Two days later we passed a much-needed act regulating the sale of intoxicating liquors within the city of Manila and its attached barrios. On December 21, we appropriated $75,000 United States currency for the construction of the Benguet Road, little dreaming how much time would elapse and how many more dollars would be appropriated, before a vehicle passed over it. It will be sufficiently evident that I cannot here give an account of the several acts which we passed when I say that they number four hundred forty-nine during the first year. We created the administrative bureaus of a well-organized government, established civil rule in numerous municipalities and provinces, provided for the necessary expenses of government, organized courts and reformed the judiciary. So important were the results following the establishment of the Civil Service Act and the act providing for the organization of courts for the Philippine Islands that I have devoted a chapter to each. Although there were no limits on our power to enact legislation other than those imposed by our instructions hereinbefore referred to, nothing was further from our desire than to exercise too arbitrarily the authority conferred upon us. Taylor has correctly described our method of procedure in the following words:-- "On September 1, 1900, the Commission began its legislative and executive duties. In performing them it adopted the policy of passing no laws, except in cases of emergency, without publishing them in the daily press, nor until after they had passed a second reading and the public had been given an opportunity to come before the Commission and suggest objections or amendments to the bills. Before enacting them they were submitted to the military governor for his consideration and comment." [460] The other especially important events of our first legislative year were the establishment of civil rule in the municipalities as well as in thirty-eight provinces and the substitution of the military central government by the gradual creation of bureaus and the ultimate appointment of a civil governor and of five heads of executive departments. On November 23, 1900, we passed an act providing for the establishment of a civil government in the province of Benguet, and thus it happened that a province practically all of whose inhabitants were members of a non-Christian tribe was the first to enjoy the benefits of civil rule. This action grew out of investigations by General Wright and myself made when visiting Baguio during the latter part of July, which led us to the conclusion that civil government could be established in Benguet at any time and should be established as soon as possible. In view of the rather primitive state of civilization of the people for whom we were legislating, a special act adapted to local conditions was passed providing for a provincial government and fixing a form of government for the several settlements.