

At the close of the fiscal year ending June 30, 1913, 71 per cent
of the employees in the classified civil service of the islands were
Filipinos painstakingly trained for the positions to which they had
been appointed.

Prior to the American occupation, the Filipinos had practically no
intervention in the government of their country.

The changes introduced in the twelve years since the establishment
of civil government began are of a sweeping and radical nature. For
reasons hereinafter fully set forth, I believe they have been somewhat
too sweeping, and too radical. At all events, it is now certainly the
part of wisdom carefully to analyze their results before going further.

I deem the subject of the establishment of civil governmental control
over the non-Christian tribes of the Philippines worthy of special
consideration. [484]

CHAPTER XIII

The Philippine Civil Service

Before the Philippine Commission left Washington, a clear understanding
was reached with the President and secretary of war to the effect that
no