There are, in the case of towns and villages, two provisions which are not necessary in the case of cities. One provision prescribes a method by which two or more towns or villages, by mutual agreement and with the permission of the superintending authority, may form a union for the common administration of affairs that are common to them. The other provision prescribes that, by a town or village by-law, decided upon by the _Gun_ council, “a small town or village may substitute for the town or village assembly _a general meeting of all citizens having suffrage_.” This appears to be an imitation, in theory at least, of the Anglo-Saxon town meeting and village assembly. The privileges of local self-government are extended to all parts of the empire except Hokkaidō and Formosa, which are administered as “territories” by the central government. In Hokkaidō, moreover, a small measure of local administration has been granted, and this will be enlarged as rapidly as possible. But Japanese rule in Formosa is worthy of special consideration, because it is illustrative of what Japan can do in bringing enemies under her jurisdiction into harmony with her government. Japanese colonial government in Formosa may be called a success. When Formosa[104] was ceded by China to Japan in 1895, it was well understood that the Japanese had no easy task in pacifying the Chinese, civilizing the savages, and thus bringing the beautiful isle, with its great resources, under cultivation and proper restraint. But, by a wise combination of military force and civil government, Japan has achieved a remarkable success. At first, for a brief period, Formosan affairs were under a separate department of State, that of Colonization; but when administrative economy and reform were demanded, this department was abolished, and the Governor-General of Formosa, appointed by the Emperor upon recommendation of the Cabinet, was made directly responsible to the Cabinet. At first, of course, mistakes were made, and a great deal of incapacity and corruption manifested themselves in official circles. But, by a gradual weeding out of the incompetent and the dishonest, the civil service has been greatly improved. Especially in dealing with opium smoking and foot-binding among the Chinese has the Japanese government shown remarkable tact. And it has also encouraged local administration among the natives to the extent of employing them in subordinate positions where they can be trained for future usefulness. The general policy of Japan in Formosa has been stated succinctly by Count Kabayama: “Subjugate it from one side by force of arms, and then confer on the subjugated portion the benefits of civil government.” It is the expressed determination to make Formosa, “body, soul, and spirit,” a part of their empire; and reliable testimony shows that they are making a success of their labors.[105]