Whatever difficulty occurs in the fulfilment of an order, it must be solved by means of a conference and advice [consulta], [26] from which a reply is not obtained until from twelve to fourteen months. These difficulties are more frequent in Filipinas than in a province of the Peninsula, because of the lack of knowledge of the country generally possessed by the ministers who dictate the measures. Things have gone so far that it has been ordered that the cultivation of the balate (a fish) be encouraged; and that the situado of Zamboanga be sent overland, because of the loss of the ship which was carrying it across to the island of Mindanao, where D. Infantes was then governing said presidio. The superintendent Enriquez says in the document which he printed on leaving his post in 1836, [27] that in the short period in which he filled the superintendency, he sent to the court six hundred and twenty-seven questions for resolution. And to these springs of torpor in the administration of the government, we must add that the captains-general scarcely decide any question whatever, without handing the matter for report to the assessor, fiscal, Audiencia, etc., because of the distance and impossibility of consulting España, and through their fear of compromising themselves, since on many occasions, measures have been obtained against them in Madrid, through agents and representatives or through complaints sent from the islands. The same thing happens with regard to the intendant and other authorities. From this practice arises the system of expedientes [28] which reigns, and which is so fatal to the prosperity and good government of the country, since very often the arrangement that appears good to some, is contrary to the opinions or interests of others. [Expedientes lasting for years have been formulated for matters requiring immediate attention. For instance, one lasting for years was formulated in regard to an expedition against the Moro pirates. An expediente is formed when a foreigner arrives at Manila without a passport from Spain and asks permission to remain in the country, although the law on this point is explicit. Thus much valuable time is lost and the expedientes result in only a waste of paper, besides great injury to the islands. The governor often has to conform to the opinions expressed in the expediente, although he knows they will be the cause of injustice. [29] On the other hand, the governor is often directly at fault, because he enforces his own opinion on his assessor, who has often obtained his position through favoritism and is not a lawyer, and decides questions according to the will of the governor. Besides, the governor has the armed force at his disposal. The chiefs of the various departments at Manila carry on correspondence with the directors-general of their respective departments in Madrid, without the knowledge of the governor, a fact that increases the confusion and disorder. The director of the mails even is at fault