Chapter IV: Decline of Sulu, 1851-1896

EXPEDITION AGAINST JOLO

The fearlessness of the Moros in battle, their determination, persistence, and fortitude must have disheartened the Spaniards very often in their weary attempts to conquer and pacify Sulu. The Sulus have never had any standing army. Every able-bodied male was a soldier and a sailor. Thousands of Sulus and Samals stood ready at a moment's notice to man a fleet and defend a fort. Every fort the Spaniards reduced the Sulus could rebuild in a short time; every fleet destroyed they could replace with little expense. They had enough pearls to purchase guns and ammunition, and a few months after a defeat they were ready to fight again, better prepared than before. War with Sulu, in the way it was conducted, meant a war of extermination and hostilities without end. Its worst evils befell the helpless natives of the coast settlements of the Bisayas and southern Luzon to whom Spain was unable to afford safe protection. The Moros would slip through in the night or take advantage of a favorable wind and attack the Spanish forces or the defenseless villages while they were unaware of danger or unprepared for a fight. For a long while it seemed beyond the power of the Philippine Government to reëstablish peace or restrict hostilities to Sulu waters. The magnificent victory of Claveria was hailed as marking the beginning of a new era of safety and glory, but its effects did not last long, and the fear of the Moros beset the hearts of the Bisayans once more.

In the light of such profound experience as the Philippine Government had had with Moro affairs Governor Urbiztondo might have contented himself with punishing the Moros of Tonkil and their abettors and allies, but another element of serious concern entered into the problem which threatened not only to render it more vexatious and unsolvable, but dangerous in the extreme. It was not so much the evils of disturbed relations with Sulu as the harm that would arise from English occupation of or alliance with Sulu that Urbiztondo feared, for in 1849, Sir James Brooke visited Jolo and made a treaty with the Sultan of Sulu, [210] the seventh article of which declared a promise made by the Sultan of Sulu not to make any cessions of territory within his dominion nor recognize sovereignty rights nor promise fealty to any nation without the consent of Great Britain. The overt object of this treaty was "to keep open for the benefit of the mercantile world that improvable field for commercial enterprise," but the ultimate purpose of such an agreement was not difficult to foresee. The governor of Zamboanga went to Jolo and protested strongly, declaring such a treaty an act of disloyalty to Spain, for which the Sultan and his council would be held responsible. The subject was debated with considerable feeling on both sides. The governor remained at Jolo twenty-seven days and returned without advantage.

The treaty was never ratified by Great Britain, but such endeavors on the part of a strong maritime European power made it necessary for Spain to act decisively and expeditiously. Urbiztondo then pressed to the attention of Sultan Pulalun and his council the necessity of punishing the Samals of Tonkil for their depredations on Samar and Kamigin and requested the return of the captives whom they carried away. Considerable controversy followed and the Sulus pretended that they were unable to punish Tonkil, but offered no objection to its castigation by the Philippine Government.

Aware of the seriousness of the situation, Urbiztondo made preparations for war and decided to attack not Tonkil only, but Jolo also, repeating there the example of Balangingi, and to bring Sulu under the control of Spain. Referring to this cause, Captain Keppel, in his "Visit to the Indian Archipelago," makes the following remarks:

His [the Sultan's] fortified position gave him weight, which he
had frequently thrown into the scale of humanity: and it must
now be feared that many whom he was able to hold in check will
again follow their evil propensities unrestrained, as they did
under previous dynasties.

The resentment of Spain, as visited upon the Sultan of Sulu, seems
equally impolitic and unjust. The pretext was piracy, of which
some solitary instance may very possibly have been established
against a Sulu prahu; but the Sultan was certainly sincere in his
wish to coöperate against that system. There is ground to fear
that national jealousy was desirous of striking its puny blow
at an European rival, through the degradation of the Sultan of
Sulu--that he has incurred, in fact, the resentment of the Spanish
colonial governors, by those commercial treaties with ourselves
which were but lately concluded by Sir James Brooke. [211]

On the 11th day of December, 1850, Urbiztondo left Manila in command of a force consisting of 100 troops of artillery, 500 of infantry, 2 mountain howitzers, and a number of irregular troops and workmen. Two steamboats, one corvette, and one brigantine carried the troops to Zamboanga, where they arrived on the 20th. Here 2 companies of infantry and 102 volunteers and 6 tenders under the command of the governor of Zamboanga joined the expedition. At Belun they burned 250 houses and 20 vintas. A small force of Moros was encountered, of which they killed 3 and captured 17 prisoners, one of whom was a panglima. The chief of Bukutwan surrendered and promised to remain obedient to Spain. At Tonkil bad weather was encountered and the whole expedition turned toward Jolo.

Jolo was well fortified. It had five forts on the sea front, the strongest two of which were that of the Sultan on the right and that of Datu Daniel on the hill. Three other forts were located on prominent points at the base of the hills. The town was further defended by a double line of trenches, other fortifications and much artillery. The population was estimated at 6,000 Moros and 500 Chinese.

The fleet saluted the town and anchored in the roadstead. Two officers were sent ashore to notify the Sultan of the presence of the Governor-General and of his wish to have an interview with the Sultan and two of his datus, on board. The people were excited to such a high degree, that the mob grew violent and uncontrollable as the officers drew near the shore. Insults and weapons were hurled at them from every side, and the people shouted to them to return lest they be killed. They, however, pushed on in the direction of the Sultan's fort, where some datus came out to meet and protect them. Even then spears were thrown at them, and one of the datus had to use his kampilan in order to enforce his orders. The Sultan at last came out personally, embraced the officers, and conducted them to the audience hall. There the message was delivered to the Sultan and his council, but they all refused to go on board. The officers met the same difficulty in leaving the Sultan's house as in coming in, and as soon as they embarked five shots were discharged at them by the mob. The officers reported that the town had more than 10,000 fighting men and that it was well provisioned and well defended, and that all the women and children were removed to the mountains. Urbiztondo decided that his forces and provisions were inadequate for the occasion and did not risk a combat. On January 1, 1851, as the fleet was preparing to sail away, the Sulus fired at it, killing seven, wounding four, and damaging the hulls of some of the vessels. The fleet returned the fire, but kept moving, and sailed away in the direction of Tonkil. Here the expedition met no organized resistance. Six hundred men were disembarked, fought some armed parties, caught 4 and killed 25 men, and rescued 29 captives. About 1,000 houses and 106 boats were burned, and the fleet then returned to Zamboanga.

Here Urbiztondo made further and extensive preparations to strengthen his expedition. The commanding marine officer was sent to Manila with special instructions to augment the fleet and bring sufficient ammunition and provisions. The Augustinian friar Pascual Ibañez raised a force of 750 Cebuans and 21 barangay, or large boats, and volunteered his help. Lumber was cut at Basilan, and lankan, [212] rafts, and ladders were constructed. Volunteers were further called for, and a large fleet of war vessels and transports was assembled at Zamboanga February 12, 1851.

Besides the staff, engineers, surgeons, and chaplains, the reënforced expedition contained 11 officers and 253 privates of artillery, 1 officer and 30 privates of sappers, 123 officers and 2,593 privates of infantry, 525 volunteers from Cebu, 100 from Iloilo, and 300 from Zamboanga; in all 142 officers, 2,876 privates, and 925 volunteers, besides rowers and other workmen. The vessels carrying the forces were 1 corvette, 1 brigantine, 3 steamboats, 2 gunboats, 9 tenders, 9 transports, and 21 barangay, with various vintas, [213] lankan, and rafts. On February 19 mass was celebrated and the expedition started for the haughty and arrogant city.

Jolo was reached on the 27th and the fleet anchored in two divisions opposite both sides of the town. The troops disembarked at dawn next morning and engaged the enemy as both divisions of the fleet began a simultaneous bombardment of the town and forts. The marksmanship of the Sulus and Spaniards was splendid, and the guns of the forts were very active. The spectacle was magnificent, the attack was most valorous, and the defense most valiant. In the heat of battle one friar was killed as he was scaling the wall and three officers fell by his side and lay surrounded by 70 corpses of Sulus. After several attempts one of the forts on the northeast side was taken by storm and the escaping Sulus made for Daniel's fort. As they were admitted into the latter, it was rushed by the Spanish troops who entered in spite of the desperate resistance the Sulus made. As the inner inclosure was gained the Sulus hurled themselves from the parapets and fled. The fighting continued until next day, when every fort was reduced, and the Sulus evacuated the town. The casualties of the attacking forces were 36 dead and 92 wounded, while the Sulus lost 300 dead. The whole town was burned to ashes and 112 pieces of artillery were taken. After four days, the Governor-General and his council decided to evacuate the town and sailed away, leaving it ungarrisoned. They evidently thought that their purpose was accomplished and that they could not afford to leave a force sufficiently strong to defend the place.

On April 30 a treaty was made with Sultan Pulalun by the politico-military governor of Zamboanga, Col. José Maria de Carlos. The treaty was declared to be "an act of incorporation of the sultanate of Sulu to the Spanish Monarchy." The Sulus understood it to be a firm agreement and friendly union with Spain. They, however, appear to have recognized the supremacy of Spain and accepted her protectorate. They agreed to use the Spanish flag and prohibit piracy. They further bound themselves not to make any treaties with any nation other than Spain nor to build forts nor to import firearms without her permission. Spain promised to respect and recognize the ranks of the Sultan and datus and to protect Sulu boats everywhere and to the same extent as Spanish boats. Duties on foreign boats were to be paid to the Sulus. Religious liberty was guaranteed. The Sultan issued passports to the Sulus and countersigned Spanish passports given to people entering the ports of Sulu.

It was agreed that Spain would build a trading post at Jolo and establish a small garrison for its protection. The Sultan and the datus resumed their residence in the town of Jolo, with apparently very little change from former conditions.

In consideration of the losses incurred by the Sultan and datus through the destruction of their houses and town, and on condition that the Sulus aid in the construction and protection of the Jolo trading post, annuities were granted to the Sultan, three datus, and one subordinate chief.

The treaty was written in both Spanish and Sulu and was signed and sealed by both parties. Complete and exact translations of the Spanish and Sulu copies of this treaty have been carefully made and are here given in full. The Sulu copy of the treaty appears to have been written or dictated by interpreters not versed in Sulu, and the difference in text is such as would easily explain the frequent misunderstandings between the Spanish officials and the Sulu authorities in cases pertaining to the application of the terms of this treaty.

TREATY OF APRIL 30, 1851

SULTANATE OF SULU

Act of Incorporation into the Spanish Monarchy, April 30, 1851

Solemn declaration of incorporation and adhesion to the Sovereignty
of Her Catholic Majesty Isabel II, Constitutional Queen of Spain,
and of submission to the Supreme Government of the Nation, made
by His High Excellency the Sultan of Sulu, Mohammed Pulalun,
Datus Mohammed Buyuk, Muluk, Daniel Amil Bahar, Bandahala, Muluk
Kahar, Amil Badar, Tumanggung, Juhan, Sanajahan, Na'ib, Mamancha
and Sharif Mohammed Binsarin, in the name and in representation
of the whole island of Sulu, to Colonel José María de Carlos y
O'Doyle, Politico-Military Governor of the Province of Zamboanga,
islands of Basilan, Pilas, Tonkil, and those adjacent thereto,
as Plenipotentiary specially authorized by His Excellency Antonio
de Urbiztondo, Marquis of Solana, Governor and Captain-General
of the Philippine Islands.

Article I. His Excellency the Sultan of Sulu, for himself, his
heirs and descendants, Datus Mohammed Buyuk, Muluk, Daniel Amil
Bahar, Bandahala, Muluk Kahar, Amil Badar, Tumanggung, Juhan,
Sanajahan, Na'ib, Mamancha and Sharif Mohammed Binsarin, all of
their own free will, declare: That, for the purpose of making
amends to the Spanish Nation for the outrage committed against
it on the first of January of this year, they desire and request
that the island of Jolo and all its dependencies be incorporated
with the Crown of Spain, which for several centuries has been
their only sovereign and protectress, making on this day a new
solemn declaration of adhesion and submission and recognizing
Her Catholic Majesty Isabel II, Constitutional Queen of Spain,
and those who may succeed her in this supreme dignity, as their
rightful Sovereign Lords and Protectors, in virtue of the treaties
made in old times, of the treaty of 1836 and the additions made
thereto by the present governor of Zamboanga in August, and also
and very particularly of the recent conquest of Jolo on the 28th of
February of the present year by Captain-General Antonio Urbiztondo,
Marquis of Solana and Governor-General of the Philippine Islands.

Article 2. The Sultan and Datus solemnly promise to maintain the
integrity of the territory of Sulu and all its dependencies as
a part of the Archipelago belonging to the Spanish Government.

Article 3. The island of Sulu and all its dependencies having been
incorporated with the Crown of Spain, and the inhabitants thereof
being part of the great Spanish family which lives in the vast
Philippine Archipelago, the Sultan and Datus shall not be empowered
to make or sign treaties, commercial agreements or alliances of
any kind with European powers, companies, persons or corporations,
and Malayan sultans or chiefs, under pain of nullity; they declare
all treaties made with other powers to be null and void if they
are prejudicial to the ancient and indisputable rights held by
Spain over the entire Sulu Archipelago as part of the Philippine
Islands, and they ratify, renew and leave in force all documents
containing clauses favorable to the Spanish Government that may
have been drawn up before this date, however old they may be.

Article 4. They renew the solemn promise not to carry on piracy
or allow anybody to carry on piracy within the dominions of Sulu,
and to run down those who follow this infamous calling, declaring
themselves enemies of all islands that are enemies of Spain and
allies of all her friends.

Article 5. From this day forth the island of Sulu shall fly the
Spanish national flag in its towns and on its ships, and the Sultan
and other constituted authorities shall use the Spanish war flag,
under the principles in use in other Spanish possessions, and
shall use no other either on land or on sea.

Article 6. The island of Sulu and its dependencies having been
declared an integral part of the Philippine Archipelago, which
belongs to Spain, commerce under the Spanish flag in all the
ports of the Sultanate shall be free and unmolested, as it is in
all the ports belonging to the Nation.

Article 7. The Sultan and Datus of Sulu, having recognized the
sovereignty of Spain over their territory, which sovereignty is
now strongly established, not only by right of conquest but by
the clemency of the conqueror, they shall not erect fortifications
of any kind in the territory under their command without express
permission of His Excellency the Governor-General of these Islands;
the purchase and use of all kinds of firearms shall be prohibited
except with a license issued by the same supreme authority,
and craft found with arms other than the edged weapons which
have from time immemorial been in use in the country shall be
considered as enemies.

Article 8. The Spanish Government, as an unequivocal proof of
the protection which it grants the Sulus, will give the Sultan
and Datus adequate Royal titles establishing their authority and
their rank.

Article 9. The Spanish Government guarantees with all solemnity
to the Sultan and other inhabitants of Sulu the free exercise of
their religion, with which it will not interfere in the slightest
way, and it will also respect their customs.

Article 10. The Spanish Government also guarantees the right
of succession to the present Sultan and his descendants in the
order established and as long as they observe these agreements,
and equally guarantees the rank and dignities of the privileged
classes, which shall retain all their rights.

Article 11. Sulu ships and goods shall enjoy in Spanish ports,
without any distinction whatever, the same privileges and
advantages granted the natives of the Philippine Islands.

Article 12. Except in the case of Spanish ships, the duties that
constitute the income with which the Sultan and Datus maintain
their respective ranks shall remain in force, so that they may
continue to keep up the proper splendor and decorum of their
station; for this purpose said duties shall be paid by all ships
coming to their ports; other measures will be taken later on to
enhance their dignity and increase their prestige.

Article 13. For the purpose of assuring and strengthening the
authority of the Sultan, and also of promoting a regular trade
which may enrich the island of Sulu, a trading post, garrisoned by
Spanish forces, shall be established as soon as the Government so
orders, and in accordance with Article 3 of the Treaty of 1836;
for the building of the trading post the Sultan, Datus, and
natives shall give all the assistance in their power and furnish
native labor, which will be paid for, and all necessary materials,
which they will charge at the regular market prices.

Article 14. The trading post shall be established at the place
called Daniel's Kuta, next to the roadstead, as it is the most
suitable place; but care shall be taken not to encroach in any way
on the native cemetery, which has to be religiously respected, and
no buildings whatever shall be erected in said cemetery, so as to
avoid the trouble that would ensue to those who might build there.

Article 15. The Sultan of Sulu may issue passports to all persons
within his dominions that may request them, and fix the amount
of the fees; he is also authorized to countersign or place his
seal on the passports of Spaniards visiting his place of residence.

Article 16. In view of the Sultan's declarations regarding the
losses suffered by him in the destruction by fire of his forts
and palace, and convinced of the reality of the losses, the
Spanish Government grants him an annuity of 1,500 pesos in order
to indemnify him in a certain way for these losses and at the same
time to help him to maintain, with proper splendor, the decorum due
his person and his rank. The same considerations induce the Spanish
Government to grant Datu Mohammed Buyuk, Muluk and Datu Daniel Amil
Bahar 600 pesos per annum each, and 360 pesos to Sharif Mohammed
Binsarin on account of his good services to the Spanish Government.

Article 17. The articles contained in this solemn Act shall
go this day into full effect, subject however to the superior
approval of His Excellency the Governor-General of these Philippine
Islands. Any doubt which may arise in regard to the text of this
Act shall be resolved by adhering to the literal meaning of the
Spanish text.

Signed at Jolo on the 19th of April 1851.--Seal of the
Sultan.--Seals of Datus Muluk Kahar; Tumanggung; Sanajahan;
Mamancha; Muluk Bandahala; Amil-Badar; Juhan; Na'ib; and signature
of Sharif Mohammed Binsarin.--The Politico-Military Governor of
the province of Zamboanga etc.: José María de Carlos y O'Doyle.

I, Don Antonio de Urbiztondo y Eguía, Marquis de la Solana, Knight
Grand Cross of the Royal American Order of Isabel the Catholic,
Knight of the Royal Order of San Fernando of the first and third
class, and of that of San Hermanegildo, Lieutenant-General of the
National Forces, Governor and Captain-General of the Philippine
Islands, President of the Royal Audiencia of the Philippine
Islands, Judge-Subdelegate of Post Office Revenues, Vice-Royal
Patron, and Director-General of the troops, etc., approve, confirm
and ratify this capitulation in the name of Her Majesty Isabel II.

Manila, April 30, 1851.--Antonio de Urbiztondo.

True copy.--Seal of the Captain-General of the Philippines.

Royal order approving the salaries assigned to the Sultan and
Datus of Sulu, December 14, 1851.

The Queen (whom God save), in view of the letter of Your Excellency
of May 3rd last, No. 1236, and of the report of the Secretary of
State on the subject, has been pleased to approve the salaries
assigned by Article 16 of the Capitulation to the Sultan and Datus
of Sulu, and amounting to 1,500 pesos for the Sultan, 600 pesos
for each of the Datus Mohammed Buyuk Muluk and Daniel Amil Bahar,
and 360 for Sharif Binsarin.

By Royal order etc.

Madrid, December 14, 1851.

The Intendant of the Philippines.

TRANSLATION OF THE SULU TEXT OF THE TREATY OF 1851

A statement of firm agreement and union (in friendship) made by
the Queen Spain Isabel II, Constitutional Queen of all Spain, and
the honorable officers of her government, with the Mawlana Sultan
Mohammed Pulalun and the Datus Mohammed Buyuk, Muluk, Amil Bahar,
Bandahala, Muluk Kahar, Amil Badar, Tumanggung, Juhan, Sawja'an,
Na'ib, Mamancha, and Tuan Sharif Mohammed Binsarin.

The King was represented here by Colonel Don José María de Carlos
y O'Doyle, Politico-Military Governor of the Province of Zamboanga
and islands of Basilan, Pilas, Tonkil, and others, who was given
power and authority by General Don Antonio de Urbiztondo, Marquis
of Solana, Governor and Great Captain of the Philippine Islands.

Article I. The Mahasari Mawlana Sultan of Sulu and his ministers
together with the datus mentioned above have the great desire to
state that they had good intentions toward the people of Spain,
on January 1, of this year. They also state that the relation
of Sulu and its dependencies to Spain has been one of intimate
union from the first until now.

They make anew, to-day, a firm agreement of union in friendship
with the Queen of Spain Isabel II, Constitutional Queen of All
Spain, and all her honorable officers, to reaffirm the previous
agreement of 1836, as also the agreement of last year made with
the governor of Zamboanga, in the month of August, which fully
affirmed the "Kunkista" [214] of Sulu which was effected on the
28th of February, this year, by Señor the excellent Don Antonio
Urbiztondo, Marquis of Solana, Governor and great Captain of the
Philippine Archipelago.

Article II. The Sultan and Datus promise with firm intention and
brotherhood not to revoke their agreement to the occupation of
Sulu and its dependencies, regarding them as dependencies of Spain.

Article III. Sulu and her dependencies alike use the Spanish flag;
the people of Sulu and her dependencies are one with the people
of Spain, and ally themselves to the Philippine Islands.

It shall not be right for the Sultan and the Datus to make treaties
with Malay datus or any nation other than Spain, whether that
nation is Spain's ally or not. Should such treaties be made they
would be null. So also they can not make any contracts with any
persons other than Spaniards, nor any agreement contrary to the
previous ones. Such agreements, if made, will not be binding
because Spain is in all the islands of Sulu as she is in her
Philippine Islands, and Sulu has previous friendship treaties
with Spain.

Article IV. New promise: Pirates shall not be allowed at all
here in Sulu. Should they commit any crime they shall be punished
wherever they may be.

Article V. The subordinate rulers, and all boats, from this day
on, shall use the Spanish flag, but the Sultan and the Datus can
use a war flag like the Spanish officials. They will not use any
other flag.

Article VI. The Island of Sulu and all its dependencies large
and small, being the same as the Philippine Islands in that they
belong to Spain, all Spanish officers and all ships flying the
Spanish flag may navigate through the Sulu Archipelago without
any objection.

Article VII. It is recognized by the Sultan and the Datus that
the King of Spain is powerful these days and is just and merciful
in acquiring "Kunkista," and that it is not right to build forts
without informing the Spanish Government nor to buy arms without
having also informed the Spanish Government, nor to have boats
carry any arms except the kris and the spear, for other arms are
signs of enmity.

Article VIII. The Spanish Government, wishing to promote fellowship
with the people of Sulu, gives the sultan and the datus titulu
(titles) to increase their respect and honor.

Article IX. The Spanish Government assures the Sultan and all
the people that it will let their religion alone, and that it
will not try to change their religion, nor object to the free
exercise of their worship and the customs of their race.

Article X. The Spanish Government does also promise the people and
the Sultan that it will not break its word. It also promises to
recognize the ranks of the Sultan and the Datus, and also those
of subordinate rulers and the people.

Article XI. Sulu boats and goods may go to Spanish countries
without any objection, in the same manner as if they belonged to
that country.

Article XII. All ships that come to Sulu, except those of Spain,
pay duties as previously, in order that the Sultan and the Datus
may get a share of the income of their towns, and may adopt
measures which will improve and benefit the town.

Article XIII. If the power of the Sultan is well established and
sustained, he may be able to secure other profits besides this,
by helping the Spanish Government, in accordance with Article 3
of the treaty of 1836, providing for the building of a trading
post which would be guarded by Spain. It will be proper for the
Sultan and the Datus to help in the erection of this trading post,
and all labor and lumber shall be paid for according to the custom
of the place.

Article XIV. This trading post shall be built near the site of
the fort of Amil Bahar. [215] It shall not encroach upon nor
cause any injury to the cemetery of the Mohammedans, but out of
due respect to their religion no house shall be erected there,
and in case any be erected it shall be destroyed.

Article XV. The Sultan of Sulu has the right to give passports
to all of his people who request it, sign those which he issues,
and countersign Spanish passports coming to Sulu.

Article XVI. The Spanish Government, forgiving the previous
offenses of the Sultan, and in consideration of the destruction by
fire of his palace and his fort, grants the Sultan a yearly sum
of P1,500 as a help and an indemnity for his losses. The Spanish
Government also grants to each of the Datus Mohammed Buyuk, Muluk,
and Amil Bahar, P600 a year, and to Tuan Sharif Mohammed Binsarin
P360 on account of his good services to Spain.

Article XVII. The articles of this treaty shall take effect
to-day. They shall be shown to the Captain-General of the
Philippine Islands lest he would not agree to them. They are also
in Spanish.

This treaty gained its purpose in that it checkmated the agreement of Sir James Brooke, but it certainly did not receive as much consideration at Jolo and Zamboanga as it did at Madrid and London. Its effect was temporary only. As early as 1854 a town on Kapul was burned by the Spanish forces from Basilan. In 1855 the Sulus made a dash upon Zamboanga and burned the best part of the town. The "Light Fleet" issued from Isabela de Basilan in 1857, surprised Simisa, rescued 76 captives, and took 116 prisoners. The chiefs against whom the expedition was directed presented themselves later to the governor of Zamboanga and exchanged the Moro prisoners for 60 Christian captives, 1 priest, and 1 European woman. Many pirates continued to scour the remote parts of the Archipelago. In 1858 Governor-General Norzagaray published a proclamation calling the attention of chiefs of provinces and municipalities to the approach of the season at which the pirates appear, and invoking their aid to caution the people and to take proper measures for the defense of their towns. Rewards were also offered for catching or killing pirates and for seizing their boats wherever found, but this had no important effect. In 1860 about 400 Moros raided the Straits of San Bernardino and plundered several settlements.

The year 1861 marks a new era in the history of piracy and a new step in the organization of government for Mindanao and Basilan. At this time Spain and the Philippines were passing through a period of progress. Alive to the truth that commerce and piracy can not coexist, the government provided a competent naval force by which it was able to maintain unquestionable supremacy in the Sulu Sea. It purchased eighteen steam vessels in England and used them for chasing Moro pirates and for blockading the port of Jolo. The operations conducted by these vessels drove away hordes of pirates from Philippine waters, and, in the course of a decade, terminated that long term of piracy under which the Islands had suffered for three centuries.

POLITICO-MILITARY GOVERNMENT OF MINDANAO AND ADJACENT ISLANDS

Affairs in Mindanao had progressed so satisfactorily that Pollok, Kotabato, and Davao were occupied by permanent garrisons, and peace and tranquillity reigned over the Celebes Sea. A politico-military government was then established for all the pacified territory of Mindanao and Basilan, and was designated as the Government of Mindanao. It comprised six districts, the first five of which belonged entirely to the Island of Mindanao. The sixth was called the district of Basilan and was defined as "comprising Basilan and the Spanish possessions in the Archipelago of Sulu." Sulu was not brought under this organization until 1878, when an additional district was created for this purpose. The form of this government and its chief characteristics are best described in the words of the royal order creating it, which is herein given in full because of many points of interest which are contained in the text and form of the decree, and which can not be well illustrated otherwise:

Superior Civil Government

Office of the Deputy Superintendent of the Philippine Treasury

CIRCULAR

The Minister of War and Colonies communicated to this Superior
Civil Government, on the 31st of July of last year, the following
Royal order:

Your Excellency: The Queen (whom God protect) has been pleased
to issue the following Royal decree: Pursuant to the reasons laid
before me by the Minister of War and Colonies, and in accordance
with the opinion of the Council of Ministers, I hereby decree
the following:

Article I. A politico-military Government is hereby established
for the island of Mindanao and adjacent islands.

Article II. The Government of Mindanao shall be divided into six
districts: 1. the Zamboanga District, formed of that part of the
province of the same name which includes all of Sibugay Bay,
and the west coast of the island as far as Murciélagos Point;
2. the District of the North, including, in the northern part of
the island, all the territory between the boundary line of the 1st
District and Dapitan Point, on Tutwan Bay; 3. the Eastern District,
between Dapitan Point, and Karaga Bay; 4. the Davao District,
beginning on the boundary line of the 3d District and including
the Bay of Davao and all the southern extremity of the island;
5. the Central District, including Illana Bay, situated between the
1st and 4th districts; 6. the District of Basilan, comprising the
Spanish possessions in the Archipelagoes of Sulu and Basilan. The
capital of the Government shall be in the Central District,
the most advantageous place at the mouth of the Mindanao River
being chosen. These districts shall be divided into two classes;
to the first class shall belong the Northern, Central and Eastern
districts, and to the second those of Zamboanga, Davao and Basilan.

Article III. The Governor of Mindanao shall receive 6,000 pesos
as salary, and 2,000 pesos as entertainment fund. The latter
shall be supplied from the revenues from Government real estate
and licenses. The Governor's residence shall also be supplied by
the State.

Article IV. This Governorship shall correspond to the class of
brigadier generals; but the first Governor appointed may be a
colonel, who will be entitled, as a reward, to an appointment as
brigadier general after three years.

Article V. The Governor of Mindanao shall be succeeded in
his command by the officer of the highest rank in the island,
pending the appointment of another Governor, or such action
as the Captain General may deem advisable. In the districts,
the Governor shall be succeeded by the officer next in rank,
until the Governor of Mindanao appoints an Acting Governor and
requests the Captain General to take such action as may be called
for by the regulations in force.

Article VI. The duties and powers of the Captain General in
regard to the Government of Mindanao, and those of the Governor of
the island, shall be the same as those provided for the Bisayas
in my Royal decree of this date. As military authorities, they
shall observe the usual relations between Captains General and
Commanders General of Provinces. The Governor of Mindanao shall
forward each month to the Captain General of the Philippines a
tabulated record of the resolutions taken by him in the exercise
of his authority, so that the latter may be able to exercise with
efficiency the general supervision to which he is entitled. The
Captain General shall forward to the Supreme Government, through
the proper channels, both this tabulated record, and a statement
of the action he has taken in the premises.

Article VII. The districts of the first class shall be governed by
lieutenant-colonels and those of the second class by senior majors.

Article VIII. The duties of these district governors shall be
those specified, up to the present time, for the politico-military
Governors of the island.

Article IX. The Governor of Mindanao shall have a Secretariate
with the following personnel: a Secretary at 2,500 pesos per year;
one clerk, class one, at 1,200; one clerk, class two, at 1,000,
and one clerk, class three, at 800. 1,000 pesos are furthermore
provided for the salaries of copyists, and 500 for office supplies.

Article X. There is hereby created for Mindanao a Revenue Office
which shall serve as depositary of the revenues, and shall have
charge of collecting all taxes, and of the administration of the
Army. It shall have the following personnel: an Administrator at
2,500 pesos; a Controller at 2,000; one clerk, class one, at 1,000;
two clerks, class two, at 800, and a cashier at 800. 1,500 pesos
are provided for the salaries of copyists and other auxiliary
employees, and 600 for office supplies.

Article XI. The chiefs of districts shall remain in charge of
the collection of taxes in the manner hitherto established, and
shall be entitled to the allowances provided for that purpose. The
provisions of this article shall not interfere with those already
made for the departments of the administration which exist at
the present time in Mindanao and their dependencies.

Article XII. For expediting their official business the district
governors shall have a secretary at a salary of 800 pesos in
districts of the first class, and 600 in those of the second
class. To each secretary's office 75 pesos are assigned for office
supplies, and 150 for a copyist.

Article XIII. The mission of the Jesuits, which has already been
sent to Mindanao, shall look after the spiritual wants of the
island, and Jesuits shall take the place of the other priests as
soon as the mission has a sufficient personnel, and in the manner
which may be deemed most convenient.

Article XIV. The first and principal object of the mission shall
be to secure the conversion of the races which have not yet been
subjected, and even after the parishes of the island are provided
for it shall maintain a sufficient number of missionaries for
that purpose; each missionary shall be aided to the extent of
800 pesos a year from the Royal Treasury.

Article XV. The War and Navy Departments, together with the
Colonial Office, shall decide what forces of the army and navy are
required for Mindanao; the Captain-General shall have authority
to make such changes as the circumstances may require, but he
shall always report such changes to the respective Ministers
for approval.

Article XVI. The Governor can use the naval forces whenever he
finds it necessary, with the assent of the commanding officer
thereof.

Article XVII. It shall be the constant duty of the army to explore
and to occupy the country; for that purpose, two columns at least
shall be detached each year from each district, and go through
said districts in different directions. The chiefs of these columns
shall make out a report about the territory reconnoitered by them;
said reports shall be included in a general report made by the
Governor, which shall be forwarded to the Department of War and
Colonies through the Captain-General of the Philippines; this
information will allow the Governor to give, in the following
years his instructions to the columns sent out to explore the
country, without losing sight of the advantage of establishing
friendly relations with the tribes which inhabit the island, and
the necessity of maintaining communication between the different
districts. These columns shall be provided with everything that may
be required to overcome the obstacles they will find on their way;
and during the expedition, officers and soldiers shall receive
field rations, issued in kind, according to the advice of the
Military Health Department. For this purpose 10,000 pesos shall
be carried on the budget for the first year, and 100 pesos shall
be given for each expedition to the officer commanding a column,
for extraordinary expenses.

Article XVIII. Two special agents shall be appointed by the
government for the purpose of studying means of developing all
the natural resources of the island of Mindanao.

Article XIX. In order to encourage colonists to settle in such
parts of the island as may be deemed best, they will be furnished,
at their request, the tools and implements required for their
work or trade. The Governor is furthermore authorized to pay
the traveling expenses of colonists who may wish to settle in
the island without exceeding the sum hereinafter provided, the
expenditure of which shall be duly accounted for. The new settlers
shall be entitled to the foregoing privileges for ten years,
and 12,000 pesos shall be appropriated for that purpose during
the first year, from the revenues accruing from government real
estate and licenses. The new settlers shall be exempt from tribute;
the same favor shall be granted all tribes that submit peacefully.

Article XX. The laws and regulations in force in the other islands
of the Philippines shall be observed in all the offices of the
Treasury Department. The prohibitions mentioned in the tariff
shall apply to the custom house of Zamboanga; articles imported
into the island in Spanish bottoms, and for local consumption,
shall pay, during the next ten years, 2 per cent ad valorem, if
of Spanish origin and 5 per cent if of foreign origin. If brought
under a foreign flag said articles shall pay double the amounts
specified above. If, after importing an article for use in the
island, it is reëxported to some other Spanish island, it shall
pay, on arrival at the latter the difference between what has been
paid in Mindanao and the regular duty established in the tariff.

Article XXI. Lands now under cultivation, and those placed under
cultivation during the next ten years, shall pay no other impost
than that required by the regulations now in force, per quiñon
of land, as an acknowledgment of ownership. [216]

Article XXII. The Government shall always have on hand a reserve
fund of 10,000 pesos to meet any urgent and unexpected need
that may arise; in such cases only, the Governor shall assume
the responsibility of using this sum, or part of the same, and
shall account for the expenditure, in the usual manner.

Article XXIII. A sum of 3,000 pesos per year is placed at the
disposal of the Governor for presents to the independent tribes,
for the purpose of gaining their friendship; the same amount
is assigned to the mission of the Jesuits. These funds shall be
expended and accounted for in the best possible form.

Article XXIV. For the expenses of installation a special estimate
shall be drawn up, and action shall be taken thereon as provided
by the laws for urgent cases.

Article XXV. No extra pay or allowances of any kind shall be
given except such as are provided in the present decree, and the
per diems usually granted military engineers when they are sent
out on official business.

Article XXVI. The War, Navy, and Colonies Departments shall execute
the present Decree in the parts which respectively concern them,
and shall work in common for the execution of such parts thereof
as may belong to two or more Departments.

Article XXVII. So many of the laws and orders in force as are
inconsistent with the provisions of the present decree are hereby
repealed.

Given at San Ildefonso on the 30th of July, 1860.

Rubric of Her Majesty.--The Minister of War and Colonies. Leopoldo
O'Donnell.--Communicated to you by Royal order for your information
and action.

Sultan Pulalun was regarded by the Sulus as an able administrator and a just ruler. His influence and fame and that of his father endeared the house of Jamalul Kiram to the people to such an extent as to restrict the succession of the sultanate to their direct line of descent for a considerable period of time. Following the steps of his father, he published a revised code of Sulu laws and conducted the affairs of his government with care. Pulalun died September 24, 1862, and was followed by his son, Jamalul A`lam.

The succession of Jamalul A`lam was contested by Datu Jamalul Kiram, the grandson of Sultan Shakirul Lah. The wife of Datu Jamalul Kiram was the daughter of Datu Daniel Amil Bahar, and the latter was inclined to support his son-in-law. Jamalul A`lam, however, had the majority of the council of the datus on his side, and a Spanish commission sent to Jolo in November, confirmed his sultanate. Espina states that at that time the sultan was living with Datu Asibi, and that the portrait of Queen Isabel II was placed before the sultan when he made his declaration before the commission to recognize the authority and sovereignty of Spain over all the dominions of Sulu, including her dependencies in Borneo.

It is noted in the Sulu Annals, under date of February 1, 1867, that a Spanish war vessel arrived at Jolo and demanded the punishment and delivery of three men, one of whom was called Imam Mindang. The sultan arrested all these men and had them executed on February 9 in the presence of the officer in command of the vessel. It appears that in spite of the vigilance of the Spanish navy, piratical expeditions were kept up by discontented Moros not fully submissive to the sultan. This led to further activity on the part of Spanish gunboats, and war was consequently carried into Sulu waters and territory.

Another note in the Sulu Annals, under date of March 5, 1872, states that 13 Spanish vessels attacked Jolo, killed 3 men and 1 woman and lost 2 officers and 100 soldiers. That same year the famous warrior Datu Daniel Amil Bahar died; and Puerta Princesa, capital of Palawan, was garrisoned by native troops. A naval blockade of Jolo was established and hostilities between Sulu and Spain were resumed. In 1873-1875 considerable damage was done by the fleet throughout the Archipelago, and two German vessels were seized while carrying contraband of war to the Sulus.

In the estimation of the Sulus, Jamalul A'lam was one of their best rulers. He carried out many public improvements, built roads and bridges and mosques, enforced public attendance at the Friday church services, and executed the laws with justice and force. He was as able a ruler as any sultan Sulu had since the days of Abu Bakr, but the vicissitudes of fortune were certainty against him. Before his reign ended, Spain's hand fell upon him strong and heavy, his capital was wrested from him, and his power waned.