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his favourite scheme to its full and fitting development during his lifetime. His published works are numerous, but mainly of a specialist character. Among the most important are his four or five publications on Dardistan, his report on the Language and People of Hunza, his report on the History of Indigenous Education in the Panjab, and his philological studies on trade dialects, especially the secret dialect of the Kashmir shawlweavers, the dialects of criminal and wandering tribes, etc. In 1890 he took over from Sir Lepel Griffin the Asiatic Quarterly Review, which, in spite of ill-health, he carried on himself till quite recently, in the conviction that it filled a place which in the interests of Oriental learning and of Imperial policy could not well be left empty. And we trust that as far at least as concerns the Asiatic Quarterly Review the good work he has carried on will not be allowed to come to an end with his death.

THE IMPERIAL

AND

Asiatic Quarterly Review,

AND ORIENTAL AND COLONIAL RECORD.

APRIL, 1899.

THE INDIAN CIVIL SERVICE AS A MODEL FOR CUBA AND THE PHILIPPINES.

BY SIR JOHN JARDINE, K.C.I.E.

THE Conquest of the Spanish islands in the East and West Indies, while arousing a world-wide interest, has raised issues of magnitude, and laid responsibilities of a new sort on the United States of America. Hitherto the Great Republic has managed its Red Indians in their reserves with partial success; it has brought the isolated Mormons of Utah under ordinary laws; and has at least been face to face with the grave problem arising from the millions of negroes, ever present and always multiplying. In parts of its ample space, it encloses communities of Creoles, French and Spanish by descent, religion and language. All these territories and peoples have been held together by the castiron bonds of the written federal constitution and the close pervading energy of the Anglo-Saxon: while the sovereign powers which each of the States enjoys have given free scope for special developments. The citizens make their own laws and breathe the air of freedom. Whereas in both Havana and Manila is felt the yoke of conquest, passions have been inflamed by rebellion as well as war, the aristocracy, both lay and clerical, has been levelled; and whole races, whether light or dark, in spiritual subjection to Rome, have come under a Protestant Power, whose principle is religious equality, whose instinct and experience alike abhor

THIRD SERIES. VOL. VII.

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such things as established Churches. For a time the American Generals and Governors will have to work in military fashion, even after Courts of Law are erected, in circumstances, if not flagrante bello, yet non dum cessante bello, the phrase which our Privy Council used of the Deccan some time after the battle of Kirkee, when Mountstuart Elphinstone ruled Bombay and Poona. Many an Indian province has passed through this stage, the ProvostMarshals and other officers of the army of occupation, men already familiar with the command of native troops, staying on as civil magistrates and judges over nations just delivered from oppression and grateful for staunch British justice, however rough and ready. In the Deccan of old, as in Upper Burma lately, such of the vanquished soldiery as held together gave much trouble as raiders, if not rebels, refusing to submit to civil justice without further fighting. But, as a rule, the period of transition is short; and before long the black-coated civilian, trained to revenue settlements and criminal law, is sent to despatch such work, or to oversee the departments. Past experience of the prompt and decisive action of the Americans in the field allows the hope that this ordinary phase of administration will soon be reached, at least in Cuba and Puerto Rico, islands well known to many since the time of President Polk, and lying near the American coasts. Doubtless there are statesmen who have studied the laws and customs of those two populations, amounting to about 1,600,000 and 800,000 of Spaniards, Cubans and Negroes, which figures we may compare with the quarter of a million more or less of Hong Kong, British Guiana, the half-million of Jamaica, and the 3,300,000 of Ceylon. The Philippines with 5 millions compare with the 6 millions of Belgium and the 5 millions of Sweden, Mysore, or Assam. The Gaekwar of Baroda and the Maharajah of Kashmir each rule as many subjects as are found in the two West Indian islands; and the Nizam of Hyderabad governs a population double that of the Philippines while in broader contrast, the 70 millions of Lower

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Bengal outnumber the dwellers in the United States, the 47 millions in the North West Provinces and Oude compare with the German Empire, and the 20 millions of the Punjab with Spain and Portugal together. The inference, however, from these big figures would be misleading as many portions of the Indian Empire have been acquired bit by bit, and the consolidation has been gradual. Thus, the problems of civil administration which will arise as soon as the Temple of Janus is really shut are, for the Americans, the same to all intents and purposes as have been solved in India. They have, unfortunately, no class of men analogous to the officers of the Indian Army, who, being familiar with the natives already, could easily settle down as governors in each new native territory as it fell under our arms. It seems likely, therefore, that those high duties in such matters as civil and criminal justice, land revenue, Customs and Excise, as well as the relations with foreign Powers and Malay chiefs, will at a rather early period be discharged by civilian officers, as happened in Java and other islands of Netherlands India, when our GovernorGeneral Lord Minto, in 1811, took them from the French, and appointed Sir Stamford Raffles as his lieutenant to govern them. For five years they were managed as a province of India. Raffles soon reformed the Dutch system, which had become backsliding and oppressive. The system of courts and of village police which he modelled on those of India still remain, as also the far-reaching policy whereby native customs are administered as law. But while the Dutch admit that he bestowed great boons on Java, they have found it advisable, and indeed required by native conditions and sentiments, to abolish his ryotwaree settlement, whereby the Government took rent directly from each peasant owner of land, and to return to dealings with them. collectively as village communities through their headmen. They have also restored the old custom of forced labour in lieu of part of the rent.

It is generally agreed that the Dutch Governor-General

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