least two districts,
and an additional judge, district attorney, marshal, and other
appropriate officers be provided.

There is practically no organized form of government in the Territory.
There is no authority, except in Congress, to pass any law, no matter
how local or trivial, and the difficulty of conveying to the Congress an
adequate conception and understanding of the various needs of the people
in the different communities is easily understood. I see no reason why a
more complete form of Territorial organization should not be provided.
Following the precedent established in the year 1805, when a temporary
government was provided for the recently acquired territory, then
known under the name of Louisiana, it seems to me that it would be
advantageous to confer greater executive power upon the governor and
to establish, as was done in the case of the Territory of Louisiana, a
legislative council having power to adopt ordinances which shall extend
to all the rightful subjects of local legislation, such ordinances not
to take effect until reported to and approved by the Congress if in
session, and if that body is not in session then by the President.
In this manner a system of laws providing for the incorporation and
government of towns and cities having a certain population, giving them
the power to establish and maintain a system of education to be locally
supported, and ordinances providing for police, sanitary, and other such
purposes, could be speedily provided. I believe a provision of this kind
would be satisfactory to the people of the Territory. It is probable
that the area is too vast and the population too scattered and
transitory to make it wise at the present time to provide for an
elective legislative body, but the conditions calling for local
self-government will undoubtedly very soon exist, and will be
facilitated by the measures which I have recommended.

* * * * *

I recommend that legislation to the same end be had with reference to
the government of Puerto Rico. The time is ripe for the adoption of a
temporary form of government for this island; and many suggestions made
with reference to Alaska are applicable also to Puerto Rico.

The system of civil jurisprudence now adopted by the people of this
island is described by competent lawyers who are familiar with it, as
thoroughly modern and scientific, so far as it relates to matters of
internal business, trade, p