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 political appointee whatsoever should under any circumstances be forced upon us. After arrival at Manila early attention was given to the drafting of a civil service act by Mr. Taft, who was fortunate in having the assistance of Mr. Frank M. Kiggins, chief of the examining division of the United States Civil Service Commission. The passage of this act and its strict enforcement led to very favourable comment in the United States. In his first annual message President Roosevelt said:-- "It is important to have this system obtain at home, but it is even more important to have it rigidly applied in our insular possessions.... "The merit system is simply one method of securing honest and efficient administration of the government, and in the long run the sole justification of any type of government lies in its proving itself both honest and efficient." Secretary Root also gave us his fullest support, calling attention to the fact that the law which we had passed was of a very advanced type, and that under such circumstances as confronted us, the securing of the best men available should outweigh, and indeed practically exclude, all other considerations.